The governor is picking up a cause that was championed by former Mayor Michael R. Bloomberg in 2008, but that met stiff resistance. It died in the State Assembly without coming to a vote. The current mayor, Bill de Blasio, has said that he favors a tax on millionaires and has argued that congestion pricing hurts the middle class and poor who live outside Manhattan and drive into it.

The report dismissed those claims, saying only 4 percent of residents of other boroughs commute to jobs in Manhattan in a vehicle, or approximately 118,000 residents. Of those, it said, more than half were higher income individuals, and fewer than 5,000 of them would qualify as working poor.

As important as the study has been for the city, the openly hostile relationship between the governor and the mayor was reflected in the makeup of the task force: Of its 15 members, none are from the de Blasio administration. The report called for increased traffic enforcement by the city, and said the distribution of official parking placards should be subject to a joint review by city and state officials.

People who live within the congestion zone would not be exempt from the new fees.

The new plan reflects a changed technological and political landscape since Mr. Bloomberg’s effort. It was described by people familiar with its details who asked not to be identified because it has not yet been presented to state legislators.

New technology can identify vehicles on any roadway and automatically charge them, so the task force was able to draw a narrower — and perhaps more politically palatable — cordon limited to the most crowded streets. In turn, that means drivers can enter Midtown and Lower Manhattan by two bridges without paying as long as they go directly to the F.D.R. Drive along the East River and then continue on it until they are out of the congestion zone.



With current street configurations, that is possible only at the Edward I. Koch Queensboro Bridge at East 59th Street and the Brooklyn Bridge downtown; coming into Manhattan via the Manhattan and Williamsburg Bridges, drivers are only able to continue into streets covered in the zone.

The crisis in the transit system may also make it easier for Mr. Cuomo to sell the pricing plan to the legislature. When Mr. Bloomberg made his pitch a decade ago, the transit system was in far better shape. In fact, the Bloomberg plan was intended to address surging ridership and anticipated the budget pressures that led to maintenance cuts.