Integrated Strategies for Sustainable Urban Transit 143

Strategies for 7.Integrated Sustainable Urban Transit: A Case Study of Taipei Cheng-Min Feng∗

Increasing motorization has caused traffic congestion problems, shortage of parking spaces, air pollution and inefficient bus transit services. Facing these negative effects, Taipei City has defined sustainable urban transportation objectives and has developed integrated urban transit strategies to achieve sustainable transportation. These integrated strategies include the development of mass rapid transit systems, bus only networks, free feeder bus systems, integrated ticketing systems and transit-friendly intermodal systems. This paper discusses these sustainable transit development strategies and their effects within Taipei City.

Keywords: Integrated Strategies, Transit, Sustainable Transportation

I.INTRODUCTION Sustainable development was an important theme discussed at Habitat II. Transportation is central to sustainable development. Sustainable urban transportation must satisfy three main principles, that is, economic efficiency and financial feasibility, social equity, environmental and ecological sustainability. Changing the balance of transportation modes is one of the sustainable transportation stratigies (IBRD, 1996). Since some transportation modes are more environmentally damaging than others, the balance between modes should therefore reflect their environmental, as well as their economic and social characteristics. Except for encouraging ∗

Professor, Institute of Traffic and Transportation, National Chiao Tung University, Taiwan, ROC.

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nonmotorized transporation, the promotion of urban transit in the area of urban transportation is crucial to the balance of transportaion modes. Effective transit development and management, using principles of sustainable development, can reduce emissions, provide equitable access for people and support a vibrant economy, which is consistent with the spirit of Habitat II. This paper begins by examining the changes in Taipei’s n social-economic characteristics, land use and transportation patterns between 1980 and 2000. It then sets out the urban transportation problems and suggests integrated strategies for achieving sustainable urban transit development for Taipei city.

1.Taipei Profile, 1980-2000 The city of Taipei, the capital of Taiwan, is located in the northern part of Taiwan. Two main gateways, CKS international airport and Keelung international seaport, both only about 50 minutes away, give Taipei the locational advantage to develop into an international city. (Figure 1)

Shanghi

C hina

Taipei

Taiw an H ong K ong Figure 1

Location of Taipei

The total area of Taipei is 272 square kilometers. Its share of the total national population was 12% in 2000, although its accounted for only

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0.8% of the total national area. This concentration of population reflects the role of Taipei as a political, cultural, and economic center in Taiwan. Topographically, Taipei is situated in an alluvial basin surrounded by mountains and traversed by the Keelung, Tamshui and Hsintien rivers. The mountains and rivers are both physical constraints and natural assets in Taipei. The climate is subtropical with warm, humid summers and cool, relatively rainy winters. The air quality depends on climate and topography as well as on the quantity of pollutants, especially those from motor vehicle emissions.

II.SOCIO-ECONOMIC CHARACTERISTICS OF TAIPEI 1. Population Growth Taipei had a population of 2.65 million in 2000 with a density of 9,737 persons per square kilometer (Table 1), the highest in Taiwan. The city of Taipei is the central administrative unit of the Taipei Metropolitan Area (TMA) whose population increased at an average rate of 2.0% in 1980-2000. This population growth in TMA can be attributed to the migration of people into the TMA. A breakdown of TMA into Taipei City and Taipei County shows 2.65 million people, or 43% of TMA's population, living in the Taipei City and another 3.57 million, 57%, living in Taipei County. The decline of Taipei City’s population as aproportion of TMA’s population from 50% in 1980 to 43% in 2000 implies the suburbanization of the population and therefore an increased commuter travel demand to the central city. The average household size decreased from 4.1 persons per household in 1980 to 3.1 persons per household in 2000. This trend toward smaller families may affect the pattern of travel demands. Based on the past trends and taking into consideration available natural resources, a comprehensive development plan for Taipei forecasts a population of 7.55 million in 2015, 1.34 million, or 22%, more than that of 2000.

