To thoroughly implement the strategy of prioritizing urban public transportation development and to accelerate the reform, innovation, and high-quality development of urban public transportation in our city, this plan has been formulated in accordance with the requirements of the “Implementation Opinions of the General Office of the People’s Government of Henan Province on Thoroughly Implementing the Strategy of Prioritizing Urban Public Transportation Development and Promoting the High-Quality Development of Urban Public Transportation” (Yu Zheng Ban [2023] No. 4), and in light of local conditions.

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, firmly uphold the people-centered development philosophy, and take improving the public travel experience as both the starting point and ultimate goal. Closely aligning with urban development needs, we will focus on optimizing the urban public transportation network, expanding public transportation coverage, improving public transportation infrastructure, and enhancing the service quality of bus routes. We aim to build a high-quality, efficient urban public transportation service system that meets public expectations and ensures passenger satisfaction, thereby providing strong support to better meet the travel needs of the people.

(2) Development Goals

By 2025, a multi-tiered, highly efficient, high-quality, and integrated public transportation development system adapted to the actual conditions of Xinyang City will be basically established. Significant achievements will be made in the high-quality development of urban public transportation, and core competitiveness will be significantly enhanced.

1. The dominant role of public transportation will be effectively established. The modal share of public transportation in the central urban area will be no less than 40%. The proportion of green travel among residents in the central urban area and county-level cities will be no less than 60%.

2. Infrastructure will be further improved. In the central urban area, public transportation stop coverage within 500 meters will be achieved; the proportion of newly constructed or renovated bus bays on major urban thoroughfares will reach 100%; the rate of public buses and trams entering depots will reach 100%; the proportion of newly added accessible bus stops will reach over 80%; and the proportion of dedicated bus lanes in the central urban area will be no less than 20%.

3. Continuous improvement in equipment standards. Vehicle ownership per 10,000 people will be no less than 13 standard vehicles per 10,000 people; the proportion of new and replaced new energy urban buses in central urban areas will reach 100%; the proportion of new or replaced low-floor and low-entry urban buses will be no less than 30%; and the installation rate of onboard intelligent video surveillance systems on urban buses will reach 100%.

4. Service quality will be significantly improved. The average operating speed of urban buses and trolleybuses during morning and evening rush hours will be no less than 20 km/h; on-time departure rates will be no less than 90%; real-time arrival information coverage will reach 100%; the proportion of non-cash payments will exceed 80%; and passenger satisfaction with urban public transportation will be no less than 90%.

5. Enhanced operational safety. The fatality rate from traffic accidents attributable to urban public transport shall not exceed 0.05 per million vehicle-kilometers; the coverage rate of the dual-prevention system among urban public transport enterprises shall reach 100%; and the installation rate of protective barriers in bus driver compartments shall reach 100%.

6. Significantly enhanced capacity for sustainable development. The rate of full disbursement of operational subsidies for urban public transportation reaches 100%; the sustainable development capacity and modern governance capabilities of urban public transportation enterprises are comprehensively improved; employee income is, in principle, no less than the local average wage level; and the professional pride and sense of belonging among employees are significantly enhanced.

II. Key Tasks

(I) Promoting the Priority Development of Public Transportation

1. Strengthen the guiding role of planning. Fully draw on the development experiences of exemplary cities to establish a model where public transportation leads urban development, thereby guiding the layout of urban functions and the adjustment of industrial structures.In conjunction with the city’s master plan for territorial and spatial development, fully consider the needs of urban public transportation development and public travel. Coordinate urban spatial layout, functional zoning, land use, and transportation demand to revise and improve the specialized urban public transportation plan. Scientifically plan the bus route network, optimize the layout of key hubs, and establish a modern urban transit transfer system. Strengthen coordination with private motorized and non-motorized transportation to enhance public transportation’s capacity to lead urban development.(Responsible Units: Municipal Bureau of Natural Resources and Planning, Municipal Bureau of Transportation, Municipal Development and Reform Commission, Shenxin Company, and People’s Governments of all counties and districts)

