BUILDING AN AMBITIOUS PUBLIC TRANSPORT SYSTEM IN HO CHI MINH CITY (VIETNAM)

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BUILDING AN AMBITIOUS PUBLIC TRANSPORT SYSTEM IN HO CHI MINH CITY (VIETNAM)
N° 1 - 2014/2015

                  WORKING PAPER
Urban Development Management Support Centre - PADDI

BUILDING AN AMBITIOUS PUBLIC TRANSPORT
SYSTEM IN HO CHI MINH CITY (VIETNAM)

Clément MUSIL, researcher at the IPRAUS (Paris Research Institute of Architecture,
Urban and Social Development) and member of the UKNA Network (Urban Know-
ledge Network in Asia).
Contact: musil.clement@gmail.com

Charles SIMON, project executive at PADDI, Urban Development Management
Support Centre.
Contact : paddi.csimon@gmail.com

                             With the support of AFD
BUILDING AN AMBITIOUS PUBLIC TRANSPORT SYSTEM IN HO CHI MINH CITY (VIETNAM)
Building an ambitious public transport
                                                                                               system in Ho Chi Minh City (Vietnam)

                                                                                   Ho Chi Minh City plans to build an extensive public transport system which includes among
                                                                                   others metro lines and dedicated bus lanes. Following a statement on the evolution of the muni-
                                                                                   cipal public transport system, this paper examines its development and the constraints faced by
                                                                                   the authorities in its modernization: funding, land acquisition and institutional issues.

                                                                                   1 - The greater metropolitan       Ho Chi Minh City (HCMC), Vietnam’s main              The fast growing number of cars has there-
                                                                                   area includes HCMC and its         economic hub, is currently one of South East         fore prompted the municipal authority to re-
                                                                                   7 surrounding provinces (i.e.
                                                                                   Đồng Nai, Bà Rịa – Vũng Tàu,       Asia’s most dynamic cities. With a GDP ha-           define road lane arrangements, whilst the in-
                                                                                   Bình Dương, Bình Phước, Tây        ving expanded by 10% annually for the past           creased use of cars has worsened the adverse
                                                                                   Ninh, Long An and Tiền Giang).     consecutive ten years and an annual urban            effects caused by motorbikes (i.e. congestion,
                                                                                                                      growth rate of 3%, this city is riding on a fast     noise and air pollution, and lack of road sa-
                                                                                   2 - HCMC’s current public          economic and population growth rate (GSO,            fety). Against this backdrop, public transport
                                                                                   transport system relies on ur-     2014). In 2013, its population was estimated         should be an alternative in HCMC for urban
                                                                                   ban buses, which are capable
                                                                                   of meeting solely 7% of travel     at 8 million; meanwhile the greater urban            mobility in a near future.2 This is what an am-
                                                                                   needs (Mouhot, 2013). Accor-       area’s population is estimated at approxima-         bitious transport plan revised and approved
                                                                                   ding to the administration,        tely 18 million.1                                    in 2013 envisages for 2030.3
                                                                                   public transport includes travel
                                                                                   by urban buses and taxis. Tra-     The city’s robust economic growth, coupled           In an effort to tackle road congestion-related
Disclaimer                                                                         vel by metro and tramway will      with an ever-increasing population, has put          problems, to improve environment quality
                                                                                   be counted in this category
Analysis and conclusions of the document are formulated under the authors’         once available.                    pressure on urban infrastructure, especially         for city residents, and to cope with climate
responsibility. They may not necessarily convey the viewpoint of PADDI                                                its transportation system. Between 2003              change-related adverse effects, the Govern-
(HCMC Urban Development Management Support Centre), nor that of its                3 - Adjustment for the             and 2013, the number of vehicles registered          ment plans on the one hand to modernize the
                                                                                   transportation development         by municipal agencies has increased three-           existing road network, and on the other hand
partner agencies.                                                                  planning of Ho Chi Minh City       folds (DTC, 2014). By now, roughly six mil-          to build up an extensive public transport
                                                                                   in 2020 and beyond (Prime
                                                                                   Minister’s Decision n°568/QD-      lion motorbikes and nearly half a million cars       system which includes metro lines of Mass
PADDI                                                                              TTg dated April 08, 2013).         have been registered in HCMC (ibid, 2014).           Rapid Transit (MRT) and corridors of Bus
Founded in 2006, PADDI is an innovative cooperation project between the                                               Even though the city was recently qualified          Rapid Transit (BRT). Public transport should
Rhône-Alpes Region (France) and the greater Ho Chi Minh City area. Under                                              as a “motorcycle dependent city” (Khuat Viet         thus become a serious alternative to indi-
                                                                                                                      Hung, 2006; Nguyen Thi Cam Van et al., 2013)         vidual transport. According to the plan, the
the HCMC People’s Committee direct supervision, its goal is to assist the city’s
                                                                                                                      and its number of motorbikes continues to            objectives set out in 2013 are that the share
technical agencies in various fields of urban management.                                                             rise, the growing number of cars (resulted           of public transport will represent 25% of city
Website: www.paddi.vn                                                                                                 from economic growth that improved the li-           travel by 2020, 45% by 2030 and eventually
                                                                                                                      ving standards of a part of urban households)        60% after 2030. This newly unveiled plan is
Authors : Clément Musil, Charles Simon                                                                                has surged significantly by 10% annually             certainly ambitious, but there are a number
                                                                                                                      since 2007 (DTC, 2014).                              of constraints hindering its successful imple-
Translators : Trần Thọ Bình
                                                                                                                                                                           mentation.
Copy editors : Fanny Quertamp, Michael Moloney, Zan-Hee Oh

