Document of The WorldBank Public Disclosure Authorized FOR OFFICIALUSE ONLY Report No: 22334 IMPLEMENTATIONCOMPLETION REPORT (IDA-22960) Public Disclosure Authorized ON A CREDIT IN THE AMOUNTOF SDR 44.4 MILLION(US$60.0 MILLION EQUIVALENT) TO TBE PEOPLE'SREPUBLIC OF CHINA FOR A SHANGHAIMETROPOLITAN TRANSPORT PROJECT Public Disclosure Authorized JUNE 29, 2001 This documenthas a restricteddistribution and may be used by recipientsonly in the performanceof their 7 officialduties. Its contentsmay not otherwisebe disclosedwithout World Bank authorization. Public Disclosure Authorized CURRENCYEQUIVALENTS (ExchangeRate EffectiveDecember 31, 2000) Currency Unit = Yuan (Y) Y 1.00 = US$ 0.120817 US$ 1 = Y 8.2770 FISCALYEAR January 1 - December 31 ABBREVIATIONSAND ACRONYMS ATC - Area Traffic Control BAA - Barton AschimanAssociates CBD - Central Business District CCTV - Close Circuit Television ETC - Electronic Toll Collection IRR - Inner Ring Road MV - Motor Vehicle NBF - Non Bank Funded NMV - Non-Motor Vehicle NSC - North-South Corridor NUTI - NorthwesternUniversity Traffic Institute PDR - Preliminary Design Report PGS - Parking Guidance System PT - Public Transport TA - Technical Assistance TMP - Traffic Management Program TMS - TrafficManagement and Safety SMCC - ShanghaiMunicipal Construction Commission SMEAD - ShanghaiMunicipal Engineering Administration Department SMEC - SnowyMountain Engineering Corporation SMECC - ShanghaiMunicipal Engineering Construction Company SMG - ShanghaiMunicipal Government SMTAB - ShanghaiMunicipal Transport Administration Bureau SPSB - ShanghaiPublic Security Bureau TrafficPolice Patrol and GeneralBrigade STC - Shanghai Transit Company STERI - ShanghaiTraffic EngineeringResearch Institute (STERI) of SPSB SUPDRI - ShanghaiUrban PlanningDesign and ResearchInstitute VMS - Variable Message Signs Vice President: Jemal-ud-din Kassum, EAPVP | CountryManager/Director: Yukon Huang,EACCF SectorManager/Director: JitendraN. Bajpai,EASTR Task TeamLeader/Task Manager: EdwardB. Dotson FOR OFFICIAL USE ONLY CHINA SHANGHAI METRO TRANSPORT PROJECT CONTENTS Page No. 1. Project Data 1 2. PrincipalPerformance Ratings 1 3. Assessmentof DevelopmentObjective and Design, and of Quality at Entry 2 4. Achievementof Objective and Outputs 6 5. Major Factors AffectingImplementation and Outcome 10 6. Sustainability 12 7. Bank and BorrowerPerformance 12 8. LessonsLearned 14 9. Partner Comments 20 10. AdditionalInformation 31 Annex 1. Key PerformanceIndicators/Log Frame Matrix 32 Annex 2. Project Costs and Financing 35 Annex 3. EconomicCosts and Benefits 37 Annex 4. Bank Inputs 39 Annex 5. Ratingsfor Achievementof Objectives/Outputsof Components 41 Annex 6. Ratingsof Bank and BorrowerPerformance 42 Annex 7. List of SupportingDocuments 43 Annex 8. BeneficiarySurvey Results 44 Annex 9. StakeholderWorkshop Results 45 Map: IBRD 31441 This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. Project ID: P003565 Project Name: SHANGHAI METRO TRANS TeamLeader: EdwardB. Dotson TL Unit:EASTR ICR Type: Intensive Learning Model (ILM) of ICR Report Date: June 29, 2001 1. Project Data Name: SHANGHAI METROTRANS LIC/TFNumber: IDA-22960 Country/Department: CHINA Region: East Asia and Pacific Region Sector/subsector: TU - Urban Transport KEY DATES Original Revised/Actual PCD: 06/22/1988 Effective: 01/15/1992 01/15/1992 Appraisal: 05/29/1989 MTR. Approval: 09/10/1991 Closing: 06/30/1998 06/30/1999 Borrower/lImplementing Agency: People's Republic of China/Shanghai Municipal People's Government OtherPartners: InnerRing Road ConstructionCompany, Traffic ManagementDivision of the ShanghaiPublic SecurityBureau, ShainghaiMunicpality Engineering AdminstrationDepartment, Shanghai City Planning and DesignInstitute and ShanghaiUrban ConstructionDesign Institute. STAFF Current At Appraisal VicePresident: Jemal -ud-dinKassum Russel J. Cheetham CountryManager: Yukon Huang Shahid Javed Burki Sector Manager: Jitendra N. Bajpai Daud Ahmad TeamLeader at ICR: EdwardDotson Ms. Carrolle Carr ICR Primary Author: Edward Dotson; Ephrem Asebe Asebe This projectwas the first of two metropolitantransport projects providing assistance to Shanghai MunicipalGovernment (SMG), with similarobjectives and design,overlapping implementation periods and the same implementingagency. The secondproject is the SecondShanghai Metropolitan Transport Project (SMTPII: ID-P003622).Given their similarities,a singleassessment has been made coveringthe two projects,but separatereports have been printed. These containthe same text and annexes,except for sections 1 and 2, and Annexes2, 4, 5 and 6. 