China, People's Republic of: Xi'an Urban Road Network Improvement Project

Sovereign Project | 43032-013 Status: Active


ADB is helping the People's Republic of China improve the efficiency and safety of the road network in Xi'an, Shaanxi’s provincial capital and economic center. The project will include road, pedestrian crossing, and safety upgrades; multimodal interchange facilities; intelligent transport system and road safety program; and a strengthened vehicle emissions inspection program to curb pollution.

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Project Name Xi'an Urban Road Network Improvement Project
Project Number 43032-013
Country China, People's Republic of
Project Status Active
Project Type / Modality of Assistance Loan
Source of Funding / Amount
Loan 2802-PRC: Xi'an Urban Road Network Improvement Project
Ordinary capital resources US$ 150.00 million
Strategic Agendas Environmentally sustainable growth
Inclusive economic growth
Drivers of Change
Sector / Subsector

Transport - Urban roads and traffic management

Water and other urban infrastructure and services - Urban policy, institutional and capacity development

Gender Equity and Mainstreaming Some gender elements
Description The project impact will be to ensure the city transport system can fulfill its essential enabling role in economic development by facilitating the movements of goods and people. By contributing to a comprehensive and holistic solution for integrated urban mobility and enhanced system management, the project will promote the sustainable economic growth of the city. The project outcome will be an efficient, safe and environmentally sustainable integrated urban transport system developed in Xi'an. The project includes five interlined outputs: (i) Output 1: road network improvements; (ii) Output 2: pedestrian crossing and safety improvements; (iii) Output 3: multimodal interchange facilities; (iv) Output 4: ITS and road user safety program; (v) Output 5: environment protection enhancement.
Project Rationale and Linkage to Country/Regional Strategy

Xi'an is the provincial capital and the political, economic, and cultural center of Shaanxi Province. As one of the most important growth poles in the western region of the People's Republic of China (PRC), the city is expanding and developing rapidly. Its population was 8.4 million in 2009, with 72% categorized as urban. During 2000-07 the population rose at an annual growth rate of 1.85% and gross domestic product grew at 13.5% per annum. The number of registered vehicles increased by 12.2% per annum from 2003-07, with passenger vehicles growing at 21.8% per year. Alongside, and as a result of, such growth the city is experiencing a range of urban transport problems, including: traffic congestion; an under-developed strategic road network, especially for arterial roads which are failing to keep pace with and thus serve urban expansion between ring roads 2 and 3; a poorly integrated transport system that is insufficient to serve the needs of all in the community; very low levels of road safety; and deteriorating local air quality as a result of vehicle emissions. The city is making efforts to address these problems. It is expanding the road network, utilizing their own financial resources and through the Asian Development Bank (ADB) assisted Third Ring Road Project and World Bank project for the First and Second Ring Roads. However, the city lacks adequate financial resources to provide the necessary connectivity to the remainder of the strategic arterial road network. The lack of space in the historic walled city and increasing need for additional public and private sector offices, commercial developments and services such as schools and hospitals, means that the emerging growth poles between the second and third ring roads are developing rapidly, much faster than the transport capacity to serve the increasing demand and change in travel patterns. In these areas of the city the lack of connectivity is most acute and is restraining the supporting role transport plays in economic growth and efficient operations of a city. The city masterplan has identified the need to complete missing sections of the strategic road network to provide access to these emerging growth poles of the city and to do so while providing for all road users; pedestrian, public transport and private transport modes

The proposed project is intended to support the objectives of the PRC to find suitable and sustainable solutions to its urban transport problems and in so doing is directly supportive of the emerging urban transport priorities of the Twelfth Five-Year Plan, 2011-2015 and also of the PRC Country Partnership Strategy (CPS). It is also well aligned with the pillars of ADB's Strategy 2020, focusing on inclusive and environmentally sustainable development. In addition, having a focus on urban transport, it addresses one of the focus areas of ADB's Sustainable Transport Initiative Operational Plan (STI-OP).

