Guidance on promoting the development of urban (suburban) railways

National Development and Reform Commission of the People's Republic of China

Development and Reform Foundation [2017] 1173

Development and Reform Commission of each province, autonomous region, and municipality directly under the Central Government, Housing and Urban-Rural Development Office (Construction Committee), Transportation Department (Committee), Railway Supervision Bureaus of various regions, and railway bureaus:

The city (suburban) railway is a rail transit system that connects the surrounding urban groups and its urban groups in the urban center and city. It provides urban public transportation services and is an important part of the city's comprehensive transportation system. Accelerating the development of urban (suburban) railways plays an important role in expanding the effective supply of traffic, alleviating urban traffic congestion, improving urban living environment, optimizing urban spatial layout, and promoting new urbanization. At present, the development of urban (suburban) railways is lagging behind, and the effective supply capacity is insufficient. It has become a shortcoming of urban public transportation, and its problems in development concepts and institutional mechanisms are more prominent. In order to implement the spirit of the Central Urbanization Work Conference and the Central City Work Conference, implement the "Several Opinions of the State Council on Deepening the New Urbanization Construction" (Guo Fa [2016] No. 8), the "13th Five-Year Plan", "Outline" and "City The requirements of the Comprehensive Transportation Network Planning of the Region have promoted the development of the metropolitan (suburban) railway in an orderly manner. The following opinions are now proposed.

First, the overall requirements

(1) Guiding ideology. Fully implement the spirit of the Party's 18th and 18th Central, 4th, 5th and 6th Plenary Sessions, and firmly establish and implement innovation and coordination in accordance with the overall layout of the "five in one" and the "four comprehensive" strategic layout. New, green, open, and shared development concepts, focus on promoting structural reforms in the supply side of transportation, adhere to the people-centered development thinking, implement the strategic requirements for public transport priority development, sum up domestic and foreign advanced experience and effective practices, and adopt institutional and institutional innovations. Motivation, with demonstration projects as the starting point, strengthen planning and connection, promote the expansion and expansion of existing railways, and plan new lines as needed, and strive to expand the effective supply of public transport services in the city (suburb), and encourage the development of multiple levels, The multi-mode and multi-standard rail transit system improves the urban comprehensive transportation system and better adapts to the new requirements of the development of metropolitan areas and urban agglomerations.

(2) Basic principles

Reform and innovation, and lead development. Adhere to innovation and lead, increase reform efforts, stimulate market vitality, and crack down on institutional mechanisms. Focus on exploring new paths, implementing new initiatives, and making new breakthroughs in terms of development concepts, construction methods, transportation management models, cooperation mechanisms, investment and financing systems, standards systems, and development policies.

Adapt to local conditions and make overall plans. In combination with the actual development of the city, we will revitalize the existing assets, do a good job in the overall layout of the city (suburb) railway, meet the requirements of urban agglomeration planning and urban overall planning, and strive to strengthen the overall planning of the relevant planning, promote the implementation of the project according to local conditions and classification, and make existing resources Effective use and incremental supply are effectively increased.

Resource sharing, mutual benefit and win-win. Establish a fair, just and open development environment, adhere to government guidance, enterprise operations, strengthen policy support and guarantee, fully mobilize the enthusiasm of enterprise and social capital investment, give full play to the advantages of all parties, and promote resource sharing such as project construction, routes and stations. The company has a return and the masses have a sense of gain.

Try first, copy and promote. Select a number of key projects in key cities to implement the demonstration project of urban (suburban) railway development, clarify the contents of the demonstration project, systematically sum up practical experience, and play a typical demonstration role, with a combination of points and points, in order to form a promotion, reference, and replication. Development model.

(3) Development goals. By 2020, the super-large, mega-cities and large cities with favorable conditions in the economically developed areas such as Beijing-Tianjin-Hebei, Yangtze River Delta, Pearl River Delta, Middle Yangtze River, and Chengdu-Chongqing will form a backbone line of the city (suburb) and build a core area to the periphery. One-hour commuting circle in the main area; the remaining urban agglomerations and urbanized areas with qualified conditions start the city (suburban) railway planning and construction work.

Second, strengthen planning guidance

(4) Scientific planning. For cities that intend to develop urban (suburban) railways, the city government should, in conjunction with relevant parties, conduct in-depth study of urban transportation needs, road network layout, planning linkages, etc., and separately prepare urban (suburban) railway development plans or integrate them into relevant plans. In principle, the planning scope should be the municipality under the jurisdiction of the city, and the adjacent areas with the tendency of integration and high commuting needs can be co-ordinated around the city. If the existing lines are used or modified, the opinions of the railway enterprises should be fully sought. If it is necessary to plan a new line, it should meet the requirements of the overall urban planning, and be connected with the relevant planning of the railway network planning and comprehensive transportation system planning, and fully consider the comprehensive development needs, and form a reasonable layout plan. Through the preparation of the plan, we will find out the effective demand, establish a project repository, clarify the key points of construction, and actively promote the construction in an orderly manner.

