Proceedings of the Eastern Asia Society for Transport Studies, Vol.6, 2007

CASE STUDY OF SUSTAINABLE TRANSPORT FOR EAST ASIAN MEGACITIES - SHANGHAI URBAN TRANSPORT

Haixiao PAN Weiwei LIU Professor Ph.D. Student Department of Urban Planning College of Architecture and Urban Planning Department of Urban Planning University of Tongji College of Architecture and Urban Planning 1239 Siping Road University of Tongji Shanghai 200092, China 1239 Siping Road E-mail:[email protected] Shanghai 200092, China E-mail: [email protected]

Abstract: This paper discusses on the main Survey results of the STREAM case study on Shanghai. The key content is on urban features, transport structure, transport policies in Shanghai. First, Shanghai’s context, transport infrastructure, travel characteristics has been described. Then Shanghai urban transport objectives, strategies and measures planned for next decade are highlighted in succession. At last, urban transport issue and policy have been analyzed.

Key Words: Urban transport, Transport policy, Shanghai

1. URBAN CONTEXT

The Municipality of Shanghai, which is located at middle of China's coastal line and in front of the Yangtze Delta, is a super mega city with vast hinterland and a favorable geographical location.

The total area of Shanghai is 6340 sq.km. In which built-up area is 678 sq.km. At the end of 2005, the permanent population of Shanghai was 17.78 million, in which registered population was 13.6 million. There are three ring expressways encircling Shanghai and nearly 4 million people living inside the Inner-ring expressway which cover an area of around 100 sq.km. The population growth is mainly caused by the immigration from other provinces. In 2005, the immigration was 0.13 million and the emigration was 34.6 thousand.

As part of the national economic development strategy, the Chinese government is resolved to construct Shanghai into an international financial and commerce center. The GDP of Shanghai in 2005 was 914.395 billion Yuan, increasing by 11.1%, among which, the added value of the primary industry was 7.965 billion Yuan, decreasing by 9.7%; the added value of the second industry was 447.592 billion Yuan, increasing by 12.1%, and that of the tertiary industry was 458.838 billion, increasing by 10.5%.

Shanghai has two tiers of government and three administrative levels. In the process of administration, the decision-making, authorization and implementation of planning are Proceedings of the Eastern Asia Society for Transport Studies, Vol.6, 2007 separated, and supervised by the two levels of city and district governments respectively. There are 17 districts and one county in Shanghai on the same administrative level, in which 10 districts are in the central city, 3 districts are in the near suburban, 5 districts are in the far suburban, and Chongming County is a big island.

Wujiaochang subcentre

Zhenru subcent Lujiazui People square centre Huamu subcentre

Xujiahui subcentre

Figure 1 City structure of Shanghai with multi-centre

Shanghai’s current land-use pattern is that public activity center is in the city center, industry and residential area are interlaced in the form of concentric circularity. There are one CBD that comprises Lujiazui in Pudong and Bund in Puxi. The area around people’s square serves as the municipal center, and there are four sub-centers, namely Xujiahui, Huamu, Wujiaochang, and Zhenru. The current city structure is not so appropriate that the central area is exploited immoderately and its density is too high.

2. URBAN TRANSPORT STRUCTURE

During the past ten years and more, comprehensive transport infrastructure in Shanghai has been established. The serving quality of public transport improves incessantly, and the transport management has been improved too. Problems such as the difficulty in taking bus, and traffic jam on the road that have accumulated for many years are relieved to some degree. In Shanghai, the planning, construction, and administration are under the control of three different departments of government which are Shanghai City Planning Bureau, Shanghai City Construction and Transportation Committee, and Traffic Department of Public Security Bureau. City Planning Bureau is responsible for the establishment of urban spatial planning. City Construction and Transportation Committee is responsible for transport infrastructure Proceedings of the Eastern Asia Society for Transport Studies, Vol.6, 2007 construction and public transport operation. And the management of urban traffic is in the charge of Traffic Department of Public Security Bureau.

Motorization of Shanghai is so rapid that the number of motorized vehicles increases from 0.466 million to 2.217million from 1996 to 2005 with the annual growth rate of 20.8%. At the end of 2005, there are 951.5 thousand registered autos (including 535.9 thousand cars, 224.1 buses and 191.6 thousand vans) and 1.2 million registered motorcycles which represent ownership rates of 70 autos and 88 motorcycles per 1000 persons. These add up to a combines motorized vehicle ownership rate of 158 vehicles per 1000 persons, but motorcycles have been strongly restricted in central city.