Printing date : 05/2015

                                                                                                                                                       Working Paper of Urban Development Management Support Centre - PADDI   3
BUILDING AN AMBITIOUS PUBLIC TRANSPORT SYSTEM IN HO CHI MINH CITY (VIETNAM)
LARGE-SCALE TRANSPORT PLAN                               in 2007.6 Under this document, six MRT lines     4 - Prime Minister’s Decision                                                                                                                                                                           Hà Noi
                                                                                                          n°123/1998/QĐ-TTg dated July
WITH A LIMITED BUDGET                                    were planned as well as three additional lines   10, 1998.                                          Tây Ninh
                                                         which would be monorail or tramways, for a                                                            and
                                                                                                                                                            Cambodian
                                                         total network’s length of 109 km.                                                                    border
The idea of building MRT lines in HCMC be-                                                                5 - For instance between
                                                         The urban rail component of the 2007 plan        HCMC and Vũng Tàu (a city                       Củ Chi
gan in 1998 with the approval of the master                                                               located 100 km southeast of
                                                         was modified with the 2013 adjustment
plan for 2020.4 The plan gives priority to in-                                                            HCMC).                                                                                                                                 Thủ Dầu Một
                                                         which suggested that by 2030, HCMC would
ter-urban rail lines;5 since at that time only                                                                                                                                                                                                                                           Bình
                                                         be equipped with eight MRT lines, one tram-                                                                                                                                                                                     Dương
studies on the construction of urban metro                                                                6 - The “HCMC Transport                                                                                                                                                                                                Biên Hòa
                                                         way and two monorail lines, for a total of       Development Planning to
were scheduled. The first study was conduc-
                                                         216 km (see Figure 2). However, one of the       2020” was prepared by the
ted in 1998 and was funded by a British                                                                   Ministry of Transport and local
                                                         latter plan’s innovations is to complete the                                                                                                                                                             An Bình
Official Development Aid (ODA) grant. This                                                                consulting companies (TEDI,                                          M2                                   Thạnh Xuân                                    station                         Suôi Tiên           New Miên Dông
                                                         urban rail network with six BRT lines, which     TDSI) in 2006 and approved on                        Tây Ninh
                                                                                                                                                                                               Tân Chánh Hiệp
                                                                                                                                                                                                                   station/depot                 Vĩnh Phú                                                               bus station
study recommended that to revive the public                                                                                                                                                     station/depot                                     station                                         terminus
                                                         means an additional 100 km of public trans-      January 22, 2007 by the Prime
transport system, which was at that time                                                                  Minister Decision 101/2007/
                                                                                                                                                                                                                                                                                                               Long Bình
                                                         port network. Previously, another study fun-
responsible for only 2% of inner city travel,                                                             QĐ-TTg.
                                                         ded by the World Bank in 2005, and resumed                                                                                                                                Ngã Tư Ga
                                                                                                                                                                                                                                                                                                   M1
the city should reorganizing the bus service                                                                                                                                                                                                   Hiêp Binh
                                                         by PADDI7 in 2009, stressed the possibility to                                                                                                  MR3                                   terminus
and start to build three MRT lines (MVA et                                                                7 - Through a technical
                                                                                                                                                                                                                                   M4                       M3b
                                                                                                                                                                                                                                                            M3b
                                                         adopt BRT lines in HCMC. However, up until
al., 1998). In 2004, a second study, funded by                                                            assistance mission, the Urban
                                                         2013, the city authorities did not retain this   Development Management
                                                                                                                                                                                                 An Sương
Japan, supported the recommendation that
                                                         option in their planning agenda.                 Support Centre conducted a
future public transport in HCMC should focus                                                              study on the construction of
                                                                                                                                                                                                          Tân Sơn Nhất
                                                                                                                                                                                                             airport                                   Bình Triệu
on building an MRT network but composed                  Regarding the impact on spatial organization     a pilot line of BRT in HCMC. A                                               Tham Lương
                                                                                                                                                                                                                          M4b                           station

by four lines (Almec et al., 2004). The findings         of the city, the completion of the transport     feasibility study for building                                                                                              Miên Dông
                                                                                                                                                                                                                                                       Saigon
                                                                                                                                                                    Vĩnh Lộc
                                                         plan adjusted in 2013 should strengthen the      a BRT pilot network was later                                                                     Lăng Cha Cả                                                                                        Song Tac
of these two studies were incorporated into a                                                             delivered to the HCMC munici-
                                                                                                                                                                     station                   Bà Queo                                                 bridge

comprehensive transportation plan approved               polarization of the historical center (Saigon)   pal authority.

                                                                                                                                                                                                M6                  Central                                            Thu Thiêm                                               Vũng Tàu
                                                                                                                                                                                                                    Station                                              station                                                  and
                                                                                                                                                                                                                      Cộng Hòa                                                                                                Long Thành
                                                                                                                                                                                                                      crossroad                                                                                            airport (planned)
                                                                                                                                                                                                                                                Bên Thành
                                                                                                                                                                                           Vòng xoay                                             Station
                                                                                                                                                                                            Phú Lâm

                                                                                                                                                                                    Miền Tây           Chợ Lớn

                                                                                                                                                                                                 T1
                                                                                                                                                    Station/bus
                                                                                                                                                    interchange
                                                                                                                                                      Tân Kiên

                                                                                                                                                                   M3a
                                                                                                                                                                                                MR2
                                                                                                                                                                                                                     M5

                                                                                                                                              Mỹ Tho
                                                                                                                                            and Cân Tho                                                             Cần Giuộc
                                                                                                                                                          Tân An