(5) Improve the audit system. Establish and improve a planning project management mechanism that is conducive to the development of urban (suburban) railways. The planning for the development of urban (suburban) railways by existing railways shall be determined by the provincial government in conjunction with the railway company, and the approval of the reconstruction and expansion projects shall be implemented in accordance with the current regulations; the planning of new urban (suburban) railways shall be in accordance with the project function positioning, standard system, etc. Incorporate relevant network and construction planning, and make connections with relevant state departments in terms of planning, construction scale, standard system, etc., and submit for approval according to the relevant provisions of current planning and management. The municipal (suburban) railway new project will be examined and approved by the provincial government, and the approval documents will be copied to the National Development and Reform Commission, the Ministry of Housing and Urban-Rural Development, the Ministry of Transport, and the State Railway Administration.

Third, overall planning and orderly development

(6) Give priority to the use of existing resources. The city government, in conjunction with the railway enterprises, combines the optimization of urban space layout and the adjustment of railway hub functions, giving priority to the use of existing resources to operate city trains. It is necessary to strengthen the feasibility analysis and demonstration of the rational use of existing resources, combine urban planning and construction, and the modern railway transformation and development needs, etc., deepen the research on the utilization of relevant railway transportation capacity within the city, and encourage the internal railway part of the qualified city to function reasonably to move out and release the line. Transport capacity. Through the reinforcement of existing railways, the reconstruction and expansion of local lines, and the renovation of station platforms, the supply capacity of railway service urban transportation will be expanded. Through the government's purchase of services, qualified cities are encouraged to study the city (suburb) trains.

(7) Promote new lines in an orderly manner. On the basis of making full use of the existing railways, order new lines to optimize and improve the city (suburban) railway network. According to the demand characteristics, service objects and service scope of the city (suburb) railway, it is necessary to reasonably grasp its functional positioning, and select the standard system, construction plan and operation mode according to local conditions. The line should be connected in series with urban groups and tourist attractions of 50,000 and above. The station should be set up in the town center according to the principle of function adaptation, simple facilities, safety and convenience, enhance traffic guidance and increase passenger flow. The design speed should be 100~160 km/h, and the average station spacing is not less than 3 km in principle. According to local conditions, the laying method should be determined, and the ground or overhead should be used preferentially, and the channel resources should be used intensively to save engineering investment. Deepen the preliminary work of the project, strengthen the comparison of technical programs, and enhance the feasibility of the program.

(8) Strengthening the connection of various methods. Coordinate the development of multi-level rail transit systems, scientifically grasp the rational division of labor between urban (suburban) railways and trunk railways, intercity railways, urban rail transit, etc., and strengthen the efficient connection of various modes of transportation and different levels of rail transit systems. Urban transportation portfolio efficiency. According to the requirements of zero-distance transfer and integrated operation, resource sharing and interconnection in infrastructure and operational services are realized. Optimize and adjust the operation line and operation time of the urban public transportation system, synchronize the construction of parking lots, electric vehicle charging infrastructure, walking and bicycle service facilities, and make public transportation connections.

(9) Improve the operational service level. In principle, the municipal (suburban) railway should adopt a public transport operation mode. In the case of using existing railways to drive city (suburb) trains, railway enterprises should strengthen transportation organization and coordination, optimize passenger transportation organizations, and increase the number of existing train stops, increase the frequency of stop at important passenger flow distribution centers, and run commuter trains during peak commuting hours. Measures to provide urban (suburban) railway transportation services that are in line with the rules of mass travel and passenger flow, and to facilitate the benefit of the people and the people. Newly-built urban (suburban) railway lines must strictly implement the requirements of urban public transport services, and provide the people with safe, convenient and caring transportation services throughout the entire process. It is necessary to rely on the "Internet + city (suburban) railway" to enhance the informationization and intelligent service level of new and existing lines, and realize real-time online sharing of information. Relevant departments of the city government should improve the operational service incentive mechanism, strengthen the standardization of service construction, and improve service quality.

(10) Encourage multiple modes of operation and management. According to the actual situation, all localities should reasonably choose the city (suburban) railway operation and management mode. Innovative cooperation between the government and railway enterprises can achieve mutual benefit and win-win through the government's purchase of services, and maximize the enthusiasm and initiative of all parties. Encourage the diversification of operational entities, broaden the choice of institutions, and support operators with relevant experience such as railway enterprises and urban rail transit operators to participate in the construction and operation of the city (suburb) railway. Encourage qualified cities or projects to explore modes such as separation of network transportation and provide services through leased lines and equipment. For social service projects such as line use, station services, and entrusted transportation, the service content and charging standards are open and transparent.