2. Ensure Priority for Public Transportation. In accordance with the "Specifications for the Establishment of Public Transportation Lanes (GA/T507—2004)," public transportation lanes shall be established on eligible urban roads in the central urban area, including Xinqi Avenue, Hudong Avenue, Nanjing Avenue, Jigongshan Street, and Xin’er Shi Si Avenue. Public transportation lanes shall be planned and constructed concurrently with new or reconstructed arterial roads, gradually forming a network that prioritizes public transportation.Taking into account factors such as the actual conditions of urban roads, traffic volume, and travel patterns, pilot projects for urban public transit priority signal systems will be implemented at intersections of public transit lanes, with orderly promotion and application on major public transit lanes and key urban roads. In conjunction with the layout of public transit lanes, a clear and intuitive signage system—including signs and markings—will be established. Monitoring and management of public transit lanes will be strengthened, and enforcement against illegal occupation of public transit lanes will be intensified to effectively safeguard the priority right of way for public transit.(Responsible Units: Municipal Public Security Bureau, Transportation Bureau, Housing and Urban-Rural Development Bureau, Urban Management Bureau, Shenxin Company, and People’s Governments of all counties and districts)

3. Promote the creation of public transport demonstration zones. Actively seek designation as a national demonstration city for public transport development. Based on the actual conditions of the city’s public transport development, scientifically formulate an implementation plan for the creation of a public transport demonstration city. This plan should detail construction objectives, key priorities, supporting measures, investment budgets, financing plans, timelines, and the division of responsibilities among departments. Additionally, improve supporting policies regarding planning, construction, land use, road rights, and funding.(Responsible Units: Municipal Transportation Bureau, Development and Reform Commission, Public Security Bureau, Finance Bureau, Natural Resources and Planning Bureau, Urban Management Bureau, Shenxin Company, People’s Governments of Shihe District and Pingqiao District, and Yangshan New District Administrative Committee)

(2) Improve Public Transportation Infrastructure

1. Secure Land for Public Transportation. In accordance with the Master Plan for Territorial Space, prioritize securing land for urban public transportation infrastructure. Based on the Master Plan for Territorial Space, formulate a specialized urban public transportation plan and implement its key provisions within detailed urban plans.Incorporate the construction of parking lots, maintenance yards, terminal stations, dispatch centers, and transfer hubs—as specified in the urban public transportation master plan—into urban renewal and new urban area development projects, ensuring synchronized planning, design, construction, completion, and commissioning. Strengthen supervision of public transportation land use; the designated use of public transportation facilities already in operation shall not be arbitrarily altered; land that has been rezoned shall be reclaimed by the government in accordance with the law and reallocated for public transportation infrastructure construction.No entity or individual may encroach upon or misappropriate land designated for public transportation facilities in the plan, nor may they arbitrarily demolish, alter, relocate, or occupy public transportation facilities. (Responsible Units: Municipal Bureau of Natural Resources and Planning, Development and Reform Commission, Housing and Urban-Rural Development Bureau, Urban Management Bureau, Transportation Bureau, Shenxin Company, and People’s Governments of all counties and districts)

2. Accelerate infrastructure construction. Increase investment in the construction of public transit hubs and terminals. In accordance with the public transit network layout, reasonably plan and construct bus depots, hubs, and terminal stations to improve the rate of public transit vehicles entering designated facilities.Implement a program to renovate and upgrade bus stops. In the central urban area, on eligible urban road sections such as New 5th Avenue, New 7th Avenue, and Jigongshan Street, construct bay-style bus stops in accordance with the “Three Haves and Two Nos” standard (i.e., equipped with canopies, seating, and platforms; barrier-free; and free of standing water). When constructing or expanding urban roads, comprehensively consider the construction of bay-style bus stops.Strengthen the construction of urban public transportation terminals and transfer facilities supporting key hubs such as the Railway Station and Xinyang East Station, and improve the integration of urban public transportation with other modes of transport. (Responsible Units: Municipal Transportation Bureau, Development and Reform Commission, Housing and Urban-Rural Development Bureau, Finance Bureau, Natural Resources and Planning Bureau, Urban Management Bureau, Shenxin Company, and the People’s Governments of all counties and districts)

3. Strengthen comprehensive development of transit stations. Support the three-dimensional and comprehensive development of both above-ground and underground spaces on urban public transportation infrastructure sites. Provided that all necessary procedures are completed and the original functions of public transportation are guaranteed, encourage the construction of modern public transportation complexes that integrate functions such as parking (for buses and private vehicles), property leasing, commerce, finance, dining, and advertising.All proceeds from the comprehensive development of public transportation land, as well as additional operating revenue generated from expanded service functions, shall be fully allocated to the construction, management, and operational deficit coverage of public transportation stations. (Responsible Units: Municipal Bureau of Natural Resources and Planning, Bureau of Housing and Urban-Rural Development, Finance Bureau, Urban Management Bureau, Transportation Bureau, Shenxin Company, and People’s Governments of all counties and districts)

