2025年6月23日，上海市政府常务会议原则同意《上海市轨道交通线网规划（2025—2035年）》并指出，要完善轨道交通布局，为上海的新战略、新任务、新空间做好支撑，并推动重点工程和项目向轨道交通沿线集聚，实现城市功能与轨道交通建设互促共振。该规划结合现状评估，提出了面向2035年的规划目标和总体方案，明确了下阶段线网发展的重点方向。如何落实新一轮上海市轨道交通线网规划，持续推进上海轨道交通的高质量发展，是当前亟待思考的问题。

上海轨道交通经过30多年发展，目前已开通21条线路、517座车站，运营里程达896 km，全网络工作日日均客运量约为1 200万人次，占全市公共交通出行量的77%。目前在建项目19个，共480 km，预期至“十五五”期末，上海将形成30条线、1 300 km左右的线网。

技术人员对既有网络及在建线路的可达性、直达性、速达性、舒适性，结合网络结构、客流效益和安全韧性等维度进行了全面评估，评估结果反映出既有网络在功能结构、新城与中心城速达性方面存在明显不足：

其一，由于上海的网络形态为“放射+环线”，虽具有可减少乘客换乘的优点，但目前上海只有一条环线（4号线），且覆盖范围偏小，导致外围乘客绕行，相当一部分客流进入环线及内部枢纽换乘，造成客流在环线外集聚和拥堵以及环线内重要换乘枢纽的大客流。

其二，部分副中心，如近中环附近的江湾/五角场、金桥、张江等副中心，缺乏直达联系，对其联动发展支撑不足。

其三，网络安全韧性不足，故障条件下对乘客影响较大，中心城外的放射线发生运营中断或进行紧急停运抢修时，乘客没有其他网络途径疏解，从而制约了网络的客流均衡效果和平稳高效运行，造成对乘客的服务水平严重下降并存有重大安全隐患。例如，2024年，11号线由于外部施工侵限发生事故造成了运营中断，乘客无法通过网络自身进行疏解。

其四，目前线网无法满足中心城与新城之间的快速直达性需求，亟需提高其旅行速度、缩短出行时间。目前早高峰时段，五个新城直达中心城的客流占比超过50%，南汇新城直达中心城客流甚至超过80%。上海五个新城至中心城核心区(以人民广场为代表)的轨道交通平均旅行时间在65 min以上。距离市中心最近的嘉定新城，到达人民广场近50 min，南汇新城到达人民广场需要90 min，未能实现《上海市新城规划建设导则》提出的“30 min联系周边中心镇，45 min达到近沪城市、中心城和相邻新城，60 min衔接国际枢纽”的出行目标。

为此，建议下阶段线网发展的重点，一是加快第二环线的建设，通过环线截流外围向心客流、减少乘客绕行、分担核心区换乘压力，强化网络安全韧性；第二环线的建设应结合现状及规划人口岗位的分布，串联客流较大的市级功能中心、大型客流集散点或重要功能区，尽量布局在主要放射线的高峰高断面以外的附近，充分发挥环线截流功能和提升网络韧性，同时与主要市域线、市区线便捷换乘，因此第二环线的范围也不宜过大;二是加快新城快线建设，目前9、11号线早高峰进城方向拥挤问题较为突出，应优先考虑将松江快线、嘉定快线等项目尽早纳入近期建设规划。

On June 23, 2025, the executive meeting of the Shanghai Municipal Government agreed in principle to the "Shanghai Rail Transit Line Network Planning (2025—2035)" and pointed out that it is necessary to improve the layout of rail transit, to support Shanghai′s new strategies, new tasks, and new spaces, and to promote the key projects and projects to cluster along rail transit lines, so as to achieve mutual promotion and resonance between urban functions and rail transit construction. Combined with the current situation assessment, the plan puts forward planning objectives and overall scheme for 2035, and clarifies key directions for the line network development in the next stage. How to implement the new round of Shanghai Rail Transit Line Network Planning and continue to promote the high-quality development of Shanghai rail transit is an urgent issue to be considered at present.

After over three decades of development, Shanghai′s rail transit system, operates 21 lines and 517 stations currently, covering a total operational length of 896 km. The average daily passenger volume of the whole network is about 12 million on weekdays, accounting for 77% of the city′s public transport trips. There are currently 19 projects under construction, with a total of 480 km. By the end of the 15th Five-Year Plan period, Shanghai is expected to establish a line network of 30 lines spanning around 1 300 km.

Technical personnel conducted a comprehensive evaluation of the accessibility, directness, rapid transit capability, and comfort of both the existing network and lines under construction, combined with the dimensions of network structure, passenger flow benefit and safety resilience. The evaluation results indicate significant deficiencies in the existing network regarding its functional structure and rapid transit between new towns and central urban areas:

First, Shanghai′s "radiation+ring" network structure offers the advantage of reducing passenger transfers. However, currently there is only one ring line (Line 4) in Shanghai with limited coverage. This forces passengers from the outer areas to take detours, leading to a significant portion of them entering the ring line and its internal hubs for transferring. This consequently results in passenger accumulation and congestion outside the ring line, and large passenger volumes at key transfer hubs within the line.

Second, some sub-centers, such as Jiangwan/Wujiaochang, Jinqiao and Zhangjiang near the Middle Ring Road, lack direct connections, providing insufficient support for their coordinated development.

Third, the network lacks sufficient safety resilience. In the event of a malfunction, the impact on passengers is significant. When the radial line outside the central urban area experiences an operational interruption or requires an emergency shutdown for repairs, there are no alternative network routes for passenger dispersal. This restricts the network′s ability to balance passenger flow and operate smoothly and efficiently, leading to a severe decline in service levels for passengers and posing significant safety hazards. For example, in 2024, Line 11 experienced an operational interruption due to an accident caused by external construction intrusion, leaving passengers unable to evacuate through the network itself.

Fourth, the current line network fails to meet the fast and direct connections demands between central urban areas and new towns, necessitating urgent improvements in travel speed and reduced transit time. Currently, during morning rush hours, over 50% of passenger flow from the five new towns travels directly to central urban areas, and for Nanhui new town, the figure is even over 80%. The average rail transit time from Shanghai′s five new towns to the core area of central urban areas (represented by People′s Square) exceeds 65 minutes. Jiading new town, the closest to downtown, takes nearly 50 minutes to reach People′s Square, while Nanhui new town takes 90 minutes. This fails to achieve the travel goals proposed in the "Shanghai New Town Planning and Implementation Guideline", which aims for "30-minute access to surrounding central towns, 45-minute connectivity to reach cities near Shanghai, central urban areas, and adjacent new towns, and 60-minute integration with international hubs".

To address these issues, two key priorities are recommended for the next phase of line network development. First, accelerate construction of the second ring line. This line aims to intercept centripetal passenger flow from the periphery, reduce passenger detours, alleviate transfer pressures in core areas, and enhance network safety resilience. The second ring line should connect high-traffic municipal functional centers, large passenger distribution points, or important functional areas, with its construction taking the distribution of existing and planned populations and jobs into consideration. It should be situated near but outside the high-peak, high-section areas of major radial lines, to maximize its function in intercepting passenger flow and improving network resilience, while also allowing for convenient transfers with main suburban and urban lines. Therefore, the scope of the second ring line should not be excessively large. Second, accelerate the construction of new town express lines. Currently, given the particularly severe congestion problems of Line 9 and Line 11 during the morning rush hour in the inbound direction, priority should be given to including projects such as Songjiang Express Line and Jiading Express Line into the near-term construction plan as soon as possible.