2. Income and Employment Per capita income GNP in Taipei has increased about 5-fold in the 20 years prior to 2000. Growth in income brings a rise in demand for travel by private car and for recreation, and also increased consumption. In the

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Table 1 Socio-Economic Profiles of Taipei (TMA) and Taipei City

Population (103) Population Density (Person/Km2) Household (103) Employment －Primary (103) －Secondary (103) －Tertiary (103) －Total (103)

TMA 4,479 1,927 1,080

1980 Taipei City 2,221 8,173 561

69 (4.1%) 679 (40.2%) 939 (55.7%) 1,687 (100%)

TMA 6,214 2,674 2,025

2000 Taipei City 2,646 9,737 889

7 24 (0.9%) (0.9%) 246 871 (32.6%) (32.5%) 502 1,781 (66.5%) (66.6%) 755 2,676 (100%) (100%)

3 (0.3%) 238 (21.0%) 893 (78.7%) 1,134 (100%)

Source: Taipei City and Taipei County Statistical Annual Reports, 2001.

same period, urban employment in the secondary and tertiary sectors, rose from 66.5 % of total employment in 1980 to 78.7% in 2000. The increase of total employment and the changes in the employment structure reflect how the the high economic growth rate and massive urban employment have produced an extremely high rate of new job formation, resulting in the increase of travel to work trips.

3. Spatial Structure and Land Use In defining the spatial structure we need to identify the key components or entities that form the urban system. They are: 1. Node — urban center; 2. Link — urban corridor; 3. Area — hinterland of urban center; 4. Volume — urban density; 5. Function — urban activity. The TMA has one core center, two sub-centers, three rings, four satellite towns, five suburbs, and six corridors. The core center, the main metropolitan area, is the old Taipei City in TMA. The two sub-centers are located in eastern Taipei's Nankang and western Taipei's Panchiao. The three rings are the inner ring of core area, the middle ring of Taipei, and the outer ring of TMA-influenced area. The four satellite towns are Keelung, Ilan, Taoyuan and Chungli. The five suburbs are the five above-mentioned sub-regions, except for the core area. The six major corridors are basically the radial corridors from the core area: the Taipei-Tamshui corridor, Taipei-Nankang corridor, Taipei-Hsintien corridor, Taipei-Chungho corridor, Taipei-Panchiao corridor, and Taipei-Hsinchuang corridor. (Figure 2)

Integrated Strategies for Sustainable Urban Transit 147

Tamshui

ShinYi SubSub-center

CBD Hsinchuan

NanKang Panchiao Yungho SubSub-center

Hsintien

Taipei City TMA Corridor

Figure 2

Spatial Structure of Taipei Metropolitan Area (TMA)

Mixed commercial and residential use is common in the TMA. This mixed land use pattern reduces travel demand but also lowers the environmental quality of residential areas. Because of the mixed land use pattern, there are no highly concentrated and specialized commercial centers.

4. Urban Transportation Characteristics a. Motor Vehicles Motor vehicle use continues to increase rapidly. I=. The total number of motor vehicles registered has increased sharply in recent years (Table 2). The number of vehicles in Taipei Citygrew from 533 thousand motor vehicles in 1980 to 1,626,000 in, a tripling in 20 years. In the same period, private cars rose from 105 thousand to 559 thousand, a 430% growth. At the same time the number of e motorcycles increased from 351 thousand to 959 thousand, agrowth of some 173%.

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Table 2 Type Private Cars Motorcycles Taxis City Buses Intercity Buses Light Trucks Heavy Trucks Special Vehicles Total

Motor Vehicle Registrations in Taipei City 1980

1985

1990

1995

2000

105,463 191,988 388,882 512,408 559,056 350,921 586,272 597,586 735,015 959,013 26,012 30,836 38,075 36,039 36,686 2,353 2,824 2,939 2,916 2,620 2,658 2,491 2,233 2,601 3,592 34,109 54,269 50,103 49,166 50,195 8,607 8,590 9,451 7,359 6,338 3,126 3,888 5,444 6,435 8,026 533,249 881,158 1,094,713 1,351,939 1,625,526