(3) Enhancing Public Transportation Service Levels

1. Improve the urban public transportation system. Explore the construction of a rapid transit network in the central urban area and systematically develop pilot routes. Optimize the conventional bus network and, in response to public travel needs, develop specialized public transportation services such as on-demand buses, tourist buses, and community buses. Establish a multi-tiered public transportation system with high- and medium-capacity rapid transit serving as the backbone and conventional buses as the mainstay.(Responsible Units: Municipal Transportation Bureau, Development and Reform Commission, Public Security Bureau, Culture, Radio, Television, and Tourism Bureau, Housing and Urban-Rural Development Bureau, Shenxin Company, People’s Governments of Shihe District and Pingqiao District, and Yangshan New District Administrative Committee)

2. Strengthen the Application of New Energy Vehicles. Except for retaining necessary emergency rescue vehicles, all newly added and replaced urban buses and trams shall be new energy vehicles. Prioritize the planning and construction of urban public transportation charging (and battery-swapping) stations, charging piles, and other facilities. Within public transportation hubs and terminals, plan and construct bus charging facilities in a timely manner based on actual needs to form a charging facility service system that is moderately forward-looking and reasonably laid out.(Responsible Units: Municipal Transportation Bureau, Development and Reform Commission, Finance Bureau, Industry and Information Technology Bureau, State Grid Xinyang Power Supply Company, Shenxin Company, and People’s Governments of all counties and districts)

3. Promote the Smart Development of Public Transportation. Integrate the intelligent development of public transportation into the city’s information technology infrastructure. In accordance with the requirements of intelligence, integration, and user-friendliness, fully leverage Internet sensing technologies, spatial information technologies, and mobile communication technologies to comprehensively deploy on-board terminals, electronic bus stops,terminal monitoring, and entrance/exit management. Integrate dispersed data resources—including personnel, organizations, vehicles, routes, and stops—within the urban public transportation system. Prioritize the development of a 5G+ smart public transportation operations management system that integrates functions such as big data analysis, intelligent scheduling, route network optimization, public information services, and smart terminal management. This will enable intelligent monitoring and management of public transportation operations, as well as “one-stop” information services for the public.Comprehensively promote and popularize the “One-Card” system for urban public transportation, accelerating its application across different modes of urban transport and its interconnectivity across municipal boundaries. (Responsible Units: Municipal Transportation Bureau, Administrative Approval and Government Information Management Bureau, Public Security Bureau, Industry and Information Technology Bureau, Shenxin Company, and People’s Governments of all counties and districts)

4. Improve the accessibility of public transportation for the elderly. Promote the construction and application of barrier-free facilities in the urban public transportation sector; new, renovated, or expanded roads and public transportation facilities shall comply with engineering standards for barrier-free facilities, and increase the proportion of barrier-free bus stops. Establish service routes dedicated to respecting and caring for the elderly, and enhance the convenience of public transportation for people with disabilities and the elderly. Accelerate the application of social security cards (including electronic social security cards) in the public transportation sector to enable bus travel by swiping social security cards.(Responsible Units: Municipal Bureau of Housing and Urban-Rural Development, Bureau of Transportation, Public Security Bureau, Finance Bureau, Bureau of Human Resources and Social Security, Health Commission, Bureau of Administrative Approval and Government Information Management, Shenxin Company, and People’s Governments of all counties and districts)

5. Deepen the development of a civilized urban public transportation culture. Actively promote the publicity and display of industry model workers and exemplary industry practices, as well as initiatives to care for drivers and crew members. Vigorously promote the spirit of model workers, the spirit of labor, and the spirit of craftsmanship to foster an industry atmosphere that values the dignity of labor, strives for excellence, and embraces innovation, thereby enhancing employees’ professional pride and sense of belonging.Intensify industry-wide labor and skills competitions to effectively improve employees’ technical proficiency, service quality, and workplace safety standards. Extensively organize the “Civilized Service: My Excellence; Public Satisfaction at the Service Counter” initiative. In accordance with national, provincial, and municipal regulations, recognize or select a group of outstanding urban public transportation enterprises, flagship routes, and star-rated drivers to serve as exemplary models and exert a positive influence, thereby further enhancing the civilized conduct of industry personnel.Encourage urban public transportation enterprises to regularly publish social responsibility reports to showcase the industry’s civilized image and highlight their social contributions and sense of responsibility. (Responsible Units: Municipal Transportation Bureau, Human Resources and Social Security Bureau, Federation of Trade Unions, Shenxin Company, and People’s Governments of all counties and districts)