(11) Improve the operational compensation mechanism. The city government should integrate the urban (suburban) railway operation into the urban public transportation system, fully reflect the public service attributes, comprehensively consider the government financial subsidies, social affordability, business operation costs, market supply and demand, etc., improve the fare policy, and determine the ticket reasonably. Price level and establish a dynamic adjustment mechanism. Combining the characteristics of different passengers' affordability and consumption demand, according to the difference of service quality and transportation distance, a multi-level and differentiated fare system is formed. For the municipal (suburban) railways, the policy losses caused by low fares, reductions and exemptions, and railway enterprises are invested in technological transformation and management of secluded routes. On the basis of strengthening cost regulation, cities can provide corresponding subsidies for subsidies. In the initial stage, it is possible to guide and support the smooth operation of the municipal (suburban) railway by increasing subsidies. In the later stage, it is necessary to provide appropriate operational subsidy support based on comprehensive development income, or to achieve sustainable operation through government procurement of services.

Fourth, innovative investment and financing model

(12) Expand investment and financing channels. Establish a multi-level, diversified investment and financing system with government input, various financial institutions and social capital mutual support. Strengthen policy guidance, and the government will increase support for the city (suburban) railway when arranging funds. Improve the incentive mechanism and encourage social capital to participate in all aspects of railway investment, construction, operation and management in the city (suburb). Give full play to the advantages of stable cash flow in the city (suburban) railway, expand the source of funds, and explore the long-term capital such as attracting insurance funds and enterprise annuities to participate in the development of the city (suburban) railway. Actively support financing through corporate bonds, corporate bonds, and non-financial corporate debt financing instruments. Financial leasing companies are encouraged to develop financial products suitable for the characteristics of the city (suburban) railways, and provide financing services in the form of direct leasing, sale and leaseback.

(13) Bring into play the comprehensive development efficiency. Establishing the TOD development concept, and in accordance with the relevant policies of the General Office of the State Council on Supporting the Comprehensive Development of Land for Railway Construction (Guo Ban Fa [2014] No. 37), the role of the municipal (suburban) railway in supporting urbanization of new urbanization will be exerted. Intensive use of resources, expand the city's comprehensive service functions, improve the city's comprehensive carrying capacity; rely on the city (suburban) railway channel to promote the construction of urban new areas and peripheral urban groups, guide the population layout, and continuously optimize urban space. Support the comprehensive development of existing railway station yards, revitalize and utilize existing railway facilities, and standardize the comprehensive development of new city (suburb) railway station yards. City-related (suburban) railway-related enterprises are encouraged to construct a comprehensive development premium recovery mechanism in the form of property development, property leasing and management, station and vehicle commercial development, and support the development of urban (suburban) railways.

V. Strengthening safeguard measures

(14) Improve the development system. Improve the relevant policies and regulations for urban (suburban) railway development, establish and improve the project construction and operation supervision mechanism, and ensure that the development of the city (suburban) railway has laws to follow, rules to follow, safe and reliable. When using existing railways to drive the city (suburb) railway trains, the railway enterprises shall apply for local government to study and introduce operational plans and related measures, strengthen the responsibility of the main body of enterprise transportation safety, reasonably divide the powers and responsibilities of all local governments, and ensure the safe and convenient travel of the masses. . For new urban (suburban) railways, railway enterprises should standardize and simplify the procedures for connecting new lines with existing railways; government departments at all levels should play the main responsibility, promote the decentralization of administration, optimize the approval process, improve the efficiency of examination and approval, and speed up planning and Project approval; the city government should strengthen the personnel training and construction, improve the supervision system and mechanism, strengthen the post-event supervision of the newly-built city (suburban) railway, and ensure the safety of project construction and operation.

(15) Improve the technical standards system. Encourage a variety of standards, support technological innovation, and promote the development and industrialization of new equipment. Encourage local and enterprise to promote technological and management innovation, and establish and improve the city (suburban) railway technical standards system in line with China's national conditions. Combine "Made in China 2025" to further promote the development of railway equipment manufacturing industry in the city (suburb), encourage rail transit equipment enterprises to increase train research and development efforts, and break through key components and green intelligent integration technologies based on existing urban rail transit equipment. Improve the city (suburb) railway train spectrum, establish a self-contained industrial system, and build an internationally competitive city (suburban) railway equipment industry chain.

(16) Selecting key projects to promote the project. A number of demonstration projects have recently been launched, and the scope of demonstration projects has been expanded in a timely manner, and differentiated explorations have been carried out in terms of demonstration contents, implementation plans, and work arrangements. The relevant departments of the city government, railway enterprises and social capital should strengthen cooperation in railway resource assessment, supporting facilities transformation, cooperation mode, income distribution, etc., to achieve mutual benefit and win-win results, and form a batch of experiences that can be replicated and promoted.

(17) Strengthen the supervision of the implementation process. Give full play to the enthusiasm of the central, local, and corporate parties, and work together to promote the development of the city (suburb) railway. Innovative ways to achieve effective supervision of urban (suburban) railway development, and create and maintain a fair and orderly market environment. The state strengthens follow-up guidance, summarizes and evaluates implementation in a timely manner, and coordinates and resolves related issues. The planning and project implementation shall be handled in strict accordance with the relevant national approval procedures, and the subway and monorail shall not be constructed in the name of the municipal (suburban) railway. The National Development and Reform Commission will strengthen inspections and inspections with relevant departments and seriously deal with violations.