The total length of the roadway in Shanghai is 12227 km, while the road space is 205580 thousand square meters at the end of 2005. The roadway of city wide comprises two types: highway and urban road. The former has a total length of 8110 km with 560 km of freeway, and the later has a total length of 4117 km with 77 km of expressway.

Figure 2 Freeway network in suburb Figure 3 Expressway in centre area

2.1 Road-Based Public Transport System Road-based public transport system in Shanghai is composed of bus system and para-transit system. Under the administration of Shanghai City Construction and Transportation Committee, there are 53 public transport operating companies. Up to the end of 2005, the total amount of bus is 18000 with 1180 thousand seats, the bus/trolley lines amounts to 948 and the total length is 22000 km, and local buses serve 7.48 million passengers daily.

Shanghai has constructed 5 bus ways with the total length of 21.6 km. According to the research of urban transport department, the effectiveness of bus way is that average speed of transit and social vehicles increased 8% and 5%. But the actual effect is doubtable because of the weak enforcement. By 2010, there will be 110 km bus way inside the inner ring, which Proceedings of the Eastern Asia Society for Transport Studies, Vol.6, 2007 trys to improve the service of bus system and meet the requirements of 2010 World Expo. BRT system has being planned for about 300km and the first phase will be the semi-circuit road connecting Shanghai West Station and South Station. The public transport lines in suburban areas will have the same policy with urban bus lines.

Subsidy policy on public transport system is brought into effect due to rising fuel price in 2004. The specific measure is that if the diesel oil price exceeds 3 yuan/litre than the normal price, the additional cost will be shared by bus company and government equally by reducing the company business tax.

The bus fare system is under a zonal structure that in central area the fare of bus vehicle is 2 yuan with air-conditioning, 1 yuan without air-conditioning. In suburb the fare is increased by travel distance which includes an initial base charge of 1yuan and a distance charge of 0.2-0.25yuan per kilometer. Bus fare is collected through fare box or transit IC cards which can also be used to metro, taxi and ferry. It is ticket free for the elderly people over 70 years old.

Para-transit system in Shanghai mainly refers to taxi. There are 45,000 taxis registered which carry 2.96 million passenger every day. Average trip distance is 6.1km, a taxi will drive 348km/day normally.

Since May 11, 2006, the initial base of taxi fare has been increased from 10 yuan/3km to 11 yuan/3km and the distance charge of 2yuan/km has been adjusted to 2.1 yuan/km, due to the increasing in petrol price.

2.2 Rail-Based Public Transport System Rail-based public transport system is constructed with government’s unitary investment (42% of financing comes from revenue and 58% comes from government loan provided by banks), but operated by Shentong Rail Company. Especially Line One is a Joint-stock company.

There are 5 urban rail lines in Shanghai currently with 68 stations and a total operation length of 147.9 km. The passenger serviced by Shanghai’ urban rail system increases steadily from 2000 to 2005, with an annual increase of nearly 37%. The total passenger per day also rises to 1.63million at the end of 2005. Proceedings of the Eastern Asia Society for Transport Studies, Vol.6, 2007

Line 1，length 32.4km，be open to traffic in 1995； Line 3 Line 1 Line 2，length 25.2km，be open to traffic in 2000；

Line 3，length 40.3km，be open to traffic in 2000；

Line 2 Line 4，length 33km，be open to traffic in 2005；

Line 5，length 17km，be Line 4 open to traffic in 2003.

The total length is 147.9km

Line 3 and line 4 share same track of 11km long. Line 5

Figure 4 Urban rail lines in Shanghai The urban rail fare structure is distance-based that the basic fare is 3yuan within a distance of 6km then the fare increases 1 yuan per 10km. Passengers can either purchase a single ticket or use transit IC card. As the spread of urban space, more and more passengers need transfer to reach destination. From December 25, 2005, the preferential benefit policy for transfer was implemented. Subsidie of 2 billion yuan is provided by Shanghai government every year.

There are about 300 km of inter-city railway from Shanghai to other cities, two main line of which are Shanghai-Nanjing rail line and Shanghai-Hangzhou rail line. 2.3Non-Motorized Transport System The share of non-motorized transport system with total transport is as high as 57.2%. Compared with the cities of developed countries, Shanghai has a relatively perfect non-motorized transport system including pedestrian and non-motorized cycle system.

The pedestrian system in Shanghai is consisted of sidewalk system and the arcade system including blind way, handicapped elevator, pedestrian bridge, pedestrian subway, pedestrian street and urban river bank pavement which connect the bus station and passenger terminals. Pedestrian countdown traffic signals at intersections have widely installed to inform pedestrians of the time remaining to cross the roadway. Pedestrian-only traffic signal phasing has been applied at Shanghai’s major junctions.