2. Principal Performance Ratings (HS=HighlySatisfactory, S=Satisfactory, U=Unsatisfactory, HL=Highly Likely, L=Likely, UN=Unlikely, HUN=Highly Unlikely,HU=Highly Unsatisfactory, H=High, SU=Substantial,M=Modest, N=Negligible) Outcome: S Sustainability. HL Institutional Development Impact: H Bank Performance: S Borrower Performance: S QAG (if available) ICR Quality at Entry: HS S Project at Risk at Any Time: No 3. Assessment of Development Objective and Design, and of Quality at Entry 3.1 OriginalObjective: The two metropolitan transport projects (SMTP I & II) providing assistance to Shanghai Municipal Government (SMG) had similar objectives. For SMTP I, the original objective was to provide the basis for developing an efficient transport system in the Shanghai Metropolitan Region by: (a) increasing capacity, reducing congestion, and improving efficiency in the Shanghai urban transport network, and (b) improve the planning, programming, financing, and management of the urban transport system in Shanghai. The project represented the first stage of a long-term program intended to upgrade and develop the urban transport infrastructure of Shanghai to meet the needs of a developing economy. For SMTP II, the original objectives of the project, in support of the economic and social development of Shanghai, were: (a) to enhance economic productivity by improving the operational and economic efficiency of the urban transport system; and (b) to strengthen public sector management capacity by improving the planning and management of the urban transport system. SMTP I was the first urban transport project undertaken by the Bank in China. In 1991 at the time of the appraisal update of SMTP I, roads occupied 5% of the land surface of Shanghai (compared to 15% in similar cities in other countries); average traffic speeds were 15 km/br with bus speeds at 8 km/hr; the vehicles fleet was 200,000 (53% trucks), the bicycle fleet 6.5 million and the bus fleet 5500. Five different entities were responsible for transport, and the ad hoc transport planning task force had just been turned into a pernanent transport planning institute. The SAR stated that the road network did not have sufficient capacity to accommodate existing, let alone future vehicle flows. Viewed against this background, the project objectives were clear and well related to the analysis of the issues in the sector. They represented a balanced emphasis on physical works and institutional capacity building in the sector. The SMTP II objectives represented a logical extension of the SMTP I objectives into economic development and city management, reflecting the broadening of the dialogue between the Bank and the Shanghai Municipal Government (SMG). In 1990, with Bank assistance, a process was begun to articulate Shanghai's comprehensive reform policies, establish detailed action plans for implementation of reforms, and link the future expenditure program and institutional development of Shanghai to the reform program. In 1991, SMG launched the Shanghai Economic Reform Action Program (SERAP), and it was agreed that future Bank lending to Shanghai should be linked to the implementation of the SERAP. Municipal infrastructure reform was one of the six activities in SERAP. Within this activity, the key areas of reform were: (a) price reform aimed ultimately at full cost recovery for urban services (b) strengthening autonomy of public utility agencies (including Shanghai Transit) (c) enabling the use of enterprises as contractors to provide services such as public transport (d) regulation and guidance by updating and strengthening spatial planning, integration of infrastructure investrnent with spatial planning, and strengthening of planning, programming and budgeting procedures. -2 - SMG placed great emphasis in SERAP on the expansion of the city into the Pudong area, located on the east side of the Huangpu River. A key factor in developing Pudong was the improvement of the transport across the Huangpu River. The Inner Ring Road (IRR) proposed for the Puxi area west of the Huangpu River, was to be extended via the Nanpu and Yangpu bridges in Pudong. Besides providing arterial road access to Pudong, the function of the IRR was to divert through-traffic away from the established city center in Puxi, and provide a link with regional routes from the surrounding provinces of Jiangsu and Zhejiang to Shanghai Port. The Bank financed the IRR, while the Asian Development Bank provided some finance for the bridges. Apart from resettlement, environment, and the Project Implementation Unit, conditions in the implementation program of the project agreements related to transport investment plans, traffic management, reform of the transit company, motor vehicle emission control strategy, and technical assistance. The topics covered under project