PROJECT INFORMATION DOCUMENT (PID) APPRAISAL STAGE Report No.: AB5009 China Wuhan Second Urban Transport Project Name Public Disclosure Authorized Region EAST ASIA AND PACIFIC Sector General transportation sector (60%); Roads and highways (20%); Sub-national government administration (10%); Other social services (10%) Project ID P112838 Borrower(s) PEOPLE’S REPUBLIC OF CHINA Ministry of Finance San Li He Street, Xicheng District China 100820 Tel: 8610-68551124 Fax: 8610-68551125 Implementing Agency Public Disclosure Authorized Municipality of Wuhan No. 188, Yan Jiang Avenue Hankou, Wuhan Hubei Province China 430014 Tel: (86-27) 8282-6302 Fax: (86-27) 8281-4646 [email protected] Environment Category [ ] A [X] B [ ] C [ ] FI [ ] TBD (to be determined) Date PID Prepared November 2, 2009 Date of Appraisal September 15-18, 2009
Public Disclosure Authorized Authorization Date of Board Approval April 22, 2010 (estimated)
1. Country and Sector Background
Wuhan, the capital of Hubei Province, is the eighth largest city in China (with a population of more than 8 million) and a major economic and transportation hub in central China. At the confluence of the middle reaches of the Yangtze and Han rivers, the city consists of the conglomeration of three urban boroughs—Wuchang, Hanyang, and Hankou—that have grown simultaneously to an urban core population of more than 5 million people. Wuhan, historically known as the “thoroughfare of nine provinces,” enjoys a key geographic advantage that has attracted manufacturing and service industries, and has given the city its recognition as a political, financial, educational, and transportation center. In 2007, its GDP per capita reached Public Disclosure Authorized about US$4,500 and is expected to grow at 7 to 9 percent annually in the near future.
On December 2007, the City was designated by the State Council as a National Experimental Zone for the implementation of the Comprehensive Supplementary Reform on the Construction of a Resource-Saving/Environmentally Friendly Oriented Society (“Two-Type Society”). In this context, Wuhan seeks to improve mobility in the city’s central area and relieve congestion, particularly along corridors crossing the Yangtze River. The City has put forth a strong public transport improvement plan as demonstrated by its investments in bus priority and metro system, of which Line 1 is operational, as well as by its ancillary investments in areas such as traffic management.
Urban transport. At present, the City’s public transport (PT) system comprises mainly buses (with a fleet of more than 6,500), trolley buses, ferries, and one 10 km elevated rail line1 which is not yet integrated with other modes but is being extended to better link potential trip origins and destinations. Transport by car has been increasing steadily with the rising personal incomes and so has the number of trips by motorcycle. Trips by bicycle and other NMT have decreased but walking remains popular. There are indications that the growth in car ownership is spurring a continued increase in the number of trips undertaken by car or motorcycles at the expense of other modes.2 The following table shows the modal split with the estimates for 2008 based on the growth in the number of vehicles.
Mode 1998 2004 2008 Walking 37% 41% 38% Bicycle 29% 20% 20% Public transport (bus, ferry, metro) 22% 23% 24% Passenger car and motorcycle 12% 16% 18% Source: Wuhan Municipality, Pre-Feasibility Study Report, and World Bank Wuhan Urban Transport Project PAD, 2004. Municipal Transport Strategy and Key Sector Issues. Urban transport is largely the responsibility of the municipal government, which is entrusted with planning, financing, and implementing urban transport infrastructure. In 2003, Wuhan Municipality commissioned a study on a Wuhan Transport Strategy, with the objective of establishing a comprehensive transport system characterized by rapid, safe, and convenient movement of people and goods in such a way as to minimize travel and pollution, and to advance coordinated development across the urban region.
The strategy was fed into a revision of the Urban Master Plan in 2006 for the period up to 2020. The transport strategy identified four key issues that framed the proposed Bank-intervention: (i) congestion on river crossings; (ii) missing links in the primary road network; (iii) congestion in the city center due to limitations in the performance of the road network; (iv) the need to improve performance and mode share of public transport services.
