Ministry of Road and Transportation

Ministry of Construction and Urban Development

Ulaanbaatar City Government

The Study on Implementation of Ulaanbaatar

City Urban Transportation Project in Mongolia
（Ulaanbaatar Metro Project）

Final Report
(Copy for Public Use)

May 2013

Japan International Cooperation Agency (JICA)

Value Planning International, Inc.
Almec Corporation
Oriental Consultants, Co., Ltd. OS
Marubeni Corporation JR (先)
JGC Corporation 13 - 055
Ministry of Road and Transportation
Ministry of Construction and Urban Development
Ulaanbaatar City Government

The Study on Implementation of Ulaanbaatar

City Urban Transportation Project in Mongolia
（Ulaanbaatar Metro Project）

Final Report
(Copy for Public Use)

May 2013

Japan International Cooperation Agency (JICA)

Value Planning International, Inc.
Almec Corporation
Oriental Consultants, Co., Ltd.
Marubeni Corporation
JGC Corporation
Preface
Ulaanbaatar City, the capital of Mongolia, has been rapidly growing over the last five years.
Statistical data shows a population of 1.3 million as of 2011. As the city has expanded with the
remarkable economic development and increase in a variety of urban services, the population of
the Ulaanbaatar urban area, including surrounding satellite cities, is expected to reach two
million by 2030.

The agglomeration of economies maintains a diversity and improves a standard of services,

such as business, education, health care, amusement, culture, and tourism. The city grows by
absorbing human resources, capital and technology / knowledge for such industries. Such
advantages are expected to bring about an increase in competitiveness of the city. However,
without the proper responses and measures, this may also directly cause an external diseconomy,
such as traffic congestion and environmental degradation.

In order for Ulaanbaatar City to be developed as a world-class capital city, “short-term oriented
and cheap patchwork development” must be avoided. A drastic improvement of urban structure
and the development of an efficient urban transport system is essential to support long-term and
continuous growth. The JICA Study Team firmly believes that the “Ulaanbaatar Metro Project”
proposed by this study will take a lead to realize this dream. People who have responsibility for
the socio-economic development need a vision which extends far into the future (100-year
vision). This dream should encompass the aspirations of the citizens for the steady step towards
its realization.

However, it is obvious that this Ulaanbaatar Metro Project needs a large amount of capital. It is
important to plan effective capital formation using profits from mineral resources effectively
and also with the participation of the growing private sector, in order to build the "World City
Ulaanbaatar" with continuous growth potential and attractions. In this sense, this project should
be regarded as a national project.

Aiming at the success of this national project, with pride of a professional consultant group, the
study team has formulated the "optimal scenario." This final report shows the operational
scheme of the metro project and the road to start the operation, including the implementation
system, risk analysis, and economic and financial analyses—a study that took over one year to
complete after the interim report was formulated in March 2012. We strongly hope that this
report will help all concerned to have constructive discussions in order to proceed with the
positive step towards the achievement of the final goal of the “Opening of the UB Metro in
2020.”

May 2013
Katsuhide Nagayama
Team Leader, JICA Project Team
Project Site
（County）Mongolia
（Region）Ulaanbaatar City

Ulaanbaatar City

Proposed Ulaanbaatar UMRT System

Table of Contents
Summary ........................................................................................................................................... i

1 Proposed Study ................................................................................................................... 1-1

1.1 Background of the Study...................................................................................................... 1-1
1.2 Needs for the Study .............................................................................................................. 1-2
1.3 Methodology of the Study.................................................................................................... 1-2
1.4 Approach to Conduct the Study ........................................................................................... 1-5
1.5 Structure of the Study Team ................................................................................................. 1-5

2 Current Situation and Issues of Development of Ulaanbaatar City Region ................. 2-1
2.1 Current Situation, Issues and Related Projects of Development of Ulaanbaatar Region..... 2-1
2.2 Urban Development Policy and Related Legal Framework .............................................. 2-12
2.3 Future Development Vision and Policy of Ulaanbaatar Region ........................................ 2-17
2.4 Proposed Comprehensive Transport System of Ulaanbaatar City ..................................... 2-24

3 Concept Design of Ulaanbaatar Metro ............................................................................ 3-1

3.1 Present Condition and Development Strategy for Peace Avenue......................................... 3-1
3.2 Development Orientation of Ulaanbaatar Metro.................................................................. 3-3
3.3 Demand Analysis of Ulaanbaatar Metro .............................................................................. 3-7

4 Urban Transport System Development Plan ................................................................... 4-1

4.1 Route Plan ............................................................................................................................ 4-1
4.2 Transport Plan ...................................................................................................................... 4-8
4.3 Car Plan.............................................................................................................................. 4-12
4.4 Civil Engineering Facilities Plan ....................................................................................... 4-14
4.5 Civil Structure Plan (Elevated) .......................................................................................... 4-16
4.6 Civil Structure Plan (Underground Structure) ................................................................... 4-18
4.7 Car Depot and Inspection/Maintenance Facilities ............................................................. 4-29
4.8 Technical Issues on Works and Measures .......................................................................... 4-34
4.9 Rough Estimate of Construction Cost................................................................................ 4-39

5 Station Area Development Plan of UB Metro Corridor ................................................. 5-1

5.1 Objectives of Station Area Development Plan Necessity of Integrated Development ........ 5-1
5.2 Development Orientation of Intermodal Transfer Facility................................................. 5-12
5.3 Development Orientation of Metro Station Area ............................................................... 5-18
5.4 Development Concept of Metro Station Area .................................................................... 5-28
5.5 Proposed Implementation Mechanism of Station Area Development Projects ................. 5-51
5.6 Development Effect of UB Metro ...................................................................................... 5-54

6 Environmental and Social Consideration ........................................................................ 6-1

6.1 Environmental and Social Consideration System and Organization in Mongolia ............... 6-1
6.2 Basic Environmental and Social Conditions ........................................................................ 6-8
6.3 Stakeholder Meeting .......................................................................................................... 6-38
6.4 Proposed Items on Environmental and Social Considerations for EIA and their Evaluation
Methods ........................................................................................................................................ 6-41
6.5 Potential for Clean Development Mechanism (CDM)....................................................... 6-69

7 Public-Private Partnership (PPP) Implementation Scheme .......................................... 7-1

7.1. PPP Related Legal System, Licenses and Permissions in Mongolia .................................... 7-1
7.2. PPP Scheme ......................................................................................................................... 7-3
7.3. Optimal PPP Scheme for the UB Metro ............................................................................... 7-4
7.4. Financing Scheme and Source of Fund ................................................................................ 7-5
7.5. Overall Project Schedule .................................................................................................... 7-12

8 Operation, Maintenance, and Management Structure ................................................... 8-1

8.1 Implementation Schemes of Operation & Maintenance ...................................................... 8-1
8.2 Structure of Operation and Maintenance ........................................................................... 8-10
8.3 O&M Cost for UB Metro ................................................................................................... 8-14
8.4 Establishing the Operations and Maintenance System ...................................................... 8-14
8.5 Legal Issues related to the Construction, Operation, and Maintenance of the UB Metro.. 8-16

9 Project Risk Analysis and Security Package ................................................................... 9-1

9.1 Methodology for Risk Analysis............................................................................................. 9-1
9.2 Examination of Risk Allocation and Risk Management Measures for Important Risks ..... 9-2
9.3 Risk management Measures for Major Project Risks ........................................................... 9-5

10 Economic and Financial Analysis ................................................................................... 10-1

10.1 Economic Analysis ............................................................................................................ 10-1
10.2 Financial Analysis ............................................................................................................. 10-5

