This plan has been formulated to implement the spirit of the “Implementation Opinions of the General Office of the Henan Provincial People’s Government on Deepening the Implementation of the Urban Public Transportation Priority Development Strategy and Promoting the High-Quality Development of Urban Public Transportation” (Yu Zheng Ban [2023] No. 4), enhance the overall level of urban public transportation, and address the specific conditions of our city.
I. General Requirements
(1) Guiding Principles. Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, we will thoroughly implement the spirit of the 20th National Congress of the Communist Party of China and fully carry out the arrangements for building a transportation powerhouse. We will prioritize public transportation in urban transportation development, build a safe, convenient, green, smart, and efficient urban public transportation system, enhance the attractiveness and service quality of public transportation, provide equitable, diversified, and high-quality urban public transportation services to the people, and offer strong support for better serving the public’s travel needs.
(2) Development Goals. By 2025, the policy framework for the high-quality development of urban public transportation will be fundamentally sound; the service quality, reliability, and sustainable development capacity of urban public transportation will be significantly enhanced; new breakthroughs will be achieved in intelligent, green, and diversified development; the “first mile” and “last mile” challenges in public travel will be effectively resolved; and the results of high-quality development in public transportation will be clearly evident.
1. A more prominent role. The modal share of urban public transportation in motorized travel shall not be less than 45%.
2. Infrastructure will be further improved. The 500-meter coverage rate of public transit stops in central urban areas, the proportion of new or renovated bus bays on major urban thoroughfares, and the rate of public buses and trams entering depots will all reach 100%. The proportion of dedicated bus lanes will be no less than 20%, and the proportion of newly added accessible bus stops will reach over 80%.
3. More advanced technology and equipment. The proportion of new and replaced new energy urban buses reaches 100% (excluding emergency rescue vehicles); the proportion of hydrogen-powered urban buses is gradually increased; the proportion of new and replaced low-floor and low-entry urban buses is no less than 30%; and the installation rate of onboard intelligent video surveillance systems on urban buses reaches 100%.
4. Service quality is further enhanced. The average operating speed of urban buses and trolleybuses during morning and evening rush hours reaches 18 km/h or higher; the on-time departure rate for urban buses is no less than 90%; real-time arrival information coverage reaches 100%; the proportion of non-cash payments reaches over 80%; and the number of smart bus stops reaches 300.The schedule adherence rate for urban rail transit trains will be no less than 99.98%, the line service quality evaluation score will be no less than 900 points, and the train punctuality rate will be no less than 99.95%. Passenger satisfaction with urban public transportation will be no less than 85%. Bus stops will be fully covered within a 100-meter radius of urban rail transit stations, and seamless connections between subways and buses will be achieved.
5. Enhanced operational safety. The coverage rate of the dual-prevention system among public transportation enterprises will reach 100%, the installation rate of protective barriers in bus driver compartments will reach 100%, and the fatality rate from traffic accidents involving urban public transportation will not exceed 0.05 per million vehicle-kilometers.
6. More sustainable industry development. The rate of disbursement for public transportation subsidies and compensation will reach 100%. The sustainable development capacity and modern governance capabilities of urban public transportation enterprises will be comprehensively enhanced. The ability of public transportation to facilitate convenient travel for the public will be significantly strengthened, and transportation will be closely integrated with economic and social development. Employee income will, in principle, not be lower than the local average wage level, and employees’ sense of pride and belonging in their work will be markedly enhanced.
II. Key Tasks
(1) Deepen the Implementation of the Public Transport Priority Development Strategy.
1. Strengthen planning guidance and optimize resource allocation for urban public transportation. Establish an urban development and land allocation model oriented toward public transportation. When formulating master plans for territorial space and urban control detailed plans, concurrently develop comprehensive urban transportation system plans and specialized urban public transportation plans.Coordinate the construction of major transportation infrastructure, rationally allocate and utilize various transportation resources, and incorporate facilities such as comprehensive transit hubs, bus depots, and rail transit vehicle depots (including parking lots and depots) into urban infrastructure construction plans. In urban detailed plans, clearly define the land area and control indicators for rail transit stations and ancillary projects, as well as bus depots.Facilities, equipment, sites, and premises related to public safety within urban public transportation plans must be effectively secured. Natural resources and planning departments shall, based on relevant public transportation plans, promptly incorporate public transportation land into the controlled land categories of control plans and prioritize the allocation of land for public transportation facilities. Strengthen supervision over the implementation of public transportation plans; arbitrary modifications or changes to such plans are prohibited, and the diversion of land designated for public transportation for other uses is strictly forbidden.
