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How is it a tax, other than as an attempt to drum up opposition from the poorly-informed? This charge is very clearly a user-fee, as in, you have a choice of whether to pay it or not, and the amount you pay is directly tied to what you use. It's even implemented through the EZ Pass system, like any other road toll!
A tax, on the other hand, is compulsory, and levied on people whether they drive in lower Manhattan or not. The reason that New Jersey had standing to file its ridiculous lawsuit in first place is that some of the affected roadway is U.S. highway. If that's sufficient, then I want a say, because I'm forced to help pay for that highway, too, and I've never even been to lower Manhattan, so how's that fair?
Consider a tax on sandwiches (which New York actually has). I have a choice of whether to pay it or not; I could buy a different food. The amount I pay is directly tied to what I use; it's a sales tax. Would you say that it's wrong to call this a sandwich tax and that it should be called a sandwich user fee?
You don't mention this, but I think that the main difference between a toll and a sales tax is that the toll is for the use of something provided by the government whereas the sales tax is a fee that the government imposes on transactions between two other parties. However, tolls are generally for the use of something specific (for example, the Midtown Tunnel ). The New York City income tax isn't a toll despite the fact that it could be described as the fee that the government charges for living in NYC.
Ultimately the line between the two terms is a matter of opinion, but in my opinion driving in Manhattan south of 60th Street is too general for the fee charged for it to be called a toll. It's more like living in New York City than it is like driving through the Midtown Tunnel.
Is a car required to live in NYC?
No, and the majority of New Yorkers don't own cars. Which is why it's been mind-boggling to have the majority subsidize the minority and out-of-towners when they want to drive in an store their 3-tonne vehicles in public space, often for free.