Appendix: Member List of JCC, Working Group and Project Team

Figure
Figure 1.3.1 Study Items and Framework .................................................................................. 1-4
Figure 1.5.1 Structure of the Study Team ................................................................................... 1-5
Figure 2.1.1 Apartment Areas and Ger Areas in UB City .......................................................... 2-2
Figure 2.1.2 GDP of Mongolia (100 in 1992) ............................................................................ 2-3
Figure 2.1.3 Diagram of Urbanization Direction of Ulaanbaatar City ....................................... 2-5
Figure 2.1.4 BRT Plan by ADB (2012-2019) ............................................................................. 2-7
Figure 2.1.5 Metro Routes Studied in FS ................................................................................... 2-8
Figure 2.1.6 Location of Planned Flyovers .............................................................................. 2-12
Figure 2.2.1 Bogdkhan Railway Project .................................................................................. 2-14
Figure 2.2.2 Location of Facilities of Ulaanbaatar Railway .................................................... 2-14
Figure 2.3.1 UB City Master Plan ............................................................................................ 2-19
Figure 2.3.2 Plan of BRT and Metro (LRT) ............................................................................. 2-20
Figure 2.3.3 Location of Urban Centers in UB City ................................................................ 2-21
Figure 2.3.4 Urban Development Projects in UB City (UBMP 2030) ..................................... 2-22
Figure 2.4.1 Existing Bus Route Map (2012) .......................................................................... 2-25
Figure 2.4.2 Operating Trips of Buses per Day (2012) ............................................................ 2-26
Figure 2.4.3 General Characteristics (Age, Occupation, Household Income, and Transport
Means) of Vehicle Users and Pedestrians................................................................................. 2-28
Figure 2.4.4 Willingness to Pay to Metro by Household Income Groups (Tg/month/HH) ..... 2-29
Figure 2.4.5 Willingness to Pay to Metro by Purpose Groups (Tg/month/HH) ....................... 2-29
Figure 2.4.6 Present Traffic Condition (2011) ......................................................................... 2-30
Figure 2.4.7 Future Traffic Demand (Baseline Case, 2030)..................................................... 2-31
Figure 2.4.8 Location of Traffic Volume of Cross Section in Main Corridors ......................... 2-32
Figure 2.4.9 Proposed Transport Network integrated with Urban Spatial Structure................ 2-34
Figure 2.4.10 Proposed Railway Bypass with Urban Transportation Network ....................... 2-35
Figure 2.4.11 Integration of Mass Transit and UB Railway ..................................................... 2-35
Figure 2.4.12 Basic Structure of Mass Transit Corridors (Metro, BRT) .................................. 2-35
Figure 2.4.13 Existing Bus Route Network ............................................................................. 2-36
Figure 2.4.14 Proposed Bus Route Network after the Opening of the Metro .......................... 2-36
Figure 2.4.15 Future Traffic Condition (Do Maximum Scenario, 2030) ................................. 2-37
Figure 2.4.16 Future Traffic Condition (Do Maximum Scenario with Highway, 2030) .......... 2-38
Figure 3.1.1 Concept of Station Influence Area of Metro and Feeder Bus Service ................... 3-2
Figure 3.2.1 Concept of Intermodal System with Mass Transits ............................................... 3-6
Figure 3.3.1 Number of Passengers and Revenue by Fare System ............................................ 3-9
Figure 3.3.2 Average Trip Length and Number of Passengers ................................................... 3-9
Figure 3.3.3 Location Map of Ulaanbaatar Metro (Draft)........................................................ 3-14
Figure 4.1.1 Elevated, Underground, and At-grade Sections ..................................................... 4-2
Figure 4.1.2 Schematic Vertical Alignment Diagram ................................................................. 4-4
Figure 4.1.3 Road Flyover Projects in Ulaanbaatar ................................................................... 4-5
Figure 4.1.4 Flyover Project at East Intersection (Plan) ............................................................ 4-6
Figure 4.1.5 Flyover Project at West Intersection (Plan) ........................................................... 4-7
Figure 4.1.6 Flyover Project at Sonsgolon (Plan) ...................................................................... 4-8
Figure 4.4.1 Obstructive Structure Map for Peace Avenue ...................................................... 4-15
Figure 4.5.1 Standard Cross Section of Elevated Structure ..................................................... 4-16
Figure 4.5.2 Standard Cross Section of Elevated Station (Two-layer Structure) ..................... 4-17
Figure 4.5.3 Standard Cross Section of Elevated Station (Single-layer Structure) .................. 4-17
Figure 4.5.4 Cross Section of the At-grade Station (Over-track Station) ................................. 4-18
Figure 4.6.1 Slurry Shield Machine ......................................................................................... 4-21
Figure 4.6.2 Earth Pressure Shield Machine ............................................................................ 4-21
Figure 4.6.3 The Overall Structural Type for the Transition Section ....................................... 4-22
Figure 4.6.4 Plan View and Profile of Standard Underground Station..................................... 4-23
Figure 4.6.5 Sectional View of Standard Underground Station ............................................... 4-23
Figure 4.6.6 Image for Spacing of Parallel Shields.................................................................. 4-24
Figure 4.6.7 Shield Excavation (as planned)............................................................................ 4-25
Figure 4.6.8 Image for spacing between shields and ground surface ....................................... 4-25
Figure 4.6.9 Route Vertical View (1)........................................................................................ 4-26
Figure 4.6.10 Route Vertical View (2)...................................................................................... 4-27
Figure 4.6.11 Route Vertical View (3)...................................................................................... 4-28
Figure 4.7.1 Location Map of the Prospective Car Depots ...................................................... 4-33
Figure 4.7.2 Proposed Layout of the Consolidated Car Depot................................................. 4-34
Figure 4.8.1 Preparatory Works and Construction Schedule.................................................... 4-38
Figure 5.1.1 TOD Concept ......................................................................................................... 5-1
Figure 5.1.2 Typology of Land Use along Peace Avenue .......................................................... 5-2
Figure 5.1.3 The Current Situation of Land Use and Traffic along the Metro Line................... 5-4
Figure 5.1.4 Coverage of Station Areas (800m radius from station).......................................... 5-6
Figure 5.1.5 Distribution of Station Users of Each Station ........................................................ 5-7
Figure 5.1.6 Distribution of Population of Station Area (800m radius) of Each Station ........... 5-7
Figure 5.1.7 Image Photos of Station Related Facilities ............................................................ 5-9
Figure 5.1.8 Image of Access Facilities ................................................................................... 5-10
Figure 5.1.9 Image of Access Road Network around Station .................................................. 5-11
Figure 5.1.10 Image of Park and Ride ..................................................................................... 5-12
Figure 5.2.1 Example of Station Plaza (Aobadai Station, Tokyo Denentoshi Line) ................ 5-14
Figure 5.2.2 Intermodal Transfer Facility Location of UB Metro Network ............................. 5-17
Figure 5.3.1 Image of Phased Station Area Development........................................................ 5-19
Figure 6.3.1 Procedures of EIA Implementation for the Project .............................................. 6-33
Figure 6.3.2 Implementation Flow of Cumulative Environmental Assessment ....................... 6-33
Figure 7.3.1 A Proposed Two-Tiered PPP Scheme for the UB Metro........................................ 7-5
Figure 7.4.1 Impact of OT and TT under Different Scenarios on Government Budget Revenue
(US$ Billion） ........................................................................................................................... 7-8
Figure 7.4.2 Aggregate Impact of OT and TT（US$ Billion）................................................. 7-8
Figure 7.4.3 UB Metro Scheme (Draft) (Option A) ................................................................. 7-10
Figure 7.4.4 UB Metro Scheme (Draft) (Option B) ................................................................. 7-11
Figure 7.5.1 Overall Project Schedule (Draft) ......................................................................... 7-12
Figure 8.1.1 Organization Chart of Operator/ Supervisory Agency ........................................... 8-2
Figure 8.1.2 Organization Chart of Maintenance Contractor ..................................................... 8-3
Figure 8.3.1 Schedule of Personnel Training for the Start of Operations .................................. 8-6
Figure 9.1.1 Steps of Risk Analysis ........................................................................................... 9-1
Figure 9.1.2 Methodology for Risk Allocation .......................................................................... 9-2
Figure 9.2.1 Major Risks of PPP Metro Project ......................................................................... 9-3
Figure 9.2.2 Large Benefit of Metro Project .............................................................................. 9-3
Figure 9.2.3 Distribution Map of Land Price along railway lines in Tokyo Region .................. 9-4
Figure 9.2.4 Two Kinds of Benefit of Metro Project ................................................................. 9-5
Figure 9.2.5 Government Support for Viability Gap Risk and................................................... 9-6
Figure 9.2.6 Revenue Risk of Metro Project .............................................................................. 9-6
Figure 9.2.7 Transition of Network Formulation and Growth of Ridership .............................. 9-7
Figure 9.2.8 Minimum Revenue Guarantee Scheme ................................................................. 9-8
Figure 9.2.9 Example of Country Risk Cover in Structuring Project Finance ........................... 9-9
Figure 9.2.10 Metro Project is PPPP ........................................................................................ 9-10
Table
Table 2.1.1 Population of Mongolia and Ulaanbaatar ................................................................ 2-1
Table 2.1.2 Urbanized Area and Population Distribution in Six Districts of UB City (2011） . 2-1
Table 2.1.3 Development Patterns in UB City ........................................................................... 2-4
Table 2.1.4 Length of BRT by Tranche ...................................................................................... 2-6
Table 2.1.5 Outline of East-West Route ..................................................................................... 2-8
Table 2.1.6 Operation Plan for East-West Route ........................................................................ 2-9
Table 2.1.7 Cost Estimate for East-West Route ......................................................................... 2-9
Table 2.1.8 Profit Loss Statement for East-West Route ........................................................... 2-11
Table 2.2.1 Urban Development Related Laws ........................................................................ 2-16
Table 2.3.1 Future Population Projection of Mongolia and UB City ....................................... 2-18
Table 2.3.2 Future Population Framework of UB City ............................................................ 2-18
Table 2.3.3 Plan of BRT and Metro (LRT) ............................................................................... 2-19
Table 2.3.4 Housing Development Plan in “New Construction” Program .............................. 2-21
Table 2.3.5 Future Population Density ..................................................................................... 2-23
Table 2.3.6 Population Density of Habitable Land in Urban Development Promotion Zone in
UBMP 2030 (draft) .................................................................................................................. 2-23
Table 2.4.1 Present Traffic Demand of UB City (estimated in 2011) ...................................... 2-24
Table 2.4.2 Number of Registered Vehicle in Ulaanbaatar City .............................................. 2-24
Table 2.4.3 Weekday Operation by Bus Type (2012) ............................................................... 2-26
Table 2.4.4 Future Traffic Demand .......................................................................................... 2-31
Table 2.4.5 Traffic Demand and Overall Network Performance (Baseline Case).................... 2-32
Table 2.4.6 Assessment of Traffic Volume of Cross Section in Selected Mass Transit Corridors
(Baseline Case, 2030)............................................................................................................... 2-33
Table 2.4.7 Traffic Demand and Overall Network Performance (Do Maximum Scenario)..... 2-38
Table 2.4.8 Assessment of Selected Mass Transit Corridors (Do Maximum Scenario with
Highway, 2030) ........................................................................................................................ 2-39
Table 3.1.1 Development Issues, Strategies and Impacts of Metro Development ..................... 3-2
Table 3.2.1 Typology of Urban Railway System ....................................................................... 3-4
Table 3.2.2 Examples of Urban Railway System ....................................................................... 3-4
Table 3.2.3 Assessment of Prospective Railway System ........................................................... 3-5
Table 3.2.4 Alternative Metro Structure ..................................................................................... 3-6
Table 3.2.5 Station List of Ulaanbaatar Metro ........................................................................... 3-7
Table 3.3.1 Passenger Occupancy and PCU by Vehicle Type .................................................... 3-8
Table 3.3.2 Adjusted Number of Trips by Mode ........................................................................ 3-8
Table 3.3.3 Demand Analysis of Various Fare System (2030) ................................................... 3-8
Table 3.3.4 Demand Analysis of Mixed Fare System (2030)................................................... 3-10
Table 3.3.5 Estimated Maximum Passenger Demand of Ulaanbaatar Metro........................... 3-11
Table 3.3.6 Estimated Passenger Demand of Cross Section and Each Station ........................ 3-11
Table 3.3.7 Estimated Passenger Demand of Cross Section and Each Station ........................ 3-11
Table 3.3.8 Outline of Ulaanbaatar Metro................................................................................ 3-12
Table 3.3.9 Total Image and Comprehensive Project Matrix of UB Metro ............................. 3-12
Table 4.2.1 Outline of the Transport Plan .................................................................................. 4-9
Table 4.2.2 Traffic Volume at Peak Time (PHPDT) ................................................................. 4-10
Table 4.2.3 Train Capacity According to the Number of Cars ................................................. 4-10
Table 4.2.4 Simulation of Train Operation ............................................................................... 4-10
Table 4.2.5 Required Number of Trains ................................................................................... 4-11
Table 4.2.6 Train Operation Plan for 2020 ............................................................................... 4-11
Table 4.2.7 Train Operation Plan for 2030 ............................................................................... 4-11
Table 4.2.8 Required Number of Trains and Cars .................................................................... 4-12
Table 4.2.9 Train-kilometers and Average Train-kilometers .................................................... 4-12
Table 4.3.1 Outline of the Car Plan of Ulaanbaatar Metro....................................................... 4-13
Table 4.4.1 Obstructive Structures ........................................................................................... 4-14
Table 4.4.2 Railway Design Conditions for Civil Facilities..................................................... 4-15
Table 4.6.1 Types and Features of Cut-and-Cover Method ...................................................... 4-18
Table 4.6.2 Types and Features of Tunneling between Underground Stations......................... 4-20
Table 4.7.1 Outline of the Car Depot Plan ............................................................................... 4-29
Table 4.7.2 Details of Duties at the Car Depot ......................................................................... 4-29
Table 4.7.3 Prospective Car Depot Sites .................................................................................. 4-31
Table 4.9.1 Urban Railway Outline Comparison between Korean FS and JICA study ........... 4-39
Table 4.9.2 Cost Comparison between Korean FS and JICA study ......................................... 4-39
Table 5.1.1 Types of Land Use Along Peace Avenue ................................................................. 5-2
Table 5.1.2 Current Status of Building Use, Land Use and Transport ....................................... 5-2
Table 5.1.3 Estimated Increased Population of Station Area from 2020 to 2030....................... 5-6
Table 5.1.4 Estimated Number of Station Users and Population of Station Area ...................... 5-7
Table 5.1.5 Components of Station Area Development Plan in 2030 ........................................ 5-8
Table 5.2.1 Necessary Facilities of Station Plaza ..................................................................... 5-13
Table 5.2.2 Estimated Modal Share of Each Station ................................................................ 5-14
Table 5.2.3 Necessary Volume of Intermodal Transfer Facility of Each Station 1) ................. 5-15
Table 5.2.4 Outline of Intermodal Transfer Facilities at Each Station ..................................... 5-16
Table 5.3.1 Implementation Schedule of Station Area Development (preliminary) ................ 5-20
Table 5.4.1 Effects, impacts and indicators of the railway development ................................. 5-21
Table 6.1.1 Laws and Standards for Environmental and ............................................................ 6-1
Table 6.1.2 Summary of Mongolian EIA Law ........................................................................... 6-4
Table 6.1.3 Related Authorities .................................................................................................. 6-7
Table 6.2.1 Draft Scoping .......................................................................................................... 6-8
Table 6.2.2 Baseline Survey Content, Prediction, and Assessment of EIA Items in
Implementation Steps of Projects (Draft) ................................................................................. 6-13
Table 6.3.1 Purposes and Contents of Explanation Meetings to the Public ............................. 6-31
Table 7.4.1 Aggregate Impact of OT and TT on Government Budget Revenue (US$ Billion) . 7-7
Table 8.2.1 Operation & Maintenance Cost ............................................................................... 8-4
Table 8.3.1 Operational Costs for the Preparation for Starting Operation ................................. 8-6
Table 9.2.1 Country Rating of Foreign Currency Borrowing for Mongolia .............................. 9-8
Table 9.2.2 Support Programs of IFIs and ECAs ....................................................................... 9-9
Table 10.1.1 VOC (US$/1000km) ............................................................................................ 10-2
Table 10.1.2 VOT (US$/h) ....................................................................................................... 10-2
Table 10.1.3 Economic Benefits of Benchmark Years ............................................................. 10-2
Table 10.1.4 Cost of Infrastructure, EIRR and NPV by Project Cost Option .......................... 10-3
Table 10.1.5 EIRR by Each Fare System ................................................................................. 10-4
Table 10.1.6 Sensitive Analysis by Changing Cost and Benefit (Option 2)............................. 10-4
Table 10.2.1 Assumptions of financial analysis ....................................................................... 10-5
Abbreviations and Acronyms

ACM Approved Consolidated Methodology

ADB Asian Development Bank
AGT Automated Guideway Transit
ATP Automatic Train Protection
AQDCC Air Quality Department of Capital City
BAU Business as Usual
BCR Base Case Revenue
BLT Build Lease Transfer
BOCM Bilateral Offset Credit Mechanism
BOOM Build Own Operate and Maintenance
BOT Build Operate Transfer
BRT Bus Rapid Transit
CBD Central Business District
CDM Clean Development Mechanism
CLEM Central Laboratory of Environment and Metrology
CO2 Carbon Dioxide
CTC Centralized Traffic Control
DEIA Detailed Environment Impact Assessment
E&M Electrical and Mechanical
EBRD European Bank for Reconstruction and Development
ECA Export Credit Agency
ECS Escalator
EIA Environment Impact Assessment
EIRR Economic Internal Rate of Return
EIRR Equity Internal Rate of Return
EU European Union
EV Elevator
FAR Floor Area Ratio
FIRR Financial Internal Rate of Return
FS Feasibility Study
GDP Gross Domestic Product
GGU Government Guarantee and Undertaking
GHG Greenhouse Gas
GIS Geographic Information Systems
GOM Government of Mongolia
HSST High Speed Surface Transport
IC Investment Certificate
IFIs International Financial Institutions
IGES Institute for Global Environmental Strategies
ITF Intermodal Transfer Facility
JCC Joint Coordination Committee
JICA Japan International Cooperation Agency
K&R Park and Ride
KPI Key Performance Indicators
LRT Light Rail Transit
LRTA Light Railway Transit Authority
MRG Minimum Revenue Guarantee
MRT Mass Rail Transit
MRT Ministry of Roads and Transportation
MRTCUD Ministry of Road, Transport, Construction and Urban Development
NAMA Nationally Appropriate Mitigation Actions
NATM New Austrian Tunneling Method
NOx Nitrogen Oxide
OCC Operation Control Center
ODA Official Development Assistance
OD Origin-Destination
OEM Original Equipment Manufacturer
P&R Park and Ride
PCU Passenger Car Unit
PIS Passenger Information Service
PSIF Private Sector Investment Fund
PPP Public Private Partnership
PQ Pre-Qualification
SME Small and Medium Enterprises
SPC Special Purpose Company
SCADA Supervisory Control And Data Acquisition
STRADA The System for Traffic Demand Analysis
TBM Tunnel Boring Machines
TIF Tax Increment Financing
TOD Transit Oriented Development
TPM Total Productive Maintenance
TTC Travel Time Cost
UB Ulaanbaatar
UBMA Ulaanbaatar Metro Agency
UBMP2030 City Master Plan of Ulaanbaatar 2030 (Draft)
UBMPS Study on City Master Plan and Urban Development Program of Ulaanbaatar
City in Mongolia
UMRT Urban Mass Rapid Transit
UNEP United Nations Environment Programme
USGU Ulaanbaatar Water and Sewerage Authority
V/C Volume / Capacity
VGF Viability Gap Funding
VOC Vehicle Operating Cost
WHO World Health Organization
Summary
Final Report
Summary

1. Key Issues on Urbanization and Transportation in Ulaanbaatar

The population of Ulaanbaatar (UB) City was 58,000 in 1990 and doubled to 1.13 million in 2010.
About 27% of the country’s population lived in UB City in 1990. The population concentration of UB
City reached 41% in 2011. This trend is expected to continue and UB City’s share in the population
will become larger in the future. Over the last 20 years, the country’s population has grown at an
average rate of 1.3% per annum, while that of UB City is 3.3%.
Most immigrants to UB City have recently settled in ger areas where infrastructure is inadequately
provided. Once these people settle in ger areas of little infrastructure, it would cost much time and
money to reorganize the areas into a settlement with a good living environment. In order to avoid such
expansion of the ger areas and to lessen the cost for infrastructure provision and adverse
environmental impacts in forming a sustainable UB City, it is imperative to construct a compact urban
spatial structure with a well-planned public transportation as its spine.
In addition, such population concentration in UB City has increased the demand for various
infrastructure and utilities and has had an adverse environmental impact. These resultantly elicited
urban problems including inadequate supply of water, electricity and heating, lack of treatment of
wastewater and solid waste, and uncontrollable air pollution, water and soil contamination.
Particularly, motorized vehicles are the only current means of urban transportation in Ulaanbaatar.
However, the present road network of UB City was planned in a master plan in 1975 when the city’s
population was 349,000, the number of cars registered was 10,044, and the car ownership ratio was
2.9%. The plan targeted to cope with only 400,000 to 500,000 people. In 2010, the population reached
1.11 million, the number of cars registered was 167,809, and the car ownership ratio became 14.6%.
Compared to 1975, the population became 3.2 times greater, the number of cars registered was 16.2
times more, and the car ownership ratio was 5 times higher. For the past 35 years, the trunk road
network has had limited improvements, that are inadequate to meet the increasing traffic volume.
Consequently, this has led to traffic congestion. Improper traffic management, bad driving manners,
and on-street parking have worsened traffic conditions.
Based on the future population by Khoroo, projected according to the future population framework,
the number of trips will be double from 2011 to 2030, and the traffic demand (person-km) will be 3.1
times the present level. The main reasons for rapid increase of traffic demand compared to the rate of
population increase (1.4 times the present rate) is because of the increase in average trip length in
conjunction with expansion of urbanized areas and increase in the number of private cars (see Figure
1).
Traffic volume increase of private cars will be a burden to road transport system. The traffic capacity
of main corridors especially Peace Avenue and Chingiss Avenue will be absolutely insufficient. By
2030, the total transport cost will be 14.1 times of the present level, two-thirds of which are shared by
Travel Time Cost (TTC). Loss of time value will be serious because of the traffic congestion.
As for the traffic volume of cross section of main corridors in 2030, approximately 700,000 persons
(200,000 PCU1) will cross Peace Avenue daily. Though it will not be seriously congested inside the
city center due to a high density road network, the volume-to-capacity (V/C) ratio of main trunk road
access to city center will be 2.6-3.0. In terms of south-north direction, daily trips will be 600,000
persons (170,000 PCU) in Chingiss Avenue, and V/C ratio will be 5.0, which means the road will

1
PCU stands for passenger car unit and is defined as the number of vehicles equivalent to passenger cars. It is a coefficient
used to compare traffic volume consisting of different vehicle types at different spots; for example, a truck is considered
equivalent to 2.0-2.5.

i
already be overloaded.
Lack of road capacities along major corridors will be absolutely serious, so the development of mass
transit and effective road transport control will be crucial to expand transport infrastructure and
services.

