Measures of Shanghai Municipality for the Administration of Railway Passenger Station Areas

(Promulgated by Decree No. 23 of Shanghai Municipal People's Government on December 31, 2025; effective from February 1, 2026)

Chapter I  General Provisions

Article 1 (Purpose and Basis)

With a view to strengthening the administration of railway passenger station areas within this Municipality, enhancing service levels for passenger travel, ensuring the safety and order of railway passenger transport, and maintaining public social order, these Measures are formulated in accordance with relevant laws and regulations, and in the light of the actual circumstances of this Municipality.

Article 2 (Scope of Application)

These Measures shall apply to activities related to the planning and construction, operation and maintenance, service optimization, safety and order management, responses to large passenger flows and emergencies, as well as relevant support and supervision activities in railway passenger station areas within the administrative area of this Municipality.

The term "railway passenger station area" as used in these Measures means the surrounding public areas that are connected to national railway passenger stations (hereinafter referred to as "railway passenger stations") and are associated with passenger travel support.

The management of railway passenger stations shall be carried out by railway departments and railway transportation enterprises in accordance with relevant laws, regulations, and rules.

Article 3 (Scope of Railway Passenger Station Areas)

The boundaries of the area surrounding a railway passenger station shall be delimited by the district people's government, where the station is located, and announced to the public. If a civil airport or a municipal-level or above commercial district is involved, the boundaries shall be delineated by the district people's government in consultation with relevant municipal departments and regional administrative bodies, reported to the Municipal People's Government for approval, and then announced.

The demarcation line between the management scope of a railway passenger station and its associated area shall be determined by railway departments, railway transportation enterprises, relevant municipal departments, district people's governments, and other relevant units in accordance with relevant laws, regulations, and rules.

Article 4 (Administrative Principles)

The administration of railway passenger station areas shall adhere to the principles of municipal-level coordination, territorial responsibility, hierarchical classification, and co-governance and sharing.

Article 5 (Municipal-Level Responsibilities)

The Municipal People's Government shall strengthen leadership over the administration of railway passenger station areas.

This Municipality shall improve the joint conference system for the administration of railway passenger station areas (hereinafter referred to as the "joint conference"). The municipal transportation department shall, in conjunction with municipal public security department and other departments, district people's governments, railway transportation enterprises, and other relevant units, rely on the joint conference to coordinate and manage relevant management tasks for railway passenger station areas.

The municipal departments of development and reform, finance, planning and resources, housing and urban-rural development management, landscaping and city appearance, water affairs, postal management, communications management, emergency response, culture and tourism, commerce, state-owned assets, health, market regulation, civil affairs, fire and rescue, urban management and law enforcement, and other relevant departments shall perform their respective duties in accordance with their responsibilities.

Article 6 (Territorial Responsibilities)

District people's governments shall assume the primary responsibility for the management of railway passenger station areas, be responsible for coordinating the promotion, organizing the implementation, and urging the inspection of the management of railway passenger station areas within their respective administrative jurisdiction.

The railway passenger station area management body designated by the district people's government (hereinafter referred to as the "station management body") shall undertake the daily comprehensive management of the railway passenger station area.

Township people's governments and sub-district offices where the railway passenger station is located shall perform relevant management tasks for the railway passenger station area in accordance with their respective responsibilities.

Article 7 (Service Providers)

Units providing public services such as public transportation, parking, environmental sanitation, road and greenery maintenance, gas, water supply, drainage, electricity, postal services, and communications in railway passenger station areas (hereinafter referred to as "public service providers"), as well as units providing commercial services such as shopping, catering, accommodation, luggage storage, and express delivery (hereinafter referred to as "commercial service providers"), shall comply with relevant management requirements for the railway passenger station area, improve service quality and standards, and cooperate in maintaining public safety and social order.

Article 8 (Social Participation)

Enterprises, public institutions, social organizations, and the general public are encouraged and supported to participate in the service and management of railway passenger station areas to form a joint governance force.

Chapter II  Planning and Construction, Operation and Maintenance

Article 9 (Planning Coordination)

The special transportation hub plan for the location of a railway passenger station shall define the planning scheme and control requirements for the hub and its collection and distribution system, so as to provide a basis for the construction of the hub and its supporting projects.

The regulatory detailed plan for the location of a railway passenger station shall reasonably lay out relevant infrastructure, public service facilities, and commercial facilities in the hub and surrounding areas.

The planning and design scheme for the railway passenger station building complex and its supporting projects shall comply with relevant planning requirements, and comprehensively consider the operational management, public services, safety precautions, transfer connections, emergency evacuation, and other needs of the railway passenger station area.

