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In the early 1990s, transportation politics at both the state and federal levels was often fairly simple: an all-powerful Road Gang (made up of real estate developers and road contractors) typically got whatever it wanted, rolling over a much weaker pro-transit coalition of environmentalists and urban politicians.
Arguments over transportation policy often run as follows:
HIGHWAY SUPPORTER: Highways pay for themselves! Buses/trains don't! So highways good and everything else bad bad bad!
TRANSIT SUPPORTER: But highways create bad externalities like pollution and climate change! So if highways were taxed at their true cost gas would cost a zillion billion cajillion dollars per gallon! (followed by numerous counterarguments and counter-counterarguments that I won't bore you with, except as written below...)
It seems to me that these arguments miss one point: even if the highway system as a whole pays for itself, the system is so chock full of cross-subsidies that each individual road doesn't (except for toll roads).