The planning for the urban pedestrian facility is usually determined in detailed control plan, Proceedings of the Eastern Asia Society for Transport Studies, Vol.6, 2007 or in further urban design which are charged by Urban Planning Bureau of Shanghai’s various districts or counties except some important sections. In the construction process of the city, the design of pedestrian facilities mainly conforms to state code for Urban Road Transportation Plan and Design Criterion (GB 50220—95). The roads within residential district should be designed in accordance with state code for Urban Residential District Plan Design Standard (2002 edition). The construction of pedestrian facilities is usually implemented by Shanghai Municipal Engineering Management Bureau during the construction of urban road.

The total number of registered non-motorized cycles is 10.44 million, in which there are 9.37 million bicycles, 0.84 million electric bicycles and 0.23 million gas motorbike. Actually the usage rate of bicycle is only 50%. The number of electric bicycle grows so rapidly that 430,000 electric bicycles appear only in 2004. In the same year, the average travel volume a day by non-motorized cycle is about 12.9 million trips, in which bicycle 10.7 million trips, decreased by 3%, and electric bicycle 2.2 million trips, increased by 1.4 times.

2.4 Modal Competition and Integration There are seven travel modes including urban rail, bus, taxi, car, motorcycle, non-motorized cycle and walk, among which modal split percentages in central of Shanghai are 3.6%, 20.8%, 6.2%, 11.0%, 1.2%,24.9%, and 32.3%. The respective modal shares are 2.5%, 16.0%, 5.2%, 11.3%, 5.2%, 30.6% and 29.2% in the whole city.

As the urban rail network gradually improves, the service of bus system of Shanghai lags behind. In recent years, many bus lines in the same direction with urban railway lost considerable passengers. As a result, the share of rail transport passenger with total public transport passenger increases year by year.

Thus, integration between bus and rail system has been receiving particular attention. However, the building of city transit hubs has comparatively lagged behind and passenger transfer between existing rail routes is inconvenient. So a lot of integrated transfer hubs are being built in which transfer facilities for bus, metro, taxi and non motorized vehicles are synchronously planned, constructed. There are also some P+R systems and well-ordered bicycle parking lots at the metro station established at the periphery of Shanghai.

3. ADVERSE IMPACTS OF URBAN TRANSPORT

The adverse impacts of urban transport in Shanghai are consisted of air pollution, traffic congestion, traffic accident and spatial segregation.

Air pollution The air pollution of Shanghai is the complex pollution of petrol and soot. Through the adjustment of energy source structure, the soot pollution is controlled effectively, but the pollution of car emission in center city is still serious. The pollutant is mainly the NOx discharged by the motorized vehicles. The average thickness of NO2 of the city in 2005 was Proceedings of the Eastern Asia Society for Transport Studies, Vol.6, 2007

0.061 mg per cubic meters, and the thickness in the urban areas increased by 0.002 mg per cubic meters compared with 2000, which indicates the pollution of car emission rises.

Traffic congestion Traffic flow on Shanghai’s roads increases sharply from 1995 to 2005. In 1995, the districts with heavy traffic are mostly in the central zone, while in 2005, the heavy traffic trends to spread over whole city. In peak time, the proportion of congested roads in centre area is more than 40% and the congested road intersections are over 50%.

Figure 5 Congested road and crossing of downtown

Traffic Accident In 2005, Shanghai has a total of 9,238 road traffic accidents, resulting in 1,393 fatal, 8,850 injured, and 79.6 million yuan of property lost. Compared with 2004, the number of accidents declines 65.96%, the number of the fatal declines 9.72%, the number of injured declines 21.71%; direct property loss declines 58.43% and fatality rate every 10,000 vehicles dropped from 7.65 to 6.60.

Spatial segregation Some large urban transport infrastructures do cause the problems of spatial segregation and landscape damage in Shanghai. On the one hand, expressways are in closed form, which requires long distance between entrances and exits, so the lands sides of which are inevitably separated. The elderly, handicapped and young children may have quite a lot of difficulties of crossing those enormous transport infrastructures, so you can rarely find the disable people in street. On the other hand, the trip in suburb is less convenient than in the central areas.