                                                                                                                                                   Metro line                                                             Railway line
                                                                                                                                                   M1 : Bên Thành - Suôi Tiên / extension                                 Existing
                                                                                                                                                   M2 : Thu Thiêm - Tây Ninh bus interchange / extension                  Planned                                       Hiêp Phuoc
                                                                                                                                                                                                                                                                           port
                                                                                                                                                   M3A : Bên Thành - Tân Kiên / extension
                                                                                                                                                                                                                          Hô Chi Minh City central station
                                                                                                                                                   M3B : Công Hoa crossroad - Hiêp Binh Phuoc / extension
                                                                                                                                                                                                                          Planned station
                                                                                                                                                   M4 : Thạnh Xuân- Hiêp Phuoc port / option                                                                                                            2 km
                                                                                                                                                   M4b : Gia Đình station - Lăng Cha Cả station                           Tramway (T), Monorail (MR) and
                                                                                                                                                   M5 : Cân Giuoc bus interchange - Saigon bridge                         Bus Rapid Transit (BRT) line
                                                                                                                                                   M6 : Bà Queo - Vòng xoay Phú Lâm                                       Tramway 1 (T1)
                                                                                                                                                                                                                          Monorail 2 (MR2)
                                                                                                                                                   Metro station
                                                                                                                                                                                                                          Monorail 3 (MR3)
                                                                                                                                                   Metro station connection
                                                                                                                                                                                                                          BRT
                                                                                                                                                   Metro depot
                                                                                                                                                                                                                                                                            Realisation :
                                                                                                                                                   Bus station                                                                                                              Loïc BOISSEAU / Clément MUSIL / PADDI, 08/2014
                                                                                                                                                   Existing station (urban and inter-provincial buses)                    Main road                                         Sources :
                                                                                                                                                   Multimodal transport interchange (planned)                                                                               Decision 568/QD-TTg - 08/04/2013, adjustment for the
                                                                                                                                                                                                                          River / Canal
                                                                                                                                                                                                                                                                            transportation development planning of Ho Chi Minh City in 2020
Figure 1: Metro Line No1-District 1, preparations of ground works to implement the under-
ground part of the line, September 2014, (Ch. Simon)                                                                                        Figure 2: Development of Ho Chi Minh City railway transport network for 2020-2030

4     Working Paper of Urban Development Management Support Centre - PADDI                                                                                                                                                                Working Paper of Urban Development Management Support Centre - PADDI                                 5
BUILDING AN AMBITIOUS PUBLIC TRANSPORT SYSTEM IN HO CHI MINH CITY (VIETNAM)
since four of the eight MRT lines will connect           CONSTRAINTS TO THE DEVELOPMENT                     8 - In population censuses
                                                                                                                                                                                                             Routes/ Stations                Length
                                                                                                                                                                                                                                                               Cost
                                                                                                                                                                                                                                                                              Financing sources
                                                                                                                                                                                                                                                                                                        State of progress/
                                                                                                            conducted in Vietnam, only
to the Ben Thanh market. This planning calls             OF HCMC’S PUBLIC TRANSPORT                         people with permanent resi-
                                                                                                                                                                                                                                                            Estimation                                     Completion
for massive urban fabric rearrangement. It               SYSTEM                                             dence permits are counted in                                                                                                      19.7 km

                                                                                                                                                                                            MRT No1
                                                                                                                                                                                                                         14 stations (3                                                                   Construction phase
will come along with large property develop-                                                                areas where the census takes                                                               Bến Thành -
                                                                                                                                                                                                                         underground /
                                                                                                                                                                                                                                           (with a 2.6 km     US$ 2.49         JICA (US$ 2.2 billion)
                                                                                                                                                                                                                                                                                                            started in 2012 /
ment (high rise buildings and underground                                                                   place. Other people (even if                                                                Suối Tiên
                                                                                                                                                                                                                          11 elevated)
                                                                                                                                                                                                                                            underground        billion        VN-G (US$ 289 billion)
                                                                                                                                                                                                                                                                                                        Put into service in 2020.
                                                                                                            they have accommodation for                                                                                                       section)
shopping malls, of which some are already                Apart from the problem of raising capital to       an unspecified period of time)                                                                                                                                    ADB (US$ 450 millions)
under construction); as well as the transfor-            build HCMC’s public transport system, frag-        are not counted; whilst they                                                                 Phase 1         11 stations (10
                                                                                                                                                                                                                                              11.3 km
                                                                                                                                                                                                                                                                              KfW (US$ 313 millions)
mation of a few District 1 areas into walking            mentation of funding, land acquisition and         are using urban infrastructure                                                             Bến Thành -       underground /
                                                                                                                                                                                                                                           (with a 9.3 km     US$ 2.15
                                                                                                                                                                                                                                                                              EIB (US$ 195 millions)
                                                                                                                                                                                                                                                                                                        Advanced study phase /
                                                                                                            networks and services (water,                                                              Tham Lương         1 elevated)
                                                                                                                                                                                                                                            underground        billion                                  Put into service in 2020
streets for pedestrians. Moreover, the combi-            resettlement management, as well as insti-         transport, etc.).                                                                                                                 section)                           VN-G (US$ 326.5
                                                                                                                                                                                                                                                                                    millions)

                                                                                                                                                                                            MRT No2
nation of various modes of public transport              tutional steering of the system during imple-                                                                                                    Phase 2
(MRT, BRT and urban bus) will facilitate the             mentation and future operation are all chal-                                                                                                 Line extension
development of multimodal interchange hubs               lenges to the final realization of this planned                                                                                               towards Tây

                                                                                                                                                                            MRT/BRT Lines
                                                                                                                                                                                                        Ninh / Line       Under Study         8.7 km        Under Study                  /                          /
and also new urban projects across the me-               system.                                                                                                                                         extension
tropolitan area.                                                                                                                                                                                       towards Thủ
                                                                                                                                                                                                           Thiêm
Once completed, the railway transport
                                                         Fragmentation of financing sources                                                                                                                                                    8.9 km
                                                                                                                                                                                                                                                                              ADB (US$ 500 millions)
network of HCMC will be larger than that of                                                                                                                                                               Phase 1         8 stations (7
                                                                                                                                                                                                                                           (with a 6.6 km
                                                                                                                                                                                                                                                                                  ESP-G (US$ 200
                                                                                                                                                                                                                                                                                                            Study phase /
                                                                                                                                                                                                      Saigon bridge -    underground /                      US$ 1.1 billion          millions)
Singapore (160 km in 2013) and will become                                                                                                                                                                                                  underground                                                   Achievement 2018