Growth Rate (1980-2000) 430% 173% 41% 11% 35% 47% -26% 157% 205%

Source: Department of Transportation, Taipei City Government, 2001

b. Vehicle Ownership Passenger car ownership in 2000 was 211 passenger cars per thousand people and motorcycle ownership was 362 in Taipei City (Table 3). This implies that there is one passenger car for every five people and one motorcycle for every three people. Substantialrates of growth have intensified congestion in places that were already clogged in Taipei City. Table 3 Vehicle Ownership in Taipei CityUnit: Vehicles/Thousand People Type Private Cars Motorcycles Motor Vehicles

1980 47 158 240

1985 76 234 351

1990 143 220 402

1995 195 279 513

2000 211 362 614

Source: Department of Transportation, Taipei City Government, 2001

c. Modal Split Presently, the bus transport is the major public transit mode in TMA = accounting for about 21% of total daily trips. The remaining trips are approximately 33% by motorcycle, 29% by private car, 9% by taxi, 1% by commuter railway and 3.7% by mass rapid transit system. The bus share ratio decreased from 62% in 1980 to 21% in 2000, while the private car’s share ratio increased from 3.4% to 29% (Table 4). High dependence on buses provides a favorable environment for the development of mass transit. The bus system in Taipei City involves 278 bus routes operated by ten companies (one public and nine privates) with a combined fleet of about 2,620 buses in 2000. Although the number of bus routes and

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operating vehicle miles have increased from 1980 to 2000, the increasing usage of private cars and the relatively poor level of service of the bus system have caused a gradual decrease in bus ridership. Table 4

Mass Transit

Mode Shares in Taipei Metropolitan Area

Type City Bus Commuter Rail Mass Rapid Transit Subtotal

Taxi Private Car Private Transport Motorcycle Subtotal Others Total

1980 61.8% 1.5%

1990 26.4% 0.4%

2000 20.8% 1.0%

─

─

3.7%

63.3% 3.8% 3.4% 15.2% 18.6% 14.3% 100.0%

26.8% 11.0% 17.9% 32.2% 50.1% 12.1% 100.0%

25.5% 8.6% 29.0% 32.5% 61.5% 4.4% 100.0%

Source: Department of Transportation, Taipei City Government, 2001.

The Taiwan Railway Administration operates =one commuter railway line while the mass rapid transit system is operated by the Taipei Rapid Transit Corporation. Low price, easy parking, and high degree of mobility in congested narrow streets, contribute to a high dependence on motorcycles: 33% share of total daily trips in 2000, which causes highly mixed traffic flow.

III.URBAN TRANSPORTATION SYSTEM 1. Transit System a. Intercity Transit Corridor The introduction of High Speed Rail (HSR) is considered to be the most critical policy direction in railways. The HSR will not only serve intercity travel demand between Taipei and other major cities in West Taiwan but will also transform West Taiwan urban development into a mega-metropolitan belt. The system will be 345 kilometers long and trains will run at 300 kilometers per hour and will be completed by 2005. Furthermore, a regional rapid transit system connecting Taipei with CKS international airport has been planned and will be built by the private sector. Both the HSR and the airport-link rapid transit project are Build Operate Transfer (BOT)-type projects.

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b. Urban Mass Rapid Transit System There are several objectives for developing MRT systems (Walmsley, D. L. and Perrett, K. E., 1992). The major objective is usually to improve public transportation and to reduce congestion. The other objectives are to improve the environment, particularly in terms of reducing pollution from cars and reducing the need for highway construction, and to improve urban structure by providing opportunities for developments. The Taipei Mass Rapid Transit (MRT) network is planned as a combination of radial, circumferential and grid configurations. The layout fits into the planned spatial structure of Taipei Metropolitan Area, a multi-nucleated conurbation served by six corridors. The total length of the system is 86.8 kilometers, composed of six lines (figure 2). Fifty percent of the funding for the Taipei MRT system is provided by the Central Government, 13% by the Provincial Government and 37% by the Taipei City Government. Privatization strategies, such as BOT are being considered for the extension of the system. Three MRT lines, the Mucha, Tamshui, Hsintien, Nankang, Panchiao and Chungho Lines, are already in service. (Figure 2) The Mucha Line, 10.9 kilometer long, is a medium-capacity transit (MCT) elevated line between Mucha in the southern suburbs and the Taipei domestic airport. This MCT’s technology comprises automatic, driverless trains on rubber wheels with a capacity of 10,000 passengers per hour in four car trains. The Tamshui Line, 22.8 kilometer long, is a heavy steel-rail transit line between the Taipei railway station and Tamshui village in the northern suburbs. Its alignment is mixed with underground, elevated and ground levels. The Hsintien Line, 10.3 kilometers long, joins the Tamshui Line and runs south to the Hsintien village in the southern suburbs. The Nankang Line, 10.3 kilometers long, runs underground from east side of Taipei to old CBD in the western Taipei. The Panchiao Line, 12.6 kilometers long, also runs underground from west side of Taipei to Panchiao station in Taipei County. The Chungho line, 5.4 kilometer long, is an underground heavy steel-rail transit line between Taipei railway station and Chungho township in Taipei County (Figure 3). The long-term MRT network plan envisages an additional 50.8 kilometers extending the present system to serve most of Taipei’s surrounding suburbs. In addition to the MRT system, several LRT line plans to provide feeder services to the existing MRT lines have recently been evaluated.

