People’s Governments of all counties (cities, districts), the Municipal Urban-Rural Integration Demonstration Zone, the Zhoukou Port Development Zone, and the Huangfan District Farm Management Committee; Relevant Departments of the Municipal People’s Government:

To thoroughly implement the strategy of prioritizing urban public transportation development and accelerate the reform, innovation, and high-quality development of urban public transportation in our city, in accordance with the “Implementation Opinions of the General Office of the Henan Provincial People’s Government 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 our city’s actual conditions, the following implementation opinions are hereby put forward. Please ensure their thorough implementation.

I. Guiding Principles

Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, we will firmly uphold the people-centered development philosophy, adhere to the development concepts of “innovation, coordination, green development,openness, and sharing,” take public transportation leading urban development as the strategic orientation, and make building a public transportation system that satisfies the people the starting point and ultimate goal. We will strengthen organizational leadership and planning guidance, deepen reform and innovation in public transportation, and build a safe, convenient, green, intelligent, and efficient urban public transportation system to provide the people with equitable, diverse, and high-quality urban public transportation services.

II. Development Goals

(1) Overall Objectives

By 2025, a multi-modal, integrated urban public transportation system—with conventional public transit as the backbone and supplemented by taxis and non-motorized transportation—will be largely established. The policy framework for the high-quality development of urban public transportation across the city will be fundamentally sound, the leading role of public transportation in urban development will be significantly strengthened, and the service quality, operational reliability, and sustainable development capacity of urban public transportation will be markedly enhanced.

(2) Specific Objectives

1. A more prominent leading role. The modal share of public transportation in motorized travel in the central urban area will be no less than 40%, and the proportion of green travel in other counties (cities, districts) will be no less than 60%.

2. More Comprehensive Infrastructure. The 500-meter coverage rate of public transportation stops in the central urban area and Huaiyang District, the proportion of newly constructed or renovated bus bays on major urban thoroughfares, and the rate of urban buses and trams entering depots will all reach 100%; the proportion of newly added accessible bus stops will reach over 80%; and the proportion of dedicated bus lanes will be no less than 20%.

3. More advanced technology and equipment. The proportion of new and replaced new energy urban buses will reach 100% (excluding emergency rescue vehicles), with the gradual procurement of hydrogen-powered urban buses. The proportion of new and replaced low-floor and low-entry urban buses will be no less than 30%. The installation rate of onboard intelligent video surveillance systems on urban buses will reach 100%. The fleet size of urban buses and trolleybuses in the central urban area will reach 12 standard units per 10,000 people or more.

4. Service quality is further enhanced. The average operating speed of urban buses and trolleybuses during morning and evening rush hours reaches 20 km/h or higher; on-time departure rates are no less than 95%; real-time arrival information coverage reaches 100%; the proportion of non-cash payments reaches 80% or higher; and urban public transportation passenger satisfaction is no less than 90%.

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

6. Industry development is more sustainable. The rate of full disbursement of urban public transportation operational subsidies reaches 100%; the sustainable development capacity and modern governance capabilities of urban public transportation enterprises are comprehensively enhanced; and employee income is, in principle, no less than the local average wage level.

III. Key Tasks

(I) Deepen the Implementation of the Public Transport Priority Development Strategy

1. Strengthen Planning Guidance. Adhere to a city-specific approach, establish a model where public transportation leads urban development, and promote positive interaction and high coordination between urban public transportation and overall urban development. Complete the compilation of the *Zhoukou City Central Urban Area Public Transportation Special Plan (2023–2035)*.When drafting the master plan for territorial space, concurrently develop the urban comprehensive transportation system plan and the urban public transportation special plan. In urban detailed plans, specify the land area and control indicators for urban public transportation terminals, fully embodying a public transportation-oriented model of urban development and land allocation. (Responsible Units: Municipal Bureau of Natural Resources and Planning, Municipal Bureau of Housing and Urban-Rural Development, Municipal Urban Management Bureau, Municipal Transportation Bureau; all subsequent tasks are to be implemented by the governments of each county (city, district) and will not be listed separately)

