Promoting Urban Green Travel
- to Reduce Air Pollution and Congestion in Chinese Cities
促进城市绿色出行
—缓解交通拥堵，改善空气质量
目录 Contents
1
项目简介 Background
2
研究分析 Analysis
3
4
政策建议Policy Recommendations
综合陈述 Conclusions
项目简介 Background
项目目标：围绕缓解交通拥堵、改善空气质量、促进公共交通基本服务
均等化（社会公平）这一目标，向国务院提出促进绿色出行有关行动纲要、
财税与交通需求管理政策、体制机制、公众参与等政策建议。
Objectives: This policy study aims to identify, assess, propose and
submit long-and short-term policy recommendations to the government
of China to alleviate urban traffic congestion and air pollution, to achieve
green urban travel, contributing to an ecological civilization and social
equity.
Policy recommendations include institutional arrangements, laws and
regulations, fiscal policies as well as performance evaluation.
课题组长：周伟，Mark Major 执行组长：江玉林
Project Leader: Zhou Wei, Mark Major
Executive Leader: JIANG Yulin
主持单位：交通运输部科学研究院
Implementation unit: China Academy of Transportation Sciences (CATS)
3
第一部分 Part 1
研究分析
Analysis
中国城市交通发展面临的挑战与机遇
Opportunities and Challenges
近年来中国绿色出行分担率特别是自行车与步行分担率下降的速度非
常快,许多城市十年间下降了10%以上。Rapid decline of green travel
mode share, in particular cycling and walking – but still higher than in
most western countries
中国许多城市近五年来小汽车增长的速度已超过20%。The number
of cars increased by 20% over the past 5 years in many cities
中国特大城市和部分大城市交通拥堵与空气污染日益严重，并正向中
等城市蔓延。Extensive urban traffic congestion and air pollution - now
spreading to medium-size cities
5
中国城市交通发展面临的挑战与机遇
Opportunities and Challenges
城市交通拥堵与空气污染带来的损失=
时间成本 +健康成本 +能耗成本+生活质量+城市形象
Consequences = Cost of Time + Health + Energy
Consumption + Living quality + City Image
对主要依赖公共交通和非机动化出行的低收入人群的伤害更大。
----出行时间加长，公交出行过度拥挤，慢行交通出行环境恶化、慢行交通
事故死亡率居高不下等
Disproportionate impact on low-income residents who use public transport
and non-motorized transport (NMT) for daily travel
--- longer travel time, over crowding, unfriendly environment for NMT and high rate
of traffic accidents
6
中国城市交通发展面临的挑战与机遇
Opportunities and Challenges
尽管面临诸多问题，中国城市机动车的保有量仍非常低，步行与自行
车出行比例远也高于发达国家城市，为构建一个公平、高效、绿色的城
市提供了一个独特而难得的机会。
 Current low number of motor vehicles as well as higher rates of walking
and cycling than developed countries provide unique chance for constructing
fair, economically and resources efficient cities.
但是，如果中国城市政府不能尽快给潜在的小汽车消费者提供高吸引
力的绿色出行系统，并采取足够影响小汽车消费的果断、有效的管理政
策，中国城市将错过培育绿色出行方式的最佳时机。
However, without a sufficiently attractive green travel system for potential car
consumers and effective car ownership and use management policies,
Chinese cities will miss this opportunity to cultivate green travel modes.
7
7
中国应该如何设计更科学的城市交通政策调控路线图？
??
这个过程是否可以缩短？
Can this process be short-circuited?
时间 – 发展周期 Development cycle
Policy focus on cars
小汽车主导的交通政策( ____ )
Number of cars 小汽车数量(- - - )
Can China short-cut the ‘car policy’ trajectory?
你规划的就将是你得到的！You get what you plan for!
• 如果一味规划并修建道路，那么道路交通将越来越拥堵，直到耗尽所有
的资源——无论是空间或是金钱！
If you plan for roads and build roads – you will get road traffic
城市道路投资
Urban car focused
investment
可达性
容量
Capacity Problems
Accessibility Changes
基于道路交通的选址
Location decisions based
on car transportation
Until you run out of resources: space or money！
你规划的就将是你得到的！You get what you plan for!
• 如果你的规划以人为本,你将会得到一个以人为本的城市
If you plan for efficient people-focussed cities – that is what you get
 在欧洲，可持续城市机动性规划被视为一个关键的战略整合性措施，来提高城
市机动性 In Europe – Sustainable Urban Mobility Plans are seen as a key
strategic integrating measure to improve urban mobility
 维持高分担率的公共交通、步行和自行车——为所有使用者提供便利（包括老
人、穷人、工人和学生等） Keep high mode share of PT, walking and cycling
-and so be inclusive for all user groups (old, poor, workers, students..)