Impact Inclusive and environment-friendly economic growth promoted

Project Outcome

Description of Outcome An efficient, safe, and environmentally sustainable integrated urban transport system developed in Xi'an city
Progress Toward Outcome In general, the project has achieved about 35% progress, against 75% time elapsed. In the past eight months, considerable progress on resettlement and physical construction has been made, but more efforts are needed to catch up the slippage.
Implementation Progress
Description of Project Outputs

1. Road network improvements

2. Pedestrian crossing and safety improvements

3. Multimodal interchange facilities

4. ITS and road user safety program

5. Environmental protection enhancement

Status of Implementation Progress (Outputs, Activities, and Issues)

Output 1 Road Network Improvements:

A. Interchanges of North 2nd Ring Road, Fengcheng 4th Road, Xinhuo Road, and Hongmiaopo Road: civil works contracts were awarded on 17 December 2013. Construction of North 2nd Ring Road Interchange and Fengcheng 4th Road Interchange commenced in July 2014 when pipelines and power lines were reallocated. Construction of Xinhuo Road Interchange actually started in July 2015, although the contractor was mobilized in September 2014. Construction of Hongmiaopo Road Interchange commenced in October 2015, although the contractor was mobilized earlier. As of May 2016, about 75% progress achieved for Fengcheng 4th Road Interchange and about 80% for North 2nd Ring Road Interchange. The main bridge Fengcheng 4th Road Interchange was opened to traffic on 26 May 2016. For Hongmiaopo Road Interchange, about 30% progress has been made and it is scheduled to complete the construction by 31 December 2016. For Xinhuo Road Interchange, the major drainage work was completed, with an increase of pipe size from 3 meters to 4 meters. In addition, an auxiliary road on western side was completed.

B. Interchange connecting Fengcheng 8th Road and Taihua Road: Civil works contract was signed in November 2015. Due to delay in resettlement and relocation of pipelines and power lines, and the need to modify the detailed design to accommodate subway construction under the interchange, construction of the civil works has not started.

C. Interchange connecting Fengcheng 8th Road and Beichen Road: Since the other side of Fengcheng 8th Road has not started road construction and the construction will involve significant resettlement and power lines reallocation, implementation of this interchange is suspended.

D. Dazhai Road: Since the east side has been implemented with 30 m right-of-way, the proposed over-passing bridge cannot be constructed due to limitation of right-of-way. The civil works contract for the remaining road section was signed in December 2015. The contractor has mobilized, but no physical progress has been made.

E. Keji 2nd Road: Due to the difficulty in resettlement of the western section of the road, the XMURCC, XIIG, and XMPUB decided to implement the eastern section with a total length of 2.83 km in 2015. The contract of Road-C01A (eastern section) was approved on 13 September 2016.

F. Kunming Road: The design of the road will be changed. The original design to extend Kunming Road by covering the polluted river will be changed to build an elevated bridge over the river, which will form a part of fast track road in Xi'an. It was learnt that the feasibility study of the fast track road has been endorsed by the city government. Due to design change and the implementation delay, XMURCC and XIIG will use the government funds to implement the road.

Output 2 Pedestrian Crossing and Safety Improvements: Procurement of the first batch of 36 intersections and pedestrian crossing facilities was completed in January 2015. By 30 November 2015, 36 intersections and pedestrian crossing had been rehabilitated, including two changed from the original list. It was informed that the technical design for several intersections was revised. ADB review mission in 2016 has no objection to such revisions and advised XMURCC and XIIG to withdraw all eligible expenses by 31 July 2016. For the remaining intersections and pedestrian crossing facilities, the XMURCC and XIIG confirmed to use domestic funds to implement them.

Output 3 Multimodal Interchange Facilities: The implementation of this output has been significantly delayed. Since about 30% of ADB finance is allocated for this output, implementation of this output is critical to the success of the project implementation. ADB review mission in 2016 urged XMURCC and XIIG to make further efforts to facilitate implementation of Xi'an North Train Station transport hub and Xi'an National Civil Aerospace Industrial Base transport hub.

