When a cruising taxi takes a long-distance passenger to an adjacent city, under what circumstance may the driver charge a return toll or return empty-run fee?

1. Only when return tolls or inter-city return empty fees are explicitly stipulated in municipal government pricing regulations and agreed with the passenger beforehand
2. The driver can invent arbitrary return fees whenever driving outside city limits
3. Return fees can never be charged under any circumstances even if local pricing rules permit them
4. The driver can demand that the passenger buy a return train ticket for the taxi driver