What’s Shanghai’s effective urban transport policy in the period of rapid growth? Pan Haixiao, Professor E-mail: hxpank@online.sh.cn Ye Song Research Assistant, Email: jiangxixu@126.com Department of Urban Planning, Tongji University 1239 Siping Road, Shanghai 200092, China
Abstract With the rapid economic development, the scale of Shanghai in population and territory experienced a fast expansion in last 20 years. With very poor urban transport infrastructure in late 1980‟s and lack of enough resource and land to build more road space as in Beijing, some fundamental common consensus has been realized in various government departments, that is car use must be controlled in Shanghai, even though car manufacture industry has been designated as one of the growth pillar of Shanghai‟s economic development. But we must find an alternative urban passenger transport solution to support urban expansion and economic activities with convenience and reliability. In this paper, Shanghai urban transport infrastructure and mobility characteristics will be presented, such as modal split, travel time and distance, metro passenger and car ownership etc, after more than two decades of massive construction in urban transport system. In 2002 Shanghai government issued the first urban transport white paper in China after 5 years discussion and negotiation between stakeholder, especially various government department. This the first time in China that shows urban transport policy is the major focus of mayor‟s concern. In this white paper, Shanghai‟s urban transport policy has been developed in nine directions which include: 1) Control on motorized vehicle: Motorized vehicles have made negative effect on road space and environment; government in Shanghai has taken measures to control traffic demand, such as license auction and parking management. 2) Continue to strengthen key transport infrastructure construction: For recent years, the transport demands of Shanghai have rapidly increased, urban transport facilities is highly saturated, roads are severely congested. Shanghai strengthened construction of transport infrastructure in urban motorway, freeway and bridge etc. 3) Coordinate relationship between urban land use and transport: The Shanghai always try to strengthen control in spatial planning and urban transport system.
4) Building multi-mode urban transport system based on public transport priority, taking metro construction as the key policy instrument to encourage people to use public transport with vast amount of local government revenue collected from land leasing and car plate auction, as well as the involvement of district government and developer. After the successful bidding to host 2010 Shanghai world expo, Shanghai were facing great challenge in how to organize transport for more than 70 million spectators in half year, that is around half or one million extra passenger to expo site in the very congested area near city center on the two side of Huangpu River, in the meanwhile provide transport service for daily citizen‟s normal activities. A set of consistent travel demand management strategies were developed to organize the travel of spectators, especially “zero” car parking, metro line construction and time-space balanced strategy with ITS to allocate route for coach from other cities. Massive road construction has been avoided with the strategy. The success experience in mange transport system also provide cities in China a living show case to solve urban transport more sustainably. Finally, will the massive investment in urban transport improvement can be shared by all the social group, our survey shows that low income people are not affordable for the higher cost metro transport. There is still no well established value capture mechanism in metro construction, how to maintain high quality metro service in long term need to be explored. Bike or e-bike is now the fundamental mode of transport for low income group, public transport transfer discount also benefits their travel. We must take social inclusion into consideration in urban transport strategy.
0. Introduction The Basic Status of Urban Development in Shanghai As the economic center of China, Shanghai is now striding toward an objective of modern international metropolis. The whole city with only 0.06% of national land, its financial revenue accounts for 1/8 of national total with total port import-export commodity volume occupying 25% of the total. Transport modernization and integration is an important component of economic integration in Shanghai and a precondition of realizing economic integration. “Transport must be developed first in this area” has become a consensus for Shanghai. Since 1990s, through large scale of investment in infrastructure construction, the transport service and function have been greatly advanced. The improvement of transport has played an important role in promoting economic development. With the rapid development of economic and society, the scale of Shanghai in population and area is spreading fast. As a result, urban planners have to make plans
for better city life. And the regional spatial structure of Shanghai does have great impact on transport. The new development focus will be in the suburban with several large scale new towns. The new towns are mid-sized cities developed from the towns in which the district (county) government located, or supported by important industries and infrastructures. There will be 9 new towns according to the plan: Baoshan, Jiading, Qingpu, Songjiang, Minhang, Nanqiao Fengxian, Jinshan, Lingang new town and Chongming, chengqiao. In Jiading, Songjiang and Lingang new town, the population are up to 0.8-1 million. While in the central city (within the outer-ring), there will be a central commercial district and five city functional centers to strengthen the service function of Shanghai .
