Also, in what country did they ban horses?
To use Oxford as a small example of more than a toll, there's a few roads in the city centre that only buses/taxis are allowed to use, and a few roads that only pedestrians can use (with some time-specific exceptions for loading/unloading/etc.). Nobody looks at it and thinks "well now it's not congested we should allow cars again".
Some roads are congested even with private cars banned (e.g. Oxford Street).
> in the end I think what you're suggesting is running around giving tickets to people in traffic jams.
Would that be such a bad thing? Obv. it would need to be a little more formalized than that.
If I were to take public transportation to my job it would take about twice as long and involve me walking 5 miles both ways. And I get in traffic jams daily.
So yeah, if you went around penalizing people for something largely outside their ability to control, there would be riots in the streets.
I'll concede that yeah in that situation (the ban resulting in going from business horses to no horses) was essentially banning them. They're not technically banned as such, but the rules they're under changed too much for them to be viable.
I think banning them on congested roads will increase the demand for public transport which is what we should have on those road anyway.