Article 10 (Facility Construction Requirements)

The infrastructure and public service facilities in a railway passenger station area shall be designed, constructed, and put into use simultaneously with the railway passenger station.

When renewal and renovation are carried out in a railway passenger station area, priority shall be given to upgrading infrastructure and public service facilities, and promoting the intensive use of relevant facilities.

Infrastructure, public service facilities, and commercial facilities in railway passenger station areas shall be equipped with or renovated to include barrier-free facilities in accordance with relevant provisions and the barrier-free facility engineering standards.

Article 11 (Transportation Facilities)

In accordance with national requirements for integrated transportation development, this Municipality shall strengthen the coordinated connection between urban rail transit and railways in railway passenger station areas to promote facility interconnection and functional synergy.

The municipal transportation department and district people's governments shall, in accordance with their respective responsibilities, coordinate and promote the construction, operation, and management of transportation facilities in railway passenger station area---including roads, urban rail transit stations, public bus and tram stops, cruising taxi service stations, dedicated zones or points for online ride-hailing services, parking lots (garages), and non-motor vehicle parking facilities in railway passenger station areas, and shall enhance the connectivity and integration among these related facilities.

Article 12 (Other Facilities and Equipment)

Public toilets, waste sorting collection containers, and other environmental sanitation facilities shall be reasonably arranged in railway passenger station areas in accordance with relevant provisions

The installation of outdoor advertisements, outdoor signs, landscape lighting, and other facilities in railway passenger station areas shall comply with relevant state and municipal provisions.

Article 13 (Facility Inspection)

The owner or management unit of relevant facilities in a railway passenger station area (hereinafter referred to as the "facility management unit") shall strengthen daily inspections. Upon discovering that facilities are soiled, are damaged, pose safety hazards, or are not functioning normally, they shall promptly repair or replace them.

During peak railway transport periods such as statutory holidays, Spring Festival travel rush, and summer travel rush, and after the issuance of severe weather warnings or meteorological disaster alert signals, facility management units shall carry out inspections and maintenance to ensure all types of facilities are in good condition.

When the station management body discovers that facilities are soiled, damaged, pose safety hazards, or are not functioning normally, it shall urge the facility management unit to address the issue promptly. Facility management units shall inform the station management body in advance of major or medium repairs or temporary shutdowns of facilities.

Article 14 (Signage and Identification)

The relevant municipal and district departments, the station management bodies, and public service providers shall install signage and identification for guidance, transfer, barrier-free access, services, safety, emergencies, etc., in accordance with relevant state and municipal provisions.

Signage and identification shall be conspicuous, easily recognizable, securely installed, and clean and aesthetically pleasing. Guidance, transfer, and barrier-free signage and identification shall be uniform and accurate, and provide continuous guidance.

The use of foreign languages in signage and identification shall comply with translation norms or common conventions.

Chapter III  Service Optimization

Article 15 (Travel and Transfer Services)

The municipal and district transportation departments shall strengthen the organization and scheduling of urban rail transit, public buses and trams, taxis, and other passenger transport services based on railway operating hours and passenger flow volume to effectively meet passenger arrival and departure needs.

District people's governments shall organize and coordinate relevant units to strengthen the service and management integration, optimize transfer route layouts and security check procedures, and provide convenient transfer services for passengers.

Article 16 (Overnight Operation Services)

If a railway passenger station operates overnight, the station management body shall organize and coordinate relevant departments and public service providers to provide passengers with temporary rest areas, drinking water, and other services for passengers. Commercial service providers are encouraged to adjust their service hours for catering, luggage storage, etc., in accordance with the railway passenger station's operating hours.

Article 17 (Information Services)

The relevant municipal and district departments, the station management bodies, and relevant public service providers shall release public service information in accordance with their respective responsibilities. The released public service information shall be timely, accurate, objective, and comprehensive. The station management bodies are responsible for coordinating the release of relevant information.

The relevant municipal and district departments and public service providers shall release public service information through electronic display screens, self-service public service terminals, etc. Where conditions permit, online services may also be provided simultaneously via websites, applications, and other channels.

The use of electronic display screens and other methods to integrate and display dynamic information such as interior space layout maps of the hub, transportation options, and convenience services is encouraged; the provision of public service information in multiple languages that complies with translation standards is also encouraged.

Article 18 (Priority and Barrier-Free Services)

The station management body shall organize and coordinate railway transportation enterprises and public service providers to offer priority services for ticket purchase, security checks, transfers, etc., as well as barrier-free services such as text display and voice prompts for persons with special needs such as the elderly, young children, the sick, people with disabilities, and pregnant women.