2. Strengthen the protection of road rights. Implement the development plan for bus-only lanes. In accordance with the "Specifications for the Establishment of Bus-Only Lanes (GA/T507-2004)," study the establishment of urban bus-only lanes on major thoroughfares where conditions permit, and build a continuous, networked system of bus-only lanes. On major and secondary thoroughfares without designated bus-only lanes, implement appropriate measures during peak traffic hours to ensure priority passage for urban public transport vehicles.Based on actual road conditions, explore measures to exempt public transport vehicles from left-turn and right-turn restrictions and to effectively improve the operating speed of urban public transport vehicles and road utilization efficiency. Scientifically install urban public transport priority signal systems, reasonably optimize signal timing, reduce waiting times for public transport vehicles at intersections, and ensure priority passage for urban public transport vehicles.Increase investment in and construction of traffic management facilities that prioritize public transport. When constructing, renovating, or expanding roads, simultaneously install intelligent traffic management facilities such as surveillance systems, electronic traffic enforcement cameras, and checkpoints, and apply accurate and clear signage and markings. Strengthen monitoring of bus-only lanes and impose penalties in accordance with the law for violations such as occupying bus-only lanes or interfering with the priority passage of public transport vehicles.
3. Continuously Strive for Excellence. Carry out relevant work for the dynamic assessment of National Public Transport City Demonstration Cities. Adhere to the principles of “unchanged direction, unrelenting effort, and uncompromising standards.” Maintain a routine working mechanism led by the government with the joint participation of relevant departments, regularly study and deploy tasks related to the construction of public transport cities, and promote the improvement of quality and efficiency in public transport city development.
(II) Accelerate the Improvement of Public Transportation Infrastructure.
4. Intensify infrastructure construction efforts. In accordance with the “Luoyang City Main Urban Area Public Transportation Special Plan and Station Construction Plan (2021–2035),” prioritize securing land for urban public transportation infrastructure, accelerate the construction of comprehensive urban passenger transport hubs and bus stations, and incorporate urban public transportation stations and supporting service facilities (including pedestrian walkways, bicycle lanes, and public parking lots) into urban renovation plans for unified planning and simultaneous implementation.Explore the implementation of integrated bus depots. Based on the planned population growth and spatial distribution of key areas such as new residential districts, large office complexes, commercial districts, and university campuses, reasonably plan and construct bus terminals, hub stations, and charging facilities for new energy buses, ensuring they are planned, inspected, and put into use simultaneously.
5. Improve the environment at public transportation stops. Orderly carry out barrier-free renovations of urban bus stops and upgrades of aging bus shelters, renovating no fewer than 15 barrier-free stops and upgrading no fewer than 50 sets of bus shelters annually. When constructing, renovating, or expanding primary and secondary urban roads, build bay-style bus stops in accordance with the “Three Haves and Two Nos” standard (with canopies, seating, and platforms; barrier-free; and free of standing water).
6. Support the comprehensive development of public transportation terminals.Existing public transportation infrastructure sites and above- and below-ground spaces along rail transit lines may be developed comprehensively in accordance with market principles and relevant regulations. While ensuring operational requirements are met, support will be provided to original land users for the three-dimensional comprehensive development of existing urban public transportation infrastructure sites. Research into multi-level spatial development models will be conducted to build modern public transportation complexes integrating functions such as parking, residential leasing, commerce, finance, dining, and advertising. One pilot site will be selected to pioneer three-dimensional comprehensive development.When planning surface bus and rail transit stations, the potential for comprehensive development should be considered in advance. Space should be reserved for commercial operations based on local conditions to enhance the sustainable development capacity of urban public transportation. A mechanism for the comprehensive development of urban public transportation land and the reinvestment of proceeds should be established, with all proceeds from the comprehensive development of public transportation infrastructure land used exclusively for public transportation infrastructure construction and to offset operational losses of urban public transportation enterprises.
