市域(郊)铁路运营补贴问题分析及建议
滕靖1,2,3吴桐1,2章勇4
Analysis on City (Suburban) Railway Operating Subsidies and Recommendation
TENG Jing1,2,3WU Tong1,2ZHANG Yong4
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作者信息:1.同济大学交通学院，201804，上海
2.上海市轨道交通结构耐久与系统安全重点实验室，201804，上海
3.上海市多网多模式轨道交通协同创新中心，201804，上海
4.上海金山铁路有限责任公司，200070，上海
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Affiliation:1.College of Transportation, Tongji University, 201804, Shanghai, China
2.Shanghai Key Laboratory of Rail Infrastructure Durability and System Safety, Tongji University, 201804, Shanghai, China
3.Shanghai Collaborative Innovation Research Center for Multi-network & Multi-modal Rail Transit, Tongji University, 201804, Shanghai, China
4.Shanghai Jinshan Railway Co., Ltd., 200070, Shanghai, China
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关键词:
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Key words:
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DOI:10.16037/j.1007-869x.2025.03.001
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中图分类号/CLCN:F530.7
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栏目/Col:研究报告
摘要:
［目的］运营补贴是市域(郊)铁路健康发展、体现公益性服务特征的重要保障。国家铁路参与市域(郊)铁路的建设运营，有利于盘活存量资产，发挥运输优势。路地合作的发展模式是我国市域(郊)铁路的鲜明特点之一。为了市域(郊)铁路的可持续发展，有必要对路地合作背景下市域(郊)铁路的运营补贴问题进行分析。［方法］以既有线改造的上海金山铁路和新建线路的成都成灌铁路为例，对其路地合作机制进行介绍，辨析地方政府、市域(郊)铁路公司、国家铁路集团等各主体的功能职责；对运营补贴模式和现状进行了梳理，并总结了两条线路在补贴过程中存在的问题和主要原因。［结果及结论］金山铁路和成灌铁路分别采用政府购买服务方式和面向亏损的补贴模式，二者在补贴机制和补贴效果上存在差异。目前，市域(郊)铁路运营补贴存在低票价模式下的收支不平衡、市域(郊)铁路专门制度和标准不健全、既有线改造的资产界面不够清晰等问题。基于上述问题提出了落实地方政府支付责任、编制市域(郊)铁路成本核算标准、量化市域(郊)铁路正外部性和综合绩效、通过站城融合培育市域(郊)铁路TOD(以公共交通为导向的发展模式)产业链等建议。
Abstracts:
［Objective］ Operating subsidies are a crucial guarantee for the healthy development of CSR (city (suburban) railways), reflecting their public service nature. The involvement of national railways in the construction and operation of CSR can optimize existing assets and leverage transportation advantages. The cooperative development model between national railways and local governments is a distinctive feature of CSR in China. To ensure the sustainable development of CSR, it is necessary to analyze the issue of operating subsidies in the context of this cooperation. ［Method］ The renovated Shanghai Jinshan Railway, and the newly-built Chengdu-Dujiangyan Railway are taken as examples to introduce their cooperation mechanisms, identifying the functional roles and responsibilities of stakeholders including local governments, CSR companies, and the national railway group. The operating subsidy models and current situations are reviewed, and key issues and primary causes encountered in the subsidy processes for the two lines are summarized. ［Result & Conclusion］ The Jinshan Railway and Chengdu-Dujiangyan Railway adopt different subsidy models—government service purchasing and deficit-oriented subsidies, respectively, resulting in differences in subsidy mechanisms and effects. Current challenges in CSR subsidies include revenue and expenditure imbalances under low fare models, inadequacies in dedicated systems and standards for CSR, and unclear asset boundaries in upgraded existing lines. Based on these issues, recommendations are proposed such as enforcing local government payment responsibilities, developing cost accounting standards for CSR, quantifying the positive externalities and overall performance of CSR, and fostering TOD (transit-oriented development) industrial chains of CSR through station-city integration.
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