(IV) Promoting the Sustainable Development of the Public Transportation System

1. Improve the fare system. Adhering to the principles of subsidizing costs, ensuring reasonable returns, conserving resources, and sharing the burden equitably, we will comprehensively consider factors such as social affordability, enterprise operating costs, transportation supply and demand, and economic development levels to refine the price formation mechanism. Based on service quality, travel distance, and various public transportation transfer options, we will establish a multi-tiered, differentiated fare system to enhance the appeal of public transportation.(Responsible Units: Municipal Development and Reform Commission, Finance Bureau, Transportation Bureau, Shenxin Company, and People’s Governments of all counties and districts)

2. Improve the price subsidy mechanism. Refine the cost evaluation system and the policy-related loss assessment system for urban public transportation enterprises. Conduct regular cost audits of urban public transportation enterprises, verify the pricing costs of urban public transportation, and scientifically define the scope of government subsidies and compensation. The government will provide financial subsidies and compensation for policy-related losses resulting from low fares, fare reductions or exemptions, and the fulfillment of government-mandated tasks.Increase corporate investment in technological upgrades, energy conservation and emissions reduction, and the operation of underutilized routes. Strengthen connections between different public transportation routes, improve transfer fare discount policies, and increase the rate of transfers. (Responsible Units: Municipal Development and Reform Commission, Finance Bureau, Transportation Bureau, Shenxin Company, and People’s Governments of all counties and districts)

3. Broaden investment and financing channels. In accordance with market-oriented requirements, advance reforms of the public transportation investment and financing system. Support public transportation enterprises in leveraging high-quality existing assets to attract and encourage social capital to participate in the construction and operation of public transportation infrastructure through various forms, including strategic investment, trust investment, special-purpose bonds, and equity financing. Public transportation enterprises may engage in other business operations related to their core transportation services to improve their financial standing and enhance their market financing capabilities.Strengthen cooperation between banks and enterprises, innovate financial services, and provide high-quality, low-cost financing services to support the development of urban public transportation. (Responsible Units: Municipal Finance Bureau, Development and Reform Commission, Financial Work Bureau, Transportation Bureau, Shenxin Company, and People’s Governments of all counties and districts)

4. Standardize the management of public transportation enterprises. Improve the modern corporate management systems of urban public transportation enterprises and standardize their corporate governance structures. Advance reforms in the urban public transportation sector by establishing incentive and constraint mechanisms to encourage economies of scale and moderate competition, and actively promote the allocation of public transportation resources through service quality-based bidding. Organize high-quality service competitions for public transportation enterprises and their employees, strengthen vocational skills and ethics training for drivers and conductors, enhance employees’ service awareness and skills, and reinforce a corporate culture characterized by dedication to one’s job and a spirit of service.Strengthen efforts to build a public transportation talent pool and establish mechanisms for recruiting and cultivating professionals with specialized skills in public transportation. (Responsible Units: Municipal Transportation Bureau, Human Resources and Social Security Bureau, Federation of Trade Unions, Shenxin Company, and People’s Governments of All Counties and Districts)

5. Safeguard the Rights and Interests of Employees. Improve the mechanism for the regular wage increases of urban public transportation enterprise employees; effectively safeguard drivers’ statutory rights, such as rest and vacation time and social insurance contributions; include eligible drivers in the public rental housing security program; establish a compensation system that prioritizes frontline drivers and a staffing management system based on the actual number of vehicles in operation; continuously improve the working and living conditions of employees; promote the construction of employee rest areas and “Care Stations”; and properly address issues related to drivers’ meals and rest;Strengthen labor protection for employees, conduct regular physical examinations and mental health counseling, and safeguard their physical and mental well-being. (Responsible Units: Municipal Transportation Bureau, Human Resources and Social Security Bureau, Development and Reform Commission, Housing and Urban-Rural Development Bureau, Federation of Trade Unions, Health Commission, Shenxin Company, and People’s Governments of all counties and districts)

