省級(jí)軌道交通責(zé)任主體不可或缺

周翊民

(同濟(jì)大學(xué)鐵道與城市軌道交通研究院名譽(yù)院長(zhǎng)、原鐵道部副總工程師，正高級(jí)工程師)

2021年4月19日，國(guó)家發(fā)展和改革委員會(huì)新聞發(fā)言人在發(fā)布會(huì)上指出：我國(guó)將強(qiáng)化對(duì)鐵路規(guī)劃的引導(dǎo)和約束作用，明確國(guó)家級(jí)中長(zhǎng)期、五年發(fā)展規(guī)劃和區(qū)域性鐵路發(fā)展規(guī)劃體系，規(guī)范城際、市域(郊)鐵路發(fā)展。

我國(guó)軌道交通可以粗分為3張網(wǎng)：國(guó)家干線鐵路網(wǎng)、地方鐵路(區(qū)域鐵路)網(wǎng)和城市軌道交通網(wǎng)；也可以按目前的管理體制與技術(shù)制式細(xì)分為4張網(wǎng)：國(guó)家干線鐵路網(wǎng)、地方鐵路(區(qū)域鐵路)網(wǎng)、大城市內(nèi)的市域(郊)鐵路網(wǎng)和城市軌道交通網(wǎng)。兩種層次分析的區(qū)別在于：在大城市內(nèi)部再分成市域(郊)鐵路網(wǎng)和城市軌道交通網(wǎng)兩個(gè)層次；前者是交流25 kV供電，其設(shè)計(jì)運(yùn)行速度為100～160 km/h，類似干線鐵路的技術(shù)制式；而后者為直流1 500 V及以下供電，其最高運(yùn)行速度為80～120 km/h。

在當(dāng)前的管理體制下，國(guó)家干線鐵路網(wǎng)與城市軌道交通網(wǎng)的主管部門(mén)是明確清晰的,分別是國(guó)家鐵路集團(tuán)和市政府所授權(quán)的交運(yùn)集團(tuán)；而地方鐵路(區(qū)域鐵路)網(wǎng)以及大城市內(nèi)的市域(郊)鐵路網(wǎng)的責(zé)任主體卻是模糊不清的。

地方鐵路(區(qū)域鐵路)網(wǎng)主要由城際鐵路和市域(郊)鐵路構(gòu)成，該網(wǎng)的高質(zhì)量發(fā)展在我國(guó)“十四五”規(guī)劃開(kāi)啟的新發(fā)展階段具有重要意義。當(dāng)前的地方鐵路(區(qū)域鐵路)與傳統(tǒng)意義上的“地方鐵路”有很大區(qū)別：以前提及的地方鐵路其全稱為“地方性質(zhì)鐵路”，是指以地方政府部門(mén)或企業(yè)公司為主要的施工建設(shè)、運(yùn)作維護(hù)和經(jīng)營(yíng)管理單位的鐵路系統(tǒng)，不僅數(shù)量少、技術(shù)標(biāo)準(zhǔn)相對(duì)較低，而且大多是支線鐵路。而如今的地方鐵路(區(qū)域鐵路)網(wǎng)，將成為省市自治區(qū)內(nèi)部或城市群內(nèi)部支撐其經(jīng)濟(jì)高質(zhì)量發(fā)展、實(shí)現(xiàn)其居民高品質(zhì)生活的公益性、基礎(chǔ)性重要交通設(shè)施。

2021年2月24日中共中央、國(guó)務(wù)院印發(fā)的《國(guó)家綜合立體交通網(wǎng)規(guī)劃綱要》顯示，至2035年，我國(guó)鐵路運(yùn)營(yíng)里程將達(dá)到20萬(wàn)km左右，其中，高速鐵路7萬(wàn)km(含部分城際鐵路)，普速鐵路13萬(wàn)km(含部分市域鐵路)?？梢?jiàn)，地方鐵路(區(qū)域鐵路)網(wǎng)已成為我國(guó)綜合立體交通網(wǎng)的重要組成部分。

根據(jù)相關(guān)文件精神，城際鐵路和市郊鐵路主要由地方出資。國(guó)鐵集團(tuán)現(xiàn)在的關(guān)注重點(diǎn)除了川藏鐵路、西部陸海新通道等國(guó)家干線鐵路之外，京津冀等重點(diǎn)城市群內(nèi)部的重點(diǎn)線路也在國(guó)鐵集團(tuán)的關(guān)注范圍之內(nèi)。例如，2020年底，京津冀城際鐵路投資有限公司已由原來(lái)的地方控股改變?yōu)閲?guó)鐵集團(tuán)控股。