Article 19 (Developing Characteristic Brands)

Support will be provided for railway passenger station areas to innovate service models and scenarios based on passenger travel service demands, integrate regional cultural resources and commercial characteristics, enhance the travel service experience, and develop distinctive service brands.

Chapter IV  Safety and Order Management

Article 20 (General Requirements)

District people's governments shall guide and supervise relevant departments, township people's governments, sub-district offices, and the station management bodies in promoting the safety and security development of railway passenger station areas, implementing work safety responsibilities, and maintaining public safety and social order in railway passenger station areas.

The station management body is responsible for coordinating the daily order management of the railway passenger station area.

Article 21 (Safety and Security Development)

Township people's governments, sub-district offices, and the station management bodies shall strengthen coordination and cooperation, prevent social risks in accordance with the law, promptly resolve conflicts and disputes, prevent and reduce illegal and criminal activities, and foster safe station areas.

Article 22 (Work Safety)

Relevant units in railway passenger station areas shall implement work safety primary responsibility in accordance with the law. Based on legal and regulatory requirements and the characteristics of their units, they shall adopt safety measures, establish and improve comprehensive work safety responsibility systems and work safety rules and regulations, and enhance work safety levels, so as to ensure work safety.

Article 23 (Counter-Terrorism Security Precautions)

District people's governments shall fulfill counter-terrorism security precaution responsibilities prescribed by the State and this Municipality, improve security precaution measures in railway passenger station areas, and coordinate response and handling efforts.

Relevant units in railway passenger station areas shall establish and improve security management systems, take necessary counter-terrorism security precaution measures, and implement security precaution responsibilities in accordance with laws and regulations.

Article 24 (Social Assistance)

When personnel from public security, urban management and law enforcement departments, and other relevant departments discover vagrants and beggars while performing official duties in railway passenger station areas, they shall inform them to seek assistance from aid management institutions. For those who are disabled, minors, elderly, or others with mobility difficulties, they shall guide or escort them to aid management institutions. For individuals with sudden acute illnesses, they shall immediately notify emergency medical services for treatment and notify the aid management institutions of the relevant information.

Article 25 (Prohibited Acts)

Individuals and units shall consciously maintain public safety and social order in railway passenger station areas.

The following activities are prohibited in railway passenger station areas:

1. illegally engaging in for-profit passenger transport activities;

2. parking motor vehicles or non-motor vehicles in violation of provisions;

3. controlling unmanned aircraft for flight activities in violation of provisions;

4. setting up stalls, peddling goods, or busking without authorization;

5. distributing commercial promotional materials, or unauthorized posting or hanging of promotional materials on buildings (structures) or other facilities;

6. damaging or unauthorized removal of relevant facilities, equipment, signage, or identification; or

7. other acts prohibited by laws, regulations, or rules.

Chapter V  Response to Large Passenger Flows and Emergencies

Article 26 (Work Mechanism for Responding to Large Passenger Flows)

This Municipality shall strengthen the response to large passenger flows in railway passenger station areas (hereinafter referred to as "large passenger flow response") and establish a work mechanism involving pre-event assessment and deployment, in-process guidance and supervision, and post-event evaluation and summary by relying on the joint conference.

District people's governments are responsible for organizing large passenger flow response work, undertaking duties such as comprehensive coordination, command and dispatch, and resource allocation, and strengthening coordination with municipal departments, railway transportation enterprises, and relevant units.

The station management body shall, in conjunction with relevant departments and units, establish a coordination mechanism for large passenger flow response, strengthen duty arrangements, and enhance cooperation in information sharing, situation assessment, and response actions.

Relevant municipal departments shall perform their respective duties in large passenger flow response work in accordance with their responsibilities and provide guidance and support to district people's governments.

Article 27 (Large Passenger Flow Response Plans)

District people's governments shall organize the formulation of large passenger flow response plans, specifying content such as monitoring and early warning, activation conditions, work procedures, and response measures, and strengthen their alignment with large passenger flow response plans of railway passenger stations.

The station management body shall, in accordance with the large passenger flow response plans, regularly organize and conduct drills.

Article 28 (Handling of Large Passenger Flow Response)

The station management body shall comprehensively analyze and assess the impact of passenger flows in the railway passenger station area based on information such as passenger flow data provided by relevant municipal departments, railway transportation enterprises, and relevant units. When a large passenger flow occurs or is likely to occur, the body shall carry out initial response measures in accordance with the plan and report to the district people's government.