2. Strengthen Coordination and Integration. Coordinate the three key phases of planning, construction, and management; improve the support mechanisms for the implementation of the Urban Public Transportation Special Plan; increase support in areas such as land supply, fiscal policies, facility construction, and road access; and enhance coordination among relevant departments to ensure that urban public transportation infrastructure construction and supporting policies are implemented in accordance with the plan. (Responsible Units: Municipal Bureau of Natural Resources and Planning, Municipal Bureau of Housing and Urban-Rural Development, Municipal Urban Management Bureau, Municipal Transportation Bureau)

3. Strengthen Road Right-of-Way Protection. Develop construction plans for urban bus lanes based on traffic safety conditions on primary and secondary arterial roads and peak-hour public transit ridership, and construct bus lanes in a reasonable manner. Strengthen supervision and management of the use of urban bus lanes, effectively safeguard the right of way for public transit, and improve bus punctuality and operational speed. Implement the simultaneous design, construction, and acceptance of bus lanes on newly built and renovated roads.(Responsible Units: Municipal Public Security Bureau, Municipal Transportation Bureau, Municipal Housing and Urban-Rural Development Bureau, Municipal Urban Management Bureau)

4. Promote Model City Initiatives. Actively benchmark against advanced cities both within and outside the province, organize efforts to establish Henan Province Public Transport Priority Model Cities and National Public Transport Metropolis Model Cities, support counties (cities, districts) in conducting pilot projects for high-quality urban public transport development tailored to their specific characteristics, and strengthen policy support for these initiatives and pilot programs. (Responsible Units: Municipal Transportation Bureau, Municipal Public Security Bureau, Municipal Finance Bureau, Municipal Bureau of Natural Resources and Planning, Municipal Housing and Urban-Rural Development Bureau, Municipal Urban Management Bureau, Municipal Investment Group)

(II) Accelerate the Improvement of Public Transportation Infrastructure

1. Intensify infrastructure construction efforts. Prioritize securing land for urban public transportation infrastructure and accelerate the planning and construction of comprehensive urban passenger transport hubs and bus terminals. When developing key areas such as new residential districts, large office complexes, commercial districts, and university campuses, scientifically schedule construction timelines based on projected population growth and spatial distribution. Ensure the reasonable integration of bus terminals, transfer hubs, and charging facilities for new energy buses, achieving simultaneous planning, simultaneous acceptance, and simultaneous commissioning.(Responsible Units: Municipal Development and Reform Commission, Municipal Bureau of Natural Resources and Planning, Municipal Bureau of Housing and Urban-Rural Development, Municipal Bureau of Transportation, Municipal Investment Group)

2. Improve the environment at public transportation stops. Enhance waiting facilities at urban public transportation stops, systematically carry out barrier-free renovations of bus shelters, and construct standardized platforms. Gradually increase the proportion of bus bays. When constructing or renovating primary and secondary urban roads, build bus bays in accordance with the “Three Haves and Two Nos” standard (i.e., shelters, seating, platforms; barrier-free access; no water accumulation) as part of the project.(Responsible Units: Municipal Bureau of Natural Resources and Planning, Municipal Transportation Bureau, Municipal Housing and Urban-Rural Development Bureau, Municipal Urban Management Bureau)

3. Support the comprehensive development of public transportation terminals. While ensuring operational needs are met, support existing land users in conducting multi-level comprehensive development of land designated for urban public transportation infrastructure. After completing the relevant procedures in accordance with the master plan for territorial space, urban public transportation complexes with commercial functions may be constructed. Establish a mechanism for the comprehensive development of urban public transportation land and the reinvestment of proceeds, allocating the revenue from terminal development to fund the construction of urban public transportation infrastructure and subsidize operational deficits, thereby enhancing the sustainable development capacity of urban public transportation.(Responsible Units: Municipal Bureau of Natural Resources and Planning, Municipal Bureau of Transportation, Municipal Finance Bureau, Municipal Bureau of Housing and Urban-Rural Development, Municipal Investment Group)

(3) Accelerate the Improvement of Public Transportation Service Quality

1. Optimize urban public transportation organization models. Establish and improve mechanisms for optimizing and adjusting the urban bus network; strengthen analysis of public travel patterns and passenger flow characteristics; optimize the layout of bus routes and stops; scientifically schedule service frequencies to reduce passenger travel time. Develop community buses and short-distance buses tailored to local conditions to build a micro-circulation bus system;Actively develop specialized services such as on-demand buses and tourist buses to meet citizens’ personalized travel needs; encourage eligible counties (cities, districts) to extend bus networks to suburban areas, across their entire jurisdictions, and into neighboring counties (cities, districts) to improve the equitable distribution of public services. (Responsible Units: Municipal Transportation Bureau, Municipal Public Security Bureau, Municipal Housing and Urban-Rural Development Bureau, Municipal Culture, Radio, Television, and Tourism Bureau, Municipal Urban Management Bureau)