(3) Accelerate the improvement of public transportation service quality.
7. Optimize urban public transportation organization models. Based on public transit network construction plans, public travel patterns, and passenger flow analysis, optimize and adjust the layout of urban bus networks and stops, and expand route coverage in areas surrounding the city as well as in newly built hospitals, schools, and residential districts.Develop community buses and short-distance routes tailored to local conditions to build a micro-circulation bus system and enhance local transit connectivity. Actively develop specialized services such as on-demand buses, tourist routes, express buses with limited stops, business express lines, and commuter shuttles to strengthen public transit capacity. Deepen the integration of urban and rural public transit, gradually launch express bus routes connecting Luoyang with neighboring cities, and strengthen transportation connectivity with surrounding cities.
8. Strengthen public transit transfers and connections. Construct “Park-and-Ride” facilities at city entrances and exits and at outer stations of the rail transit system. Promote mutual recognition of security checks between rail transit and railways, and strengthen coordination between city buses, subways, railways, and civil aviation in terms of operating schedules and dispatch arrangements to ensure convenient transfers for passengers. Increase the construction of taxi stands around hospitals, commercial districts, scenic areas, and large residential areas to optimize traffic order.Designate parking spaces for non-motorized vehicles and shared vehicles within a distance of 30 to 50 meters from rail transit entrances and exits and bus stops. Strengthen the construction of pedestrian and bicycle lanes to build a continuous, safe, comfortable, and convenient system for non-motorized travel. Actively advance the integration of public transportation, ensuring effective connections between buses, subways, and high-speed rail, as well as seamless integration between shared bicycles and public transportation, thereby significantly improving the overall operational efficiency of the public transportation system.
9. Strengthen the digital application of urban public transportation. Conduct feasibility studies on the construction of “Mobility as a Service” (MaaS) platforms, promote the integration of urban passenger transport services, and advance the healthy, orderly, and rapid development of intermodal transportation. Further enhance and improve public travel information services, vehicle operation and dispatch management systems, safety monitoring systems, operational service supervision systems, and emergency response systems. Deepen the practical application of passenger flow analysis systems in scientific route scheduling, leverage the empowering role of big data, and promote the construction of smart bus stops.Accelerate the development of smart rail transit and establish an integrated smart rail transit operational platform that combines functions such as early warning analysis, command and dispatch, and emergency response. Promote the application of new models, technologies, and products for rapid security screening in urban rail transit to gradually achieve “seamless security screening.” Establish a payment system compatible and coordinated across rail, bus, and urban-rural passenger transport, and accelerate the implementation of code-scanning interoperability between bus and rail transit.
10. Promote the application of green public transportation equipment. Continue to promote the adoption of new energy buses, advance the construction of charging stations and hydrogen refueling stations, and prioritize the deployment of fuel cell passenger vehicles at urban transportation hubs and major scenic areas in conjunction with hydrogen station layouts. Optimize bus models based on urban development needs and scientifically match vehicles to operating hours and routes.
11. Improve the accessibility of urban public transportation services for the elderly. Accelerate the construction and renovation of urban public transportation infrastructure to meet the needs of the elderly, and gradually achieve full coverage of barrier-free facilities at bus depots and rail transit stations. Gradually increase the proportion of new and replacement low-floor and low-entry buses each year, and gradually equip non-low-floor or non-low-entry buses with accessibility features to facilitate boarding and alighting for passengers with special needs.Establish two dedicated senior-friendly bus routes annually, and install "alighting reminder" bells at designated seats for the elderly, the infirm, the disabled, and pregnant women on public buses. Continue to implement preferential policies for special groups; gradually eliminate annual renewals for senior citizen cards; accelerate the rollout of third-generation social security cards (including electronic social security cards) for public bus and subway travel; and explore, at an appropriate time, allowing seniors to use their ID cards to ride urban public transportation.