2. Objectives
The Project Development Objective (PDO) is to enhance mobility for passenger trips within and to the central area of Wuhan in an environmentally sustainable, integrated, and safe manner. The
1 See Annex 1 on the metro network in Wuhan. 2 Urbanization and motorization would continue to grow but rates of growth might decrease in the context of the current worldwide financial crisis. project will involve (i) priority interventions in public transport (including traffic management), (ii) road safety improvements, (iii) enhanced management of the tunnel and bridges connecting Wuhan’s three boroughs, (iv) road improvements, and (v) institutional development. These interventions would be carried out in a coordinated fashion and concentrated along a few key municipal transport corridors in order to increase their impact and serve as demonstration initiatives that can later be implemented in other critical corridors of the city.
3. Rationale for Bank Involvement
The World Bank-financed Urban Transport Project in Wuhan, currently in its last year of implementation, was conceived to address a number of the issues listed in the previous section as identified at the time of its appraisal in 2003, with particular attention to: (a) shortcomings in the public transport system with limited network coverage; weak operational on-street management; and shortage of depots and facilities; (b) traffic congestion in an ill-defined hierarchy of roads, which were not well maintained; and (c) declining mobility for pedestrian and cyclists due to encroachments of cars and high rates of accidents with fatalities.
The Wuhan Municipal Government have assessed very positively the World Bank’s involvement in the ongoing Urban Transport Project and considers that the project has contributed substantially to overall improvement of municipal capacity in urban transport matters and to enhance the general mobility across the network. Although the project is not yet completed, most performance indicators show good progress towards the achievement of project targets, with several targets already met.
Building upon the strategies, interventions, and achievement of the ongoing World Bank- financed (first) Wuhan Urban Transport Project, the Chinese Government and the Wuhan Municipality City have asked the World Bank to continue the support to the financing of a new urban transport project with a focus on further improving traffic conditions in the core urban center (within the 2nd Ring Road), complemented with sustained assistance in strengthening the institutional capacity in urban transport matters. The proposed new project then would build upon the interventions being carried out under the ongoing project to continue the support to the implementation of the urban development and transport strategies envisioned by the Wuhan Municipality, and would take into account the lessons learned during the implementation of the ongoing project.
In this endeavor, the World Bank is ideally placed to continued its assistance to the Wuhan Municipality given its experience in other cities in China and elsewhere in urban transport matters and, particularly, in devising and supervising the implementation of interventions that attempt to shift trips from private to public and non-motorized modes of transport.
4. Description
The project is composed of five components. A detailed description can be found in Annex 4 of the PAD.
Component 1: Public Transport (PT) Component: PT Priority Corridor Improvements – $49.27 million ($21.23 million Bank Financing). The PT Component comprises a range of investments to strengthen PT route rationalization and operations and to give priority to buses on four key corridors, roughly within the 2nd Ring Road as follows: (i) Jiefang Dadao (in Hankou); (ii) Xinhua Lu/Youyi Lu (in Hankou); (iii) Heping Dadao (in Wuchang); and (iv) Hanyang Dadao/Yingwu Dadao (in Hanyang). In two of the corridors, Jiefang Dadao and Heping Dadao, the public transport improvements are being integrated with road safety improvements (see below). In addition, it is proposed to construct four public transport transfer terminals/interchanges at San Jin Tan, Gangdu Garden, Tian Shun Yuan, and Jinyin Tan to facilitate mode transfer from private to public modes, and Park and Ride (P+R) for NMVs and cars.
Component 2: Road Safety (RS) Component – $16.05 million ($11.41 million Bank financing). The RS Component consists of (i) an integrated package of good practice road safety interventions in the fields of enforcement, education, and engineering carried out along five key high-risk corridors identified during project preparation through a fatality map; and (ii) major investment in traffic management in the project area (the area within the 2nd Ring Road). Two of the identified corridors are also priority public transport corridors and offer opportunities to integrate public transport improvements with treatments to improve traffic safety. The corridors and area are: (i) Jiefang Dadao (included in the PT Component); (ii) Heping Dadao (included in the PT Component); (iii) Longyang Dadao; (iv) Xudong Dajie/No. 2 Yangtze Bridge; (v) Yanhe Dadao/Yanjiang Dadao; and (vi) specific activities to support overall improvement in safety and mobility in the area within the 2nd Ring Road. The costs of all road safety activities on Jiefang Dadao and Heping Dadao are recorded under the public transport component.