Figure- 1
Figure- 2
Figure1: land use planning of Shanghai central city Figure2: land use planning of Shanghai whole city Source: The Comprehensive Plan of Shanghaiďźˆ1999-2020
1. Transport management mechanism There are two government departments responsible for transport planning and management in Shanghai, one is the Planning Bureau and the other is Shanghai City Construction and Transportation Committee. The former is responsible for the planning of the whole city transportation network, the layout of the major transportation hubs, intercity transportation facilities and parking. And the later is responsible for the operation, inspection and construction of the transportation
facilities; organize and coordinate the establishment of important policies in construction and transportation; coordinate the various transportation modes including roads, waterway, urban rail and aviation etc. In addition, Development and Reform Commission is responsible for the finance on the infrastructure construction. In recent years, the bottom-up community planning has appeared, with Shanghai Community Bus a very good example. Box 1 Shanghai Community Bus With the accelerated development of Shanghai and more and more newly developed residential area located far from the central area, urban metro system continues to extend outside. However, metro system cannot meet the travel demand between the residential area and the metro stations. In order to encourage people to use public transportation and make up for the metroâ€&#x;s absence between the residential area and the metro stations, Shanghai has operated cheap and convenient community buses in Pudong District, Minhang District, Songjiang District and Baoshan District. Figure: community bus Line 1 in Baoshan District, Shanghai. The passengers increased fast, but it is not satisfied service.
Evaluation Two community bus lines in Baoshan District has been operated for half a year, with the daily passengers up to 3,046 and 1,666,twice as that of the first opened day. Problems 1. The routes of the community bus are fixed 2. 15min headway, reducing the convenience and the attraction of the community bus. 3. The community bus doesnâ€&#x;t enjoy the preferential policy for bus transfer.
Source: China's urban transportation planning and development report (2010), not yet published
The capital source of transportation facilities includes: appropriate funds from government revenue, the leasing of land use, bank loans, investment from private and
other organization domestic and abroad, and income from the toll of roads and bridges etc. Like many other cities in China, the local government in Shanghai has an important role in influencing and regulating the travel behavior of the public. And compared with other developing countries, Shanghai municipal government is more authoritative in city construction and management. And this authority comes from the possession and control of the land by the municipal government. In the market economy, the local government still plays a decisive role in the distribution of land, the investment and construction of transportation facilities, and the supply of commercial and social service facilities etc. However, the enormous authority will not guarantee the effectiveness of policy. In fact there are many methods to influence the travel demand and may be some of them are suitable to the specific problems and system structure in Shanghai. Shanghai should try to improve the frame of making and implementing policy, and make it more efficient. Shanghai Transport Objective The strategy of Shanghai transport development is to build for the international metropolis a huge integrated transport system of good quality, high efficiency and full integration to satisfy the growing travel demand and to improve the whole city's competitiveness. Shanghai Transport Basic Tasks Set up a public transport system with coordinated operation; Build functionally perfect road operation system; Build the transport connection system—multi-modal connection; Build a Unified, coordinated and high-- efficient transport administration system.
2. The Basic Status of Transportation in Shanghai The rapid growth of economy and population means that the travel demand increase. Like many cities in the process of industrialization, the original transport system in Shanghai was designed for non-motorized traffic. The area of road is only 9% of the total land use area in the city, far behind the rate of 20%-25% in European cities. On the other hand, Shanghai is among the most densely populated cities in the world. Especially in the city center, the population density is extremely high, with about 4 million people living in an area about 100 square kilometers. According to the fourth comprehensive travel survey of Shanghai (2009), the number of motor vehicles in Shanghai is up to 2.43 million at the end of 2009, and from 2004 to 2009 the average annual growth is 82 thousand. The number of private cars reaches 0.85 million, with the annual growth 108 thousand from 2004 to 2009.