LEGEND :
( Mode: + 1 + 2 + 3 ) Traffic Flow
Traffic Flow
VCR<1.00 VCR<1.00
VCR<1.20
VCR<1.50 VCR<1.20
VCR<1.50
1.50<VCR
scale: 1mm =50000(pcu)

1.50<VCR

Figure 1：Future Traffic Demand (Baseline Case, 2030)

Source: JICA Study Team

2. Outline of Ulaanbaatar Metro Concept

1) Development of Comprehensive Urban Transport Network
The spatial structure of UB City is a ladder-shaped one, extending from east to west and is surrounded
by mountains in the north and south. Peace Avenue is the only trunk road that connects east and west
of the city, so most of urban facilities and traffic are gathered along this road. Based on the result of
simulation of STRADA, a traffic demand analysis software developed by JICA, about 700,000 trips
(approximately 35% of the 2 million trips) are concentrated in Peace Avenue. Among the 58 main bus
routes of the city, 21 routes (36%) run along this trunk road.
In this way, Peace Avenue serves as the backbone of urban service, transport and utility service in UB
City. There are various strategic development opportunities along this road.
Mass transit development along Peace Avenue has advantages in terms of the transport and urban
development. The Ulaanbaatar Metro (UB Metro) project is proposed to develop a mass transit of
17.7 kilometers long between Amgalan Station and Tolgoit Station within the road spaces along Peace
Avenue. The UB Metro will be properly connected to Ulaanbaatar Railway at the east and west
terminal stations, which are Amgalan and Tolgoit, respectively. The following effects of the UB
Metro are expected:
• The UB Metro will be developed within a road space without reducing the traffic
capacity of Peace Avenue; traffic capacity can be increased by reducing vehicles.
• The UB Metro will not be an independent line but appropriately integrated with other
transport network.
• The UB Metro will be properly connected to Ulaanbaatar Railway when it is possible to
be developed as a “commuter railway of a UB city region” after Bogdkhan Railway is
developed as a freight line of Ulaanbaatar Railway.

ii
2) Promotion of Integrated Urban Development
An integrated urban development can be promoted by the mass transit development along Peace
Avenue where urban activities are accumulated. In particular:
• The UB Metro will be a trigger to strengthen existing urban areas and to develop sub centers.
• The UB Metro will lead appropriate urban growth towards the west side (though urban expansion
towards the east is not recommended in terms of water reservoir preservation).
• The UB Metro will be developed without serious social and technical disincentives.
3) Appropriate Railway System
When considering the selection of the mass transit system, some criteria such as i) demand at peak
hour, ii) economic consideration, iii) safety, and iv) easy maintenance would be considered in a
comprehensive manner.
In addition, with the long-term operation period, a flexible railway system to respond to future urban
growth and increase of passengers is expected. Furthermore, selection of facilities and equipment
which can adapt to special climate condition of UB City is indispensable. For this, v) flexibility for
future expansion (increase in the number of cars and decrease in travel time), vi) resistance to cold
climate, and vii) environmental aspect such as gas emission, noise/vibration and daylight interference
are important criteria for UB City.
Prospective railway systems are assessed based on conditions of this project such as a route and
transport capacity, and it is proposed to select “steel wheel and steel rail system MRT” as an optimum
mass transit system for Peace Avenue. This railway system is a double-track urban railway and has the
flexibility to respond to future demand increase.
4) Structure
There are three types of Metro structures: elevated, at grade and underground. Based on the criteria
listed below, three alternatives of structure are assessed (see Table 1).
a) Socio-economic impact: land acquisition, land use
b) Traffic function: impact on road transport (avoidance of decrease of carriageway, grade
crossing with road, impact on intersection)
c) Environmental consideration: landscape, noise and vibration, safety
d) Technical appropriateness: construction method, construction cost
Based on the result of assessment, alternative A, “underground in city center, elevated in sub
urban area,” is proposed in this project.

iii
Table 1： Alternative Structures of UB Metro
A: Underground in city B: All elevated C: Elevated in city center, at
center, Elevated in sub urban grade in sub urban area
area
Elevated Underground Elevated At grade Elevated At grade
All Elevated

Section
Image
Suburban Center Sub urban Suburban Center Suburban
Suburban Center Sub urban
○ Not necessary ᇞ Necessary to secure present ×Necessary to secure present
Land width of carriageway and sidewalk width of carriageway and sidewalk
Acquisition in city center
○ Less impact on road transport ᇞ Some negative impacts on city × Serious impacts because of
Road grade crossing with road
center because of pillars
Transport
ᇞNo negative impacts in city ×Serious Impacts both in city ×Serious Impacts in both city
center but some negative center and suburban areas center and suburban areas.
Landscape impacts in suburban areas Particularly, significantly affects
the city center.
ᇞNo negative impacts in city ×Serious negative impacts such ×Serious negative impacts, such
center but some negative as noise and vibration because of as creating noise and vibration,
Environment impacts in suburban areas such the elevated structure and splitting of communities
as noise and vibration
× ᇞ ○
Cost
Note: Cost of each case includes only the development cost of the train infrastructure. This means that it does
not include the cost of loss from the decrease in carriageway width, land acquisition of the reduced
carriageway or grade crossing with road.
Source: JICA Study Team

5) Selection of Station Location

Based on some criteria such as potential of urban core, intermodal transfer condition, physical
condition (existing medians, soil and underground water) and accessibility, 14 stations are proposed
from Tolgoit Station to Amgalan Station, with a total of approximately 17.7 km. Underground section
in the city center is 6.6 kilometers long between West Intersection and East Intersection. Other than
that, the structure is elevated and completely separate from road traffic (see Figure 2).
A possibility of extension of the line is also assumed towards the west in accordance with the
expansion of urbanized area and a new town development in the west of UB City.
6) Transport and Train Operation Plan
The transport plan of UB Metro is outlined in Table 2. Since there are a few sharp curves and the
distances between stations are relatively long, the train running time required between two terminal
stations can be shortened by setting the maximum speed to 100 km/h. To reduce the construction cost
and to ensure effective train operation, the number of cars for a train should be six. Under this
assumption, a section with the maximum volume of passengers is between Sappro Rotary station and
25th Pharmacy station. The maximum number of passengers carried to one direction during peak hour
in 2030 is about 18,000.
According to the train operation plan, trains operate every eight to nine minutes in 2020 and every
five minutes in 2030. The terminal stations through the whole length from east to west (17.7 km) will
be connected in 27 minutes by metro.

iv
v
Figure 2: Location Map of UB Metro (Draft)
Table2：Transport and Train Operation Plan

Item Description
Corridor Tolgoit Sta. – Amgalan Sta.
Route length (km) 17.640 km (between starting and terminal stations)
No. of stations 14 (including five underground stations)
Service hours 6:00 AM to 11:00 PM
Demand forecast
th
Corridor Sapporo Rotary Sta. – 25 Pharmacy Sta.
Year 2020 2030
PHPDT (pax) 10,729 17,767
Car composition for a train 6
Train capacity (180%) 1,428 1,428
Headway (peak hour) (sec) 515 300
Schedule speed (km/h) 39.2
Schedule time (minute) 27
Maximum operation speed (km/h) 100 (80 for underground section)
Train make-up 2020 2030
Required No. of trains 8 13
No. of spare trains for inspection 1 1
No. of spare trains for extra
1 1
service
Total 10 15

7) Rough Estimate of Project Cost

This is the first urban railway project in Mongolia and large underground and elevated constructions
are included in the project. And since it is very cold and construction is restricted in the winter in
Mongolia, special specifications of system to be used for cold districts are required for the project.
The project cost has been estimated referring to procurement and winter construction circumstances
described and comparing with Korean FS and construction cost of Japan and other foreign countries.
Project costs of the following three options have been set up with the difference of procurement.

Option 1 : the assumption that Japanese firms etc. can enter into the project (base case)

Option 2 : the assumption that international competitive bidding is conducted (competition case)

Option 3 : the assumption that Japanese firms can enter into main constructions and
procurements (Japan core case)

As for Option 3, it is assumed that Japanese firms would get involved into civil and architecture
works for underground section (by shield method), procurements of signal and telecommunication
equipment, safety system and rolling stock. In particular, civil works for underground section and
rolling stock require advanced techniques and high credibility; and therefore, it is desirable that
Japanese companies will get involved in such works and procurements. On the other hand, as for
other constructions and procurements, it is preferable to conduct these items with lower cost through
international bidding. Accordingly, the Japan core case is proposed in this study. As a result, the total
project cost is US$1.5 billion including US$1.3 billion of construction cost for a tunnel, elevated
bridge, stations and related facilities and US$200 million of procurement cost for rolling stock and
opening expenses (see Table3).

vi
Table 3： Estimated Project Cost

Cost
Item
(US$ Million)

Civil works 913.0

Construction Track 65.0

Cost Architect / System 300.0
Removal of obstacle 25.0
Sub-total 1,303.0
Land acquisition 30.0
Rolling stock 122.4
Contingency / Miscellaneous expenses 84.0
Total 1,539.4
Construction cost per km（US$ Million） 67.51
Rolling stock cost per car（US$ Million） 2.04
Project cost per km（US$ Million） 79.76

3. Station Area Development

The UB Metro will cover various urban land uses from the Central Business District (CBD) to
suburban and rural areas. With appropriate feeder bus service provision, accessibility of ger areas will
be improved.
Based on the “Transit-Oriented Development” (TOD) concept, 2 the following are desirable to be
implemented.
Development of intermodal transfer function of station areas and bus feeder service system
(Station plaza and intermodal facility development).
Development of an intensive urban city with a highly dense population where high-level and
efficient utilization of land is realized in the central area and intermodal transfer areas
(development of sub-centers).
Restriction of expansion of urban areas and promotion of resettlement of citizens in ger areas by
reconstruction of old apartment buildings (promotion of a housing policy).
Currently, the Ministry of Construction and Urban Development is formulating the Urban
Redevelopment Law. After the law is passed and enacted, projects will be implemented through the
right conversion instead of land expropriation. Accordingly, urban redevelopment projects along
Peace Avenue, including old apartment reconstruction projects, are expected to be facilitated.
Therefore, it is necessary to formulate an urban redevelopment project implementation plan around
stations which are integrated with the UB Metro project.
Furthermore, underground development and utilization of underground space are recommended as a
part of the station area development since they are effective on revitalization of economy and
improvement of accessibility and safety in the cold winter of Mongolia
Including these urban development projects, multi-faceted spillover effects are expected such as the
effects on the citizens’ living condition, local economy, safety, environment and local society. Specific
effects are shown as follows.