Component 3: Road Improvement (RI) Component – $478.09 million ($58.27 million Bank financing). This component includes the rehabilitation, upgrading, and construction of three key links of the urban road network of Wuhan, including: (i) Rehabilitation of 6.7 km of an existing section of Jiefang Dadao; (ii) Ground roads along the Shuidong Section of the 2nd Ring Road and the concurrent ground road section under the approach bridge of the Erqi Yangtze River Bridge in Wuchang; and (iii) New construction of the elevated Shuidong Section of the 2nd Ring Road from Heping Dadao to Zhongbei Lu Extension to close the 3.63 km missing link (under construction) from the Er Qi Yangtze Bridge (under construction) and the east section of the 2nd Ring Road in Wuchang. This last subcomponent is being mostly financed by Wuhan Municipal Government; only 23 out of 8 contracts will be partially financed by the Bank. However, the Bank has conducted a review of the technical designs for this component and all Bank social and environmental safeguard policies apply.
Component 4. Travel Demand Management (TDM) Component. $5.41 million ($4.35 million Bank financing) This aims to lay the foundations for possible future travel demand management measures in Wuhan by financing equipment for the Wuhan Urban Road and Bridge Monitoring Center (URBMC) and support for their training and capacity building. The component comprises monitoring equipment for the URBMC to support better management of the river crossings and is complemented by institutional development activities (costed under the institutional development component including (i) a technical assistance study on the feasibility
3 (i) Shuidong Section I and along-the route PT stop works ($18.56 m) and (ii) Shuidong Section V-ground and along-the route PT stop works, subsidiary works and surface pavement ($12.47 m). of alternative congestion charging schemes for Wuhan; and (ii) training and capacity building for URBMC. This component lays the groundwork for a future Electronic Tolling Systems (ETC) and possible congestion charging scheme for Wuhan.
Component 5: Institutional Development (ID) and Capacity Building Component – $4.94 million ($4.49 million Bank Financing). This component includes key selected studies and a comprehensive capacity building plan that would support Wuhan to use the Bank-financed project as a platform for dialog and international experience on comprehensive urban transport- related issues relevant to the city. It was agreed that based on current priorities, particular foci of this program would include: public transport integration; travel demand management and strategic environmental assessment.
5. Financing Source: ($m.) Borrower 508.59 International Bank for Reconstruction and Development 100.00 Total 608.59
6. Implementation
The project will be implemented by the Wuhan Municipal Government (WMG). Following arrangements similar to those established for the implementation of the ongoing Wuhan Urban Transport Project, the Project Owner, Wuhan Municipal Government Urban Construction Fund Management Office (WUCFM) will retain the current Wuhan Urban Construction Utilization of Foreign Investment Project Management Office—or Wuhan Urban Transport Project Office (WUTPO) in short—with responsibilities for managing and coordinating the implementation of the project. WUCFM is an entity of the WMG, established in 2008, responsible for raising, managing, and repaying funds for investment projects. This arrangement has precedence with other urban transport projects financed by the World Bank in China and reflects the prevailing legal framework established in many municipalities that attempts to delineate the revenue-raising authority within the legal mandate and responsibility of the municipal governments in the implementation of investment projects.
WUTPO will be entrusted with the overall project management and, through its units, with coordinating the implementation of the procurement, contract management, resettlement, social and environmental safeguards, loan disbursement requests, fiduciary compliance, and evaluation, results monitoring, and reporting. As it is under the ongoing Wuhan Urban Transport Project, WUTPO will be the primary coordinating body responsible for communicating with the World Bank, ensuring that implementation is consistent with all relevant World Bank policies and procedures, and ensuring good coordination between the different implementing entities.
In order to provide overall leadership, policy guidance, and institutional coordination for project implementation, a Project Leading Group (PLG) – Wuhan Urban Construction Utilization of Foreign Investment Project Multi-Agencies Meeting – has been established by WMG in 2007. The PLG is headed by the Vice-Mayor responsible for urban construction and is composed of leaders and directors of about 24 government line agencies.4 The PLG will be maintained throughout project implementation with functions and membership satisfactory to the Bank, and will meet on a regular basis (twice a year) and upon request of WUTPO when important issues arise. WUTPO would provide the PLG with the relevant information and support for the PLG to carry out its functions in policy guidance and strategic coordination of the project.