The total length of roads in central city is 3224km, with the road area rate up to 11% and road space per capita up to 6.9 m2. Table- 1: Number of registered motor vehicles and private cars (unit:10 thousand)
Source: The fourth comprehensive travel survey of Shanghai, 2009
The area of road per capita is so low that the road network always operates beyond its capacity. According to the fourth comprehensive travel survey of Shanghai(2009), average speed for cars on expressway is 40 km/h at peak hours in downtown, one-third of the expressway with free flow traffic. Average speed for cars on main road is 15km/h at peak hours in downtown. There still large amount people in Shanghai who still travel by bike or e-bike, the motorized vehicles and non-motorized vehicles interfere with each other and cause traffic confusion and accidents. Table- 2 Modal split in Shanghai
Transportation mode Metro Bus Taxi Private car Motorcycle Ebike/scooters Bicycle Pedestrian
Year 2004 Central city The whole city 4.3% 2.9% 20.8% 14.7% 9.2% 7.0% 13.0% 11.6% 1.1% 6.2% 4.4% 5.3% 18.3% 25.0% 28.9% 27.3%
Year 2009 Central city The whole city 8.7% 5.7% 17.1% 12.9% 8.8% 6.6% 18.9% 15.4% 0.6% 4.6% 9.5% 15.2% 10.0% 13.5% 26.5% 26.2%
Source: The fourth comprehensive travel survey of Shanghai, 2009
Table- 3: Comparison of modal split in Shanghai
Source: The fourth comprehensive travel survey of Shanghai, 2009 Table- 4: Comparison of travel distance in Shanghai
Source: The fourth comprehensive travel survey of Shanghai, 2009 Table- 5: Comparison of travel time in Shanghai
Source: The fourth comprehensive travel survey of Shanghai, 2009
During the last decade, Shanghai accelerated its course of city transport infrastructure construction, constructed a mass of transport facility. However ďźŒ according to the current policy, the land for roads has to be bought at the market price, so widening and construction of city roads requires a large amount of capital
3. Control on motorized vehicle Motorized vehicles have made negative effect on urban space and environment; government should take measures to control traffic demand, such as license auction and parking management. (1) Controlling on motorized vehicle has been the successful practice from 1990s for Shanghai to keep dynamic balance between road supply and vehicle increasing. With accelerated construction of urban road network, the government has implemented quota auctions on motorized vehicle licenses to control the amount of motorized-vehicle, manipulate traffic flows and coordinate road and vehicle development; try to always keep the operations of road network under the reasonable service level. After implementation of license auction system, the government properly adjusts monthly license according to urban transport status and prices of licenses. According to the comparison of the amount of private cars between the two similar cities, Beijing and Shanghai, private cars license auction policy reduced millions of automobiles from 2005 to 2010. However, since 2010 the price of license has been rising rapidly, so government increases the number of licenses in order to control the price in a reasonable range, which weakens the effect of license auction policy. The current number of auctioned licenses is twice as the planned goal. Table- 6: 2005~2010 comparing of private cars by Beijing and Shanghai (unit:10 thousand)
Source: Shanghai Statistics Yearbook (2006-2011), Beijing Statistics Yearbook (2006-2011)
Table- 7: auction prices from 2002 to 2011 (unit: yuan)
Source: website, http://www.alltobid.com/guopai/contents/56/548.html Although the auction license policy suppressed the increase of private cars, at the same time government should publish the funds received from the auction to the public. From 1994 to 2007, the funds received from license auction is over 20 billion Yuan, however, only 9.4 billion yuan is turned over to the governmentâ€&#x;s finance, of which 230 million yuan for public security and other transportation equipment, 3.9 billion yuan for the transportation facilities in the middle ring, 3.6 billion for metro system construction, and the account balance of 1.69 billion yuan. However, the details of the use of the money are not disclosed to the public1. In all, although the policy played an important role in controlling the increase of private cars, the function of auction license will lose its function gradually, so we should take new measures to solve the problem, such as setting the validate period for the auctioned licenses, for example 10 years, and controlling the number of auctioned licenses. (2) In order to control the usage of private cars in inner city, government implement strict parking policies in this area from 2006. The policy tries to restrict the traffic in the area of inner city. The policy of park fee is regulated by government. Parking fee is charged in accordance with time on daytime, and at night is charged by a fixed quantity of money. Park fee has no difference between cars with different emission of CO2, so this policy canâ€&#x;t encourage people use the cars with low-carbon emission. Table- 8: On-street parking fee management in Shanghai
Area Key area in inner city Other area in inner city Area between inner/outer ring
Daytime First Extra half hour(Yuan) hour(Yuan) 15 10 10 6 7 4
Source: Shanghai Development and Reform Committee, 2006 1 Website, http://auto.sina.com.cn/news/2008-02-18/1529347826.shtml
Night(Yuan) 10 8 5
Table- 9: Off-street parking fee in Shanghai (unit: Yuan/hour)
Automatic multi-rise parking garage 10 9 8 7 6 5
High-rise parking garage Zone I Zone II Zone III Zone IV Zone V Zone VI
11 10 9 8 7 6
Simple multi-rise parking garage 9 8 7 6 5 4
Large-scale surface parking
Common surface parking
8 7 6 5 4 3
7 6 5 4 3 2
Source: Shanghai Price Bureau, 1995 * From Zone I to Zone VI, they are respectively representing the area from the key area of the city to the edge of the city.