2. Strengthen public transportation transfers and connections. Relying on key areas such as highway bus terminals, high-speed rail stations, train stations, and tourist attractions, build and improve transfer facilities; enhance coordination between urban bus and rail operations in terms of schedules and dispatch; achieve seamless connections with other modes of transportation; and ensure convenient transfers for passengers.Improve the slow-traffic system, including walking and cycling, and strengthen the scheduling and parking management of public bicycles around urban public transit stops to facilitate the “last mile” of travel for the public. (Responsible Units: Municipal Urban Management Bureau, Municipal Transportation Bureau, Municipal Public Security Bureau, Municipal Development and Reform Commission, Municipal Housing and Urban-Rural Development Bureau)

3. Strengthen the digital application of urban public transportation. Promote the “Mobility as a Service” concept and advance the deep integration of urban public transportation with new technologies such as big data, cloud computing, artificial intelligence, 5G communications, and blockchain. Comprehensively advance the construction of intelligent public transportation systems to achieve smart scheduling, passenger flow analysis, and intelligent shift scheduling, thereby improving the operational efficiency of urban public transportation. Widespread adoption of electronic bus stops, mobile apps, and navigation software will provide the public with accurate and reliable real-time bus location and estimated arrival time information.Improve the interoperability of the integrated public transport card and increase the proportion of cashless payments to facilitate “one-card travel” and “one-code access” for the public. (Responsible Units: Municipal Transportation Bureau, Municipal Public Security Bureau, Municipal Bureau of Administrative Approval and Government Information Management, Municipal Communications Administration Office)

4. Promote the adoption of green public transportation equipment. In line with the carbon peaking and carbon neutrality goals for the transportation sector, expedite the full-scale deployment of pure electric buses, gradually develop hydrogen fuel cell buses, and simultaneously advance the construction of supporting facilities such as charging stations and hydrogen refueling stations; accelerate the integrated development of urban public transportation with other green travel modes to lead the public toward eco-friendly travel. (Responsible Units: Municipal Transportation Bureau, Municipal Development and Reform Commission, Municipal Finance Bureau, Municipal Industry and Information Technology Bureau, Municipal Urban Management Bureau)

5. Improve the accessibility of urban public transportation services. Accelerate the construction and renovation of urban public transportation infrastructure to enhance accessibility. From 2023 to 2025, renovate no fewer than 20 bus stops annually in the central urban area to improve accessibility; ensure that all newly constructed bus stops are built with accessibility in mind; increase the proportion of accessible bus stops; and gradually achieve full coverage of accessibility facilities at bus depots and terminal stations.Increase the proportion of new and replacement low-floor and low-entry buses, and establish 3–5 service brands for bus routes dedicated to respecting, caring for, and assisting the elderly. Implement preferential policies for special groups such as the elderly when using public transportation; gradually eliminate the annual renewal requirement for senior citizen cards; accelerate the application of social security cards (including electronic social security cards) in the public transportation sector to enable bus travel via social security card swiping; and explore allowing the elderly to ride urban public transportation using only their ID cards.(Responsible Units: Municipal Bureau of Housing and Urban-Rural Development, Municipal Bureau of Transportation, Municipal Public Security Bureau, Municipal Finance Bureau, Municipal Bureau of Human Resources and Social Security, Municipal Urban Management Bureau, Municipal Bureau of Administrative Approval and Government Information Management)

6. Deepen the development of a civilized urban public transportation culture. Actively promote and showcase industry model workers and exemplary practices, and organize activities 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 further elevate 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 Human Resources and Social Security Bureau, Municipal Transportation Bureau, Municipal Federation of Trade Unions)

(IV) Establish a Mechanism for the Sustainable Development of Public Transportation