那么，主要由地方出資建設(shè)的省區(qū)內(nèi)或區(qū)域內(nèi)地方鐵路(區(qū)域鐵路)的責(zé)任主體應(yīng)該是誰(shuí)呢？根據(jù)“生產(chǎn)關(guān)系必須與生產(chǎn)力的發(fā)展相適應(yīng)”這一規(guī)律，筆者認(rèn)為：在“十四五”規(guī)劃開(kāi)新局之際，應(yīng)抓住歷史機(jī)遇，創(chuàng)建更多的省級(jí)軌道交通集團(tuán)公司。這種公司的職能是：引導(dǎo)和規(guī)劃地方鐵路(區(qū)域鐵路)的發(fā)展，并確定其建設(shè)標(biāo)準(zhǔn)(如城際列車運(yùn)量較小，宜采用小編組，這就區(qū)別于干線鐵路)；同時(shí)負(fù)責(zé)投資建設(shè)，建成后也由它來(lái)經(jīng)營(yíng)管理；還應(yīng)具有相應(yīng)的話語(yǔ)權(quán)，一方面接受授權(quán)代表省級(jí)政府對(duì)上協(xié)調(diào)與國(guó)鐵集團(tuán)的關(guān)系，另一方面協(xié)調(diào)與區(qū)域內(nèi)各個(gè)大城市的軌道交通集團(tuán)的關(guān)系，做到4網(wǎng)合一、互聯(lián)互通、暢通無(wú)阻。

為了實(shí)現(xiàn)互聯(lián)互通，在技術(shù)制式上可以采用“雙流制”列車?！半p流制”列車可以接受交流、直流兩種不同的供電制式，實(shí)現(xiàn)列車在鐵路和地鐵之間的互聯(lián)互通；乘客不用換乘就可以坐著“雙流制”列車從鐵路站上車到地鐵站下車，反之亦然。重慶5號(hào)線是我國(guó)首條以“雙流制”列車貫通的軌道交通線路，在中車重慶長(zhǎng)客軌道車輛有限公司研制的全國(guó)首列“雙流制”列車下線后，即將投入市郊鐵路與地鐵線路之間的貫通運(yùn)營(yíng)。

交通運(yùn)輸行業(yè)是碳排放的“大戶”，占全國(guó)終端碳排放量的15%。據(jù)測(cè)算，最近9年，交通運(yùn)輸業(yè)碳排放量的年平均增速在5%以上，已成為溫室氣體排放增長(zhǎng)最快的領(lǐng)域之一；而其中，全社會(huì)公路交通的碳排放量占交通運(yùn)輸行業(yè)碳排放總量的比例高達(dá)70%～80%。通過(guò)地方鐵路(區(qū)域鐵路)的高質(zhì)量發(fā)展，改變廣大居民的出行方式，減少公路交通的占比，十分有利于實(shí)現(xiàn)《國(guó)家綜合立體交通網(wǎng)規(guī)劃綱要》提出的目標(biāo)，即加快推進(jìn)綠色低碳發(fā)展，交通領(lǐng)域二氧化碳排放盡早達(dá)峰。

萬(wàn)事俱備，只欠東風(fēng)。省級(jí)軌道交通責(zé)任主體不可或缺,期待有更多省市自治區(qū)創(chuàng)建省級(jí)軌道交通集團(tuán)公司。

Indispensable Role of Provincial Rail Transit Responsible PartyZHOUYimin

(Honorary Dean of Institute of Rail Transit of Tongji University, Deputy Chief Engineer of

Former Ministry of Railway, Senior Engineer)

On 19thApril 2021, the news spokesman of National Development and Reform Commission stated in the press conference that China will strengthen the guiding and constraining efforts towards railway planning and will formulate the planning of national medium- and long-term and five-year development, as well as regional railway development planning system, to regulate the intercity and suburban railway development.

Rail transit in China can be generally categorized into three networks: national trunk railway network, regional railway network and urban rail transit network; or to be further categorized into four networks from the perspective of current administrative framework and technical formats: national trunk railway network, regional railway network, both suburban railway network and urban rail transit network of big-cities. The difference between the two levels of analysis is whether it is further differentiated between suburban railway network and urban rail transit network inside big-cities: the former one is supplied by AC 25 kV, with designed operating speed of 100～160 km/h, close to the technical format of trunk railway; while the latter one is supplied by DC 1 500 V or lower, with the highest operating speed of 80～120 km/h.

