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 Shanghai（1999-2020）

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

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

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 metro‟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 doesn‟t enjoy the preferential policy for bus

transfer.

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

Year 2004 Year 2009

Central city The whole city Central city The whole city

Metro 4.3% 2.9% 8.7% 5.7%

Bus 20.8% 14.7% 17.1% 12.9%

Taxi 9.2% 7.0% 8.8% 6.6%

Private car 13.0% 11.6% 18.9% 15.4%

Motorcycle 1.1% 6.2% 0.6% 4.6%

Ebike/scooters 4.4% 5.3% 9.5% 15.2%

Bicycle 18.3% 25.0% 10.0% 13.5%

Pedestrian 28.9% 27.3% 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，

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 government‟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

can‟t encourage people use the cars with low-carbon emission.

Table- 8: On-street parking fee management in Shanghai

Area

Daytime

Night(Yuan) First

hour(Yuan)

Extra half

hour(Yuan)

Key area in inner city 15 10 10

Other area in inner city 10 6 8

Area between inner/outer ring 7 4 5

Source: Shanghai Development and Reform Committee, 2006

1 Website, http://auto.sina.com.cn/news/2008-02-18/1529347826.shtml

Table- 9: Off-street parking fee in Shanghai (unit: Yuan/hour)

High-rise

parking

garage

Automatic

multi-rise

parking

garage

Simple

multi-rise

parking

garage

Large-scale

surface

parking

Common

surface

parking

Zone I 11 10 9 8 7

Zone II 10 9 8 7 6

Zone III 9 8 7 6 5

Zone IV 8 7 6 5 4

Zone V 7 6 5 4 3

Zone VI 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 night

On-street Off-street Open-air

park Indoor park

Zone I 10 8

0.5 5 Zone II 6 5

Zone III 2 2

Source: Beijing Municipal Commission of Development and Reform, 2011

However, with the increase of the public‟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)

average daily

passengers（10

thousand）

2004 93 205

2009 355 361

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 don‟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）

Proportion

of GDP（%）

Metro

construction

（billion Yuan）

Proportion

of GDP

（%）

2000 455.1 11.4 2.51 6.9 1.51

2001 495.1 14.3 2.88 6.4 1.29

2002 540.9 21.9 4.06 12.5 2.31

2003 625.1 22.2 3.54 8.8 1.44

2004 745.1 21.6 2.90 7.1 0.95

2005 915.4 24.1 2.64 10.5 1.15

2006 1036.6 31.1 2.99 19.1 1.85

2007 1218.9 54.9 4.51 26.9 2.21

2008 1369.8 74.4 5.43 24.5 1.79

2009 1504.6 90.9 6.04 35.1 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 bicycle‟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 doesn‟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

Within

Inner ring

Between Inner ring

and middle ring

Suburbs Average

Time 31min 45min 67min 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

Source: Shanghai Survey office of National‟s Bureau of Statistics, Tongji University, 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 Within

30min rate 30—60min rate Over 60min rate

High

income

93

persons 60 persons 64.5% 27 persons 29% 6 persons 6.5%

Middle

income

280

persons 111persons 39.6% 110 persons 39.3% 59 persons 21.1%

Low income 319

persons 110persons 34.5% 123 persons 38.5% 86 persons 27%

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.

Box 4: travel survey in Jinqiao district, Shanghai, 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

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 don‟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

Table- 23: trip quantity from suburbs to central area for shopping for all classes

Class income<1000

RMB

Income:1000-2500

RMB

Income:2500-4000

RMB

Income:4000-800

0RMB

Income:>800

0RMB

Trip

quantity/

month

1.21 1.35 1.59 1.67 1.86

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

Beijing Municipal Commission of Development and Reform,

http://www.bjpc.gov.cn/ywpd/wjgl/jgcx/syjg/syjg_jdctcjc/201109/t1603134.htm

Beijing Statistics Yearbook, http://www.bjstats.gov.cn/

China's urban transportation planning and development report (2010), not yet

published

Shanghai Comprehensive Planning Research Institute (2009), The fourth

comprehensive travel survey of Shanghai

Shanghai Development and Reform Committee (2006)

Shanghai Hongqiao Transportation Hub (2011)

http://baike.baidu.com/view/1714892.htm

Shanghai Price Burreau (1995)

http://wenku.baidu.com/view/1ce4792c0066f5335a81213a.html

Shanghai Statistics Yearbook, http://www.stats-sh.gov.cn/

Shanghai Survey office of National‟s Bureau of Statistics and Tongji University(2006)

The Comprehensive Plan of Shanghai（1999-2020）

The World Business Council for Sustainable Development (WBCSD) and The

Department of Urban Planning, Tongji University (2008), „Mobility for Development

-Shanghai Case Study‟

Website, http://www.alltobid.com/guopai/contents/56/548.html

Website, http://auto.sina.com.cn/news/2008-02-18/1529347826.shtml

Zhu,H, Shao,D, Chen,H and Li,Q ( 2011) „Mass Transit Services in World Expo

Shanghai 2010‟ ,Urban Transport of China,9(4):p.76-84

Department of Urban Planning, Tongji University (2011), „Jinqiao district traffic

survey‟