A. Multimodal Transport Hub: For Xi'an North Train Station transport hub, the bid of MIF-C01 was opened on 14 September 2016. ADB review mission in 2016 advised XIIG to make sure that the site is ready for construction by 30 September 2016 so that the contractor can start construction immediately when the contractor is mobilized.

B. For Xi'an National Civil Aerospace Industrial Base transport hub, the preliminary design is ready for approval.

C. For Xi'an International Logistics Park transport hub, the scheme of the transport hub is still under study since an intercity railway station and a long-distance bus station will be constructed near the proposed transport hub.

D. For Xi'an Yuhua Zhai transport hub, the land in the original project site cannot be acquired and the proposed new site by the local government was not suitable for a transport hub since it was too far from subway station. The XMURCC and XIIG proposed to cancel this transport hub from the project scope.

E. Multilevel parking facilities: According to the project appraisal, five multilevel parking facilities will be constructed under the project. Two will be built at the multimodal transport hub for Yuhua Zhai and Xi'an International Logistics Park and three parking garages will be located on the edge of the old walled city (Leju Chang, South Guoshang Village, and Xizhan Community). According to XMURCC and XIIG, the land acquisition for all five multilevel parking facilities becomes impossible and selection of new locations is necessary.

F. CNG stations: At appraisal, it was proposed to construct five compressed natural gas (CNG) stations under the project. Four are to be constructed in the four transport hubs, and one more CNG station at Mujiangwang was planned. Its implementation has been delayed due to delay in implementation of transport hubs. For CNG station at Mujiangwang, it will be likely replaced by construction of CNG station in a bus maintenance station.

Output 4 ITS and Road User Safety Program: Procurement of traffic video monitoring system (ITS-G01-2) and camera enforcement system (ITS-G01-3) were completed by November 2014. Procurement of dynamic traffic information collection system (ITS-G01-1) was completed and the contract was submitted to ADB on 16 September 2015. The BER of ITS-G02 was approved on 6 September 2016.

Output 5 Environment Protection Enhancement: Out of 10 contract packages, nine have been awarded, except for software for environmental protection and enhancement (EP-G08). The BER of EP-G08 was approved on 2 September 2016 and the contract is expected to be approved in early October 2016.

Geographical Location

Safeguard Categories

Environment A
Involuntary Resettlement A
Indigenous Peoples C

Summary of Environmental and Social Aspects

Environmental Aspects

The Project is classified as environmental category A. A consolidated Environmental Impact Assessment (EIA) was prepared in compliance with the PRC regulatory framework, ADB's Safeguard Policy Statement (2009) and Environmental Assessment Guidelines (2003). The consolidted EIA is based upon the findings of the domestic EIA, as well as a due diligence assessment of the environmental impact of the Project. The domestic EIA, including Environmental Management Plans (EMP, were discussed and endorsed by EA. The consolidated EIA was provided to the ADB Board of Directors and made public through the ADB website on 24 June 2011. The EIA prescribed environmental protection and mitigation measures have cost CNY xx million. To ensure all potential adverse environmental impacts of the Project are mitigated, the EA will implement the EMP as specified in the EIA. The EMP will be incorporated in the bidding documents and contracts for civil as specified in the EIA. The EMP will be incorporated into the bidding documents and contracts for civil works; they will be monitored and semiannual reports submitted to ADB.

Three external monitoring reports on environment were disclosed on ADB website by far.

Involuntary Resettlement

Updated resettlement plan for the 1st batch of construction components, including Kunming Road, Xinhuo Road interchange, Hongmiaopo interchange, Zhuhong Road-North 2nd Ring road interchange, and Zhuhong Road-Fengcheng 4th road interchange, was disclosed on ADB website in Septebmer 2013. Updated resettlement plan for Fengcheng 8th-Taihua Interchange was disclosed on 16 March 2015. Updated RP for Dazhai Road was disclosed on 1 December 2015. Updated RP for Keji 2nd Road was disclosed on 26 May 2016.