                                                                                                                                                                                            MRT No5
                                                                                                                                                                                                         Bảy Hiền         1 elevated)                                          EIB (US$ 200 millions)
one of the region’s largest MRT networks,                By the end of the 1990s, several internatio-
                                                                                                                                                                                                                                              section)
                                                                                                                                                                                                                                                                              VN-G (US$ 200 millions)
competing with that of Shanghai (538 km                  nal cooperations with technical assistance                                                                                                      Phase 2         13 stations (8
                                                                                                                                                                                                                                              14.5 km
in 2013) and of Beijing (465 km in 2013)                 agencies were involved in the development of                                                                                                 Bảy Hiền - Cần     underground /
                                                                                                                                                                                                                                           (with a 8.6 km
                                                                                                                                                                                                                                                            US$ 1.8 billion              /                          /
                                                                                                                                                                                                                                            underground
(Nguyen Quoc Hien and Doan Hong Duc,                     public transport. But the Japanese Internatio-                                                                                                   Giuộc           5 elevated)
                                                                                                                                                                                                                                              section)
2013). The goal set by the government to                 nal Cooperation Agency (JICA) was the first to                                                                                                                                                                        World Bank (US$ 142

                                                                                                                                                                                            BRT No1
make HCMC a leading global city of South                 provide funds. In 2004 this agency published                                                                                                                                                          US$ 155              millions)           Advanced study phase /
                                                                                                                                                                                                      An Lạc - Cát Lái    32 stations         23.5 km
East Asia is now clearly stated with its plan of         a report on public transport development                                                                                                                                                              millions          VN-G (US$ 13.6         Put into service in 2018
                                                                                                                                                                                                                                                                                    millions)
a sizeable urban metro system, symbolizing               and delivered a feasibility study which was
the emergence of an urban modernism.                     focused on building an MRT line. JICA then
In spite of this displayed ambition, it is               granted a loan to the Vietnamese Government                                                                        Figure 3: Financing sources for MRT and BRT lines in HCMC
arduous to turn urban planning into reality              to build the first metro line in HCMC in 2007.                                                                     Indication: JICA (Japanese International Cooperation Agency), ADB (Asian Development Bank), KfW (Kreditanstalt für
in Vietnam’s cities. The output of the urban                                                                                                                                Wiederaufbau-German Development Bank), EIB (European Investment Bank), G-VN (Vietnamese Government, G-ESP
                                                         Later on, other foreign partners have been                                                                         (Spanish Government).
planning, developed from arithmetic ratios               involved in funding facilities of this type. The
and factors which are based on poorly esti-              German Government, the Asian Development                                                                           Sources: Report on the progress of metro projects in 2012 and the planning in 2013 by the Management Authority
mated demographic data,8 becomes outda-                                                                                                                                     for Urban Railways (MAUR) on Nov. 5 2013 ; Report of Tuổi Trẻ newspaper on Dec. 9 2013, “€ 850 million pledged
                                                         Bank (ADB) and the European Investment                                                                             for metro line No5 in HCMC” ; Urban – Civil works construction investment management authority of HCMC (UCCI),
ted quickly, mainly due to the constant local            Bank (EIB) have teamed up to fund the first                                                                        Workshop “HCMC Green Transport Project (concept and basic design)” held on Sep. 09 2014 ; Article of Thanh Niên
transformations driven by vibrant econo-                 stage of MRT line No2. The two multilateral                                                                        newspaper on Sep. 13 2014, “Metro: cost skyrocketing at horse gallop speed and progress at turtle pace” [Metro vốn
mic activities (Berger and Quertamp, 2012).                                                                                                                                 tăng ‘phi mã’, tiến độ ‘rùa bò’
                                                         banks then joined the Spanish Government
Furthermore, it is particularly true in the              to fund part of the line No5. More recently,
transport sector that the government’s                   the World Bank has granted loans to launch
actual financing capacity does not match the                                                                                                 9 - For building of MRT        Furthermore, the currently launched metro                                          sely in a situation to offer, but also to compete
                                                         the first BRT line (see Figure 3). Although
required investment amount (Huynh The Du,                                                                                                    lines, loans proposed by the   projects have seen their cost swell conside-                                       against one another. This is explained by the
                                                         these projects were mainly foreign-funded,                                          Japanese government, the
2014).                                                   the Vietnamese Government also contributed                                                                         rably. From 2008, the year when investment                                         benefits that each ODA supplier can gain in
                                                                                                                                             “Special Terms for Economic
                                                         15% of each project and appears for the MRT                                                                        for construction of line No1 was approved,                                         granting loans to the Vietnamese Govern-
In the implementation of the HCMC transport                                                                                                  Partnership” (STEP), provide
                                                         line No2 project as the second investor, just                                                                      to 2011, the estimated cost of the project has                                     ment. In fact, each donor imposes particular
plan to 2030, construction of public transport                                                                                               a grace period of 10 years,
                                                         behind the ADB.                                                                     refunding period of 40 years   more than doubled (from USD 1.09 billion to                                        conditions for the granting of their particular
facilities would cost USD 18 billion. Howe-
                                                                                                                                             and incredibly low interest    almost 2.5 billion). Similar cost hikes occur                                      loan. The Japanese assistance, which has the
ver, according to a study on financing urban             In spite of these agreed financial efforts, and
                                                                                                                                             rate, less than 1% annually.   with line No2 with the cost of the first stage                                     most attractive financial offer,9 is characte-
infrastructure, for the 2011-2015 period,                considering the importance of the funds and                                                                        rising from USD 1.4 billion to 2.1 billion                                         rized by a “tied” financial aid.
the city struggled to cover 9% of investment             their technical challenges, the Vietnamese                                                                         between 2009 and 2013 (Thanh Niên, 2014).                                          This means that the loan is conditioned with
needs in transport infrastructure (both road             Government obviously needs to call on more                                                                         This situation is a concern to the Vietnamese                                      the use of a Japanese-originated technology
and public transport facilities). The city may           financing sources. So far, six donors have                                                                         Government which needs to negotiate with                                           and expertise. From the study on the metro
have USD 866 million, whilst USD 10 billion              granted funds but only four projects (three                                                                        donors for additional budget commitments to                                        rolling stock to the ticketing system and the
are needed (World Bank, 2013). The cost for              MRT lines and one BRT line) have been                                                                              cover the hiked costs while still seeking funds                                    engineering works, all these components
building this planned public transport system            financed, and some of the four are only                                                                            for other lines. These challenges remind us                                        will be provided by Japanese companies or
appears disproportionate compared to the                 partially funded.                                                                                                  that the implementation of any urban mega-                                         Japanese-led international consortiums.
city’s investment capacity. Consequently, the
                                                         What about financing of the other lines?                                                                           project, in any city and any context, would
local government has to diversify its financing                                                                                                                                                                                                                At the opposite, for the metro lines No2 and
                                                         Although other donors, such as South                                                                               hardly happen without high risks and addi-
sources, seek international financing (notably                                                                                                                                                                                                                 No5 in which ADB is involved, the financial
                                                         Koreans and British as bilateral cooperation                                                                       tional costs (Flyvberg, 2007). How can this be
ODA), and involve the private sector.                                                                                                                                                                                                                          assistance is considered as “untied”. ADB al-
                                                         partners (Vietnamplus, 2014) and private                                                                           different with the case of HCMC?
                                                         investors, have expressed certain interest to                                                                                                                                                         lows that tender offers are open and that both
                                                                                                                                                                            If on one hand the Vietnamese Government is                                        foreign and local contractors can submit their
                                                         team up in these projects, little discussion                                                                       in need of international financial assistance,
                                                         has been concluded. Until now, uncertainty                                                                                                                                                            bids. Moreover, this donor imposes other
                                                                                                                                                                            on another hand the ODA donors are conver-                                         requirements such as respect for ethical,
                                                         remains (See Figure 4).