12. Deepen the development of a civilized public transportation culture. Actively carry out the “Service Star” selection and commendation campaign to promote the spirit of model workers, the spirit of labor, and the spirit of craftsmanship.We will thoroughly organize employee sports meets and skills competitions to enhance employees’ physical fitness, professional skills, service quality, and workplace safety standards. We will support public transportation enterprises in striving to become national and provincial-level exemplary enterprises, brand-name routes, star-rated drivers, and “Most Beautiful Metro Stations,” thereby leveraging their exemplary, leading, and influential roles. Urban public transportation enterprises should regularly publish social responsibility reports to showcase the industry’s civilized image and highlight their social contributions and sense of responsibility.
(4) Establish a mechanism for the sustainable development of public transportation.
13. Improve the fiscal support mechanism. Increase investment in urban public transportation and provide financial and policy support for projects that have a significant impact on urban development, such as the construction of public transportation terminals, the procurement and renewal of new energy vehicles and supporting facilities, the enhancement of information technology levels, and age-friendly renovations. Implement cost regulation and fiscal subsidy compensation measures for public transportation enterprises to ensure that public transportation subsidies are fully disbursed. Provide subsidies and compensation, based on actual circumstances, for policy-related losses incurred by enterprises due to undertaking government-mandated tasks.Strengthen oversight of urban public transportation enterprises by conducting annual audits and evaluations of operating costs and expenses, and making the results public. Relevant departments, such as development and reform and finance, should further streamline various charges levied on urban public transportation enterprises, promptly publish the list of charges, and safeguard the legitimate rights and interests of these enterprises. Fully implement policies regarding the reduction or exemption of relevant taxes and fees that urban public transportation enterprises are entitled to under the law.
14. Establish a fare assessment and adjustment mechanism. Establish a dynamic assessment and adjustment mechanism for public transportation fares to build a fare system that is “affordable for the government, sustainable for enterprises, and bearable for the public.” Taking into account fiscal capacity, enterprise operating costs, and residents’ ability to pay, research differentiated and diversified adjustment mechanisms for rail transit and surface bus fares, and adjust public transportation fares in a timely manner to promote the sustained and healthy development of urban public transportation.Based on Luoyang’s characteristics and the travel needs of different types of passengers, promote a variety of fare systems and pricing options, including day passes, monthly passes, quarterly passes, annual passes, and transfer discount tickets. Formulate intermodal discount policies for rail transit and surface bus services to further enhance the overall appeal of urban public transportation and encourage residents to choose public transportation for their travel needs.
15. Promote the transformation and upgrading of urban public transportation enterprises. Support public transportation enterprises in diversifying their business operations, fully utilizing high-quality existing assets, and broadening financing channels. Attract and encourage social capital to participate in the construction and operation of public transportation infrastructure. Expand business channels through market-oriented operations, support the development of bike-sharing services, strengthen emerging business segments, integrate core and auxiliary operations, enhance the enterprises’ internal momentum, and improve their financial status.Accelerate the strategic restructuring and specialized integration of public transportation enterprises to establish a business layout characterized by clear divisions, specialized expertise, and appropriate scale.
16. Safeguard the legitimate rights and interests of employees.Establish and improve a mechanism for the normal growth of per capita income for employees of public transportation enterprises, and gradually increase their wages. Implement relevant national laws and regulations to safeguard employee rights, ensure appropriate labor benefits and entitlements, and maintain the stability of the urban public transportation workforce. Continuously improve the working and living conditions of employees, persistently advance the construction of employee rest areas and "Care Stations," and properly address practical issues such as drivers’ meals and rest periods. Regularly organize employee physical examinations and mental health counseling to safeguard the physical and mental well-being of employees.
(V) Enhance the Safety of Public Transportation Operations.
17. Strengthen accountability for public transport safety. Public transport authorities shall fulfill their regulatory responsibilities for work safety, ensuring that safety management is properly organized and deployed, supervised and inspected, and that responsibilities are fully implemented. Urban public transport operators shall assume primary responsibility for work safety, establish and improve a work safety responsibility system covering all employees, and ensure that principal responsible persons bear primary responsibility.