Taking into account the characteristics of the components of the project, three sub-project management offices (Sub PMOs) have been established to assist WUTPO in managing the implementation of the public transport, road safety, and road investment components, respectively, as follows: • Public Transport Sub-PMO. This Sub-PMO is established under the Wuhan Public Transport Group Company (WPTGC), an entity under the Wuhan Transport Commission, in charge of operating public bus transport in Wuhan. The Public Transport Sub-PMO is the designated sub-implementing agency for all elements of the public transport component except those elements involving urban road development and modification, (such as civil works on bus priority lanes junction channelization, bus bays, and PT interchanges) which will be implemented by WUTPO, and traffic management measures (signs, lines, barriers, traffic signals and E-police enforcement equipment) which will be implemented by the Wuhan Public Security Bureau Traffic Police Detachment (WPSB). Upon completion, the traffic facilities associated with bus priority lanes will be turned over to the WPSB other facilities for improving bus transport such as bus bays and bus stations will be turned over to the WPTGC; and urban roads will be turned over to the Wuhan Urban Management Bureau (WUMB). • Road Improvement Sub-PMO. WUTPO itself will be responsible for implementing the road improvement component. Upon its completion, the WUMB will take over the maintenance of the assets. • Road Safety & Traffic Management Sub-PMO. The Wuhan Public Security Bureau Traffic Police Detachment (WPSB), has been designated as the Sub PMO to lead the implementation of the road safety component and the road safety and traffic management activities envisaged under the PT component. Upon completion, the WPSB will remain responsible for maintaining all facilities and equipment established under the project.
Institutional Arrangements for the Capacity Building and Institutional Strengthening Component. WUTPO will continue to pay a critical role in terms of execution of studies, training efforts and study tours. However, this component will also have strong links with technical content-oriented government agencies and top WMG leadership. WUTPO will serve as the executive agency, responsible for implementing all TA studies. To ensure that the TA
4 Municipal Development and Reform Commission; Municipal Finance Bureau; Municipal Construction Committee; Municipal Transport Commission; Municipal Land Resources and Housing Bureau; Municipal Auditing Bureau; Municipal Planning Bureau; Municipal Environmental Protection Bureau; Municipal Administration Bureau; Municipal Price Bureau; Municipal Water Works Bureau; Municipal Public Security Bureau; Municipal Traffic Police Bureau; People’s Government of Jiangan, Jianghan, Qiaokou, Hanyang, Wuchang, Qingshan, Hongshan, Huangpi, Dongxihu, and Caidian Districts; and Wuhan Urban Construction Investment and Development Group Company Ltd. products remain relevant to government priorities and inform government decision-making, the range of relevant government agencies has been identified for involvement. Appropriate specific persons from each participant agency have also been identified. In particular, the lead agency eventually responsible for acting on the results of each TA study has been identified and will be integrated into the study efforts. All relevant agencies, particularly the lead agency will be sought at regular intervals including the finalization of terms-of-reference, inception report, mid-term report and draft-final report for each study.
Wuhan Municipality shall enter into an agreement with the (WUCFM) (where the WUTPO is located) for the purposes of managing and coordinating the overall implementation of the project. During project implementation, the line agencies that were responsible for leading the preparation of the project sub-components and have ownership of the design will assist the WUTPO under the WUCFM in preparing the technical parts of the bidding documents (including design drawings), participating in the Bid Evaluation Committees, and signing off on the technical parts of the contracts and the completed works. Definition and supervision of environmental and social safeguards will be carried out by specialized units of the WUTPO.
7. Sustainability
Past experience suggests that the Road Investment Component is likely to be constructed to high- quality standards and completed on schedule. Long-term sustainability of the road assets will, however, depend on effective and timely maintenance. Maintenance and asset management has been a focus of the Bank engagement under the ongoing Wuhan Urban Transport Project (2 major TAs) under which Wuhan has put in place a Comprehensive Road Maintenance Management System (RMMS) that provides municipal decision makers with a tool for the analysis, planning, programming, and budgeting of maintenance requirements. Competitive bidding for maintenance works contracts has been introduced and Wuhan has acquired advanced road maintenance equipment to improve the efficiency and effectiveness of in-house emergency maintenance works. In all the experience suggests that in the foreseeable future, maintenance is not a significant concern, particularly for major roads such as those being financed by this Project.