6     Working Paper of Urban Development Management Support Centre - PADDI                                                                                                                                                              Working Paper of Urban Development Management Support Centre - PADDI                        7
12 - It should be noted that       in underground sections. For instance, in the        In this context, the HCMC Land Development
                                                                                                                                                    M1                                                                                    there is no private land           case of the first phase of line No2, more than       Centre is in an unfavourable position to esta-
                                                                                                                                                                                                                                          ownership in Vietnam. Accor-
                               M2                 BRT6                                                                                                                                                                                    ding to the 1992 Constitution,     22 hectares of land located in urban districts       blish land reserves and to provide plots for
                                                                                                                                                                                                                                          land belongs to the People and     are to be acquired and 400 households will           building the expected infrastructures. Moreo-
                                                                                                                  M3b                                                                                                                     the State is responsible for its   be relocated and compensated, with a total           ver, the land located around the future metro
                                                                                      M4                                                                                                                                                  management. Since the land
                                                                           MR3                                         BRT4                                                                                                               law promulgated in 1993, land      cost estimated at USD 115 million (MVA et al.,       stations where high land value increasing is
                                      BRT3                                                                                                                                                                                                users are supposed to have         2010). With such conditions, the Government          predicted has already been acquired, notably
                                                                                                                                                                                                                                          a land use right regulated by      faces two major challenges to build other            by well-informed property developers.
                                                                                                                                                                                                                                          the administration. This right
                                                                      Tân Sơn Nhất
                                                                         Airport
                                                                                     M4b                                                                                                                                                  can be revoked by authorities      public transport infrastructure: the esta-           Resettlement procedures related to public
                                                                                                                                                                                                                                          to implement projects which        blishment of reserves of land and the mana-
                                                                                                     M5                                                                                                                                   are part of the city’s master                                                           transport infrastructures pose another pro-
                                                                                                                                                                                                                                          plan and land users have to be
                                                                                                                                                                                                                                                                             gement of site clearance and resettlement            blem to the authorities. Whilst public trans-
                                                                                                                                                                                                                                          compensated.                       procedures.                                          port projects are developed in the name of a
                                                                                                             M1
                                                                            M5                             T1          M2                                                                                                                                                    Although cities in Vietnam do not have the           public interest, most of the land users who
                                                              M6                     M2
                                                                                                                                                                                                                                          13 - On the land market, one       “urban pre-emption right” to establish a land        are concerned by the projects are recalci-
                                          BRT5                                          M3b                                      Legend                                                                                                   square meter in the HCMC
                                                                                     M3a                                                                                                                                                                                     bank, HCMC does have a Land Development              trant to transfer their rights to the adminis-
                                                                                                          Bên Thành                     Metro/Monorail/Tramway and BRT                                     Main road                      outskirt costs around USD
                                                                                                                                        Connexion area
                                                                                                                                                                                                           Secondary road                 500, and in central districts,     Centre founded in 2003. This centre is in            tration.12 In this kind of case, the land users
                                                                                                                                        Metro/Monorail/Tramway terminus station
                                                                                                                                        BRT terminus station
                                                                                                                                                                                                           River / Canal                  the price reaches USD 4,000        charge to acquire plots and to compensate            do not oppose the legitimacy of the operation
                                                                                           BRT1                                                                                                                                           (Quertamp et al., 2013). But to
                                                                                                                                        Bên Thành station                                                                                                                    land users. However, it has had little room to       but contest the amount of proposed compen-
                                                                 T1                                                   BRT2                                                                                                                calculate compensations, the
              BRT3                                                                                                                                      Lines                      Financing                      Investor                administration refers to the       operate so far since it has limited financial        sation. In fact, land prices are often evaluated
                                                                                                                                                        M1                          committed*                  ODA (JICA)                official land price framework      resources and land use planning is unclear.          below their actual value while HCMC periodi-
                                                                                                                                                    M2 (phase 1)                     committed              ODA (ADB, EIB, KFW)           which is irrelevant and lower                                                           cally experiences land fevers.13
                                                                                                    M4
                                                                                                                                                    M5 (phase1)                      committed              ODA( ADB, Spain, EIB)
                                                                                                                                                                                                                                          than the market price. Over        In fact, in Vietnam, transport planning is not
                           M3a                               BRT5                                                                                   M4 (phase 1)
                                                                                                                                                    M3a (phase 1)
                                                                                                                                                                                  under discussion
                                                                                                                                                                                  under discussion
                                                                                                                                                                                                          Private investor (Thaïland)
                                                                                                                                                                                                                  ODA (JICA)
                                                                                                                                                                                                                                          recent years however, the gap      integrated into the city and province’s urban        Furthermore, in the time between the first
                                                                                                                                                                                                                                          between the administrated          master plans. As with HCMC, while these              land evaluations and that when the govern-
                                             MR2
         BRT2                                                                                                                               M2 (phase 2), M3a (phase 2),            looking for                                           prices and real market prices
                                                                                                                                                        M3b,
                                                                                                                                           M4 (phase 2), M5 (phase 2), M6,
                                                                                                                                                                                    looking for
                                                                                                                                                                                    looking for                                           has tended to decrease.            two sectorial plans are supposed to respect          ment asks for site clearance, which may take
                                                                                                                                                   T1, MR2, MR3                     looking for
                                                                                                                                                                                                                                                                             the overall orientation set in city social-eco-      several years, land prices have surged, cau-
                                                                                                                                                         BRT1                       committed                 ODA (World Bank)
                                                                                                                                                                                                                                                                             nomic development planning, each agency              sing fresh disagreements with disaffected
                                                                           M5                                                               BRT2, BRT3, BRT4, BRT5, BRT6            looking for
                                                                                                                                                                                                                                                                             (in charge of the development of a planning          households. Moreover, opposition is stronger
    Realisation :
                                                                                                                                Indications:
                                                                                                                                ODA: Official Development Assistance
                                                                                                                                JICA: Japanese International Cooperation Agency
                                                                                                                                                                                          * The metro line M1 is the only line which is
                                                                                                                                                                                          under construction in 2014, its construction
                                                                                                                                                                                          started in 2012.
                                                                                                                                                                                                                                                                             document) has its own manner of work based           and more violent with households who do
    Loïc BOISSEAU / Clément MUSIL / PADDI, 08/2014
    Sources :
    Decision 568/QD-TTg - 08/04/2013, adjustment for the
                                                                                                                                ADB: Asian Development Bank
                                                                                                                                EIB: European Investment Bank
                                                                                                                                KFW: Kreditanstalt für Wiederaufbau (Germany)
                                                                                                                                                                                          Completion is scheduled for 2020.
                                                                                                                                                                                                                                                                             on different references, data and rules. Thus        not have regulated land use rights. Indeed,
                                                                                                  2 km
    transportation development planning of Ho Chi Minh City in 2020
                                                                                                                                                                                                                                                                             the two sectorial plans are inconsistent and         the administration estimates that the latters
                                                                                                                                                                                                                                                                             inefficient (PADDI, 2012).                           are only compensated for their lost property
Figure 4 : Development of public transport system of HCMC planned for 2030 - Financing statement for infrastructure of
Metro (M), Tramway (T), Monorail (MR), Bus Rapid Transit (BRT) in 2014