18. Improve risk prevention mechanisms. Public transportation authorities shall supervise and guide operating enterprises to improve the dual-prevention mechanism of graded safety risk control and hidden hazard investigation and rectification, and shall effectively carry out risk identification and assessment, risk early warning and prevention, hidden hazard investigation and rectification, monitoring of major hazard sources, and emergency management.Strengthen the prevention and control of major risks in the public transportation sector. Thoroughly inspect traffic safety facilities on urban bus bridges crossing rivers and sections of road adjacent to cliffs. Enhance the management of operational routes passing through tunnels, culverts, and bridges. Ensure that protective barriers in vehicle driver compartments are installed in accordance with standards. Strengthen routine vehicle inspections and the management of charging and battery swapping for new energy vehicles. Revise the “Luoyang City Measures for Strengthening the Planning, Construction, and Safety Protection Zones of Rail Transit” to safeguard the legitimate rights and interests of all parties involved in rail transit and promote the healthy development of the rail transit sector.Strengthen coordination and collaboration among government departments such as transportation, public security, and emergency management, as well as public transportation enterprises and neighborhood communities, to establish a public safety cooperative defense system and emergency response mechanism. Guide enterprises in carrying out counter-terrorism prevention, security inspections, public order maintenance, and fire safety management.
19. Strengthen the development of emergency response mechanisms. Improve emergency command mechanisms and refine information-sharing, joint drills, and emergency coordination mechanisms among relevant units such as transportation, public security, fire services, and emergency management. Promptly revise and improve the integration of urban public transportation emergency plans with the city’s comprehensive emergency plan. Refine suspension mechanisms for extreme weather and sudden incidents; when safe operating conditions are not met, operations must be suspended decisively and promptly, and drivers are strictly prohibited from taking risks or operating under hazardous conditions.Strengthen emergency response training and conduct regular emergency drills to enhance the emergency response capabilities of public transportation enterprise managers and drivers.
III. Division of Responsibilities
1. Municipal Development and Reform Commission: Coordinate the construction of charging stations; review and streamline all fees charged to urban public transportation enterprises; promptly publish fee schedules; and guide public transportation enterprises in establishing a scientific mechanism for fare adjustment.
2. Municipal Bureau of Industry and Information Technology: Take the lead in implementing fuel cell vehicle demonstration projects in our city; provide policy support for hydrogen-powered buses purchased by public transportation enterprises that meet national requirements for fuel cell vehicle demonstration applications.
3. Municipal Public Security Bureau: Establish a network of bus-only lanes; study the exemption of public transportation vehicles from left-turn and right-turn restrictions; scientifically configure public transportation signal systems; strengthen monitoring and management of bus-only lanes to ensure priority passage for public transportation vehicles; cooperate in exploring the use of ID cards for senior citizens to ride public transportation; and guide public transportation enterprises in carrying out counter-terrorism prevention, security inspections, and public safety measures.
4. Municipal Finance Bureau: Improve support mechanisms, increase investment in urban public transportation, and ensure subsidies are disbursed in accordance with cost regulation and subsidy compensation measures; establish a mechanism for reinvesting revenues from the comprehensive development of public transportation land.
5. Municipal Human Resources and Social Security Bureau: Accelerate the implementation of third-generation social security cards (including electronic social security cards) for public bus and subway travel.
6. Municipal Bureau of Natural Resources and Planning: Strengthen planning guidance for urban public transportation; rationally allocate land for public transportation; clarify the scale and control indicators for such land; and ensure that land for public transportation facilities is promptly incorporated into the control land categories of the master plan. Strengthen supervision over the implementation of public transportation planning to ensure that land designated for public transportation is not misappropriated; address policy bottlenecks in the development and utilization of public transportation land; and support integrated development along subway lines and on public transportation land.When approving plans for large-scale residential areas, commercial districts, and industrial parks, explore the inclusion of integrated bus terminals.
7. Municipal Bureau of Housing and Urban-Rural Development: Implement the planning of bus-only lanes; designate bus-only lanes concurrently with the construction, reconstruction, and expansion of roads; and build standardized bay-style bus stops and accessible platforms.