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Taipei MRT

Figure 3

Taipei MRT

2. Highway System The highway system in Taipei includes freeways, expressways, and urban streets. The major highway infrastructures are as follows: a. Intercity Highway Corridor The Chung-Sun Freeway goes through the middle of Taipei City in an east-west direction with three interchange ramps giving access to urban streets. Decades of worsening traffic on these freeway ramps have made it difficult for Taipei residents to travel between Taipei and the rest of the island. The construction of a second national freeway system, the upgrading of the West-Coast highway to an expressway, and the construction of East-West Expressway connecting the two north-south freeways have established a more complete intercity expressway network for the Taipei Metropolitan Area. b. Urban Expressway System The elevated urban expressway system in Taipei consists of an inner loop surrounding the city core area, an outer loop connecting suburban areas, and some radial roads starting from the metropolitan center. The

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urban expressway was designed not only for easing traffic congestion on the ordinary level roads, but also for providing rapid access from urban arterials to freeways. The 68 kilometers of expressways existing in Taipei in 2000 will be expanded to 116 kilometers by 2006.

3. Transportation Organization Taipei’s Department of Transportation is responsible for the development of plans to meet urban transportation needs of both passengers and goods. The department has one planning office and five divisions dealing with comprehensive planning, traffic engineering, public transportation, traffic safety, tourism, and MRT supervision. Other elements of the Department of Transportation are the Motor Vehicles Inspection Administration, the City Bus Administration, the Parking Management Administration, and the Traffic Engineering Administration. The Department also deals with special problems such as the education and training of drivers, arbitration of vehicle accidents, and traffic adjudication. It is guided and supervised by the Ministry of Transportation and Communications which, on occasions, also funds special programs.

IV.URBAN TRANSPORTATION PROBLEMS 1.Traffic Congestion The average speed of private cars in Taipei City is about 20 kilometers per hour in peak periods while that of buses is about 10 kilometers per hour. One of the important reasons for traffic congestion is the mismatch between transportation demand and facilities. The number of motor vehicles increased by 205% from 1980 to 2000, while the road area only increased by 34% in the same period, with road area per vehicle declining from 27.9 m2 in1980 to 12.4 m2 in 2000. Following this trend, it is predicted that Taipei’s road area will soon be entirely occupied by vehicles. The other reasons causing traffic congestion are the lack of a well-planned hierarchical roadway network systems, and a deficient urban traffic control and management system.

2.Shortage of Parking Spaces Shortage of parking spaces has resulted in widespread illegal parking and difficulty in parking. In 2000, the 342 thousand car parking spaces

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Table 5

Road Area to Vehicle Ratio in Taipei City

Road Area (thousand square meters) Road Area to Vehicle (square meter/vehicle)

1980

1985

1990

1995

2000

14,886

17,172

18,408

19,107

20,142

27.9

19.4

16.8

14.1

12.4

Source: Department of Transportation, Taipei City Government, 2001.

and 58 thousand motorcycle parking spaces available in Taipei were far fewer in number than the population of 667 thousand passenger cars and 960 thousand motorcycles. This shortage of parking spaces results in much illegal parking reducing many broad, four-lane streets to two lanes. This not only seriously restricts the flow of traffic and thus causes tie-ups, but also forces pedestrians to walk in the middle of the road and exposes them to the risk of being hit by speeding vehicles.

