Sydney drivers are set to be slugged by massive new road toll changes - which is set to see cars charged for going across the famous Harbour Bridge in both directions. 

Former Australian Competition and Consumer Commission chair Professor Allan Fels headed the NSW Government's independent toll review which released on Tuesday.

The report suggested introducing two-way tolling across Sydney's Eastern Distributor and the Harbour Bridge and Tunnel to reduce the overall cost of tolls. 

Prices across the entire network could be reduced with the revenue created by charging for trips across the harbour.

But the move would breaching a pre-election promise by the state Labor government not to create any new tolls for drivers.

It also recommended the creation of 'NSW Motorways', a state-owned entity which would set prices and promote more competition for toll roads around Sydney.

Professor Fels said the state's current operator, Transurban, held a monopoly on toll roads.

'Tolls need a big shake up. We can't wait until 2060 when contracts expire for that to happen – we need reform and reform needs to put the interests of motorists first,' he said Tuesday. 

Roads Minister John Graham said he'd support breaking his government's pre-election promise if the report made a 'strong case' to do so.

Professor Fels said equal tolls across all motorways would create a better system than what exists now. 

'What we specifically need are uniform tolls for all 13 motorways, to make them fairer, consistent, simple and efficient,' he said.

'And in that way, we'll get a better functioning network.' 

Professor Fels indicated that Transurban was willing to help reform Sydney's tolling system. 

The report added a second option for reducing costs which would build on the first by creating a more significant reduction through 'funding sources and efficiency gains in the tolling system'.

A drive from Penrith or Parramatta to the CBD currently costs $12.74 but that could drop to $11.94 or even $7.88 under Professor Fels' second option.

A trip from Campbelltown to the CBD costs $25.98 right now but that would drop to $19.58 or $12.79 under the two proposed systems.

Despite premier Chris Minns promising that there would be 'no new tolls on existing roads' in 2021, Mr Graham said the proposal seemed 'fair'.

'It is fair to ask everyone to contribute to solving this problem,' he said.

'If we're going to have one set of tolls across Sydney, the principles that underlie that should be the same regardless of where you live. 

'And that isn't the case under the way the old tolling system works.'