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It doesn't matter who is responsible, no sign = no fine. same applies for speeding etc.It might come down to the lack of signage, and who's responsible for that lack of signage.
It's a charge.
Same argument applies to CG, LEZ, Previous ULEZ and Dart Charge.
All perfectly legal charges.
Dart Charge = service being provided.
the inner zones are less problematic as you are well inside "London" before they come in to force. For the expansion you have people living just outside unable to access their local area without being charged. Those people have no ability to democratically object to the expansion.