2
To promote an urban development integrated with public transportation.

vii
Improvement of Accessibility
• Time cost saving by the shortened travel time of citizens (45 minutes of travel time by bus
will be reduced to 15 minutes by metro)
• Reduction of traffic congestion in urban areas (16% of reduction of traffic volume, 25% of
increase in travel speed)
• Revitalization of business and commercial activities in the central areas and improvement of
citizens’ living condition by enhancement of accessibility to the city center (increase in the
number of employees and shoppers).
• Improvement of safety and reduction of social cost by the decrease in the number of traffic
accidents.
Revitalization of Local Economy
• Investment promotion：Establishment of new business facilities in station areas is expected.
• Revitalization of real estate market：1,318 ha of floor demand for commercial and business
services is expected in station areas.
• Creation of employment：155,000 new employment opportunities are created at station
areas (within 800 m) by the development of the UB Metro by 2030.
• Increase in tax revenue：Revenue from sale tax, income tax, real estate tax and new tax for
redevelopment is expected to increase. The total amount of the increase in 2030 is assumed
to reach US$232 million.
Effects on Environment
• CO2 emitted by cars on main roads is reduced by 34,000 tons per year by 2030
• NOx emitted by cars on main roads is decreased by 1,754 tons per year as of 2030
Technical Transfer to Mongolia
• The UB Metro is the first electric urban railway in Mongolia and new technologies and
systems such as civil works for underground (shield tunneling method), communication,
train traffic control and power system will be introduced. UBMC will have 580 Mongolian
engineers with the operation and maintenance skills to provide safe and comfortable urban
railway services
• Know-how on the underground development is introduced in relation to the development of
the Metro.
4. Public-Private Partnership (PPP) Implementation Scheme
1) PPP Scheme
With regard to the implementation scheme of the UB Metro, there are basically three types of
schemes: the public work scheme, the Public-Private Partnership (PPP), and the hybrid public
company scheme. According to the Railway Law of Mongolia, a two-tiered system is a basic structure
of the railway business. Accordingly, the government will be the owner of the infrastructure and lease
it to concessionaires under a long-term agreement. The concessionaires are supposed to develop,
purchase or construct the rolling stock (owned or leased), and related facilities, and own them. After
that, they begin to operate the urban public transportation system, which forms a part of this project.
On the assumption of a PPP implementation scheme, the following two schemes are possible:
(1) A special purpose company (SPC) scheme: SPC operates the Metro based on the two-tiered
system; and
(2) A public company scheme: A public company by the joint-investment of the public and the
private sectors operates the Metro based on the two-tiered system.

viii
With regard to the legal aspect, in case of an SPC scheme, it is expected that the Metro Project will be
a concession project under the Law on Concession as long as it is included in the concession list. As
for a public company scheme, when the law is applied, the same process as the SPC scheme such as
inclusion in the concession list is required. However, the concession law does not clearly stipulate
conditions under which the joint investment public company must follow the concession law.
Therefore, the procedure of the metro project must be based on the decision of concerned
organizations (in this case, the Ministry of Economic Development, which is in charge of the
concession law).
As for the implementation scheme, the two-tiered system (the national government is an owner of the
infrastructure) is appropriate due to financial reasons as well as the regulation of the Railway
Transportation Law of Mongolia.
According to the result of cash flow analysis of this project, Project Internal Rate of Return (PIRR) is
around 2% on the assumption that the ODA loan is utilized and average fare is MNT 600. This shows
that it is not realistic for one operating company to pay back the investment of the infrastructure with
only fare revenue and implement a sustainable operation and management. The infrastructure should
be paid back on a long term basis as public goods from the economic point of view. An operation
scheme clearly different from the SPC management which provides comfortable metro service on the
commercial basis is required.
Regarding the validity of the investment ratio, further discussions between concerned agencies are
necessary. The government of Mongolia has clear policies which state that “the government shall
provide the public transport services with responsibility” and “the UB Metro is the first urban mass
transit system in Mongolia and the know-how from the private sector will be utilized to improve the
inefficiency of the public services.” Therefore, the study team proposes to choose a “Public
Corporation” scheme in which the public does mainly the operation. The private sector will be
strategic partners3 whose roles are to invest in the company and to provide their management know-
how (see Figure 3).

Figure 3： Two-tiered PPP Scheme of UB Metro

3
There are many projects with strategic partners such as the Light Railway Transit (LRT) Project in France and the Beijing
International Airport Project in China.

ix
2) Financing Scheme
On the assumption of the proposed public corporation scheme, a financing plan is prepared on the
basis of the following policy. The basic policy is that the government of Mongolia is responsible for
the financing because the UB Metro is a public transport service provided by the government. The
initial investment is US$1.5 billion (MNT 2 trillion) and this cost is divided into two parts: (i) US$1.3
billion is for the fundamental structures (infrastructure portion) specified in the railway transportation
law and (ii) US$200 million is for rolling stock and related systems. The financing scheme is also
separately examined for each part.
The starting point is that the UB Metro project must be approved as a national strategic project and
granted the highest implementation priority. Regarding the fundamental structures (with US$1.3
billion of investment), as a core fund, Japanese ODA fund, which is a long-term loan with a low
interest rate, should be incorporated in the financing scheme, and bilateral technical assistance from
Japan will also be provided. This brings about material and immaterial collaboration with partners
from Japan. In addition, the budget from the government of Mongolia must be secured as a
counterpart fund in order to receive the Japanese ODA fund. Government Special Fund such as
Human Development Fund based on revenue from mineral resources and the development bank of
Mongolia bonds with government guarantee and Samurai bonds with JBIC guarantee are utilized.
On the other hand, it is assumed that a newly established operator, “Ulaanbaatar Metro Corporation
(UBMC)” procures the rolling stock and prepares the opening of the operations. In this case, UBMC
needs US$200 million of funding, 30% of which is procured as equity and 70% comes from loans.
A proposed UB Metro Scheme is shown in Figure 4.

x
Investment US$60 million： Loans US$140 million：
GOM：35 million (UB city＋Ministry) International Financial Institutions
Strategic Partners：25 million： Commercial Banks/Infra Fund
（Japan and Mongolia）

Fee

Japanese
UB Metro Corporation
companies
Opening Preparation：50 Million
Strategic Partners
Procurement of Rolling Stock: 150 Million
Advisory service

Assignment of the construction Fee GOM

Concession for limited use right (Ownership of Infra Portion）
Handing over the
infrastructure

Infrastructure Portion
US$1.3 billion
(Underground) （Elevated）（E&M（Except Rolling Stock））

ODA loan Government of Mongolia Finance

(US$600 Million)： (US$700 million)：
Construction of State Budget：US$200 million
underground portion Human Development Fund：US$300 million
DBM bond：US$100 million
Samurai bond：US$100 million

Figure 4： UB Metro Scheme (Draft)

3) Organizational Structure for Operation and Maintenance (O&M)

This study examined the most suitable scheme of the Operation and Maintenance (O&M) based on
the legal standpoint of the railway, the Mongolian side’s awareness of construction and operations
through the concession system and private sector operation, and technological experiences. It is the
most appropriate scheme to establish the UBMC, which conducts the O&M with assistance of
experienced foreign strategic partners in terms of the techniques and services for urban railways. It is
also advised that policies regarding the strategic partner agreement be developed such as strategic
partners will transfer their stocks to the Mongolian side when there is already sufficient capacity and a
structure for Mongolian personnel to conduct O&M by themselves after a certain period (7~8 years).
Among the personnel necessary for UBMC at the start of business operations, it will be necessary to
train particularly the 50 or more drivers required prior to the start of operation. If continuity is taken
into consideration, 70 drivers should be employed after that time. Due to the large numbers of
required drivers, the hiring of a number of instructors at the stage when on-site training is possible is
advised. The driving instructors who develop the system to train drivers on site by themselves must be
trained overseas since there is no training facility in Mongolia. It will not be a problem if the training
period in other areas is short compared to that of the drivers, but recruitment will need to be done one

xi
year before starting operations.
It is expected that in 2030, 580 Mongolian personnel will already be working with various necessary
training programs for the UBMC, including 80 head office staff which are not mentioned above.

5. Risk Management of the Project

The following are the risks related to the Metro Project: (1) Viability Gap Risk, (2) Revenue Risk, (3)
Country Risk, (4) Foreign Exchange Risk and (5) Regulatory Framework Risk. In implementing the
Metro Project, stakeholders need to analyze these risks and manage them by reflecting risk
management measures in project contract, procuring various guarantees, and protecting it by
insurance, etc.
The following are specific issues for risk management of the proposed UB Metro Corporation
(UBMC) based on the two-tiered system. These issues are needed to be considered when private
investors negotiate and enter into agreement with the Mongolian government:
1) Project Contract and Formulation of Public Corporation based on the Two-
tiered System
A basic assumption of the two-tiered system is to construct the infrastructure portion using the public
fund (with huge Viability Gap Funding of which the government is responsible) and to cover
operating expenses and additional investment by operating revenues as much as possible to implement
the metro operation independently. Therefore, notwithstanding the UBMC, with major shareholding
owned by the Mongolian Government, risk management based on the above-mentioned principles of
the two-tiered system is necessary to be pursued. Furthermore, a specific project agreement regarding
the metro operation and management should be entered into between the government, UB City and
the UBMC, in addition to the legal establishment procedure of the company.
2) Agreement of GGU（Government Guarantee and Undertaking）
It is essential to have an agreement with the Government Guarantee and Undertaking (GGU) which
requires government support for critical risks of the company management and operations of the
UBMC in order to stipulate and secure the support and guarantees from the Mongolian Government
about the risks which UBMC is unable to manage and control such as financing risk for the
infrastructure portion, demand (ridership) risk, foreign exchange risk, political risk, and force majeure
risk.
3) Formulation of Financing Based on the Two-tiered System
Without viability of public funding, no commitment by financiers will be secured for rolling stock,
which UBMC is obligated to procure. To this end, prior to the formulation of financing on the UBMC
side, it is essential to clarify and verify the necessary degree of commitment of the government for the
infrastructure portion in order for the commercial (and/or JICA PSIF) lenders to provide funding for
UBMC. This condition should be assumed for the negotiation and contractual arrangement with
Mongolian Government for financing obligated by the UBMC.
4) Management of Construction for the Two-tiered System
It is essential for the UBMC to secure a position in charge of management of design and construction
as its intention is appropriately incorporated in the design, construction and construction supervision
of the infrastructure portion. Regarding the procurement of advisors for the design, construction and
construction supervision, besides the one for the infrastructure portion, which is to be constructed
using the public fund, an in-house advisor should be procured specifically for the UBMC who could
comprehensively manage the design and construction process of the Metro development on the basis
of the Strategic Partner agreement.
5) Management of Completion Risk for the Government Portion
Risk of delays in the completion must be managed very stringently. To cover the risk caused by the
government, Liquidated Damage Penalty Payment mechanism and compensation payment for the

xii
material delay and so on must be stipulated. Furthermore, it is generally practiced in the contractual
arrangement that appropriate compensation conditions for the damage of the UBMC caused by the
government should be stipulated. These cases must be thoroughly examined and discussed with the
government to be included in the project contract.
6) Organizing SPC (UB Metro Corporation: UBMC)
Regarding the establishment of UBMC, it would be preferable in terms of the accumulation of know-
how to first establish a specific “UB Metro Preparation Unit” inside the UB City Government. Then
the major members of the Unit are to be transferred to the UBMC as its core members. The private
sector strategic partner would enter into the strategic partner agreement with this UB Metro
Preparation Unit, and support the Unit in all aspects of the Metro preparation. They would then
participate in the UB Metro Corporation as major shareholders when the Unit transferred to the
UBMC. Eventually, each specific expertise of the Metro project enters into an advisory agreement
with the UBMC.
7) Fare Revision Risk
Revision of fare (timing and level) must be stipulated in the project contract entered into between the
Mongolian Government and the UBMC because the revision of fare could not sometimes be
controlled by the UBMC alone due to politics and other reasons.
8) Application of Minimum Revenue Guarantee Mechanism
It is specifically difficult to control revenue risk during the launching period of the metro business.
Therefore, it is required to apply a minimum revenue guarantee mechanism at least during the initial
phase of the operation when commercial financing is structured for the procurement of rolling stock
by UBMC.
9) Subsidy Mechanism for Additional Investment
It is also necessary to examine and prepare a subsidy provision mechanism at least for the risk of
additional investment (addition of rolling stock, renewal of facilities, etc.) which is the most critical
risk for the cash flow of the UBMC in the future.
10) Establishment of Bank Account to earmark Infrastructure Use (Lease) Fee
It is preferable to pool the payment of the infrastructure use (Lease) fee which is to be paid by the
UBMC to the Mongolian Government, the owner of the Infrastructure. It is also preferred that the
payment is managed under the responsibility of the public. The pooled fund should be used for the
purpose of the compensation payment for the risk caused by the Government, the subsidy payment for
additional investment by the UBMC with certain conditions and so on.
11) Adjustment with Station Plaza Development
It is necessary for the Metro Project to adjust with the station plaza development and other
commercial development projects based on master plans created by the public. It is preferable that UB
City government initiate the tender for the development of the station plaza area and UBMC
participate in the implementation of these master plans and the evaluation committee of such tenders
in order to incorporate the proper intentions of the UBMC to the station plaza development along the
Metro corridor.
12) Adjustment for the Risks of Initial Phase of Operation
In order to mitigate risks of the initial phase of the operation, it may be worthwhile to examine an
adjustment mechanism for such risks in which the risk adjustment (renegotiation of contract
conditions including the finance) is to be made after both parties experience the first year of operation.
However, in such cases, the procurement of purely commercial financing may be difficult, thus much
more involvement of the public and more elaborated financing structure may be necessary.
6. Economic and Financial Evaluation
The economic analysis is to analyze if the return on a project is worth the investment from the
viewpoint of the national economy as a standpoint of the government, and the yardstick is the

xiii
Economic Internal Rate of Return (EIRR). The rationality of the investment in the project is evaluated
based on the EIRR estimate by comparing the economic costs and benefits over the life of the Project,
which is normally assumed to be 30 years after opening.
In general, the economic benefit of the transportation development project is defined as the savings in
vehicle operation cost (VOC) and travel time cost (TTC) of users attributable to the project. The
benefit is comparatively easy to quantify and is estimated through a “with-and without” comparison
of traffic demand analysis.
When the proposed mixed fare system (200 Tg within 2 km, 50~70 Tg/km over 2 km) based on the
traffic demand analysis is applied, EIRR is 18.6~20.6, which means that the project is economically
justified. In this case, the average fare is 426 Tg~452 Tg, but even in the case of the flat fare system
with the average fare of 600 Tg, EIRR is 16.0%.
As for financial evaluation, cash flow analysis is conducted to evaluate the project’s financial
viability. Evaluation indicators are Project Internal Rate of Return (PIRR) and Equity Internal Rate of
Return (Equity IRR).4 This study conducted cash flow analysis of two cases:
(1) An entity is supposed to be responsible for the metro project with all the investments of US$1.5
billion.
(2) The UBMC invests in US$200 million worth of rolling stock and related facilities based on the
two-tiered system.
In the first case, the cash flow situation of the entity will be too difficult to manage the project. Given
the average fare of MNT 600/passenger, the financial internal rate of return (FIRR) is computed at a
low 2.0% p.a. This means that the commercial operation of the project will be practically impossible.
Therefore, a two-tiered system is recommended to make the metro project financially feasible, that is,
as the infrastructure owner and as the service provider. As the service provider, or the operation
management body, the UBMC shall be established as a public company. The UBMC shall invest a
total of US$200 million for procurement of rolling stock and related E&M, and the operation cost and
renewal costs of rolling stock and E&M shall be covered by the fare revenue. Moreover, the UBMC
shall have a responsibility of paying a certain amount of the concession fee (or the infra-rent) to the
infrastructure owner (the state government) out of the fare revenue.
A cash flow analysis of the UBMC was conducted based on the following two fare systems:
- P0 Case: Average fare of MNT 400
- P1 Case: Average fare of MNT 600
Under an assumption that the annual infra-rent is equivalent to 2% of the initial infrastructure cost (or
US$26 million), the following results are revealed:
In the case of P0, PIRR is computed at 11.2%, and it drops to 6.0%, given a 10% increase of the cost
cum a 10% decrease of the revenue. Thus, the elasticity for risks is low, which concludes that the
metro project is not feasible enough.
On the other hand, in the case of P1, PIRR is 18.7%, which shows that the project is viable.
Furthermore, the PIRR can still stay at 13.8%, which is high enough, even if the cost and the revenue
changed with +10% and -10%, respectively.
The P1 Case shows another result that even though the infra-rent fee is raised to 3% (US$39
million/year), the PIRR is 15.9 %, which means that the metro business will still be viable.