social and environmental rules with regards                                                       tructures. Problems in accessing land increase                             10 - Within the loan agree-
to the implementation of the project.10 The                                                       the projects costs and delay the completion                                ment between ADB and the
                                                                                                                                                                             Vietnamese Government, this
conditions for loans by Spain and Germany                                                         of the works. Expropriation, compensation                                  one pledge to respect a num-
have similar rules to the Japanese, namely                                                        and resettlement procedures are the most                                   ber of conditions imposed by
“conditional” use of the granted credits.                                                         difficult stages in the projects’ implementa-                              the donor like to minimize the
                                                                                                                                                                             project’s adverse effects on
Diversified financing sources are certainly an                                                    tions.11 Unlike road building projects, the first                          environment and population
                                                                                                  studies on MRT and BRT lines in HCMC gave the                              affected by these infrastruc-
advantage to HCMC, helping it with access to                                                                                                                                 ture projects, particularly
required funds for project implementation.                                                        impression to simplify the land issue. This                                when resettlement is required.
In return however, the authorities are made                                                       was the local authorities’ understandings.
to comply with each donor’s conditions. They                                                      Indeed, MRT lines are built out of ground,                                 11 - One of the most signifi-
are then in a situation of being dependent on                                                     either underground or elevated, and then                                   cant examples in this area was
foreign techniques and technology which at                                                        appear to be less land-consuming. As for BRT                               the construction of a 1.1 km
                                                                                                                                                                             long section of the first Hanoi’s
the end may not be totally compatible. Fur-                                                       lines, they are integrated in enlarged road                                ring road, the Kim Liên - Ô Chợ
thermore, diversification of financing sources                                                    arteries, like the case of the BRT line No1 on                             Dừa artery. Launched in 1999
has the effect of partitioning the projects. This                                                 Võ Văn Kiệt boulevard, and thus, they do not                               and achieved in 2005, this
                                                                                                                                                                             operation had a cost of more
approach could be counterproductive, while                                                        directly need land acquisition.                                            than USD 50 million, but the
the goal is that all these public transport faci-                                                 However, since work started on building MRT                                amount of compensation for
lities have to work into a “unified system”.                                                                                                                                 resettlement represented 75%
                                                                                                  line No1, along with the study of line No2,                                of the total project cost (Musil,
                                                                                                  land issue has re-emerged as a major concern.                              2013).
                                                                                                  Whereas the need for land acquisition is li-
Land acquisition, a recurrent issue
                                                                                                  mited, resettlement is inevitable, especially
                                                                                                  for works on train depots, access to stations,
Access to land is a major obstacle in every                                                       roads and other network deviation (i.e. elec-
urban transport projects initiated so far in                                                      trical and sanitary sewers networks), instal-
Vietnam, especially for building road infras-                                                     lation of ventilation shaft and safety systems
                                                                                                                                                                                                                                                                             Figure 5 : Metro line No1- engineering civil work stage, September 2014 (Cl. Musil)