The corridor approach adopted in this project will offer demonstrations of elements of a sustainable urban transport system through better public transport operations and enhanced safety. Given past Chinese practice vis-à-vis adoption and mainstreaming of successful pilots, there is good reason to expect that successes of the project will be mainstreamed across Wuhan to create a safer and more public transport oriented transport network.
In a city like Wuhan, which is in the midst of constructing a significant urban rail system, the key to successful and sustainable public transport in the medium term will be the quality and level of integration – operational, institutional, fare, and physical – across public transport modes. Currently, though all bus and rail related agencies are ultimately accountable to one entity, the Municipal Government, much remains to be done to achieve successful integration. As such, public transport integration is possibly the key transport challenge the city will need to address in the coming years. The investment components of the proposed project support some of the building blocks of the integration agenda: (i) the current LRT system is being extended along the Bank-financed Jiefang Dadao and the adopted design reflects considerable effort to integrate the two projects during the Bank-financed project preparation period; and (ii) the public transport corridors finance a series of intermodal terminals. Public transport integration is also the centerpiece of the project’s capacity building component. The project will support technical assistance studies, as well as study tours focusing on different elements of this agenda. Furthermore, the project will support a series of workshops and seminars to bring together Chinese and international good practice related to public transport integration in the context of Wuhan’s actual needs.
8. Lessons Learned from Past Operations in the Country/Sector
Though it is premature to draw final conclusions on the results and impacts of the ongoing Wuhan Urban Transport Project, there are several lessons that appear relevant at this stage based on the implementation performance of that project and the experience of other similar type of projects in China. These lessons are listed below and have been appropriately considered in the design of the Wuhan Second Urban Transport Project.
Balanced package of investments. Proposals made by municipalities for World Bank urban transport projects have tended to allocate the majority of investments to road construction given the pressing needs in this respect and the view that enhancing road space can reduce traffic congestion. This view however does not take fully into account the need to focus on the movement of people rather than cars. The need for sizeable investments in public transport and in road safety must be stressed. The balance reached between road capacity and other investments in this project reflects that balance.
Importance of Management and Operations: Under the ongoing Wuhan Urban Transport Project, the city has successfully managed the construction of key urban infrastructure elements and has progressively started to realize the importance of management and operations, especially for public transport. The proposed second project will help nurture and support a transition for the city towards placing greater emphasis on management and operations issues by supporting: (i) training programs including (but not limited to): (a) public transport integration, (b) public transport service planning, (c) public transport operations management, (d) traffic management, and (e) road safety; and (ii) studies including (but not limited to): (a) optimization of public transport networks and integration across modes; (b) urban transport investment and asset operation; and (c) institutional and management framework for urban-rural integration.
Enhancing Bus Priority Schemes. The PT pilot bus priority scheme under the ongoing Wuhan Urban Transport Project, due to its rather limited design, does not appear to be achieving the full benefits of bus priority schemes. For bus priority to be fully effective, there has to be the foundation of good route rationalization and efficient operational practices, seamless integration of corridors and good physical design with attention to detail which should focus on the physical separation of the lanes from general traffic, signal priority at intersections and good bus stop location and design. Under the proposed project, it was decided to focus PT improvements along a selected set of key municipal transport corridors and integrate them closely with the interventions carried out under the Road Safety Component to maximize the benefits. Giving more Visibility to Road Safety: During project preparation, at the concept stage, in line with what is being implemented under several World Bank urban transport projects, it was recommended to create a stand-alone Road Safety Component to ensure that proper attention was given to this major health issue in China. Experience under previous World Bank Projects has shown the importance of focusing such a component along major municipal corridors with a high number of fatalities and designing an integrated package of good practice demonstration initiatives in the fields of enforcement, education, and engineering that could be replicated by the city on other corridors. Focused Institutional Development and Capacity Building Component. The Institutional Development and Capacity Building Component of the ongoing Wuhan Urban Transport Project appears to have encountered delays due to the large number of initiatives. The second project focuses on a smaller number of key items and attempt to achieve greater depth in their elaboration and follow-up.