4
Equity IRR is a converted quantity of future return to the capital as an annual rate of interest. It is also defined as a discount
rate at which the present value of all future cash flow is equal to the initial investment. To avoid confusion with Economic
IRR (EIRR), this section mentions it as Equity IRR.

xiv
7. Key Issues towards the Development of the UB Metro
In the development of the UB Metro, the following are the priorities to be addressed.
1) Consistency with the Railway Transportation Law
With a current railway transport law which is not updated with consideration of an urban railway, and
because the government issuing a permit for railway operation and arranging supervision is a basic
thing, it should be fairly flexible in terms of the law for the two-tiered system. It is also possible to
accept international standards and overseas standards as applicable in a special case.
If these are considered, it is possible to proceed with a comprehensive upgrade of the Metro under the
current law. However, from the very beginning, the current law is based on the concept of the
“Ulaanbaatar Railway,” which is a government-owned railway and does not presuppose an
independently operated railway like the Metro. And because the administrative agencies of
government employees in charge of supervision are not clearly separated from those in charge of
operations, there are a lot of unclear portions in terms of which laws actually apply to the Ulaanbaatar
Metro. Therefore it will be necessary to proceed with gradual coordination with the related
government agencies on how the law will apply to the progression of operations.
2) Establishment of “ Ulaanbaatar Metro Corporation (UBMC)”
The UBMC, as the implementing and operating body of the metro project, needs to conduct a survey
for a detailed plan and basic design of the UB Metro through discussions with the national
government. In addition, it is required to promptly establish the UBMC which is structured
collaboratively with the national and city governments and the private entities in line with the
Mongolian systems and actual circumstances because recruitment and training of staff need to be
conducted prior to the start of the operation.
3) Security of Multiple Financial Sources
The infrastructure is expected to be developed as public works to be executed by the government
sector, with support of ODA budget. The state budget and the Development Bank of Mongolia’s
(DBM’s) bonds, as well as Japanese Yen loan, will be utilized. In addition, it is expected that tax
revenue will increase in the future and it is also suggested to consider the development of a subsidy
mechanism under which a part of increased tax revenue is utilized for the metro project.
4) Formulation of Fare System and Policy
A rational public transport policy with a sustainable fare system, including social support to
commuters, students, elderly people, low income people, etc., needs to be established.

8. Next Actions towards the Realization of the UB Metro Project

The following actions are required as preparatory work towards the implementation of the UB Metro
Project.
1) Official Approval as a Priority National Project
In order to implement the UB Metro Project with the state budget and ODA loans, it is essential to
obtain Cabinet approval and be included in the national project list prepared by the Ministry of
Economic Development. Thus, UB City or the preparatory unit needs to proceed with the approval
process.
2) Establishment of an Implementation Mechanism（UBMC）
It is required to establish a UBMC preparatory unit and proceed with preparatory work through
discussions with stakeholders.
3) Improvement of Legal Framework for Construction and Operation of “Urban
Railway System”
The Railway Transportation Law covers the necessary items for railway business and has flexible

xv
contents, although the law does not assume urban railways. However, it is necessary to examine the
addition and revision of the technical regulations. In addition, the development of a legal system for
underground city development and underground space utilization is also necessary.
4) Implementation of Detail Design (D/D)
Once this project is approved as a national priority project and the government makes a decision of
the project implementation, the detail design (D/D) of the infrastructure component will be the next
step. The D/D is a package of engineering services, including:
(1) Detailed geological surveys;
(2) Detailed design for all infrastructure facilities and stations;
(3) Review of the project costs and the procurement scheme;
(4) Preparation of all tender documents;
(5) Environmental Impact Assessment (EIA);
(6) Review and improvement of related legal framework (the Railway Law and new regulations for
“Underground Development”); and
(7) Preparation of ODA loans for the infrastructure construction.
Possible finance sources for the engineering services above are two:
A: Mongolian state budget; or
B: Engineering Service (E/S) loan5 by JICA.
Needless to say, the first option is the most desirable. However, it is hard for the Mongolian
government to conduct the detail design of the infrastructure development by itself because the
project is the first urban transport system in Mongolia. Therefore, direct and indirect instructions
should be given to them by experienced countries. Thus, the second option is recommended to be
chosen on the assumption of Japanese technical support.
Regarding JICA’s support, there is another option that the D/D work be granted by JICA, only when
the Mongolian government requests a STEP loan 6 for the infrastructure development project in
advance. However, this option usually takes a long time for JICA’s technical appraisal prior to the
official commitment. On the other hand, it may be hard for the Mongolian side to make a decision on
the use of JICA-STEP loan before the D/D work is completed. Therefore, the grant option is not
necessarily recommendable.
5) Conduct of Environmental Impact Assessment (EIA)
According to the EIA Law of Mongolia and the Guidelines for Environmental and Social
Consideration of JICA, sufficient considerations on possible negative effects of the Metro project
seem necessary. Possible negative effects are related to topographical and geological features such as
land subsidence, groundwater pollution, air pollution, noise/vibration and accidents during
construction and noise/vibration after Metro operations begin. Therefore, EIA needs to be conducted
during the detail design prior to the start of the Metro Project.

5
Loan conditions: Annual interest rate: 0.01%; Payback years: 25 years; Grace Period: 7 years; Procurement: Tied.
6
STEP stands for Special Terms for Economic Partnership. Its loan conditions are as follows: Annual interest rate: 0.1%;
Payback years: 40 years; Grace period: 10 years; Procurement: tied; a special condition: more than 30% of the procurement
shall be covered by Japan-origin goods.

xvi
1 Proposed Study
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

1 Proposed Study
1.1 Background of the Study
Ulaanbaatar City had a population of 1.13 million in 2010, and it is estimated to increase up to
1.53 million by 2020, and 1.76 million by 2030. In addition, Relative to the entire population of
Mongolia, Ulaanbaatar’s population is predicted to increase up to 49.5% by 2030, a substantial
jump from 37.7% in 2005. This indicates a higher concentration of people in the city. On the
other hand, after the switchover to market economy in the 1990s, the economic growth has been
in full gear, and the Mongolian economy had grown by an average of 6.5% per year during the
decade from 2000 to 2010. In that period, Ulaanbaatar had grown annually by 7%, higher than
the national growth average. Further growth is expected with the opening of business operations
in Oyu Tolgoioi (copper mine large-scale development project) in 2013, and this mining sector
should be the leading force of Mongolian economy in the near future.
However, the existing infrastructure to support the above mentioned population increase and
economic activities is not enough. Urban utilities such as water, electricity, and heating are
almost in limited supply, and strategic solutions are required for each sector. Moreover, traffic
congestions in the central parts of the capital city have caused to limit effective economic and
social activities, so a comprehensively balanced urban transportation system is needed.
According to the 2011 survey on the transportation situation in Ulaanbaatar, the number of trips
per day is approximately 2.1 million, excluding “Walking”, and 3.1 million trips/day including
the “Walking”. The ratios of each transportation mode are as follows: Private Car, 28.6%;
Public Transport, 38.2%; and Walking, 33.2%. Compared with the data of 2007 Study on City
Master Plan and Urban Development Program of Ulaanbaatar City in Mongolia (hereinafter
referred to as “UBMPS”) , the use of “Private Car” and “Walking” have increased, while
“Public Transport” has decreased (modal share of “Public Transport” was 42.6% in 2007). With
reference to the rate of population growth, the expansion of vehicle ownership is rapid, and
within three years from 2007 to 2010, the population growth becomes 1.1 times, while the
number of registered vehicles increased to 1.8 times, and the number of vehicle ownership per
1,000 people had become 1.6 times.
The major reasons of the current traffic congestion in Ulaanbaatar are the following:
inconsistent compliance of traffic regulations by road users; lack of transportation operations
management; and insufficient transportation infrastructure construction/maintenance. In
addition, other causes include extension of traffic jam; traffic safety reduction; and deterioration
in public transportation services, as well as many other challenges and tasks that need further
improvement.
Based on these current situations, seven urban transportation development strategies were
proposed in UBMPS in March 2009. These are: 1) construction of public transportation system
for appropriate urban development extension; 2) efficient operations of automobile traffic; 3)
transportation infrastructure construction/maintenance focused on roads; 4) construction of
effective public communication facilities between regions and urban areas; 5) improvement of
transportation environment and disaster prevention functions; 6) institution-building for urban
transportation maintenance/operations improvement; and 7) sustainable activities of urban
transportation tasks.
Considering these strategies, the following transport systems are being planned: urban mass
transit (UMRT) for civil mobility improvement based on Ulaanbaatar Metro construction in the
city central zone; urban freeway from city east to city west; and new buffer roads around the
northern hilly region with disaster prevention functions.
The study team started to conduct surveys to build an appropriate project implementation
mechanism for the Ulaanbaatar Metro project by utilizing the JICA Public-Private Partnership

1-1
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

(hereinafter referred to as “PPP”) infrastructure project scheme. During the surveys, the study
team have discussed the possibilities of Ulaanbaatar Metro project implementation and
identified key issues for the implementation of the Metro project.

1.2 Needs for the Study

The Country Assistance Program for Mongolia by the Government of Japan was announced
officially in April 2012. The primary goal of the program is “Assistance to the self-help efforts
for poverty reduction through sustainable economic growth.” In order to achieve this goal, the
program focuses on the following three issues (medium-term goals):
(1) Sustainable development of mineral resources and strengthening governance
(2) Assistance for extensive socio-economic growth to attain good quality of life for the
people
(3) Strengthening urban functions of Ulaanbaatar city
With regard to the third point, “Strengthening urban functions of Ulaanbaatar city,” which is
closely related to the Metro project, the Japanese government showed its policy that it will
continue to provide necessary support on both hard and soft aspects in order to realize “the City
Master Plan and Urban Development Program of Ulaanbaatar City 2030” as proposed by the
UBMPS study team.
To be more specific, the following are focused on: (1) the development of laws and regulations;
(2) the capacity development of governmental organizations in charge of the urban planning,
and urban development and management; and (3) the promotion of the infrastructure
development by using the knowledge and techniques of Japan. The Metro project is in
accordance with this policy and regarded as an important project for Japan.
As other studies such as UBMPS have already revealed the needs for a public transportation
system, it is not too much to say that an effective public transportation system and strategic
urban planning will support sustainable growth of the city. Moreover, it has already become an
accepted truth that an effective public transportation system contains a Metro system and Bus
Rapid Transit (BRT). Considering the fact that the population of Ulaanbaatar City continues to
increase and a number of socio-economic activities are likely to take place along the
mass-transit corridor, it can be concluded that the needs for the projects are growing.
Furthermore, its economic efficiency and potential demand were confirmed in UBMPS.
The Technical Assistance for Improvement of Urban Transportation System in Ulaanbaatar,
the proposed BRT system by Asian Development Bank (ADB), and the feasibility study by the
Public Transport Department of Ulaanbaatar City are also the actions that reflect the need for
public transportation.

1.3 Methodology of the Study

1.3.1 Objectives of the Study
Line 1 (east-west line) of Ulaanbaatar UMRT system is the target model of this study. The study
aims: 1) to research on the most suitable mass transit system comparing the proposed UMRT to
other systems; 2) to suggest a feasible PPP scheme to realize and manage proposed Ulaanbaatar
UMRT system; and 3) to reveal critical points to provide Japanese official development
assistance (ODA) and private investment.

1-2
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

1.3.2 Target Area of the Study

The target area of the study is Ulaanbaatar City, Mongolia.

1.3.3 Study Items and Framework

This study includes the following three main tasks:
【1】Analysis on socio-economic and project implementation conditions in Mongolia;
【2】Proposal on the implementation plan for a PPP project; and
【3】Proposal on project implementation mechanism and structure.
This study was conducted for 19 months starting from September 2011 until March 2013. All
the study items and the timeline for each task are shown in Figure 1.3.1.
In the first phase of the study, the major findings based on operations of Task 1 and Task 2 were
introduced in the interim report prepared in March 2012. At that stage, technical considerations
for schematic scenarios and proposed systems were done, and the entire picture and framework
of the Metro project were clarified.
In the second phase of the study, with all the survey results of Task 3, the project
implementation plan was made and issues were addressed in the draft final report, which was
prepared in January 2013. In this stage, various aspects of the PPP implementation scheme are
studied, including economic and financial analysis, financial management plan, procurement
plan, legal system, and project management and organizational structure. About eight months
after consultations on the interim report were allocated to complete the draft final report
including the coordination with stakeholders. The final report is formulated in May 2013 after
careful checking and corrections of the draft final report based on comments and suggestions
from concerned departments in the Government at the national and local levels.
After the submission of the interim report, the study team spent enough time to develop a
feasible project implementation system and create a schedule of concrete actions to realize the
Metro Project through consultation with stakeholders

1-3
2011 2012 2013
8 9 10 11 12 1 2 3 4 5 6 7 8 9 10 11 12 1 2 3
　Major Milestones Preparation in
1st Field Research 2nd Field Research Final Arrangement
Japan

△ 【1】 Analysis on socio-economic and 【 2】 Proposal on the

△ △ △
Reporting project implementation conditions in
ICR implementation plan for a PPP ＩＴＲ 【 3】 Proposal on project implementation mechanism and structure DFR FR
JCC ●1st Mongolia project ●2nd ●3rd

Coordinations with Coordinations with Coordinations with Coordinations with

JICA JICA JICA JICA

【1-1】 Socio-economics conditions

【3-1】　Organizational structure for project
implementation and operation
【2-1】　Proposal of integrated urban development system

【2-2】　Demand forecast of project 【3-2】　Analysis on legal and approval 【3-3】　Financial options and planning for project
system for contract implementation
Final Report (Copy for Public Use)

【1-2】 Existing conditions, issues and 【3-4】　Condition of the contract to the

government development plan of the SPC by the government of Mongolia and
transportation sector Ulaanbaatar City government