4.URBAN TRANSPORT OBJECTIVES, STRATEGIES AND MEASURES

Since the 1990s, Shanghai's transport infrastructures has been expanded continuous1y, both passenger and freight transport system improved obviously, and the management capability strengthened. However, the sectors of urban transport have not yet been fully integrated, and many transport problems still exist and need to be urgently solved. Proceedings of the Eastern Asia Society for Transport Studies, Vol.6, 2007

As the pace of the urbanization speeds up and the growth rate of vehicle ownership increases rapidly, the demand of transport will further expand, the requirements on transport services will increase, which will urgently need an integrated transport system with good integration, high efficiency to provide citizens with more alternatives of reliable, comfortable and speedy mobility.

4.1 Urban Transport Objectives The strategy of Shanghai transport development is to build for a huge integrated transport system of high quality, high efficiency and full integration to satisfy the growing travel demand and to improve the whole city's competitiveness. Integrated transport will provide accessible, safe, comfortable and clean services.

"Accessible" means to ensure that people could make their trips by selecting the most suitable transport tools and that most of the citizens in the central city can finish their journeys within one hour.

"Safe" means to reduce the rate of traffic accidents, with the yearly fatality rate every l0 thousand vehicles no higher than 5.

"Comfortable" means to provide comfortable and nice transport environment.

"Clean" means to reduce the transport pollution to the extent of less than 35, 000 tons of nitrogen oxide emission per year.

4.2 Urban Transport Strategies Public Transport Priority Strategy Being a mega city, Shanghai should adopt the policy of "public transport priority" according to the principles of giving priority to public interests and optimal efficiency, that is, giving priorities to ensure the land use, investment, operation efficiency and interchange convenience of public transport. Moreover, continuously increase in the proportion of the trip by public through active guidance; make good use of slow transport for short trips and feeding to public transport so that the public transport might become the major transport mode with private transport as the complementary.

It is planned that the urban rail lines open to passengers will amount to 11 in 2010, with a total length of 400 km. And according to the long-term plan, the running lines will be 17, and the total length will increase to 970 km. By 2020, the percentage of transit trips in will be 35% in the whole city.

Transport Area Differentia Strategy The transport area differentia strategy for different supply and demand in different areas is implemented since the city spatial structure with very strong centers makes Shanghai transport be characterized with the features of highly concentrated demand and distinctly Proceedings of the Eastern Asia Society for Transport Studies, Vol.6, 2007 different availability of the road capacity in different areas.

In the city center, public transport will takes the rail network with large capacity as its major mode. The vehicle flows shall be controlled and the configuration of the road hierarchy system will be improved. As a result, the proportion of public transport vehicles will be much larger than that of private vehicles.

In the suburban area, more construction of the rapid roads shall still be expected, even though 560 km expressway has already been built and the restrictions on the use of private vehicles will be appropriately relaxed. Thus, the proportion of public transport vehicles will be close to that of private vehicles.

Road/Vehicle Coordination Strategy The f1ow of the motorized vehicles shall be regulated and controlled to maintain the road operation at a reasonable level. The total amount of the motorized vehicles shall still be controlled under the restriction of no large room for the road network to expand, inadequate development of public transport, imperfect parking charge and being lack of road charging methods.

Dynamically regulating the growth speed of the motorized vehicles by car plates bidding with the improvement of traffic control and management capabilities, regulating the vehicle usage by road charging and parking control.

4.3 Urban Transport Measures Measure 1: Set up a public transport system with coordinated operation. Each mode of the public transport system should have rational functions. With its advantages of large capacity and high speed, the rail transit should work as the main body of the city transport, and mainly undertake the medium and long distance trips. As the basic modes of city transport, buses and trolley buses should fully exert their merits of large coverage to undertake the medium and short distance trips mainly and provide feeding service for rail transit. As the complement to the city transport, taxis should bring its flexibility into full play.

Measure 2: Build functionally perfect road operation system. Rationalizing road network structure, in a hierarchy way, various roads with different levels of functions, to optimize the road functions and maximize the operation efficiency of roads. Keep a balanced development between public transport network, pedestrian network, bicycle network and motorized vehicle network. Work out the plan and implement the construction of the parking system compatible with the road capacity, and coordinate the relations between car circulation and parking capacity.

Measure 3: Build the transport interchange system by inter-modal service. Provide convenient and fast interchange services to passengers through inter-modal transport hubs. Realize the effective interchange between the public transport and private transport through Park and Ride system. Connect the intercity transport facilities such as airports, Proceedings of the Eastern Asia Society for Transport Studies, Vol.6, 2007 harbors, railway stations and highway passenger stations closely to the urban transport through comprehensive hubs with fully integrated urban road and rail service. Rationally allocate the goods flows through the logistics, and improve the efficiency and benefit of freight transport.