 街道既是纽带也是“提高生活品质的场所”——保持街道商业街的活力！
Streets that are links AND ‘places to enjoy’ - maintain the vibrancy of streetbased activity
 “鼓励小汽车发展”而后大规模拆除道路基础设施（浪费时间和金钱）的情况
一定要避免，例如马德里 Don’t go through the ‘pro-car’ stage and later spend
large sums removing infrastructure (waste of time and money) e.g. Madrid
第二部分 Part 2
政策建议
Policy Recommendations
促进城市绿色出行的愿景
Vision
• 让不同社会队层群体-无论是银行家、政府高官、普通清洁工还
是老弱妇孺、残障人士都愿意乘坐公共交通工具。
• Make public transport attractive – so that all social groups
including bankers, senior government officials, cleaners and the
disadvantaged are all willing to use it.
• 让全体城市居民能够放心选择有利健康、又舒适环保的步行和自
行车方式出行。
• Providing safe and convenient environment - for all citizens
to walk and cycle.
原则与策略 Strategy
公交引导城市发展
Transit Orientated Development
强化交通需求管理
避免Avoid
转移 Shift
Transport Demand Management
优先发展绿色交通
Prioritizing Green Travel
改善
Improvement
政策研究的方式创新--引进公众参与
Public involvement in policy research
人民网-环保专题-酷中国项目
http://green.sohu.com/20130421/n
373450143.shtml
http://env.people.com.cn/GB/1932
31/235979/index.html
• 鼓励公众参与城市交通问题的影响分析
• Analysis of urban transport impacts
• 鼓励公众参与城市交通管理政策制订
• Urban transport management policy making
Six Policy Recommendations
1.出台《中国城市绿色出行纲要》
Outline of China Urban Green Travel Implementation
政
2.实施更有力的财税支持政策
Stronger fiscal policies
策
3.出台合理使用小汽车指导意见 Policy guidelines for the
建
4.健全体制机制、鼓励公众参与 Cross ministry/department
议
rational use of cars and road space
coordination, performance appraisal and public participation
5.完善促进绿色出行国家相关法规 Laws and regulations
6.实施《促进绿色出行示范工程》Demonstration Projects of
Promoting Urban Green Travel
1. 国务院在建设生态文明与走新型城镇化道路的国家战略框架下，出
台《中国城市绿色出行实施纲要》
The State Council should issue the Outline of China Urban Green Travel
Implementation as part of the national strategy for building an ecological
civilization and to reform urbanization.
造成城市交通拥堵与空气污染的关键原因：粗放的城镇化、机动化模式，城市总
体规划与交通、环境、土地利用脱节。
A key reason for why China’s larger cities suffer from serious congestion and
air pollution, even though the level of motorization is comparatively low, is the
comprehensive disconnect between transport, environment, and land use
planning and management.
欧盟《“可持续城市移动性计划”制定与实施指南》
Guidelines on developing and implementing
a Sustainable Urban Mobility Plan
1. 国务院在建设生态文明与走新型城镇化道路的国家战略框架下，
出台《中国城市绿色出行实施纲要》
The State Council should issue the Outline of China Urban Green Travel
Implementation as part of the national strategy for building an ecological
civilization and to reform urbanization.
• 建议：引导城市建立起现代化的城市绿色交通系统
Establishing a modern urban green travel system:
– 对不同社会阶层群体均具有吸引力的、低排放的、高运营效率的公共交通系统；
Be attractive to all social groups, have low emission and high operation efficiency;
– 对城市普通居民与特殊群体（残疾人、老年人、儿童等）均适宜的步行与自行车
出行环境及无缝换乘的便利条件； Be walking and cycling friendly and have
convenient links to public transport
– 与城市发展相适应的小汽车使用管理措施；Implement management measures for
private vehicle ownership and use, and;
– 高效土地利用的、生态宜居的城市发展布局，以较低的时间与经济成本提供便利
的工作与生活服务条件。 Ensure that city development makes efficient use of
land and provides all residents with a liveable environment and safe access to
basic services and jobs without undue travel time and cost burdens
2.中央政府需确保地方城市能够筹集足够的、可持续的地方资金，使
得城市公共交通企业有足够的资金支持
The Central Government should:
a) enable city governments to raise sufficient and sustainable local sources of
revenue to fund local public transport companies and;
b) provide targeted financial support for specific projects.
中国许多城市的公共交通基础设施建设与运营补贴资金不足，公交票价制定缺
乏指导，公共交通基本公共服务无法持续保障。
China’s local public transport infrastructure construction and public transport
companies are severely underfinanced. Public transport fares in most Chinese
cities are lower than the cost price, and the government subsidies are
insufficient.