According to the above two tables, we could get the conclusions that on-street parking fee is higher than the off-street fee. In this way, government could control the on-street parking effectively. According to the table 8,9 and 10, we could see the parking fee in Shanghai is higher than that of Beijing, with the basically same income between the two cities. Therefore, it brings serious parking problems to Beijing. We can get the conclusion that it is critical to make a reasonable parking fee to coordinate the traffic demand and the road supply. Table- 10: parking fee in Beijing (unit: yuan)
daytime
Zone I Zone II Zone III
night
On-street
Off-street
Open-air park
10 6 2
8 5 2
0.5
Indoor park 5
Source: Beijing Municipal Commission of Development and Reform, 2011
However, with the increase of the publicâ€&#x;s income, the parking fee did not rise since 2006. Therefore, the policy that through the parking fee to control the usage of the privates gradually fails.
4. Continue to strengthen key transport infrastructure construction For recent years, the transport demands of Shanghai have rapidly increased, urban transport facilities is highly saturated, roads are severely congested; the density of suburb road network is low, so Shanghai will continue to strengthen construction of transport infrastructure. Public transport construction is the key concern; dominated investment is put on metro transport construction during the Eleventh Five-year Plan2. With acceleration of 2
From the year 2006 to 2010
metro transport construction, Shanghai is also gradually to introduce exclusive bus lane system. To 2010, there are 300km exclusive bus lanes, together with 410 km of metro, constituting the backbone network of urban passenger transport system. Metro system construction mainly depends on government investment, ticket revenue basically used to maintain the operation of metro. From 2000 to 2009, the total investment put on metro is up to 157.8 billion Yuan, with the average cost of 1 km up to 480 million Yuan. Faced with the large quantity of investment, government doesn‟t increase the fare in order to encourage the public to choose the public transportation. However, with the length of metro increased, the average passengers in 1km metro line decreased. Therefore, Shanghai government should learn from the Hongkong model of “metro+ property” to solve the financial problems. According to the table 11, we could see that the length of metro system has increased more than 3 times with the average daily passengers only increasing 1.5 times. It shows that only the construction of transportation facilities without other measures can‟t solve the transportation problems successfully. Table- 11: Comparing of metro system in year 2004, 2009
length of metro system(km)
2004 2009
93
355
average daily passengers（10 thousand）
205 361
Source: The fourth comprehensive travel survey of Shanghai, 2009 Table- 12: metro length and passengers 2004~2009
Source: The fourth comprehensive travel survey of Shanghai, 2009
Table- 13: passenger per km network length, 2004~2009
Source: The fourth comprehensive travel survey of Shanghai, 2009 From table 13, the metro passengers per km donâ€&#x;t increase with the rapid development of metro system. Therefore, government should make comprehensively plan about the layout of the metro system and land use around the station. In this way, metro system could be used more effectively.
Figure- 3: Shanghai metro routes（2010）
Source: website, http://www.shmetro.com/node41/node45/200809/con100270.htm Table- 14: Investment in transport construction and metro construction
Year
GDP （billion Yuan）
Transport construction （billion Yuan）
2000 2001 2002 2003
455.1 495.1 540.9 625.1
11.4 14.3 21.9 22.2
Proportion of GDP（%）
2.51 2.88 4.06 3.54
Metro construction （billion Yuan）
6.9 6.4 12.5 8.8
Proportion of GDP （%）
1.51 1.29 2.31 1.44
2004 2005 2006 2007 2008 2009
745.1 915.4 1036.6 1218.9 1369.8 1504.6
21.6 24.1 31.1 54.9 74.4 90.9
2.90 2.64 2.99 4.51 5.43 6.04
7.1 10.5 19.1 26.9 24.5 35.1
0.95 1.15 1.85 2.21 1.79 2.33
Source: Shanghai Statistics Yearbook, 2001-2010
As for the inter-city passenger transport, inter-city express railway system has been constructed so as to alleviate traffic tension of Shanghai-Nanjing and Shanghai-Hangzhou corridors. Inter-city express railway system has consolidated the dominant role of railways in inter-city passenger transport. Shanghai has basically completed the city expressway network and the outer ring construction, with the formation of “3 rings and 10 axis� network. Figure- 4: Shanghai expressway network 2011
Source: WBCSD and Tongji University, 2008
Till 2009, the total length of highway is up to 12,000 km, 3.94 times as that of 2009. The length of express highway is 790 km. From 2004 to 2009, highway increases more than 50%.