1. Improve the fiscal support mechanism. Governments at the county (city, district) level shall incorporate public transportation development funds into the public finance system and increase support for the construction and renovation of urban public transportation terminals, the assurance of bus service frequencies, the promotion of new energy vehicles, the construction of charging and battery-swapping facilities, the enhancement of information technology levels, and age-friendly renovations.Accelerate the establishment of a government procurement system for urban public transportation services. Develop cost regulation and fiscal subsidy compensation measures for urban public transportation enterprises; establish an annual audit and evaluation mechanism for urban public transportation costs; scientifically distinguish between policy-related losses and operational losses; and reasonably define the scope of public fiscal subsidies. When formulating policies on low fares and fare reductions or exemptions, fully consider local fiscal capacity; for policy-related losses incurred by enterprises due to carrying out government-mandated tasks, subsidies and compensation may be provided based on actual circumstances.Fully implement policies granting urban public transportation enterprises reductions or exemptions from relevant taxes and fees in accordance with the law. (Responsible Units: Municipal Finance Bureau, Municipal Transportation Bureau, Municipal Development and Reform Commission, Municipal Industry and Information Technology Bureau, Municipal Taxation Bureau)

2. Establish a fare assessment and adjustment mechanism. Governments at the county (city, district) level shall establish a dynamic assessment and adjustment mechanism for public transportation fares to build an urban public transportation fare system that is “affordable for the government, sustainable for enterprises, and bearable for the public.”Regularly assess urban public transportation operating costs and fare levels, taking into comprehensive consideration social affordability, enterprise operating costs, transportation supply and demand conditions, and fiscal capacity. Establish a multi-tiered, differentiated pricing system based on factors such as service quality, travel distance, and various public transportation transfer options to achieve a system where higher quality commands higher prices. Flexibly offer a variety of fare schemes—including daily, monthly, quarterly, and annual passes, as well as transfer discount tickets—tailored to local characteristics and the travel needs of different passenger groups.Establish a linkage mechanism between urban public transportation fares, enterprise operating costs, and government subsidies to promote the sustained and healthy development of urban public transportation. (Responsible Units: Municipal Development and Reform Commission, Municipal Finance Bureau, Municipal Transportation Bureau, Municipal Market Regulation Bureau)

3. Safeguard the legitimate rights and interests of employees. Establish wage protection and reasonable growth mechanisms for employees of urban public transportation enterprises to ensure the regular payment of wages and the timely payment of social insurance contributions; in principle, employee income should not be lower than the local average wage level. Continuously improve the working and living conditions of employees by promoting the construction of employee rest areas and “Care Stations,” and properly address practical issues such as drivers’ meals and rest periods.Strengthen labor protection for employees by conducting regular physical examinations and providing mental health counseling to safeguard their physical and mental well-being. (Responsible Units: Municipal Human Resources and Social Security Bureau, Municipal Transportation Bureau, Municipal Development and Reform Commission, Municipal Health Commission, Municipal Federation of Trade Unions)

(5) Promoting the Transformation and Upgrading of Urban Public Transportation Enterprises

1. Deepen reforms of urban public transportation enterprises. Strengthen Party building within enterprises, improve corporate governance structures, reinforce the market-oriented responsibilities of urban public transportation enterprises, deepen supply-side reforms and internal reforms of labor, personnel, and distribution systems, and promote institutional and management innovation to continuously enhance the vitality of urban public transportation enterprises. (Responsible Units: Municipal Transportation Bureau, Municipal Finance Bureau, Municipal Investment Group, Urban Public Transportation Enterprises)

2. Promote the Transformation and Upgrading of Urban Public Transportation Enterprises.Support urban public transportation enterprises in adhering to the principle of “public service orientation combined with market-oriented operations.” Guided by the approach of optimizing core businesses, strengthening auxiliary businesses, and revitalizing new business models, they should expand into diversified operations such as private vehicle maintenance, public charging services, parking rentals, tourist bus services, customized bus services, and night bus services. Promote the comprehensive development and utilization of bus depots and terminals to revitalize corporate assets in depots and vehicles, enhance the value of resource elements, unleash the vitality of enterprise development, and strengthen the enterprises’ self-sustaining capacity.(Responsible Units: Municipal Transportation Bureau, Municipal Finance Bureau, Municipal Market Regulation Bureau, Municipal Investment Group, Urban Public Transportation Enterprises)

