Roads And Conveyances

I've been thinking about the ferry toll issue. Why is it so hard for some people to think of a ferry as an integral element of a transportation system, properly funded out of the system budget?

One reason, I believe, is that people have been accustomed to thinking of the road as one thing and a conveyance as another.

But not always. What would have happened to major cities if elevators were viewed as a conveyance rather than a component of the building? And concluded we have to charge for using the conveyance? We would still be walking up stairs and skyscrapers would never have happened.