【2-3】　Proposal of project scope 【3-5】　Evaluation, analysis and share of the

【1-3】 Review of existing plans and studies
Tasks in Mongolia risk associated to the implementation of the Coordinations with
project relevant organizations to
【2-4】　Design criteria develop Final Report
【3-6】　Funding source (revenue from the
metro operation, public budget, state
【1-4】 Conditions of PPP related legal subsidy.)
system
【2-6】　Preliminary design 【3-7】　Establishment of operation and effect
indicators
【1-5】 Movements of other private
companies in the transportation sector
and the Ulaanbaatar LRT Project 【2-7】　Preliminary 【3-8】　Proposal for current
implementation plan legal system and human
【1-6】Condition of land use around the resources development
project site
【2-8】　Cost estimate 【3-9】　Financial analysis of the implementation institution
and the project

1-4
【1-7】 Identification of project needs
【3-10】　Procurement plan
【1-8】Analysis of project risk 【2-9】Economic
analysis（EIRR）
【3-11】　Financial analysis of private parties（FIRR,
【1-9】 Analysis on social and NPV, ROI, ROE）
environmental conditions
【2-10】　Drawing up of project
implementation schedule
【1-10】 Compliance to country assistance
plan and JICA country assistance strategy 【3-12】　Operation, maintenance, and
management structure
Implementation of Sub-contract Survey

【Ｃ】　Environmental Assessment Recommendation

【A】　Road/Transportation Survey
Sub-contract Survey Survey from EIA
【3-13】　Suggestions on capacity development
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA

【B】　Geological Survey (Boring support for staffs

Survey)

Environmental Consideration 【2-5】　Environmental impact assessment

Inception Report Interim Report (ITR) Draft Final Report (DFR)

Reporting Final Report (FR)
(ICR)

Discussion on Inception Discussion on Discussion on Draft

Discussion/Feedback Report Interim Report Final Report

Figure 1.3.1 Study Items and Framework

1-4
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

1.4 Approaches in Conducting the Study

1.4.1 Approaches for Technical Aspect
Survey will be conducted based on the following six points, for the technical aspect:
• Commercialization as PPP project
• Consideration for the appropriateness and relevance of project scale
• Environmental and social considerations
• Review of existing studies
• Survey to update a simulation model for traffic demand analysis
• Planning issues to propose an integrated urban development model

1.4.2 Approaches for Study Implementation Aspect

Survey will be conducted based on the following three points, for the study implementation aspect:
• Information exchange with Mongolian government
• Understanding recent moves of other organizations
• Organization of JCC and its regular meetings

1.5 Structure of the Study Team

In accordance with the tasks to be performed, the team is divided into six groups. Although the
study team covers a variety of fields, all groups work closely and cooperatively with one another.

Urban Planning ▪ Transportation

System ▪ Transit Corridor
Development
Intermodal Transportation System
Urban Planning・Redevelopment Project
Transit Corridor Development Planning
Transportation Demand
Environmental Assessment
Forecasting
Environmental and Social
Traffic Survey
Consideration
Traffic Analysis &
Management Group Environmental Analysis
Forecasting
Project Manager (PPP Project Model) (CDM)
Deputy Project Manager (Urban
Transportation Policy)
Deputy Project Manager (Railway

Railway System ▪ Technology Planning, Legal System)

Railway Structure Planning and
Design
Project Implementation Planning
Tunnel Structure Design
PPP Legal System Development
Utility Planning
Organizational Planning
Station and Related Facility Planning
Economic and Financial Analysis
Railway System and Operation
PPP Project Model
Planning
Financial Management Planning

Source: JICA Study Team

Figure 1.5.1 Structure of the Study Team

1-5
2 Current Situation and
Issues of Development of
Ulaanbaatar City Region
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

2 Current Situation and Issues of Development of Ulaanbaatar

Region
2.1 Current Situation, Issues and Related Projects of Development of
Ulaanbaatar Region
2.1.1 Urbanization
(1) Population
The population of Ulaanbaatar (UB) City was 590,000 in 1990, 642,000 in 1995, 787,000 in
2000, 965,000 in 2005, and 1.13 million in 2010.
About 27% of the country’s population lived in UB City in 1990. The population concentration
of UB City, having been spurred by economic growth after the country’s shift to a market
economy system in early 1990s, reached 41% in 2011. This trend is expected to continue and
UB City’s share in the population will become larger in the future.
Over the last 20 years, the country’s population has grown at an average rate of 1.3% per annum,
while that of UB City is 3.3%. Although the population growth rate of UB City was more than
4% per annum for a decade from 1995 to 2005, it slowed down to 3.2% from 2005 to 2010. The
population had been increasing by 34,000 people every year for 20 years from 1990 to 2010.
Table 2.1.1 Population of Mongolia and Ulaanbaatar
Mongolia UB City Share of UB City (%)
（thousand） （thousand）
1990 2,153.4 586.2 27%

1995 2,243.0 642.0 29%

2000 2,407.5 786.5 33%

2005 2,562.4 965.3 38%

2010 2,780.8 1,131.2 41%

Source: Mongolian Statistics, UB City Statistical Yearbook

(2) Population Distribution of UB City

The total area of UB City is 395,425 has, of which 7% or 27,409 has. is urbanized and further
consists of apartment areas (11.8%) and ger areas (88.2%).
The population of the six central districts in UB City was 1,099,775 as of 1 January 2011, with
424,219 or 38.6% in apartment areas and 675,556 or 61.4% in ger areas. The average population
density is 183 persons/ha in apartment areas and 26 persons/ha in ger areas based on the Team’s
Geographic Information Systems (GIS) analysis.

Table 2.1.2 Urbanized Area and Population Distribution

in Six Districts of UB City (2011）
Item Apartment Area Ger Area Total
Area（ha） 2,318 25,707 27,409
Population (thousand) 424.2 675.6 1,099.8
Population density (persons/ha） 183 26 40
Source: UB Statistics, and JICA Study Team based on GIS analysis

2-1
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Soruce: JICA Study Team’s GIS database

Figure 2.1.1 Apartment Areas and Ger Areas in UB City

(3) Economic Growth of Mongolia

Mongolia’s economy has been growing steadily since 1992 when the nation became a market
economy. Table 2.1.2 illustrates the trend of GDP with reference to 1992’s GDP of 100. After
the GDP hit the bottom in 1993, it grew at an average rate of 5.1% until 2010, showing a 6.5%
growth from 2000 to 2010. It slumped in 2009 because of the Lehman shock in September 2008.
However, it recovered and returned on the rise along with its growth with the emergent support
from IMF, financial support from ADB, WB and JICA. In addition, there was an influx of
investment recovery in the mining sector along with the recovery of copper price, showing real
growth rate of GDP at 6.4% in 2010, 17.3% in 2011, the fastest growth rate in the world. The
IMF’s Article IV Report (Mongolia – 2012 Article IV Consultation and Third Post-Program
Monitoring, Country Report No. 12/320, November 2012) estimates 11.2% in 2012 and 16.8%
in 2013. GDP forecast in 2013 was revised downward but it is expected to keep the double digit
growth in the mid and long term. This economic growth has accelerated the population
concentration and urban development in UB City.
The GDP per capita was USD 2,300 in 2010, and the Ministry of Finance has estimated that it
would reach USD 3,800 in 2012, and USD 12,000 to USD 13,000 in 2020.

2-2
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Source: IMF - World Economic Outlook Databases (April 2012)

Figure 2.1.2 GDP of Mongolia (100 in 1992)

(4) Urbanization Impact

Most immigrants to UB City have recently settled in ger areas where infrastructure is
inadequately provided. Once these people settle in ger areas of little infrastructure, it would cost
much time and money to reorganize the areas into a settlement with a good living environment.
In order to avoid such expansion of the ger areas and to lessen the cost for infrastructure
provision and adverse environmental impacts in forming a sustainable UB City, it is imperative
to construct a compact urban spatial structure with well-planned public transportation as its
spine.
The population concentration in UB City has increased the demand for various infrastructure
and utilities and has had an adverse environmental impact. These resultantly elicited urban
problems including inadequate supply of water, electricity and heating, lack of treatment of
wastewater and solid waste, and uncontrollable air pollution, water and soil contamination.
Relatively, the present road network of UB City was planned in a master plan in 1975 when the
city’s population was 349,000. The number of cars registered was 10,044 vehicles, and car
ownership ratio was 2.9%. The plan targeted to cope with only 400 to 500 thousand people. In
2010, the population reached 1.11 million; the number of cars registered was 167,809 vehicles,
and the car ownership ratio became 14.6%. Compared to 1975, the population became 3.2 times
greater, the number of cars registered was 16.2 times more, and the car ownership ratio was 5
times higher. For the past 35 years, the trunk road network has had limited improvements, that
are inadequate to meet the increasing traffic volume. Consequently, this has lead to traffic
congestion. Improper traffic management, bad driving manners, and on-street parking have
worsened the traffic conditions.

2.1.2 Urban Development Trend

Urban development, both redevelopment of built-up areas and new development, has been
progressing in UB City along with the economic growth and population increase. Urban
development patterns found in UB City are shown in Table 2.1.3.

2-3
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

As the UB Metro Project will be developed along Peace Avenue, accompanying urban
development projects include: (1) redevelopment of apartment and commercial buildings in the
central area along Peace Avenue; (2) redevelopment of the ger area along Peace Avenue; (3)
new development in suburbs integrated with UB Metro development, and new development
integrated with the UB Metro development in the suburbs near the intermodal railway stations.
Furthermore, after the second phase of the UB Metro development, (4) new towns in the
suburbs should be integrated.
Table 2.1.3 Urbanized Area and Population Distribution
in Six Districts of UB City (2011）
Pattern Description
(1) Infill development in Many high-rise buildings have been constructed on open space
built-up areas on open such as courtyards of apartment buildings in the central area of
space such as
courtyards of Russian UB City although this open space was originally designed for
style apartment buildings dwellers and neighbors to socialize and for children to play.
Urbanization led by such intensive and dense development is
done often without proper traffic impact assessment, and this
causes degradation in the public service level like the schools
and parks.
(2) Reconstruction As stipulated in the Housing Law, old apartment buildings that
development of old are evaluated as “not being seismic resistant” by the State
apartment buildings
Inspection Agency should not be occupied and must be
reconstructed. In UB city, at present, there are 263 old apartment
buildings, 27 of which are listed as “old apartments to be
reconstructed” by UB City. Difficulty in finding investors to
reconstruct these apartment buildings hinders the reconstruction
projects.
Some cases with investors have reconstruction plans at the rate
of 10 or 20 times the current apartment units but without
adequate provision of schools, parks, and car parks. This
scenario would likely cause the shortage of public facilities.
(3) Redevelopment in Ger Several large redevelopment projects in ger areas, such as the
Areas th th
7 khoroolol, the 14 khoroolol, and the Gandan Temple area in
central UB City are confronting problems on land acquisition and
implementation not consistent with the plan.
Those have been implemented with the land acquisition not
under the urban redevelopment law. These projects are rather
stagnant because in many cases the land acquisition cost
surpasses the developers’ financial capacity.
(4) New Town Development There are new development of fashionable, up market high-rise
apartment buildings around the Zaisan area and the Tuul River.
In the west part of the city, new town development plans have
been approved by UB City, including Bayangol and Yarmag.
These large development projects are not consistent with the
development of public facilities of the transportation network, and
schools, and park and likely to cause urban problems..

2-4
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

(5) Expansion of Ger Area Expansion of the ger areas that are not equipped with adequate
infrastructure is one of the urban problems UB City is confronting
and would like to have strong control over; however, these areas
are expanding because of lack of low cost housing to absorb the
many immigrants who settle on the fringe of the ger areas.
The new administration announced the active development of
these areas; however, it is likely unachievable due to the lack of
plans and the budget constraints.
Source: JICA Study Team

Ger area
Ger area
expansion
expansion

Infill
Ger area
development in expansion
Old apartment 7th district apartment area
reconstruction

Bayangol Gandan

th
14 district

Tuul River,
Yarmag Zaisan Area

Source: JICA Study Team

Figure 2.1.3 Diagram of Urbanization Direction of Ulaanbaatar City

2-5
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

2.1.3 Related Projects

Projects strongly related to UB Metro are the BRT development project by ADB and the UB
City Feasibility Study (FS) of the UB subway system by a Korean consultant.

(1) The ADB BRT Project

The ADB BRT project, which has a total length of 64.5 km, contains three tranches as shown in
table below. The first tranche has just been started to implement the north-south green line
shown in the figure below.
Table 2.1.4 Urbanized Area and Population Distribution in Six Districts of UB
City (2011）
Tranche1 Tranche 2 Tranche 3
Tranche Total
(2012～2014) (2014~2016) (2016~2018)
Length (km) 14.0 km 27.9 km 22.6 km 64.5 km

Source: ADB, Presentaton material, Ulaanbaatar Transport Development Project (MON-MFF: TA 7156-MON), 31
January 2012

2-6
2-7
Source: ADB, Presentaton material, Ulaanbaatar Transport Development Project (MON-MFF: TA 7156-MON), 31 January 2012

Figure 2.1.4 BRT Plan by ADB (2012-2019)

THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

(2) Feasibility Study of Metro Construction Project in UB City

1) Outline of Metro Project
A feasibility study for Metro construction in UB City was conducted by a Korean company
group in 2011. The outline of the Metro Project is shown in Figure 2.1.4 and Table 2.1.5. The
east-west line runs along Peace Avenue from Amgalan in the east to Emeelt (new town area) in
the west, totaling 28.38 km in length with 21 stations. Of this 28.38 km, 21.12 km is
underground in the section running through the central area of UB City, 16.64 km is elevated on
both sides of the underground section, and 1.62 km is in the easternmost section at grade.
Open-cut and the New Austrian Tunneling Method (NATM) have been examined as methods for
underground work, and the open-cut method has been selected as the more feasible one. The
shield method was not examined in the feasibility study.

Source: Final Report, Feasibility Study on Metro Construction Project in Ulaanbaatar City, June 2011, UB City

Figure 2.1.5 Metro Routes Studied in FS

Table 2.1.5 Outline of East-West Route

Item Description
Length 28.38 km
At grade 1.62 km
Structure Bridge (elevated) 14.64 km
Underground 12.12 km
At grade 1
Elevated 8
Station
Underground 12
Total 21
Underground work method Open-cut
Source: Final Report, Feasibility Study on Metro Construction Project in Ulaanbaatar City, June 2011, UB City

2-8
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

2) Demand and Operation Plans

The demand and operation plans are shown below.

