You're forgetting that the transit zones themselves are not only affected, the main BRIDGES are also affected. So even if you're not driving in downtown Manhattan, you will still pay the cost to enter the city through the normal entrances

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Manhattan's Congestion Relief Zone starts at 60th Street and heads south to include the Lincoln, Holland and Hugh L. Carey tunnels on the Hudson River side, and the Queensboro Bridge, Queens Midtown Tunnel, Williamsburg Bridge, Manhattan Bridge and Brooklyn Bridge on the East Side.

Drivers will be charged when they enter the Congestion Relief Zone using the Brooklyn, Manhattan, Queensboro or Williamsburg Bridges, or the Holland, Hugh L. Carey, Lincoln or Queens-Midtown tunnels.

Drivers coming from the Bronx or Upper Manhattan will be charged once they reach 60th Street.

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