Table- 15: annual mileage change in Shanghai, 2000 to 2009 (unit: km)
Source: Shanghai statistics yearbook, 2001-2010
Regarding to freight transport system, the government will further strengthen construction of high capacity roads and construct arterial freight transport network connecting ports, airports, railway hubs, and logistic parks and advanced manufacturing estate. Apart from road projects, exclusive railway freight transportation lines, such as Pudong freight railway, are also under construction. Due to the difficult of coordination over province and over different government transport authority, highway is always considered the quick solution. But limited land and geographical setting of Shanghai, it is very difficult for Shanghai to provide enough traffic lanes to match the highway capacity from surrounding province for freight and passenger transport. The construction of metro is a key to establish a sustainable transport system in Shanghai. The metro construction plan is very ambitious. But how to measure its success or failure is not just the scale, but also on economic vitality and social justice. Will there be a huge government deficit? Or will it be affordable with limited family budget available?
5. Coordinating relationship between urban land use and transport The Shanghai will strengthen planning control and implement transport impact analysis system. In accordance with the principle of “dual increases and dual decreases�(increasing in green space and public space, decreasing in building density and height in city center), the government will strictly control building floor space ratio and functional layout of buildings and using the capacity of transport facility as the building conditions for land development density control. Urban land use and regulation continue to encourage land development of relative high density and mix-use development, in order to promote public transport and reduce travel demands. Suburb development should be focused on the strategy of urban development guided by public transport, guarantee the land reserved for public transport interchange facility and enhance the capacity of transfer facilities. During
the past years, government prefers TOD (Transit Oriented Development) to road oriented development in Shanghai, especially in new city. Taking newly constructed Jiading metro station for example, the area around this metro station has most characteristics of TOD, with relatively high density and mixed-use. Local government wants to maximize the property value through TOD to balance the investment in metro construction. In all, Jiading station is a good construction example of balance between land use and transport.
6. Building multi-mode urban transport system based on public transport and slow transport priority The municipal government has tried to promote transportation hub construction, consolidate the public transport routes and network by these hubs, improve transfer conditions and expand service coverage area of public transport system. By construction of transfer hubs, the city can link all transport modes, fully leverage on advantages of various transport modes and build up multi-mode urban transport system. In addition, the government has protected proper activity space for slow transport. For example, Planning Bureau progressively guide the long-distance bicycle rides to transform into public transport, improve transport conditions and put bicycleâ€&#x;s functions for short distance trips and connecting public transport. It should create conditions for reconstruction and construction of bicycle lanes parallel to motor vehicle lanes and gradually form regional bicycle lane network. It is also necessary to promote public parking facilities for bicycles in downtown area and public transport hubs. Bicycle is still the most sustainable mode of urban transport. The modal split of bike/ebike is 19.5% in 2009. For a long time of evolution of the built environment in Shanghai, many services and job opportunities are still available within bicycle (e-bike) range. The policy trying to transfer the long distance passenger to bus will be very difficult to realize with the benefit to bicycle user. The slow speed of bus and less coverage of metro lines cannot compete with bicycle for short travel distance. Table- 16: Registered number of non-motor vehicles
Source: The fourth comprehensive travel survey of Shanghai, 2009 Table- 17: modal split of slow transport
Source: The fourth comprehensive travel survey of Shanghai, 2009
The construction of the multi-mode transport system has to face the challenge of institutional fragmentation. Although the public transportation plan has been made by the Planning Bureau, it is not good enough in the implementation period. At present, institution fragmentation still leads to the failure of development the integrated transportation system. Transportation construction shows the obvious tendency of roads construc. Government should pay more attention on the people not the cars, on the quality of urban environment and intensive land use. Taking Shanghai middle ring for example, government only thinks about how to increase the speed and comfortableness of the private cars, neglecting the bicycle and public transportation. Nowadays, the traffic along the middle ring area doesnâ€&#x;t be improved. Figure- 5: middle ring in Shanghai