Table 2.1.6 Operation Plan for East-West Route

Item Description
Length 28.38 km
Target year 2047
Traffic demand 20,858（trips/hour）
Peak demand 4,135 (p/h/d)
Mode selected LRT
Average distance between stations 1.32 km
18 formations（4 cars/formation）
Train formation 16 for operation and 2 for reserve
Total 72 cars in rolling stock
Congestion rate 120％
Number of passengers per train 469 passengers
Head way
6.67 minutes（9 trains/hour）
(Peak operation interval)
Operational (commercial) speed 35 km/h
Operational Frequency 129 trains/day/direction
Operational time 47.5 minutes (one way)
Note: No utility cost is included.
Source: Final Report, Feasibility Study on Metro Construction Project in Ulaanbaatar City, June 2011,
UB City

3) Cost Estimate
The cost estimate for the Metro Project is shown in Table 2.1.7. The total cost estimated is MNT
2,787 billion and the annual operation cost is MNT 230 million.
Table 2.1.7 Cost Estimate for East-West Route
Item Amount （million MNT）
Railway 924,729
Civil work Station 370,768
Subtotal 1,295,489
Construction Track 122,043
cost Architecture 150,959
System 583,989
Removal of obstacles 35,632
Subtotal 2,188,112
Land acquisition 48,978
Rolling stock 153,216
Incidental expenses 177,906
Contingency 218,811
Total 2,787,023
Annual operation cost 23,138
Note:
(1) Utility-related costs are not included.
(2) Removal of obstacles includes that of utility pipes, houses and buildings.
(3) With no explanaition in the source report, incidental expenses are thought to include

2-9
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

design, survey, test, and so on.

(4) Exchange rate is not described in the source report; as of 30 June 2011, US$1 equals
MNT 1,258, and MNT 1 equals Yen 0.064, according to the exchange rate converter on the
following website: http://www.oanda.com/lang/ja/currency/converter/.
Source: Final Report, Feasibility Study on Metro Construction Project in Ulaanbaatar City, June 2011, UB City

4) Financial Analysis
As shown in Table 2.1.8, a financial analysis has been done for the 30-year period from 2011 to
2047 with the construction period from 2011 to 2017 and start of commercial operation in 2018.
The projected number of passengers in 2018, the starting year of operation, is 133,515
passengers/day, and will gradually increase to reach 172,377 passengers/day by 2030. This will
remain at the same level until 2047.
Fare employed for the analysis is MNT 300, the same amount as the bus fare in the city at the
time the study was conducted.
As calculated, revenue combined from operation and non-operation will not be able to surpass
operation cost, even after the maximum number of passengers is reached in 2030, and will result
in a deficit of MNT 200 million every year.

2-10
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Table 2.1.8 Profit Loss Statement for East-West Route

Passeng Cost (100 million MNT) Income (100 million MNT) Profit
ers (100 million
Year
（pax/day） Non-oper MNT)
Construction O+M Total Operation Total
ation
2011 403 403 0 -403
2012 403 403 0 -403
2013 1,006 1,006 0 -1,006
2014 3,019 3,019 0 -3,019
2015 5,094 5,094 0 -5,094
2016 7,172 7,172 0 -7,172
2017 4,677 116 4,793 0 -4,793
2018 133,515 2,084 231 2,315 164 16 180 -2,135
2019 137,574 2,428 232 2,660 169 17 186 -2,474
2020 141,756 930 232 1,162 174 17 191 -971
2021 144,492 232 232 177 18 195 -37
2022 147,281 233 233 180 18 198 -35
2023 150,123 233 233 184 18 202 -31
2024 153,021 233 233 188 19 207 -26
2025 155,974 233 233 192 19 211 -22
2026 159,125 234 234 195 20 215 -20
2027 162,239 234 234 199 20 219 -15
2028 165,618 234 234 203 20 223 -11
2029 168,964 235 235 207 21 228 -7
2030 172,377 235 235 212 21 233 -2
2031 172,377 235 235 212 21 233 -2
2032 172,377 235 235 212 21 233 -2
2033 172,377 235 235 212 21 233 -2
2034 172,377 235 235 212 21 233 -2
2035 172,377 235 235 212 21 233 -2
2036 172,377 235 235 212 21 233 -2
2037 172,377 235 235 212 21 233 -2
2038 172,377 235 235 212 21 233 -2
2039 172,377 235 235 212 21 233 -2
2040 172,377 235 235 212 21 233 -2
2041 172,377 235 235 212 21 233 -2
2042 172,377 235 235 212 21 233 -2
2043 172,377 235 235 212 21 233 -2
2044 172,377 235 235 212 21 233 -2
2045 172,377 235 235 212 21 233 -2
2046 172,377 235 235 212 21 233 -2
2047 172,377 235 235 212 21 233 -2
27,216 7,142 34,358 6,048 605 6,653 -27,705
Source: Final Report, Feasibility Study on Metro Construction Project in Ulaanbaatar City, June 2011, UB City
Note: Non-operational income is calculated at 10% of the operational income.

2-11
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

(3) Flyover
UB City has planned seven flyovers as shown in Figure 2.1.5
1) West Intersection
2) East Intersection
3) Sapporo Intersection
4) Bayanburd Intersection
5) Tolgoit
6) Ajilchin
7) Intersection at Olympic Street and Naranii Zam
Of the seven flyovers, intersections 1, 2, 3 and 5 are located in the area for the first phase of this
JICA UB Metro Plan; thus, coordination needs to be considered upon the design. Flyovers for
the West Intersection and East Intersection have already been designed and approved by the UB
City government, and the contractors have been selected. Bidding for Sapporo Intersection
Flyover was conducted; however, it will be re-bidden in March or April 2013.

① West Intersection
② East Intersection
③ Sapporo Intersection
④ Bayanburd Intersection
⑤ Tolgoit
⑥ Ajilchin
⑦ Intersection at Olympic Street and
Naranii Zam

Source：UBMP 2030

Figure 2.1.6 Location of Planned Flyovers

2.2 Urban Development Policy and Related Legal Framework

2.2.1 Urban Development Policy
(1) Urban Development Policy
Presently, the following four policies are addressed as national important policies: (1) Air
pollution, (2) Poverty Alleviation, (3) Housing Development, and (4) Small-Medium
Enterprises Promotion. Among them, air pollution and housing development are strongly related
to the urban development. Smoke from stoves used in the ger areas is the biggest cause of air
pollution during winter; therefore, conversion from gers to apartments is one of the critical
issues to be addressed to resolve the serious problem on air pollution. In addition, supplying
housing with engineered infrastructure at a low cost absorbs many immigrants to UB City, but is
still unsuccessful because the number of immigrants settling in UB City outpaces the housing
supply.

2-12
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

With these development policy issues and the general elections held on 29 June 2012, both
national and UB city have changed their ruling party to the Democratic Party. They are
considering the UB Metro as one of the important policy issues.
UB Metro can greatly contribute to the mitigation of air pollution by restructuring UB City to
the urban structure with sophisticated public transportation system. In addition, the UB Metro
development is expected to bring about a positive economic impact on employment creation,
commercial development, and tax revenue.
(2) Political Promises of UB City Mayor approved by the City Council
On 15 November 2012, political promises to be implemented during 2012-2016 were approved
by the City Council. The promises include 107 projects on the mitigation of air pollution, the
development of detached house areas, job creation, security and safety, and the creation of a city
without corruption. The Metro is among them to be opened in 2020.
(3) Memorandum between Minister of MRT and UB City Mayor
On 17 October 2012, the Minister of Ministry of Road and Transportation (MRT) and the UB
City Mayor concluded a memorandum of their cooperation during 2012 – 2016 for the purpose
of implementing programs during 2012 – 2016 creating better living condition for the citizens
and safe and reliable transportation systems in UB City. The following items related to urban
transportation were described in Section 2.3 (Railway Related) of the memorandum:
1) Construct the basic structure of Bogdkhan Railway (170km) to increase the speed of the
railway, shorten the time which trains run through Mongolia, and secure better living and
working conditions;
2) Develop a second East-West public transport corridor by developing LRT on the railway
track running through Ulaanbaatar (35 km between Khonkhor-Tolgoit) after the bypass
construction;
3) Relocate railway depots for locomotives, and passengers and freight trains from within UB
city area;
4) Develop overpasses and underpasses at railway crossings at Dunjingara (at 407 km),
Tawabn Shar (near Trade Street, at 396 km) for a better traffic flow;
5) Relocate logistics terminals in the city center and develop comprehensive logistics centers
for the complex freight transportation;
6) Relocate Passenger Transportation Terminal (Central Railway Station) near Tolgoit;
7) Implement Ulaanbaatar Metro project as a cooperative project between Mongolia and Japan
in order to alleviate the traffic congestion and to create the advanced Metro with high
capacity;
8) Analyze noise and damage of buildings and houses built in the railway safety area, and
consider buildings built within 25 m from locomotives depot in Ulaanbaatar and fuel
(6,000t) warehouses and facilities built without permit in the railway premises; and
9) Decide where to build the buildings and facilities of the Railway Transportation Central
Control Center.

2-13
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Source: JICA Study Team

Figure 2.2.1 Bogdkhan Railway Project

Source: JICA Study Team

Figure 2.2.2 Location of Facilities of Ulaanbaatar Railway

2-14
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

(4) Memorandum between Minister of MCUD and UB City Mayor

On 5 October 2012, the Minister of Ministry of Construction and Urban Development (MCUD)
and the UB City Mayor concluded a memorandum of their cooperation during 2012-2016 for
the purpose of implementing “government programs during 2012 – 2016” and creating better
living condition for the citizens in UB City. The memorandum includes the facilitation of
approval and implementation of Ulaanbaatar Master Plan, the relationship of land-related
projects and urban planning, the reliable urbanization and infrastructure development, and the
support for sustainable development from the natural and biological viewpoint. In relation to
metro development in Ulaanbaatar City, it aims to “formulate development concept and plan of
Underground City (2012-2016).”

2.2.2 Laws Related to Transportation and Urban Development

(1) Transportation Related Laws
1) Railway Transportation Law
The Railway Transportation Law was enacted on 5 July 2007. Article 4 of this law stipulates
that the law applies to all railway transportation; however, this was made to target the regional
railway transportation of Ulaanbaatar Railway and therefore, it is thought that the law does not
assume specifically urban railways, electric cars, and underground metro systems.
This law stipulates the following: Ownership of railway facility (Art. 6), Fare (Art. 7), Authority
of State, Government, Governors (Art. 8~11), Government organizations to control railway
transportation (Railway Transportation Administration and Train Operation Central Office) (Art.
12), Railway transportation regulations (Art. 15), Special permission regarding railway
transportation service (Art. 16), Organizations and Individuals who can participate in railway
business (Art 18), Right and duties of owner of infrastructure (Art. 19), Railway facilities (Art.
22~23), Basic conditions for railway transportation safety (Art. 24~28), and others.
Mongolia has two kinds of technical control. One is “regulation” which must be complied with
and enforced under the authority of the state and requires the state procedure. The other one is
“standard” which simply shows specifications as a standard and does not necessarily require
compulsory authority. Sixteen items stipulated in the Railway Transportation Comprehensive
Regulations are “regulations” with enforcement authority.
The Central Government Organization administrating railway transportation stipulated in
Article 10 is MRT; in Article 12, it was the Railway Authority. . But due to the governmental
organizational reform, the two were merged into MRT, while currently, the organization in
Article 12 refers to the Department of Railway and Maritime Transportation Policy
Implementation and Coordination.
Railway operators, as stipulated in Article 18, may be private but they must be examined by the
Railway Authority.
The Railway Transportation Law covers the necessary items for railway business and has
flexible contents. As described above, the law does not assume urban railways but it can be
applied to them. However, it is necessary to examine the addition and revision of the technical
regulations because it is thought that the law was not originally provided for urban railway.
Technical regulations stipulated by the Railway Transportation Law regulate only the
Ulaanbaatar Railway and those trains running on the tracks of the UB Railway; and they include
detailed items that can be decided in “technical standards.” As such, the regulations should be
reviewed in order to introduce various urban railway systems in the future.

2-15
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Technical regulations are divided into three categories: (1) safety requirements, (2) regulations
on track specifications, and (3) level of service including “barrier-free” or “universal design.”
Of these, safety requirements are determined once items related to safety are specified. The
extent and contents of track specifications and service level are to be considered as policy
issues.
In general, (1) safety requirements must be determined according to the regulations. As for (2),
the most important issue is rail gauge. The Ulaanbaatar Railway uses a specific broad gauge.
But for the track sharing between interurban railways and international railways and the
extension of urban railway networks, the gauge of urban railways must be determined as a
policy issue as early as possible.
Although the Railway Transportation Policy was issued as a government resolution on 4 June
2010 as is stipulated in Article 8.1.1 of the Railway Transportation Law, this describes only
regional railway transportation at the national level, not the urban railway systems. A taskforce
was established and is planning to amend the Law to cover the urban railway by December
2012. However, as of December 2012, there is no progress regarding this issue.
2) Road Public Transport Related Laws
Public transport such as buses on roads is defined in the Road Transportation Law enacted on 4
June 1999. This law stipulates the authority of governments (Art. 4 ~ 7), the rights and duties of
transport operators (Art. 10), the rights and duties of users and passengers (Art. 11), the fare
(Art. 12), the license (Art. 15), etc.
Article 43.2.5 of the Education Law also stipulates a special compensated transport fare for
public transportation of students. Students enjoy special compensation for use of public
transportation except for taxis in Aimag and Ulaanbaatar City. The compensation amount is
decided upon approval of the Aimag or UB City Council. This should be applied to the UB
Metro and will thus influence fare box revenue.