8. Municipal Transportation Bureau: Coordinate and oversee the dynamic assessment of the public transport city initiative, the construction of public transport depots and terminals, the development of public transport route networks, the digital application of public transport, the promotion of new energy vehicles, the development of age-friendly routes, policy subsidies, and public transport transfers; strengthen safety supervision of public transport operations.
9. Municipal Emergency Management Bureau: Provide guidance on work safety for public transportation enterprises.
10. Municipal State-owned Assets Supervision and Administration Commission: Lead the restructuring and consolidation of public transportation enterprises to foster synergy in industry development.
11. Municipal Urban Management Bureau: Responsible for the construction of the pedestrian and bicycle infrastructure system and its integration with public transportation; assist relevant units in completing tree and shrub transplantation and power supply support during the construction or renovation of bus shelters.
12. Municipal Financial Work Bureau: Assist public transportation enterprises in expanding financing channels and coordinate cooperation between banks and public transportation enterprises.
13. Municipal Federation of Trade Unions: Support public transportation enterprises in their efforts to excel and achieve excellence, and guide the conduct of spiritual civilization selection and commendation activities.
14. Municipal Tax Bureau: Implement policies regarding tax and fee reductions or exemptions that urban public transportation enterprises are entitled to under the law.
15. State Grid Luoyang Power Supply Company: Provide support for the construction of public transportation charging stations.
16. All Public Transportation Enterprises: Continue to advance the construction of depots, accessible platforms, and age-friendly facilities; implement comprehensive development projects, expand diversified business operations, and enhance internal growth momentum;optimize route network layouts to achieve seamless connections, promote various fare systems, study intermodal discount schemes, and improve overall operational efficiency; strengthen digital applications and comprehensively advance the construction of intelligent systems; conduct demonstration operations of fuel cell passenger vehicles; actively promote spiritual civilization initiatives, improve wage growth mechanisms for employees, enhance the working environment, and safeguard physical and mental health; implement primary responsibility for work safety, improve risk prevention mechanisms, and enhance emergency response capabilities.
17. District Governments of Each City: Ensure land allocation for public transportation facilities; land designated for public transportation in planning documents shall not be diverted for other uses. Be responsible for expenses related to land acquisition, demolition, and approval procedures for designated public transportation facilities; cooperate with public transportation enterprises to complete relevant formalities within the statutory timeframe and hand over the land in a cleared condition.
IV. Support Measures
(1) Strengthen Organizational Guarantees. All relevant departments shall, in accordance with national and provincial policies, ensure the thorough implementation of the strategy prioritizing urban public transportation to promote high-quality development of urban public transportation. The Municipal Transportation Bureau shall take the lead in establishing a joint conference system, convening meetings as needed to implement decisions on public transportation development, clarify the responsibilities of each department, and centrally address prominent issues hindering the high-quality development of urban public transportation. All counties and districts shall formulate and refine relevant measures in reference to this plan, establish sound working mechanisms, and strengthen support for public transportation development.
(2) Strengthen Assessment and Evaluation. Led by the Municipal Transportation Bureau and with the cooperation of relevant units, the implementation of this plan shall be monitored annually. Where implementation is inadequate, the Municipal Government Inspection Office shall be engaged to provide oversight. Each year, the service quality and operational safety of urban public transportation enterprises shall be evaluated in accordance with relevant regulations on service quality performance assessments. The evaluation results shall serve as a key basis for measuring the operational performance of urban public transportation enterprises and for the distribution of government subsidies.
(3) Foster a Supportive Environment. Municipal news media shall take the initiative to organize diverse, public-participatory promotional activities to actively promote the concept of public transport priority and specific measures, thereby encouraging more residents to choose public transport for their daily commutes.Increase publicity efforts regarding model workers, exemplary employees, and notable achievements in the public transportation sector to further enhance the visibility of urban public transportation enterprises. Continue to organize activities such as Green Travel Awareness Month, Public Transportation Week, Car-Free Day, and Public Transportation Open House Days to increase public acceptance and recognition of urban public transportation and foster a positive atmosphere for green travel among residents.