•
美国联邦政府 “公路信托基金”于1982年设立 “公共交通账户”
U.S. Federal Government set up a special public Transport account in U.S. Highway
Trust Fund in 1982 dedicated for urban public transport infrastructure construction.
•
巴黎市规定9人以上企业必须缴纳公共交通税。 Public transport tax paid by
enterprises above 8 employees in Paris.
•
伦敦、斯德哥尔摩等城市实施交通拥堵费、差异化停车收费。
Traffic congestion fees and differential parking fees in London and Stockholm.
•
新加坡、柏林、纽约等城市将票价水平与经济发展、社会平均工资等增长
挂钩。 Fare level increase with the growth of the economy and social average
salary in Singapore, Berlin and New York.
2.中央政府需确保地方城市能够筹集足够的、可持续的地方资金，使
得城市公共交通企业有足够的资金支持。
The Central Government should:
a) enable city governments to raise sufficient and sustainable local sources of
revenue to fund local public transport companies and;
b) provide targeted financial support for specific projects.
•
建议：
–
增加地方公共交通发展资金来源，并将其作为一种常态化的财政保障工具。 Cities
should be able to raise adequate funds locally through new forms of taxes.
– 中央政府明确对地方政府财政支持的引导性资金来源。重点支持大容量公共交通、
慢行交通、综合客运枢纽等基础设施建设，节能型运输装备购置与更新，智能公交
建设等领域。The central government shall specify the use of supporting
funds to cities, which should mainly be used for supporting high capacity public
transport, non-motorized transport modes, comprehensive passenger transport
hubs, low energy consuming transport equipment and intelligent public transport.
– 加强对不同类型城市的公交成本核算与票制票价形成机制的分类指导，扭转过度追
求低票价造成的城市公交企业亏损状况。Strengthen central government
guidance on the public transport pricing mechanism in different types of cities
in China to eliminate the deficit of the urban public transport companies caused
by low fares.
3.国务院制定《关于小汽车和道路空间合理使用的指导意见》，指导
不同类型城市综合运用各种政策工具，正确引导和调控小汽车的公平
拥有与使用。 The State Council should establish policy guidelines for the
Rational Use of Vehicles and Road Space to reduce congestion and air
pollution, and improve access to a range of transport modes.
私人小汽车“高速度增长、高强度使用、高密度聚集”，步行、自行车出行群
体安全、平等使用道路资源的权利受到侵害。
High growth, usage and density of private cars threaten the right to equal use
of road space by public transport, walking and cycling.
•
建议：
– 保证道路资源的公平分配和使用 Public transport, walking and cycling
should have clear priority in the allocation of city road space.
– 扩大公车管理范围 The definition of official vehicles should be broadened
to include vehicles of state owned institutes, state owned or state-holding
companies.
– 取消内部的免费停车位 Free private parking spaces should be reduced or
charged/taxed and parking charges.
– 政策组合：差异化停车、拥堵收费、低排放区、限购限行等 Best mix of
policy instruments, including differential parking, congestion charging, low
emission zone and plate auction.
20
4.健全机构，强化协调、绩效考核与问责机制，鼓励公众参与
The state and city administrations should be required to ensure cross
ministry/department coordination, enhance performance appraisal and
management accountability and public participation should be encouraged.
中央政府对地方政府的指导、协调、监管力度不够。 Lack of capacity with
regards to performance monitoring and management accountability.
美国联邦公共交通管理局
U.S. Federal Transit
Administration
德国区域交通运输协会
German Regional
Transport Alliance
•
建立区域性促进城市绿色出行协调机制。
The State Council should set up a
coordinating mechanism within the Central
Government to promote urban green
travel, led by the Vice Premier.
•
交通运输部组建城市客运管理局
The Ministry of Transport should set up a
‘Bureau of Urban Passenger Transport
Management’.
•
推进城市综合交通运输管理体制改革
Stimulate the development of a
comprehensive urban transport
management system.
4.健全机构，强化协调、绩效考核与问责机制，鼓励公众参与
The state and city administrations should be required to ensure cross
ministry/department coordination, enhance performance appraisal and
management accountability, public participation should be encouraged.
公众参与公交政策、规划与政府绩效考核的渠道不通畅。Lack of public
participation in public transport policy, planning and government performance
evaluation
斯德哥尔摩：采取了全民公投的
方式，由市民自主决定是否实施
交通拥堵区收费。
Stockholm: national referendums
to decide the implementation of
congestion charging.
•
巴黎：《城市交通规划》的9条准
则之一是“激发巴黎市民参与公
共交通规划决策的责任感”。
Paris PDUs: strengthen the
sense of responsibility of the
Paris citizens for participating in
public transport planning
decision making.