Upon receiving the report, the district people's government shall activate the large passenger flow response plan as appropriate, strengthen on-site command and personnel allocation, enhance support forces of communications, emergency response, fire and rescue, medical and health services, and volunteer services, and organize efforts to maintain order, provide temporary accommodations, release information, and offer emergency assistance. If necessary, the district people's government may request support from relevant municipal departments, railway transportation enterprises, and relevant units.

Public service providers shall, in accordance with the large passenger flow response plans, undertake corresponding service support work.

Article 29 (Response to Emergencies)

District people's governments shall organize the formulation of emergency response plans for railway passenger station areas in accordance with relevant laws, regulations, rules, and emergency response plans.

The station management body shall, in accordance with the emergency response plans for railway passenger station areas, regularly organize and conduct emergency drills.

Upon the occurrence of an emergency, the district people's government shall immediately take measures to control the situation's development, promptly activate the emergency response plan, organize and carry out emergency rescue and handling, and ensure proper reporting.

Article 30 (Infectious Disease Prevention and Control)

During an infectious disease outbreak, the station management body, township people's governments, and sub-district offices shall strengthen coordination and cooperation, implement corresponding epidemic prevention and control measures in railway passenger station areas in accordance with the law. Upon discovering infectious disease patients or suspected patients, they shall report to the local disease prevention and control institution in accordance with provisions.

Chapter VI  Support and Supervision

Article 31 (Funding Support and Resource Allocation)

The municipal and district people's governments shall establish a funding support mechanism for the management of railway passenger station areas in accordance with the principle of aligning fiscal powers with expenditure responsibilities.

The municipal and district departments shall strengthen the allocation of management resources to implement relevant management tasks for railway passenger station areas.

Article 32 (Digital and Intelligent Construction)

District people's governments shall rely on the urban operation "Integrated On-line Management" platform to coordinate the digital and intelligent construction of railway passenger station areas. By utilizing technologies such as video surveillance and digital mapping, and methods like grid-based management, they shall integrate data information on safe operations, social order, passenger flows, weather warnings, city appearance and sanitation, etc., to achieve intelligent management that integrates perception, analysis, service, and command.

Article 33 (Sharing of Government Service Information)

The municipal and district departments and the station management bodies shall, relying on the big data resource platform, share government service information related to public security management, road traffic, engineering construction, city appearance and sanitation, etc., in railway passenger station areas, expand application scenarios, and improve service and management efficiency.

Article 34 (Grid-Based Management)

District people's governments shall organize and implement grid-based management requirements for railway passenger station areas, designating township people's governments, sub-district offices, or relevant bodies to undertake duties such as daily inspections. For problems discovered during inspections, township people's governments, sub-district offices, or relevant bodies shall handle them according to law or report them to relevant departments.

Article 35 (Complaint and Report Handling)

The municipal and district departments, the station management bodies, and public service providers shall establish mechanisms for accepting complaints and reports, and handle complaints, reports, and other matters in accordance with the law.

Article 36 (Handling of Violations)

Acts violating these Measures shall be dealt with by transportation, public security, urban management and law enforcement, and other departments in accordance with relevant laws, regulations, and rules.

Transportation, public security, urban management and law enforcement, and other departments shall strengthen coordination and cooperation, establish joint law enforcement work mechanisms, and enhance law enforcement effectiveness.

Article 37 (Assessment and Suggestions)

This Municipality shall incorporate into its annual assessments the performance of district people's governments in implementing their responsibilities for the management of railway passenger station areas.

The station management body may put forward opinions and suggestions to the district people's government regarding the management and service work carried out by relevant departments and units in the railway passenger station area.

Chapter VII  Supplementary Provisions

Article 38 (Classification Management Standards)

The municipal transportation department shall, in conjunction with relevant departments, formulate classified management standards for railway passenger station areas based on the provisions of these Measures and the scale and type of railway passenger stations.

District people's governments may, based on the classification management standards and the actual conditions of the railway passenger station area, formulate specific management standards.

Article 39 (Effective Date)

These Measures shall be effective as of February 1, 2026. The Interim Provisions of Shanghai Municipality on the Comprehensive Management of Shanghai Railway Station Area promulgated by Decree No. 62 of Shanghai Municipal People's Government on September 26, 1998, first amended according to Decree No. 28 of Shanghai Municipal People's Government on June 24, 2004, and re-promulgated after the second amendment according to Decree No. 52 of Shanghai Municipal People's Government on December 20, 2010, shall be repealed simultaneously.