Figure- 6: middle ring in Shanghai
Source: Baidu website
7. Big event—The Shanghai EXPO 2010 After the successful bidding to host 2010 Shanghai world expo, Shanghai were facing great challenge in how to organize transport for more than 70 million
spectators in half year, that is around half or one million extra passenger to expo site in the very congested area near city center on the two side of Huangpu River, in the meanwhile provide transport service for daily citizen‟s normal activities. A set of consistent travel demand management strategies were developed to organize the travel of spectators, especially “zero” car parking, metro line construction and time-space balanced strategy with ITS to allocate route for coach from other cities. Massive road construction has been avoided with the strategy. The success experience in mange transport system also provide cities in China a living show case to solve urban transport more sustainably. The following are the policies realized in this EXPO period: Continue to strengthen metro system construction Expo transportation system comprises of metro line M4, line M7, line M8 and line L4. Expo traffic supply could reach approximately 78 thousand per hour. Construct common BRT lines and EXPO excluded bus lines Shanghai has built 300km BRT line in the whole city( 110km in central city), with the speed up to 15km/h at peak hours Figure- 7: 300km BRT network
Source: Zhu, Shao, Chen, Li, 2011
Implement water bus to construct green transport system In 2010 Shanghai Expo, the public can take water-buses into the Expo Park. Control private cars The government implemented the policy of “zero” car parking for the private cars, to encourage the tourists travel by public transportation and improve the traffic condition in this area. Implement ITS Government implemented the time-space balanced strategy with ITS to allocate route
for coach from other cities in order to . Modal split 1) Arrival spectator Over 90% of visitors arrived by public transport, shown as followed figure. Metro and tour bus are the leading transportation modes. The share of private cars is only 6%. Figure- 8:1 Arrival spectator
Source: Zhu, Shao, Chen, Li, 2011
2) Departure spectator at 21:00~23:00 Over 80% of visitors left the Expo park by metro, tour buses and taxies, shown as the followed figure. Figure- 9: Departure spectator at 21:00~23:00
Source: Zhu, Shao, Chen, Li, 2011
EXPO planning evaluation 1) Achieve the goal of an intensive, fast, intelligent and high-quality transportation system According to the statistic of travel mode, over 90% tourists travelled to the EXPO park by public transportation. According to the statistic of travel time, the results are approximately consistent with the planning target (shown as the followed
table-1). Meantime, visitors could receive traffic information through mobile TV, broadcast and inquiry terminals. Overall, the goal of highly intensive, intelligent and inconvenient transportation is basically achieved. After hosting the World EXPO, Shanghai‟s transportation is developing towards a sustainable road. Table- 18: Travel time of different regions
Time
Within Inner ring 31min
Between Inner ring Suburbs and middle ring 45min 67min
Average 45min
Source: Zhu, Shao, Chen, Li, 2011
2) Daily transportation running well and minimizing the EXPO transportation‟s impact to the daily transportation With the numerous EXPO traffic, the whole city‟s traffic runs well and smoothly. The number of daily peak passengers by metro reaches 7.31 million. External transportation supported the visitors from the other cities. Over 95% visitors from other cities arrived Shanghai by public transportation. Visitors by private cars from other cities park in the suburbs and then travel to the central city by public transportation. 3) Shanghai EXPO 2010 improved the transportation condition through boosting the public transportation facilities construction, especially the metro system. In addition, the successful experience also provides cities in China a living show case to solve urban transport more sustainably.
8. The impact of mobility to all classes in Shanghai (1) Preferential policies for public transportation Shanghai implemented preferential policies for bus transfer in order to encourage the application of public transportation: Accumulation preferential: In year 2007, when passengers who hold public transportation cards consumes over 70 yuan, there will be 10% discount for the next usage. It will recalculate in the next month. Transfer preferential: In year 2007, Shanghai implemented the transfer preferential. Passengers who hold public transportation cards can enjoy 1 yuan/time discount when transferring between bus and metro. (2) the impact of mobility improvement to all classes‟ living condition In Shanghai, city developed along the traffic corridor. The poorer families will be excluded from the central area by the richer families. The development of road network and metro system make the traffic for the rich more convenient and comfortable. The people with low income need transport to seize the opportunities of jobs in very large employment basins, but they are refrained from that by transport costs which are too high for their budget.
