Ruth Kelly has published the government's strategy for building an environmentally sustainable transport network.
The transport secretary said the document, produced in response to two government-commissioned reviews, would help develop a "pro-green, pro-growth" agenda.
It includes plans for high-speed rail links between London and Manchester - possibly as fast as 200mph - congestion charging in more cities, wider motorways and extra airport capacity.
The report is in response to last year's Eddington transport study and the Stern review of the economics of climate change.
It is intended to start a debate over how to spend an anticipated £20bn of funding after 2014.
The report said road pricing, recommended by former British Airways chief Sir Rod Eddington, was "a decision for the future", but suggested London-style congestion charges could be applied in other cities.
The report predicts "some growth" in airport capacity, particularly in the South East, suggesting that emissions trading should be used to offset the increase in carbon dioxide emissions.
Greenpeace said such an approach to aviation would lead to a huge increase in emissions, and showed the government had become "detached from reality".
Executive director John Sauven said: "Any carbon savings from personal travel plans and tweaking road policy will be wiped out many times over by flights from British airports."
Kelly said: "Our aim is to support people's desire for mobility whilst ensuring that transport contributes to the overall reduction in carbon emissions.
"This framework document will help us deliver, for the first time, a pro-green/pro-growth agenda for transport in the short and medium term.
"It is a process that is backed up by a long-term funding commitment and will include the serious engagement of passengers, transport users and other key organisations."
Liberal Democrat transport spokesman Susan Kramer said the document highlighted the inadequacies of this summer's transport white paper.
"This announcement seems to be a list of every transport idea ministers have read on a website, instead of being a coherent vision for Britain's future transport system."
The government should invest in a complete high speed rail network, back a national road pricing scheme and impose new charges on internal flights, she said.
As part of "robust regional consultation" to help decide how to allocate a potential £20bn of funding between 2014 and 2019, the government is to hold conferences in each of the nine English regions.
Investment until 2013/14 is already largely decided, the Department for Transport said, and is focused on the most congested routes.
The document will be followed by a green paper and formal consultation next spring.