8              Working Paper of Urban Development Management Support Centre - PADDI                                                                                                                                                                                                                           Working Paper of Urban Development Management Support Centre - PADDI   9
but not for the land, whilst the compensation                 port (DOT), one of the People’s Committee                   14 - In Vietnam’s organization    17 - In other circumstances        The institutional organization, to which           require the city to create a Public Transport
amount for the building is often ridiculously                 line agencies.14 In parallel, to implement                  of territorial administration,    and other cities, because          public transport management is attached,           Authority (PTA). The establishment of such
                                                                                                                          the People’s Committee at         of the lack of capacity and
low compared to the amount paid for the                       each transportation projects (e.g. MRT, BRT,                the provincial level refers to    project complexity, especially     has “top-down” logic. On top is the People’s       body reaches a consensus amongst partners
land. Hence, the progress of urban transport                  etc.) the municipality has established dedi-                the body in charge to manage      underground projects, the          Committee. The latter dispatches important         of the transport projects (the People’s Com-
projects poses a critical issue of equity of                  cated Project Management Units (PMU). The                   the province. In the case of      contracting authority would        decision to its technical agencies, centralizes    mittee, local technical agencies and donors),
                                                                                                                          HCMC which has the rank of        get external and independent
households to administrative procedures and                   Management Authority for Urban Railways                     a city-province, the People’s     assistance to support it in spe-   data, decides on disputes among various pro-       but doesn’t appear to be on the municipality
questions the transparency of resettlement                    (MAUR) is for instance in charge of metro line              Committee corresponds to a        cific areas (geological study,     ject bodies and departments, and coordinates       agenda given the urgency to be resolved on
regulations.                                                  monitoring. To develop the BRT pilot line the               municipal authority and it is     digging method, contract,          overall operations. This seemingly orderly         metro construction sites. Furthermore, as
                                                                                                                          also an executive body under      etc.). Up to now, HCMC MAUR
                                                              Urban - Civil Constructions Investment Mana-                the Government.                   does not have such assistance      organization proved ineffective when project       various donors are involved in the metro pro-
                                                              gement Authority of HCMC (UCCI) had been                                                      nor a sufficient expertise to      bodies need to deal with cross-cutting issues      jects, all of them support different PTA mo-
Institutional and technical manage-                           chosen. By the past, this body used to manage                                                 discuss technical solutions        (i.e. land acquisition, network deviation), and    dels. Then, the missions of such body in terms
                                                                                                                          15 - To harmonize activities of   proposed by the contractor
ment in the learning process                                  urban road projects and is currently monito-                ODA practices in Vietnam, the     and supported by donors.           when working with lower administration             of status, financing and planning are unclear.
                                                              ring other projects in water and sanitation’s               Government and its donors                                            levels, namely the districts. Considering its
                                                                                                                          established in the early 2000s                                                                                          Institutional adjustments required by the
                                                              sector (See Figure 6).                                      a group (Partnership Group on                                        management of regular business, the multi-         establishment of a modern public transport
The size of the planned projects, the problems                                                                                                                                                 plication of transport projects and their tech-
                                                              These project units, which benefit from their               Aid Effectiveness-PGAE) to be                                                                                           system will obviously be processed over step
with funding as well as challenges related to                                                                             in charge of monitoring and                                          nical sophistication, the current HCMC urban
land acquisition, require the administration                  own legal personality and budget, were ori-                 analysis of problems affecting                                                                                          by step. However, the authorities’ “wait and
                                                              ginally required by foreign donors to ensure                disbursement of foreign finan-                                       management is reaching its limits. The gover-      see” attitude may affect the progress of the
to perform a tighter overall management of                                                                                                                                                     nance required by these complex projects
                                                              implementation and effectiveness of the pro-                cial aid. In one of the reports                                                                                         current projects as well as do harm to the sys-
current public transport projects. These ope-                                                                             commissioned by PGAE in                                              challenges not only the city’s institutions
rations are however conducted in a partitio-                  jects they funded (Braütigam, 2001). Occa-                  2007 (Independent monitoring                                                                                            tem’s future efficiency.
                                                              sionally, these units are criticized for drawing            report on implementation of                                          but also its autonomy vis-à-vis the central
ned framework. Whilst this framework may                                                                                                                                                       government. In such conditions, the People’s
                                                              the most competent civil servants from the                  the Hanoi Core Statement,
fulfil the required coordination of current                                                                               prepared by Marcus Cox,
                                                              administration in charge of the works and                                                                                        Committee can barely play its governing role.      THE FUTURE OF PUBLIC TRANSPORT
projects, the model has reached its limits and                                                                            Sam Wangwe, Hisaaki Mitsui
                                                                                                                                                                                               Its decision making process is slowed down
will need an overhaul to ensure a better inte-                for creating duplicate administrative jobs.15               and Trần Thị Hạnh), adverse                                                                                             DEPENDS ON MUNICIPALITY PRAGMA-
                                                              But actually in the HCMC case, they are a                   impacts and problems related                                         and adversely affects the project’s progress.      TISM
grated management of MRT, BRT and urban                                                                                   to the establishment of ad-hoc
bus lines.                                                    major asset and even an innovation in the                   project structures as part of                                        The administrative organization structure
                                                              public transport sector. In this regard, MAUR               ODA funded projects have                                             of public transport projects is also beset by
The institutional organization of HCMC pu-                    responds both to the requirement of donors                  been underlined. These pro-                                          the difficulties caused by the involvement of      Due to the Ho Chi Minh City’s rapid urbaniza-
blic transport is segmented. The existing sys-                                                                            blems are not specific to Viet-                                                                                         tion, building a modern mass transit system is
                                                              because it is an umbrella body of the different             nam, other countries which                                           a large number of foreign financial partners.