Box 3: travel survey to the people living in the suburbs of Shanghai, 2006 This survey chose 3 suburban residential areas to research the travel characteristics from the residential area to central area. According to the survey, we could see that people with high income travel shorter than that of low income. Table- 19: travel time from suburbs to central area Classes
Total
High
93
income
persons
Middle
280
income
persons
Low income
319 persons
Within
rate
30—60min
rate
Over 60min
rate
60 persons
64.5%
27 persons
29%
6 persons
6.5%
111persons
39.6%
110 persons
39.3%
59 persons
21.1%
110persons
34.5%
123 persons
38.5%
86 persons
27%
30min
Shown as table 19, people with high income mainly choose private cars and metro system, with little bicycles; people with middle income prefer pedestrian, buses and metro, with some private cars and taxi; people with low people mainly choose pedestrian and buses. It shows that the low income restrains the convenience and comfortability of the traffic. Table- 20: modal split from suburbs to central area for all classes
We could analyze the modal split and travel time for all classes and get the conclusion that the high-income people have obvious advantage in traffic. On the one hand, although the government take measures to improve the transportation condition and accessibility in suburbs, the results are much better for the rich. On the other hand, the low-income people will be excluded from the area where the accessibility has been improved. Source: Shanghai Survey office of Nationalâ€&#x;s Bureau of Statistics, Tongji University, 2006
Box 4: travel survey in Jinqiao district, Shanghai, 2011
Jinqiao is located in Pudong district. With the development of Shanghai urban scale, this area is gradually changing from an industrial area far from central city to an integrated inner land of the city. Therefore, travel characteristics of the residents in this area changed. From table 21, we could see that almost 80% people with low income choose slow transportation, and because of relatively high ticket of public transport they donâ€&#x;t prefer metro and bus. Reversely, over 50% of the rich prefer motor vehicles. Government should consider the poor more than other classes, for example making preferential policy, providing comfortable slow transport space, and etc. Table- 21: modal split of all classes in Jinqiao, 2011
Source: Department of Urban Planning, Tongji University, 2011 (3) Transportation consumption for all classes Shown as table 21, the transportation consumption of the high-income people increases about 10 times from 2002 to 2009, with that of the low-income people maintaining at low level. Table- 22: transportation urban per capita consumption, 2002-2009
Source: Shanghai statistical yearbook, 2003-2010
Table- 23: trip quantity from suburbs to central area for shopping for all classes Class
income<1000
Income:1000-2500
Income:2500-4000
Income:4000-800
Income:>800
RMB
RMB
RMB
0RMB
0RMB
Trip quantity/
1.21
1.35
1.59
1.67
1.86
month
Source: Shanghai Survey office of National‟s Bureau of Statistics, Tongji University, 2006 Table- 24：Trip rate for residents living in Shanghai, 2004 Income (yuan)
Rate (%)
Trip rate (trips/day)
0
26.28
1.65
＜500
8
1.77
501—800
19.78
2.22
801—1200
22.3
2.39
1201—2000
14.25
2.61
2001—3000
6.04
2.97
3001—5000
2.44
3.36
5001—7000
0.55
3.37
＞7000
0.36
4.03
total
100
2.21
Source: Shanghai city comprehensive transportation research institute, 2004
Shown as table table 23, the trip quantity of richer people is more than that of the poor people. Shanghai government should take measures, such as preferential policy, to meet the traffic demand of the poor.
9. Conclusion Through the above analysis, we could receive the conclusion that Shanghai transport policies improve transport condition to a certain extent, for example suppressing the increase of private cars, strengthening the public transport construction and etc. Then government should still adjust transport policy with the development of city economics and society. Although the license auction policy played an important role in controlling the increase of private cars, it will lose its function gradually because the number of auctioned licenses increased. In addition, parking fee should increase with the rise of CPI, otherwise the policy will failed gradually. Shanghai public transport has made great development in recent years, and government departments should make much more research on the coordination between land use and public transport station. Shanghai EXPO 2010 improved the transportation condition through boosting the public transportation facilities construction, especially the metro system. In addition, the successful experience also provides cities in China a living show case to solve urban transport more sustainably.
Although Shanghai transport condition has been improved greatly, the accessibility of low income class is still not satisfied. People with low income are often excluded from city center, and need transport to seize the opportunities of jobs in very large employment basins, but they are refrained from that by transport costs which are too high for their budget.
Reference
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