•
为公众参与监督提供平台。建立城市
绿色出行指数监测与发布机制。Public
participation in supervision shall be
encouraged and ‘Urban green travel
indicator monitoring and reporting
mechanism’ should be established
为公众参与决策提供平台。建立城市
交通规划编制、交通需求管理政策制
订的公众参与决策机制。Public
participation in decision making process
of urban transport planning and TDM
measures.
5.国家层面加快《城市公共交通条例》、《大气污染防治法》等相
关法律法规制修订工作。 The central government should amend
legislation on Urban Public Transport Regulation and Law of Air Pollution
Management to require local governments to fulfil their duties to promote
green travel.
《城市公共交通条例》、《大气污染防治法》已列入国务院立法工作计划。
给解决相关法规缺失或内容滞后、操作性不强问题提供了机会。
Urban Public Transport Regulation and the Law of Air Pollution
Management have been included in the work plan of the State Council
美国《清洁空气法案》U.S. Clean
Air Act）
欧盟《环境空气质量标准及清洁空
气法案》 Directive 2008/50/EC of
the European Parliament and of the
Council on ambient air quality and
cleaner air for Europe.
将交通需求及交通安全管理的相关要求纳入《城市公共
交通条例》。
Urban Public Transport Regulation: Urban Public
Transport Act: Transport Demand Management and
traffic safety in urban public transport planning.
在《大气污染防治法》中强化：建立城市交通污染监测
体系；中央财政资金使用与城市交通污染排放控制目标
实现情况挂钩。允许地方政府实施拥堵收费、低排放区
收费政策。The Law of Air Pollution Management
1) Establish an ‘Urban transport pollution monitoring
system; 2) the use of central fiscal funds is connected
with the control of urban transport pollution and
emission; 3) allow city government to implement
congestion charges, low emission zones, etc.
6.中央组织实施《城市促进绿色出行示范工程》，选择不同类型城
市开展实践活动，总结经验，指导城市建立现代绿色交通系统
The Central Government should select different types of cities to organize and
implement a series of demonstration projects to promote Urban Green Travel.
中国许多城市缺乏应对快速城镇化与机动化的经验，政府官员的决策与执行能力
存在差距，中央政府需要在全国范围选择有代表性的城市组织实施示范工程。
The Central Government should take the lead in implementing a demonstration
program showing new and improved ways of providing green urban transport by
combining international experiences with practices of Chinese cities promoting
green travel.
欧盟示范项目CIVITAS
目前CIVITAS已经帮助60余个欧洲试点
城市引进先进的环境友好型交通发展政
策。 CIVITAS has helped introduce
numerous innovations and 650
measures that have already made
transport more eco-friendly in over 60
European 'demonstration cities'.
6.中央组织实施《城市促进绿色出行示范工程》，选择不同类型城
市开展实践活动，总结经验，指导城市建立现代绿色交通系统
The Central Government should select different types of cities to organize and
implement a series of demonstration projects to promote Urban Green Travel
•
建议：
– 选择典型城市新城区建设与老城区改造项目，开展“城市道路资源优
化配置”示范。 Street-space reallocation to prioritize public transport,
walking and cycling and to improve the street environment.
– 实施“公交不堵”工程。 Implement the ‘Smooth Public Transport
Project’ to attract more people to take buses.
– 在北京、上海等特大城市设立试点“拥堵污染控制区”。
Select megacities like Beijing and Shanghai to set up congestion and Low
Emission Zones.
– 选择京津冀、长三角地区及典型城市试点建立“交通污染监测与发布
机制” Establish and pilot a ‘Transport Pollution Monitoring, Evaluation and
Publishing System’, in areas like Beijing, Tianjin, Heibei, and the Yangtze
River Delta.
综合陈述 Conclusions
•中国城市交通政策选择：小汽车主导还是促进社会公平、实现道路资源高效利用？
Policy choice for China: Car orientated development or socially equitable,
economically and resource efficient cities?
•我们制订的行动方案目标是实现综合效益，即：促进社会公平、减少交通事故、
减少空气污染与温室气体排放、保障国家能源安全等。
The co-benefits of the actions we propose = e.g. reduced accidents, oil imports,
greenhouse gas emissions
•城市政府是促进绿色出行的责任主体。但中央政府正确的政策指引与必要的资金
引导是促进城市绿色出行必不可少的保障。
Green travel has to be delivered by the city governments and the role of central
government is to enable, encourage and support city governments to green their
transport systems.
•希望课题组提出的政策建议对建设中国特色的的现代化绿色交通系统有所帮助！
Hope the policy recommendations will be useful for constructing an urban green
travel system in China.
谢 谢！
谢Thank
谢！ you