The benefits of participatory planning processes. Chinese and international experience has shown that inclusion of the views of the public in the selection, planning and design of investments improves the quality of the completed infrastructure. Building on successful pilots in recent World Bank projects in Liaoning and Taiyuan, a public consultation process has been carried out in Wuhan and has provided significant guidance on the detailed planning for the project components.
9. Safeguard Policies (including public consultation)
Safeguard Policies Triggered by the Project Yes No Environmental Assessment (OP/BP 4.01) [x] [ ] Natural Habitats (OP/BP 4.04) [ ] [ ] Pest Management (OP 4.09) [ ] [x] Physical Cultural Resources (OP/BP 4.11) [ ] [x] Involuntary Resettlement (OP/BP 4.12) [x] [ ] Indigenous Peoples (OP/BP 4.10) [ ] [x] Forests (OP/BP 4.36) [ ] [x] Safety of Dams (OP/BP 4.37) [ ] [x] Projects in Disputed Areas (OP/BP 7.60)* [ ] [x] Projects on International Waterways (OP/BP 7.50) [ ] [x]
* By supporting the proposed project, the Bank does not intend to prejudice the final determination of the parties' claims on the disputed areas 10. List of Factual Technical Documents
No. Name Author Date Chin./ Hard/ Eng. Digital 1 Map Existing bus routes and bus Wuhan City October Chinese Hard passenger flow volumes at Comprehensive 2008 selected segments Transportation Planning & Design Institute 2 Wuhan City Transport Wuhan City February, Chinese Hard Development Strategy Study Comprehensive 2009 Transportation Planning & Design Institute 3 Wuhan Urban Transport Project Wuhan Municipal March 4, English Hard Phase II General Design Scheme Engineering Design and 2009 Research Institute Co Ltd 4 Capacity Building Component WUTPO March 5, Both Hard 2009 Chin/Eng 5 Road Network Improvement Planning and Design March 5, English Hard Component Design Institution of Wuhan 2009 Municipality 6 Jiefang Ave. Downward Planning and Design March 5, English Hard Extension Report Institution of Wuhan 2009 Municipality 7 Summary Report of Public Wuhan University March 5, English Hard Participation 2009 8 Wuhan City Transport Model Wuhan City March, Chinese Hard Report Comprehensive 2009 Transportation Planning & Design Institute 9 Map of 2015 projected traffic Wuhan City March, Chinese Hard volume on road network Comprehensive 2009 Transportation Planning & Design Institute 10 Feasibility study of the project WMEDRI May 2009 English Hard 11 Feasibility Study for Road WPSB May 2009 English Hard/ Safety Component Digital 12 Spreadsheet data on speeds, China Management May 2009 Chinese Digital traffic flows, bus stops & Science Research schools for the RS Corridors Institute 13 Feasibility Study for Public Wuhan Transport May 2009 English Hard Transport Component Science Research Institute 14 Economic Analysis Report Wuhan City May 2009 English Hard/ Comprehensive Digital Transportation Planning & Design Institute 15 Environment Impact Assessment China Railway Siyuan July 2009 Both Hard/ (EIA) Report Survey & Design Group Chin/Eng Digital No. Name Author Date Chin./ Hard/ Eng. Digital 16 EMP Road Component China Railway Siyuan June 2009 Both Hard/ Survey & Design Group Chin/Eng Digital 17 EMP Public Transport China Railway Siyuan April Both Hard/ Component Survey & Design Group 2009 Chin/Eng Digital
11. Contact point Contact: Shomik Raj Mehndiratta Title: Senior Transport Specialist Tel: 5788+7730 / 86-10-5861-7730 Fax: Email: [email protected] Location: Beijing, China (IBRD)
12. For more information contact: The InfoShop The World Bank 1818 H Street, NW Washington, D.C. 20433 Telephone: (202) 458-4500 Fax: (202) 522-1500 Email: [email protected] Web: http://www.worldbank.org/infoshop