(5) Ensuring Safe Public Transportation Operations

1. Strengthen the Implementation of Safety Responsibilities. Reinforce the philosophy of “safety first, quality foremost,” and further strengthen the primary responsibility of enterprises and the regulatory responsibility of relevant departments. Strengthen the primary safety responsibility of urban public transportation enterprises, improve safety production management structures, ensure sufficient full-time safety production management personnel, refine the safety production accountability system, and implement safety production management systems and standards regarding vehicles, personnel, stations, and emergency response. Strengthen safety supervision of public transportation, improve the safety standards system, refine safety management systems, and strictly implement the safety assessment system for urban public transportation enterprises.(Responsible Units: Municipal Transportation Bureau, Public Security Bureau, Emergency Management Bureau, Housing and Urban-Rural Development Bureau, Natural Resources and Planning Bureau, Shenxin Company, and People’s Governments of all counties and districts)

2. Improve Risk Prevention Mechanisms. Establish a dual-prevention system covering the entire industry that integrates risk classification and control with the identification and rectification of hidden dangers. Increase investment in safety funding, conduct regular safety inspections and rectification of hidden dangers, strictly implement vehicle maintenance and scrapping systems, and enhance capabilities for preventing and responding to emergencies. Strengthen the construction of inter-departmental coordination mechanisms to jointly supervise and guide urban public transportation enterprises in carrying out work related to counter-terrorism, security checks, public order prevention, and fire safety management, thereby strengthening public safety prevention.(Responsible Units: Municipal Transportation Bureau, Emergency Management Bureau, Public Security Bureau, Shenxin Company, and People’s Governments of all counties and districts)

3. Strengthen Emergency Response and Prevention Capabilities. Enhance emergency management, maintain sufficient emergency transport capacity, and ensure emergency response to government-mandated tasks. Develop and refine urban public transportation emergency response plans for natural disasters, operational accidents, terrorist attacks, and public health emergencies, and conduct regular drills.Conduct public education campaigns on public transportation safety and emergency response knowledge; organize public transportation safety knowledge competitions and emergency drills for public transportation incidents to enhance public awareness of public transportation safety and their ability to prevent and respond to emergencies. (Responsible entities: Municipal Transportation Bureau, Public Security Bureau, Emergency Management Bureau, Shenxin Company, and the people’s governments of all counties and districts)

III. Support Measures

(1) Strengthen Organizational Leadership. A dedicated task force will be established under the Municipal Transportation Work Leading Group. The task force will be led by the Vice Mayor in charge of transportation, with the Deputy Secretary-General of the Municipal Government and the Director of the Municipal Transportation Bureau serving as deputy leaders. Member units will include the Municipal Transportation Bureau, the Development and Reform Commission, the Industry and Information Technology Bureau, the Public Security Bureau, the Finance Bureau, the Municipal Human Resources and Social Security Bureau, the Natural Resources and Planning Bureau, the Housing and Urban-Rural Development Bureau, and the Urban Management Bureau. This task force will be responsible for coordinating and advancing the high-quality development of urban public transportation across the city;The task force’s office will be located within the Municipal Transportation Bureau, which will be responsible for its daily operations. The people’s governments of each county (district) shall earnestly fulfill their primary responsibility for prioritizing urban public transportation and ensuring its high-quality development, establish sound working mechanisms, and formulate specific implementation plans.

(2) Strengthen Assessment and Evaluation. The Municipal Transportation Bureau, in conjunction with relevant departments, shall formulate assessment measures for urban public transportation service quality and establish a system for regular evaluation of service quality and operational safety among urban public transportation enterprises. The evaluation results shall serve as a key basis for measuring the operational performance of public transportation enterprises and for the distribution of government subsidies.

(3) Strengthen Public Oversight. Ensure unimpeded channels for public feedback, establish mechanisms for soliciting and responding to public opinions, and enhance the breadth and depth of public participation to institutionalize and normalize public engagement. Actively implement a public notice system for the planning, launch, and adjustment of urban public transportation route networks, and explore the establishment of a system for disclosing operational costs and service quality information of urban public transportation enterprises to facilitate public oversight.