tem, meaning the urban bus network, is ma-                    PMUs monitoring metro lines projects, and                   benefit from ODA policies are                                        PMUs under the MAUR are supposed to func-          a priority to ensure a sustainable and livable
naged by the Bus Management Center (BMC)                      facilitates the coordination of these projects              also affected.                                                       tion in accordance with bidding procedures         development of the metropolis in the coming
which belongs to the Department of Trans-                     for and under the People’s Committee.16                                                                                          conditioned by the financial assistance of the     decades. To break with current practice of city
                                                                                                                          16 - The situation found in                                          donors. These procedures are guided by the         travel, mainly by motorbikes, the government
                                                                                                                          HCMC represents a relative                                           methods of concepts and techniques of the          has no option but to invent a new way of mo-
                                                                                                                          administrative consistence as                                                                                           bility based on fast, efficient, and attractive
                                            People’s Committe of HCMV                                                     compared to that identified                                          construction projects. These obligations cou-
                                                                                                                          in Hanoi. In the capital city                                        pled with MAUR’s limited resources (espe-          public transport, ensuring that commuting is
                                                                                                                          some PMUs in charge of metro                                         cially in terms of internal expertise) question    viable across the entire metropolitan area.
                                                                                                                          lines are under the People’s
                                                                                                                          Committee authority while                                            the body’s capacity to decide and impose its       To cope with this challenge, the city does have
                                                                                                                          others belong to the Ministry                                        choice on innovating operations17, and ques-       an ambitious plan. But its capacity is not up to
                                                                                                                          of Transport.                                                        tion its capacity to ensure the metro system’s     its ambition. Lacking funding resources and
                                                       Management                                 Urban-Civil works
         Department of                                 Authority for                           Construction Investment                                                                         integration. Without integration, metro lines      given the sophistication of future facilities
        Transport (DOT)                               Urban Railways                           management authority of                                                                         and other modes of public transport would          like the MRT lines, the future of the munici-
                                                         (MAUR)                                 Ho Chi Minh City (UCCI)                                                                        not compete with the current more functio-         pal public transport infrastructures depends
                                                                                                                                                                                               nal use of motorbikes. In these respect, the       on foreign financial technology and aid. Chal-
                                                                                                                                                                                               system’s economic and commercial success           lenges in land acquisition, tardy resettlement
             Bus                     PMU 1: Project    PMU 2: Project       PMU 5: Project               Project                                                                               could be at risk.                                  procedures, and land disputes, have slowed
         Management                   Management        Management           Management               Management
         Center (BMC)                 Unit – line 1     Unit – line 2        Unit – line 5           Unit of BRT line                                                                          Following this integration issue, comes the        down the completion of works. Issues in go-
                                                                                                                                                                                               operation issue. With regard to metro lines,       vernance of such on-going projects have put
                                                                                                                                                                                               the Japanese ODA partner supports the idea         the authorities to test. They are now pushed
            Operator
                                                                                                                                                                                               to create a company in charge of operation         to design a suitable institutional architecture
                                                                                                                                                                                               and maintenance of all lines. This concept is      to ensure that facilities’ under construction
                                                                                                                                                                                               also shared and supported by the People’s          may function later as a unique “system”.
                                                                                                                                                                                               Committee. The German ODA partner, for its         Given these constraints, it is doubtful that the
              BUS                                          MRT                                            BRT
                                                                                                                                                                                               part, puts forward training projects for future    city public transport system would be built
                                                                                                                                                                                               engineers and technicians who will join the        faster than the road network in spite of the
                                                                                                                                                                                               operation and maintenance companies. The           pledged construction of the first metro line
     Existing public transport                                          Project public transport                                                                                               competition amongst donors affects not only        in 2012. Regarding the metropolitan road
              system                                                             system
                                                                                                                                                                                               the building process, but also how the system      network evolution, the authorities have at
                                                                                                                                                                                               will be operated.                                  their disposal local technical know-how
Figure 6 : Institutional organization (simplified) of existing bodies related to public transport                                                                                                                                                 without being reliant on foreign technology.
                                                                                                                                                                                               Finally, there will come the time when the fu-
in HCMC                                                                                                                                                                                                                                           They are also able to raise funds through
                                                                                                                                                                                               ture multimodal public transport system will

10      Working Paper of Urban Development Management Support Centre - PADDI                                                                                                                                                   Working Paper of Urban Development Management Support Centre - PADDI   11
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12   Working Paper of Urban Development Management Support Centre - PADDI                                                                         Working Paper of Urban Development Management Support Centre - PADDI   13
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