3.Inefficient Bus Transit Service Road congestion seriously affects the effectiveness and speed of bus services. During rush hours, fully-loaded buses sit in traffic with the other vehicles. Because trip times are significantly longer and the schedules are unpredictable, the bus system is unable to compete with other modes of transportation. Even with low fares, the bus system is experiencing declining patronage due to the inconvenient delays. From 1980 to 2000, the bus share of total daily trips declined from 62% to 21%. The improvement of the bus system in efficiency and capacity has thus become a focus of public and political concern in recent years.

4.Poor environmental quality Emissions from cars and motorcycles produce 90% of Taipei’s air pollution which gets trapped by atmospheric inversions in the deep topographic basin within which the city lies. Recent increases in taxi and bus fares may have contributed to the swelling number of private cars and motorcycles. The rapid growth in the vehicle population has exacerbated Taipei’s air and noise pollution. In addition to the above present transportation problems, Taipei now faces some new problems due to the changing external environment, such as changes in socioeconomic patterns, transportation technology, and government financial condition. These new problems include meeting the needs of the handicapped and elderly, provision of an intelligent transportation system, encouragement of private participation in

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transportation projects, and enhancement of the integration between modes and between land use and transportation.

V.INTEGRATED STRATEGIES FOR SUSTAINABLE URBAN TRANSIT DEVELOPMENT Facing the above urban transportation problems and the changing environment (Feng, 1996), Taipei has began to consider the long term future based on the concept of a sustainable urban transportation system, which should have a balanced blend of environmental, social and economic factors. To limit emissions and waste, to provide equitable access for people and to support a vibrant economy, Taipei has put much emphasis on providing a higher quality transit service to increase its attractiveness relative to the private auto. Taipei's Mayor has clearly stated the sustainable urban transit objective of increasing the transit share from 25% to 50% and moving Taipei in the direction of sustainable transportation in his four years duty. Following this, Taipei has developed integrated urban transit development strategies. These integrated strategies include the Exclusive Bus Lanes, Free Feeder Bus Systems, Integrated Ticketing Systems and Transit-friendly Intermodal Systems.

1.Exclusive Bus Lanes Because of higher carrying capacity of buses and increased impediments to smooth traffic flows on existing arterials, a bus priority treatment has been implemented to increase bus patronage and to reduce the interaction between buses and auto vehicles. In this bus priority treatment, eight arterials have exclusive lanes for bus usage, which results in a chessboard bus network. The total length is 47 kilometers with 114 bus stops near intersections for the safety of patrons. The project cost is about US$ 9 million. Taipei DOT reported after evaluating the exclusive bus lanes that bus travel speed has increased by 35% and ridership has increased by 3.85%. According to polls in 1996, more than 70% of Taipei citizens support this bus priority treatment.

2.Free Feeder Bus Systems To attract more passengers away from private transportation to

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public transportation, since 1996 the Taipei City Government has implemented a discount scheme for riders transferring from MRT to buses (MRT-Bus), either a feeder bus or a regular bus. At the beginning, the discount was 25 percent of bus fares but it provided free transfer from the 2000 onwards. This discount scheme has successfully increased the number of MRT-Bus passengers from 3,000 to 120,000 every day. A questionnaire showed that the percentage of MRT-Bus passengers would decreas by 26.2 percent if this discount were cancelled. The only argument about this scheme is who should pay the money to subsidize the MRT-Bus passengers. Taipei City Government provides the subsidy at the moment. However, this subsidization will be given by Taipei Rapid Transit Corporation in the near future. The main reason is that Taipei Rapid Transit Corporation also takes advantage of attracting more passengers to use MRT from the free-transfer scheme.