Measure 4: Build a unified and efficient transport administration system. To perform the complex management of the programming and planning, investment and construction, operation and control, pricing and charging, etc. for the city transport, a unified institutional setting should be established through coordinated planning in land use and travel demand management. Now urban transport bureau is merged into the urban construction commission

5. URBAN TRANSPORT ISSUES AND POLICY RESPONSES The key issues and policy responses in Shanghai on urban transport are presented in the following table

Proceedings of the Eastern Asia Society for Transport Studies, Vol.6, 2007

Table 1 Urban transport policies

Domains Emerging Issues Policy responses

A. Regional level policies – Connection with – The construction of – Regional development Jiangshu and Zhejiang newtowns in Jiangshu and – Population settlement province is adequate. Zhejiang developing axis – Coastal development is – Planning coastal inadequate development corridor B. Urban development – Pour too much attention – Planning 9 new towns to – Urban structure to city center keep regional equilibrium – Land-use planning and – Urban centre density is – Construct new towns to control too high displace the population for – Housing development – Urban expansion is in the city center the form of concentric – Changing the urban circularity(dropping oil) spatial structure to “multi-axes, multi-layers, multi-cores” C. Urban transportation system – Urban Roads and – Road network structure – Continue infrastructure Motorization and space distribution is improvement construction ‧ parking not perfect. – Adopt TDM to restrict ‧ City road network structure – Central zone becomes car ownership and car trips ‧ Allocation of road space more and more congested. – Investment pattern ‧ Transport investment – Road construction becomes more ‧ Trend of motorization investment is limited. market-oriented and ‧ Vehicle tax, diversifying – Parking fare control – Car plates bidding – Road-based public – Transit vehicles are – Increase the frequency – transport congested; departing, improve transit ‧ Bus system – Bus-way is limited and serves; ‧ Para-transit system the effect is not obvious; – Public transport ‧ Fare and subsidy policy – Bus companies operate development have priority in poor fiscal condition. – Bus-way extend – The waiting time is too – Government adopts long in periphery. relevant supporting measure and fiscal subsidies – GPD and other ITS technologies popularize – Express bus on the motorway Proceedings of the Eastern Asia Society for Transport Studies, Vol.6, 2007

– Urban rail and other MRT – The problems of – Design the transferring ‧ Network structure transfer terminal station well ‧ Source of financing – The problems of – Develop the metro station ‧ Operational organization associated development of with surrounding ‧ Fare level, profit and urban rail and real eatate area(TOD) subsidies – The problems of – Enhance government operation in too large scale subsidy, the involvement – The problems of from the local district congestion in carriage. government

– Overall mobility – Fast motorization – Public transport patterns – Difficult in transfer development is preferential, ‧ Travel flow patterns – Financial budget especially MRT system ‧ Travel demand trends problem – Plan and construct the ‧ Trend of modal split transfer well among ‧ Transfer centers in railways or between urban downtown rail and other modes – Government’s preferential policy and allowance to support public transport – Improve pedestrian environment and maintain bicycle system in city center – Transfer discount Proceedings of the Eastern Asia Society for Transport Studies, Vol.6, 2007

6. CONCLUSION At last, we can summarize the key features of Shanghai transport system and find out special problems, significant examples of successful and failure policies. Table 2 Conclusion –Key features, special problems, and correlative policies

（1）Travel demand increases sharply and become individual and diversiform; （2）Transit service improves to some extent and urban rail

Conclusion 1 Key features plays an important role; （3）Travel length prolongs, level of mobility heightens, trend of private mobility is obvious; （ 4 ） Travel need the integration of various modes-from networks expending to multi-modal transport system （1）The density of centre is so excessive that a series of traffic and environmental problems come into being; （2）Expo2010 in Shanghai may cause some transport problems; （3）Rapid urbanization brings financing problems; Special Conclusion 2 （4）Motorized and non-motorized vehicles compete for road problems and it forms mix-traffic problems; （5）There are problems about less of harmony among administrative bodies. （6）There is segregation of the center and suburb. （1）The policy of to keep the surface conventional public transport as well as possible; Successful （2）The policy of restriction of motorcycles; Conclusion 3 policies （3）The policy of plate registration auction; （4）The policy of urban rail development; （5）The policy of land use control in density and mixture. （1）Large-scale construction of elevated roads without any consideration for public transport; （2）The construction of maglev cost huge amount of money Conclusion 4 Failure policies and only become a kind of tour project; （3）The construction of large transfer terminals irrationally deteriorate traffic congestion. （4）The restriction of bicycle causes difficulty in short travel

Proceedings of the Eastern Asia Society for Transport Studies, Vol.6, 2007

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