3. Broaden investment and financing channels for urban public transit enterprises. Strengthen cooperation between banks and enterprises, innovate financial services, and actively explore the “public transit + investment platform” financing model to expand investment and financing channels and ensure a steady supply of working capital. Adhere to the direction of market-oriented reform, encourage urban public transit enterprises to restructure their resources, foster synergy for industry development, and promote the scaled, intensive, and market-oriented development of urban public transit, while continuously enhancing the enterprises’ modern governance capabilities.(Responsible Units: Municipal Transportation Bureau, Municipal Finance Bureau, Municipal Financial Bureau, Municipal Investment Group, Urban Public Transportation Enterprises)

(6) Enhancing Public Transportation Safety Standards

1. Strengthen the Implementation of Public Transportation Safety Responsibilities. Governments at the county (city, district) level must enhance safety production supervision of urban public transportation, strictly enforcing the operational safety oversight responsibilities of industry regulatory authorities and the primary safety production responsibilities of urban public transportation enterprises; strengthen operational monitoring, technical management, and routine maintenance of urban public transportation vehicles to ensure they remain in good technical condition, and strictly prohibit vehicles with technical defects from operating on the road.Strengthen care, support, and training for employees; closely monitor the physical and mental health of bus drivers to reinforce their psychological safety defenses; and strictly prohibit drivers who are physically unfit or mentally unwell from operating buses. (Responsible Units: Municipal Transportation Bureau, Municipal Emergency Management Bureau, Municipal Public Security Bureau, Municipal Bureau of Natural Resources and Planning, Municipal Bureau of Housing and Urban-Rural Development)

2. Improve risk prevention mechanisms. Accelerate the refinement of the dual-prevention system for work safety in urban public transport enterprises, and rigorously conduct inspections and rectifications of safety risks and hidden hazards in urban public transport operations.Strengthen the prevention and control of major risks in urban public transportation; intensify inspections of traffic safety facilities such as river-crossing bridges and culverts; improve safety barriers and isolation facilities in driver compartments; and strengthen regular vehicle inspections and testing as well as the management of charging and battery swapping for new energy vehicles. 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 enhancing public safety prevention. (Responsible Units: Municipal Transportation Bureau, Municipal Emergency Management Bureau, Municipal Public Security Bureau, Municipal Housing and Urban-Rural Development Bureau)

3. Enhance emergency response capabilities. Timely revise and improve urban public transportation emergency response plans to ensure alignment with the city’s comprehensive emergency response plan. Routinely organize various emergency drills to enhance the ability to prevent and respond to emergencies. Supervise and guide urban public transportation enterprises to refine suspension mechanisms for extreme weather and emergencies, and specify suspension criteria. When safe operating conditions cannot be met, operations must be suspended immediately and decisively; drivers are strictly prohibited from operating vehicles under hazardous conditions or taking risks.(Responsible Agencies: Municipal Transportation Bureau, Municipal Emergency Management Bureau, Municipal Public Security Bureau)

IV. Support Measures

(1) Strengthen Organizational Guarantees. The Municipal Government will take the lead in establishing a joint conference system for the high-quality development of urban public transportation. It will regularly convene joint meetings with relevant member units to implement decisions on public transportation development, coordinate the resolution of prominent issues hindering the high-quality development of urban public transportation, and ensure the orderly and effective advancement of all tasks. As the primary entities responsible for the development of urban public transportation, the governments of each county (city, district) shall formulate specific implementation plans based on local conditions.

(2) Strengthen Assessment and Evaluation. Led by the Municipal Government, a biennial assessment and evaluation of high-quality urban public transportation development will be conducted for each county (city, district) in accordance with relevant regulations. The evaluation results will be circulated citywide and made public. Annually, the service quality and operational safety of urban public transportation enterprises will be evaluated based on relevant regulations regarding service quality performance assessments. These results will serve as a key basis for measuring the operational performance of urban public transportation enterprises and for the distribution of government subsidies, thereby urging these enterprises to fulfill their primary responsibilities for production safety, operations, and service provision.

(3) Strengthen Publicity and Guidance. News media at all levels shall take the initiative to actively promote the concept of “public transport priority” and specific measures, thereby broadening and deepening public participation. At the same time, efforts shall be intensified to publicize model workers, exemplary employees, and outstanding deeds within the public transport sector.We must 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 actively foster a strong culture of green travel.