3.Integrated Ticketing Systems Taipei City Government will implement the contactless IC smart card in 2002 to provide passengers a more convenient way to use public transportation. The short term aim is to integrate ticket systems among MRT, buses and public parking together. Intercity buses will be included in the long term. The smart card has the characteristics of contactless within 10 centimeters, large storage memory, better security, and quick data processing. It can process a transaction in 0.4 seconds. To offer greater convenience to the smart card users, they can go to special arrangement shops, MRT stations or automatic value-added machines to add further value to the card via cash, credit card or cash card. Furthermore, Taipei City Government is introducing BOT to set up the IC Smart card to reduce government expenditure and to make the establishment more efficienct. It will invite public bidding from the private sector to set up the system and to operate the business. Finally, the whole system and business will transfer to the government after a certain concession period.

4.Transit-friendly Intermodal Systems A bus network has to complement an MRT network. It is necessary to reorganize bus routes in accordance with MRT routes. Basically, buses perform as a feeder system where a bus route is parallel with a MRT route. Express bus and exclusive bus lanes should be provided where there is no MRT service.

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Integration of a sidewalk system and a MRT system is also an important issue for creating transit-friendly environment for passemgers. A questionnaire conducted by Department of Transportation, Taipei City (DOT, 2000) showed that 50 percent of passengers walk to and from MRT stations approximately and half of passengers transfer to MRT stations via other modes. The Taipei City Government has planned sidewalk systems that emphasize on an idea of ‘walkers have the priority, vehicles are next‘ within 500 meters area of a MRT station. It also requires them minimum width of a sidewalk to be 2.5 meters. In the meantime, Park and Ride facilities for MRT-Bus passenger are provided at suitable locations. It also ensures the continuity and without obstruction for the sidewalk systems between these facilities and MRT stations.

5.Transit-oriented Development The relationship between ridership and population density for the case of BART (Bay Area Rapid Transit System) was that an increase 1000 inhabitants per square mile added an average of 8 more rail trips per 1000 residents (Bernick, M., and Cervero, R., 1997). In theory, higher ridership occurred with higher residential densities, especially for those making longer trips. To increase the MRT ridership, Taipei City Government has updated the zoning ordinance in the MRT station areas to allow more mix land uses and to reinforce the development density. Other tools such as joint development, station area renew plan, circulation plan, and site plan approval ordinance are also applied for supporting MRT development.

VI.CONCLUSIONS The integrated stratiges, including the Exclusive Bus Lanes, Free Feeder Bus Systems, Integrated Ticketing Systems, Transit-friendly Intermodal Systems and Transit-Oriented Development, are crucial to improve the urban transit environment and therefore shift the modal usage from auto to public transit. It is clear that a truly integrated approach can efficiently achieve the objectives of sustainable urban transit, that is, to reduce congestion, to improve the environment, particularly in terms of reducing polluction from cars, and to reduce the need for highway construction. To achieve the objectives of sustainable transit development, the strong commitment by government is very important. Taking Taipei City as an example, one of the reasons for Taipei to actively improve the

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transit development is the strong commitment from the Mayor who expects the modal share of urban transit will increase from 25% to 50% in his four years duty of Mayor. Furthermore, the bus fare will not change in his present four-year term or if he is re-elected for a further four years. In conclusion, good service quality and reasonable fares are the transit development objectives in Taipei City. Integration strategies for public transportation are the means to meet this end.

References Bernick, M., and Cervero, R., Transit Villages in the 21st Century, McGraw-Hill, 1997. Department of Transportation, Taipei City Government, Taipei City Transportation Annual Report, 2001. Department of Transportation (DOT), Tapei City, Survey Report of MRT Operation, 2000. Feng, C.M., "Urban Transportation Restructuring in a Changing Environment," Proceedings of The 1st APEC Urban Transport Forum, 1996, PP.257-258. Taipei City Government, Taipei City Statistical Annual Report, 2001. Taipei County Government, Taipei County Statistical Annual Report, 2001. The International Bank for Reconstruction and Development (IBRD), Sustainable Transport: Priorities for Policy Reform, Washington D.C., The World Bank, 1996. Walmsley D.A., and Perrett, K.E., The Effects of Rapid Transit on Public Transport and Urban Devleopment, Transport Research Laboratory, Department of Transport, London, HMSO, 1992.

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