Under current administrative framework, the competent departments of national trunk railway network and urban rail transit network is clearly assigned, which are respectively the China State Railway Group Co. Ltd. (China Railway) and Jiaoyun Groups authorized by municipal governments, whereas the responsible parties for regional railway network and big-city suburban railway network are unclarified.

Regional railway network consists of intercity railway and suburban railway, of which a high-quality development is profoundly significant for breaking new grounds at the beginning of the ‘Fourteenth Five-Year Planning’. Current regional railway is extensively different from the conventional definition of ‘regional railway’. In the past, regional railway was referring to local railway, which was a railway system directed by local government and enterprises for construction, operation and maintenance, and management. Not only that the amount was small and technical standard was relatively low, but the majority of them were branch lines. On the other hand, the regional railway network nowadays is fundamental infrastructure for public welfare at scale of province, autonomous regions and urban clusters, supporting the sophisticated development of economy and realizing high-quality living standard for residents.

According to the ‘National Comprehensive Three-dimensional Transportation Network Planning Outline’ issued by the Central Committee of the Communist Party of China and the State Council on 24thFebruary 2021, by 2035, the operating mileage of railway in China will add up to 200 000 km, of which 70 000 km is high-speed railway (partially including intercity railway), and 130 000 km is general-speed railway (partially including intercity railway). Evidently, regional railway network has become an important component of the comprehensive three-dimensional transportation network in China.

In keeping with relevant documents, intercity railway and suburban railway are mainly financially invested by local entities. China Railway has now extended focus from national trunk railway such as Sichuan-Tibet railway, New Land and Marine Routes for Western Regions, to the major routes inside urban clusters such as Beijing-Tianjin-Hebei circle. As an example, by the end of 2020, the Beijing-Tianjin-Hebei Intercity Railway Investment Co. Ltd. has changed from local entities holding to China Railway holding.

In this case, what party is responsible for the regional railway in provinces or in certain regions that is invested by the local entities? By the law of ‘relations of production must adapt to the level of productive forces’, it is high time that on this breaking new ground of ‘Fourteenth Five-Year Planning’, provincial-level rail transit corporate groups should be founded. The functionality of this group is to guide and plan the development of regional railway and to establish construction standards (for example, the small capacity of intercity train requires small formation, which sets it apart from trunk railway); to be responsible for investment, construction, as well as operation and management after construction completed; to own commensurate power of discourse, in that on one side to communicate with China Railway with authorization from local government, on the other side to coordinate relationship among rail transit corporate groups from every big cities in the region, accomplishing the unification of four networks, interoperation and smooth exchange flow.

To realize interoperation, ‘dual-current format’ train can be adopted from technical format perspective. The ‘dual-current format’ train accepts both AC and DC as power supply format, realizing the interoperation between railway and metro; passengers can board on railway station and get off at metro station without the necessity of interchange when traveling on ‘dual-current format’ train, vice versa. Chongqing Metro Line 5 is the first rail transit line where ‘dual-current format’ train is running through in China. When the first ‘dual-current format’ train developed and manufactured by CRRC Chongqing Railway Vehicles Co. Ltd. goes offline, it will be launched for the run-through service of suburban railway and metro lines.

Transportation industry is responsible for massive carbon emission, taking up 15% of national terminal carbon footprint. By estimation, in the past 9 years, the average annual growth rate of rail transit industry carbon footprint has been above 5%, making it one of the fields with the highest greenhouse gas emission growth rate, among which the carbon footprint of social road traffic takes up to 70%～80% of the whole transportation industry carbon footprint. Through high-quality development of regional railway, by changing passenger traveling patterns and reducing the proportion of road traffic, it is promising to achieve the goals proposed in ‘National Comprehensive Three-dimensional Transportation Network Outline’, that is to advocate green and low-carbon development and to peak carbon dioxide emission of transportation industry as soon as possible.

All is ready except for the window of opportunity. Provincial rail transit responsible party is an indispensable role. Looking forward to more provincial-level rail transit corporate groups being founded in provinces, municipalities and autonomous regions.

TranslatedbyZHANGLiman