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Based on the fee being below 60th only, you can easily cross the GWB into Bronx without getting anywhere near the toll.

Considering that the Cross-Bronx parkway is the road with the worst traffic in the entire country, you can't "easily" cross the GWB (but you can do so after sitting in traffic for several hours). And the privilege of this traffic nightmare is a $17 toll for the GWB ($13.50 if you have EZ Pass).

https://www.dnainfo.com/new-york/20170221/claremont/cross-br...

Are the FDR and west side highway exempt from the toll?

Yes, they're exempt.

The billions of dollars it would take to develop such infrastructure would make this congestion charge cheap by comparison.

Even the subways are centered on Manhattan.