Three external monitoring reports on resettlement were disclosed on ADB website by far.

Indigenous Peoples
Stakeholder Communication, Participation, and Consultation
During Project Design

The PPTA community consultation process included:

(i) formal interview surveys of:

(a) various categories of road users (over 1,000 interviews);

(b) a sample of households living near to project physical work sites (250 interviews); and

(c) a sample of vulnerable households, because of poverty, age and/or disability (50 interviews);

(ii) 12 focus group discussions (FGDs):

(a) 9 with residents of different communities located near areas where the proposed construction will take place,

(b) 2 specifically with women, and

(c) one specifically with elderly; and interviews with key informants from relevant government departments, ERAB, and ACWF.

During Project Implementation

Business Opportunities

Consulting Services

An estimated 134 person-months (34 international and 100 national) of consulting services are required to facilitate (i) project management and implementation, (ii) implementation of intelligent transport system component, and (iii) implementation of environmental protection component. Consulting firms will be engaged using the quality- and cost-based selection (QCBS) and single source selection (SSS) method with a standard quality-cost ratio of 80:20 simplified technical proposal. The SSS method will be used for one of the four outputs of the intelligent transport component (paras. 52 53), which is the road safety education program.

The Government through the IA will engage and finance 700 person-months of national consultants for (i) preparation of detailed design for roads, interchanges, ITS, pedestrian crossing facilities, multimodal transport facilities, and advanced environmental monitoring system, (ii) construction supervision for road and interchange civil works, multimodal transport interchanges, pedestrian crossing, installation of advanced traffic control system, and installation of advanced environmental monitoring system, (iii) monitoring of environmental impact, resettlement impact, and project performance monitoring, and (iv) capacity building for affected people. The national consultants will be recruited in accordance with government procedures acceptable to ADB.

Procurement All procurement of goods and works will be undertaken in accordance with ADB's Procurement Guidelines (April 2010, as amended from time to time). International competitive bidding (Single-Stage: One-Envelop) procedures will be used for civil works contracts estimated to exceed $10 million, and supply contracts estimated to exceed $1 million. Contracts for goods and for works estimated to cost less than the above ICB threshold values, but more than $100,000 for goods and $200,000 for works, will be procured on the basis of national competitive bidding (NCB) procedures in accordance with the PRC Tendering and Bidding Law (1999), subject to modifications agreed upon with ADB.

Responsible Staff

Responsible ADB Officer Chenglong Chu
Responsible ADB Department East Asia Department
Responsible ADB Division PRC Resident Mission
Executing Agencies
Xi'an Municipal Urban & Rural Constrction Commssn
51 Housaimen Street
Xi'an 710003, People's Rep of China
Mr. Wang Dean, Deputy Manager


Concept Clearance 28 Mar 2011
Fact Finding 28 Mar 2011 to 01 Apr 2011
MRM 16 Aug 2011
Approval 08 Nov 2011
Last Review Mission -
Last PDS Update 28 Sep 2016

Loan 2802-PRC

Approval Signing Date Effectivity Date Closing
Original Revised Actual
08 Nov 2011 19 Jan 2012 28 May 2012 30 Jun 2017 - -
Financing Plan Loan Utilization
Total (Amount in US$ million) Date ADB Others Net Percentage
Project Cost 558.06 Cumulative Contract Awards
ADB 150.00 08 Nov 2011 66.55 0.00 44%
Counterpart 408.06 Cumulative Disbursements
Cofinancing 0.00 08 Nov 2011 29.26 0.00 20%

Safeguard Documents See also: Safeguards

Safeguard documents provided at the time of project/facility approval may also be found in the list of linked documents provided with the Report and Recommendation of the President.

Evaluation Documents See also: Independent Evaluation

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Related Publications

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