2013年-世界发展银行全球_Review_of_the_Urban_Transport_Sector_in_the_Russian_Federation___Transition_to_Long-Term_Sustainability_44页_1mb

Summary of the Review of the Urban Transport Sector in the Russian Federation: Transition to Long-Term Sustainability

1. Overview

The Review of the Urban Transport Sector in the Russian Federation (TP-41, April 2013) by JungEun Oh and Kenneth Gwilliam examines the challenges and opportunities for achieving long-term sustainability in urban transport systems across medium-to-large Russian cities. The study highlights the significant transformation in urban transport due to economic and social changes, particularly the rapid increase in private car ownership and the introduction of private sector involvement in urban land development. These factors have led to increased traffic congestion, deteriorating public transport services, and worsening air quality.

The traditional top-down planning approach is no longer sufficient, and there is a need for a more coordinated and comprehensive regulatory framework. The review emphasizes the importance of institutional and technical reforms to improve the efficiency and sustainability of urban transport systems.

2. Key Findings from City Interviews and Surveys

2.1 Basic Characteristics of the Cities

• Population and Growth: Most cities experienced modest population growth, with only a few (Krasnodar, Tyumen, Ulan-Ude) showing above 1.5% annual growth.
• Income Levels: Average income per capita in most cities was below the national average of $9,900 in 2010.
• Transport Infrastructure: The supply of transport infrastructure and services varies significantly across cities. Road network density ranges from 0.65 to 5.83 km/km², and public transport route coverage ranges from 1.10 to 9.69 km per thousand inhabitants.

2.2 Transport Problems Perceived by the Cities

• Traffic Congestion: A major issue in cities with populations over 200,000. For example, Stavropol's road infrastructure was not designed to handle the current traffic volume, which has exceeded the capacity.
• Public Transport Deficits: Most cities reported operating deficits in municipal bus services. For instance, Volzhskiy had a deficit of 210% of operating revenues.
• Fleet Age and Condition: Public transport fleets are generally aging and deteriorating, with some cities reporting average bus fleet ages of up to 27 years. Private sector fleets are younger, typically ranging from 3 to 5 years.
• Air Quality: Road traffic is the main source of air pollution in most cities, contributing over 50% of total emissions. Air pollution levels are often high, with some cities like Lipetsk ranked among the most polluted in Russia.

3. Diagnostic Review: Institutions

3.1 Legal Definitions of Urban Transport

• Urban transport is not clearly defined in Russian law as a distinct, integrated strategy.
• Existing laws define specific modes of transport (e.g., road, tram, trolleybus) in a fragmented manner, often with inadequate technical provisions.
• Government Decree 1090 (1993) and Federal Law No. 257-FZ (2007) define the legal framework for road and city ground transport, but lack a comprehensive approach.

3.2 Transport Planning and Strategy

• The traditional static master plan is no longer adequate due to the dynamic nature of urban development and transport demand.
• There is a need for a more integrated and flexible approach to transport planning that coordinates with urban development.

3.3 Fiscal and Financial Capability

• Municipal transport operators face significant financial challenges, often requiring budget support for fleet replacement.
• Public transport services are frequently underfunded, with fare revenues covering only 30-50% of operating costs in many cities.
• The lack of a comprehensive regulatory framework has led to inefficiencies in both public and private transport sectors.

4. Diagnostic Review: Functions

4.1 Road Network Development and Management

• Road network density and coverage vary significantly across cities.
• Some cities have highly developed road networks, while others are underdeveloped.

4.2 Traffic Management

• Traffic congestion is a growing problem, especially in larger cities.
• Inefficient traffic management systems contribute to delays and reduced mobility.

4.3 Parking and Demand Management

• Parking shortages and poor demand management practices exacerbate traffic congestion.
• There is a need for better parking policies and demand management strategies.

4.4 Planning and Supply of Public Transport Services

• Public transport is often under-supplied and inefficient.
• There is a lack of coordination between different transport modes and urban development.

4.5 Public Transport Regulations

• The absence of a comprehensive regulatory framework leads to inconsistent service quality and operational inefficiencies.
• Private operators have entered the market, but without proper regulation, they may not contribute effectively to long-term sustainability.

4.6 Environmental Management

• Air pollution is a major concern, with road traffic being the primary source.
• The review recommends measures such as improving vehicle emission standards and installing pollution control devices at industrial sites.

5. Roadmap for Reforms and Institutional Development

The review proposes a three-pronged approach to achieve long-term sustainability in urban transport:

1. Legal and Regulatory Reforms:

   • Enhance inter-jurisdictional coordination.
   • Improve market efficiency and enable effective demand management.

2. Institutional and Technical Capacity Building:

   • Strengthen decision-making and planning processes.
   • Improve the skills and knowledge of transport planners and practitioners.

3. Cost-Effective High-Priority Investments:

   • Address urgent infrastructure and service needs in resource-constrained cities.
   • Focus on improving public transport and reducing traffic congestion.

The proposed reforms are to be implemented in a phased and sequenced manner, taking into account the political economy and urgency of each action. The review also provides a list of recommended actions for sustainable urban transport systems in Russia (Table 7), as well as short-term high-priority actions (Table 8).

6. Conclusion

The review underscores the need for a comprehensive and integrated approach to urban transport in Russia. It highlights the importance of legal and institutional reforms, capacity building, and targeted investments to achieve sustainable urban mobility. The findings suggest that without these changes, Russian cities will continue to face significant challenges in managing traffic congestion, ensuring efficient public transport services, and improving air quality.