(2) Urban Development Related Laws

The extent of urban development and underground development around UB Metro stations is
yet to be decided for the PPP scheme of the UB Metro Project. This PPP study is supposed to
examine and propose models of the urban development as well as the UB Metro Project. Urban
development related laws are shown below although there is no law stipulating the underground
urban development.
Table 2.2.1 Urban Development Related Laws
Law Description
Urban Development Law This law, controlling urban planning and development, was
enacted in 2008 and is under amendment.
Urban Redevelopment Law This law concerns projects of urban redevelopment in ger
(under enactment) areas, land readjustment in ger areas, old apartment
reconstruction, and improvement of substandard built-up areas.
It is being prepared for passage at the Parliament.
Construction Law This law permits construction.
Land Privatization Law This law, enacted in 2003, stipulates privatization of land and
things related to privatized land. In case of acquisition of private
land for the UB Metro Project, the law stipulates acquisition and
compensation for private land.
Land Law This law stipulates possession and use of land. It is under
amendment. In case acquisition of possessed or used land is

2-16
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

required for the UB Metro Project, the law stipulates acquisition

and compensation for such lands.
Housing Law This law was amended in February 2011 and a new article was
added about old apartment building reconstruction. The new
article stipulates that residents of non-seismic resistant old
apartment buildings are not allowed to reside in those buildings,
and the old apartment buildings must be reconstructed. Such
apartment buildings are found along Peace Avenue and have
been incorporated into the urban development plan in an
integrated manner with the UB Metro Project.
Land Acquisition and This law concerns land acquisition for public purposes,
Resettlement Law compensation, and resettlement. It is being prepared with
technical assistance from ADB. The UB Metro Project possibly
needs to acquire land for public purposes such as stations and
station squires.
Difficulty in land acquisition often hinders implementation of
urban redevelopment projects even if they have been approved
by the government. Ineffective compensation with
non-functional evaluation methods of land and apartments is
one of the obstacles in smooth implementation of urban
redevelopment projects.
Land Fee Law This law specifies fees for possession and use of land. Fees
are extremely high for land possessed and used for private
residences, but apartment dwellers do not pay this fee. Through
this law, asset value accrued to commercial development from
the UB Metro should be collected and redistributed to the public
sector.
Immovable Property Tax Law Through this law, values accrued to immovable property along
the UB Metro Project shall be collected.
Source: JICA Study Team

Regarding underground development, the “Four-Year National Financial Program (2013-2016)”

includes a ”survey on the formulation of legal framework and an action plan for the
underground development related to the UB Metro project,” which is being planned by MCUD.
On the other hand, UB City gave an order that the responsible department shall implement a
basic study on the underground development. In this way, administrative actions have just
started in Mongolia.

2.3 Future Development Vision and Policy of Ulaanbaatar Region

2.3.1 Ulaanbaatar City Master Plan 2030 (draft)
(1) Outline of Ulaanbaatar City Master Plan 2030 (draft)
UB City formulated the Ulaanbaatar Urban Master Plan targeting year 2030 [UBMP 2030] as a
legally authorized master plan, based on the JICA Master Plan Study (March 2009). The UBMP
was officially approved by Parliament in February 2013. The following outlines the UBMP
2030.
1) Planning Issues
Need for development with limited developable land restricted by
environmentally sensitive areas such as water source areas and rivers

2-17
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Inadequate provision of infrastructure to keep pace with increasing

population
Environmental pollution
Difficult materialization of housing supply projects as planned.
2) Planning Policy
Control by urban planning and land use zoning
Prevention of overconcentration in UB City
Countermeasures for ger areas
Planning measures for summer areas
Provision of urban infrastructure, particularly water supply and measures on
urban transportation
3) Future Population Framework
The population of UB City accounted for 41% of the national total population in 2010, and is
projected to reach 50.3% by 2030.
Table 2.3.1 Future Population Projection of Mongolia and UB City
Mongolia UB City Other Area
(thousand persons) (thousand persons,%) (thousand persons,%）
2010 2,781 1,161 (41.7%) 1,620 (58.3%)
2020 3,162 1,534 (48.5%) 1,628 (51.5%)
2030 3,501 1,763 (50.3%) 1,738 (49.7%)

Source: UB City Statistics, and UBMP 2030

As presented in Table 2.3.2, the future population of UB City is 1.763 million in 2030, of which
85,000 are expected to live in satellite towns.
Table 2.3.2 Future Population Framework of UB City
2010 2020 2030
Area Population Household Population Population %
(thousand) %
(thousand) (thousand) (thousand)
UB City 1068.8 267.5 1,519.0 88.6 1,678.0 79.4
Satellite Cities 9.29 26.9 15.0 11.4 85.0 20.6
Total 1,161.7 294.4 1,534.0 100 1,763.0 100
Source: UB City Statistics and UBMP 2030
Note: UB City includes the remote three districts of Nalaikha, Baganuur, and Bagahangai. Satellite cities are University
Town and Airport City.

4) Master Plan of UB City

Figure 2.3.1 illustrates the future land use plan of UB City. The central area is planned to be
densified for intense use. The industrial area in the western part of the city will be restructured,
and uncontrolled. Sprawling development in ger areas will be controlled by delineating the
development promotion area boundary. Water resources and environmental protection areas are
designated along rivers such as Tuul River. New towns are planned in the west and around the
existing international airport.

2-18
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Source: UBMP 2030

Figure 2.3.1 UB City Master Plan

5) Bus Rapid Transit (BRT) and Metro Light Rail Transit (LRT)
The UBMP 2030 has been formulated based on the JICA Study on UB Master Plan (UBMPS),
the BRT project of ADB, and the UB City FS of UB Metro Project. BRT and railway systems
(LRT) are planned as shown in Table 2.3.3 and Figure 2.3.2. The final plan shall be decided
based on the economic and financial analysis, feasibility of implementation, and adverse effects.

Table 2.3.3 Plan of BRT and Metro (LRT)

Line1 (East-west) Line2 (North-south)
At grade 15.6 10.60
Elevated 6 6.2
Length (km)
Underground 5 3.8
Total 26.6 20.6
Number of stations 17 12
Source: UBMP 2030

2-19
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Source: UBMP 2030

Figure 2.3.2 Plan of BRT and Metro (LRT)

(2) Plan of Urban Centers, Sub-centers and Micro Centers

Urban sub-centers are developed for balanced growth within the city, employment creation, and
provision of national and social services.
1) Development of Central Business District (CBD)
The CBD of the present UB City is located in the area of Sukhbaatar Square and the National
Parliament building, which is the center of political, economic, administrative and social
activities. The area is congested and causes negative social impacts. In order to alleviate this
situation, national administrative organizations are planned to move to a new location. The new
place will form a new center for national administrative activities. The existing center near
Sukhbaatar Square will become a new business district after the administrative organizations
move to another area.

2) Plan of Urban Sub-centers and Micro Centers

Urban Sub-center
An urban sub-center provides services to about 150,000 to 200,000 people. Urban sub-centers
are expected to achieve balanced socio-economic growth within the city to bridge the gap
among local areas. Sub-centers, with commercial and social infrastructure developments,
equally provide citizens with health, education and cultural services. The sub-centers will
concentrate on local government offices, commercial facilities, and offices of projects on public
interest, cultural centers, hospitals, businesses, etc.
Micro Center
Micro centers are located in the ger areas and serve around 8,000 to 15,000 people. The micro
centers house micro offices of local government administration, schools, kindergartens, health
centers, commercial facilities, etc.

2-20
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Source: JICA Study Team based on UBMP 2030

Figure 2.3.3 Location of Urban Centers in UB City

(3) Housing Development Plan

The “New Construction Program” (Parliament resolution No. 36, dated 25 June 2010) is a
two-phased housing development plan from 2010 to 2016. The program, which includes the
seven development policies below, plans to construct 75,000 housing units (277,500 people) in
UB City.
1. New Town: 18,100 units
2. Densification development: 17,350 units
3. Housing development in ger area: 21,040 units
4. Redevelopment of factories and warehouses in built-up area: 6,600 units
5. Reconstruction of non-seismic resistant buildings and old buildings: 6,100 units
6. New apartments for rent: 2,000 units
7. Housing in the remote districts: 3,800 units
In addition, the UBMP 2030 includes a housing development plan of 15,000 units (55,500
persons) or more by 2020, and 74,000 units (259,000 persons) or more from 2020 to 2030.
The following table shows concrete projects and Figure 2.3.4 indicates their location.
Table 2.3.4 Housing Development Plan in “New Construction” Program
Area Household
Project Name
(ha) 2020 2030
Bayangol Town 529 4,000 18,000
Tserugiin Town 47 - 5,900
21 Town
Mongol Radio & TV Station Area 27 4,200
Gandan Temple Town

2-21
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Denjiin Myanga Town 145 - 6,100

th
7 Khoroolol 210 6,000 10,000
New City Center
Buyant Ukhaa Town 170 3,550 12,500
New Yarmag Town 529 4,000 18,000
Golden Park, etc. (Development in built-up area) 30,000
East Selbe
th
14 Khoroolol 120 5,000 15,000
Urgakh Naran Town 120 2,500 10,750
Ireedui Town 68 1,500 12,500
Note: No figures for some projects are available in the presentation material of UBMP2030 provided to
JICA Study Team.
Source: UBMP2030

Ba yangol Town Tsergiin Tow n 2 1 Town Radio-TV Sta ti on Are a Gandan Temple Town Denji in Myanga Town 7th Khoro olol
529 Ha 47 Ha 27 Ha 145 Ha 210 Ha
18,000 HH 5,900 HH 4,200 HH 6,100 HH 10,00 0 H H

New City Ce nte r Towbn Boyant Ukh aa Tow n New Yarmag Tow n Golde n Pa rk, etc East Selb e 14th Khorool ol Urg akh Naran Town
170 Ha 529 Ha 30 ,0 00 HH 120H a 1 20Ha
3,550 HH 18,000 HH 15,000 HH 1 0,750 HH

Source: UBMP 2030

Figure 2.3.4 Urban Development Projects in UB City (UBMP 2030)

2.3.2 Future Population Framework for the UB Metro Study

(1) Future Population Framework of UBMP 2030
In the UBMP2030, the future population framework of UB City for 2030 is 1.763 million, with
1.4 million in the six central districts and 363,000 in the remote districts and satellite cities.

2-22
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Table 2.3.5 Future Population Density

Area (ha) Population

Total Area Growth Habitable

2010 2020 2030
boundary Area

UB City (6 districts) 32,668 30,193 19,066 1,068,000 1,359,000 1,400,000

Other Area - - - 92,900 175,000 363,000
Total - - - 1,161,700 1,534,000 1,763,000
Source: UBMP2030
Note: Other area includes three remote districts of Nalaikha, Baganuur, and Bagahangai, and satellite cities
of University City and Airport City

Of the land area within the growth boundary of 30,193 ha, 19,066 ha is habitable land, land area
within the growth boundary minus inhabitable green areas. Population density in the habitable
land was 56.0 persons/ha in 2010, and will be 71.3 persons/ha in 2020 and 73.4 persons/ha in
2030. As seen in section 2.1.1 (1), population density in the central districts in 2011 shows a
higher population density in apartment areas with 183 persons/ha and a lower one in ger areas
with 26 persons/ha. It is forecasted that the future population density will still be higher in the
apartment area and lower in the ger area.
Table 2.3.6 Population Density of Habitable Land in Urban Development
Promotion Zone in UBMP 2030 (draft)
2010 2020 2030
Population density (persons/ha) 56.0 7１.3 73.4
Source: JICA Study Team based on UBMP2030

UB City needs a higher population density, not an urban sprawl, to become an “Eco-Town” and
“Compact City.” The development of the UB Metro is expected to help formulate a compact and
eco city since it facilitates densification around the UB Metro stations and along the Metro line.

(2) Future Population Framework used for this Study

Although the above is the future population framework projected by UBMP 2030, with a view
of the urbanization over the years, the following are forecasted and adopted by this study as the
future population framework for the six central districts:
Since the decentralization policy does not seemingly work well until 2020, it is highly
expected that the population-increasing trend continues. Consequently, the population
of the 6 central districts is assumed to reach 1.4 million in 2020. This will be used
for the future population in 2020 for this study.
In 2030, two cases are expected: the formulation of satellite cities proposed in the
UBMP 2030 framework, and the population increasing-trend continues, though the
speed slows down. In case of the latter, it is prospected that the population of the six
central districts will reach 1.76 million in 2030. This will be used for the future
population in 2030 for this study.

2-23
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

2.4 Proposed Comprehensive Transport System of Ulaanbaatar City

2.4.1 Present Transport Condition and Issues
(1) Present Traffic Demand
The total trip of UB City is 210 million trips/ day excluding walking, and 310 million trips/ day
including walking.
Its modal share is composed of 28.6% of car, 38.2% of public transport, and 33.2% of walking.
Compared to the data of 2007 (data of UBMPS), the shares of car and walking are increased
while public transport is decreased (42.6% as of 2007).
Compared to the rate of population increase, the number of car ownership has drastically
increased. From 2007 to 2010, the number of car ownership was increased by 1.8 times, the
number of car ownership per 1000 population was increased by 1.3 times, while population was
increased by 1.1 times.
The total transport cost is approximately US$1.87 million.
Table 2.4.1 Present Traffic Demand of UB City (estimated in 2011)

Private Public Total

No. of Trips (000) 889 1,189 2,079
Person-km (000) 7,474 7,870 13,724
Traffic Demand
Person-hour (000) - - 1,098
(per day)
PCU-km (000) - - 5,036
Average Trip Length (km) 8.4 6.6 7.4
Road Capacity (PCU-km) (000) - - 12,296
Transportation Vehicle Operating Cost (VOC) - - 1,205
Cost Travel Time Cost (TTC) - - 665
(US$000/day) Total - - 1,870
Note: PCU stands for passenger car unit and is defined as the number of vehicles equivalent to
passenger cars. It is a coefficient used to compare traffic volume consisting of different vehicle
types at different spots; for example, a truck is considered equivalent to 2.0-2.5 PCU. Road
capacity measured in PCU enables to analyze capacity-demand gap of the road.
Source: JICA Study Team

Table 2.4.2 Number of Registered Vehicle in Ulaanbaatar City

Growth
2005 2006 2007 2008 2009 2010 Rate
(%/yr)
Population 965,300 994,300 1,031,200 1,067,500 1,106,719 1,161,785 3.8%
No. of Registered Vehicle 73,740 79,135 92,706 106,848 131,447 167,809 17.9%
No. of Vehicle per 1000
76 80 90 100 119 144 13.6%
persons
Source: Statistic Data of Ulaanbaatar City

(2) Present Condition of Public Transport (Bus)

Buses operated in UB City are categorized into three: (1) buses on regular routes which run on
major trunk roads, (2) trolley buses, and (3) mini buses which serve around ger areas.
The number of existing bus routes is 113 in total, consisting of 3 routes of trolley buses, 77

2-24
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

routes of buses on regular routes, and 33 routes of mini buses. Among them, 26 routes are
operated by public bus companies, 54 routes by private companies of buses on regular routes,
and 33 routes by private mini bus companies. The average length of the bus routes is 24-25 km,
with the longest routes at 53 km. The traveling speed is 18-20 km/h on average. The operating
time interval is less than 15 minutes on average, and 20 minutes interval on longer routes.
Figure 2.4.1 shows the current bus route map.
The number of operating trips of buses is around 9,000, with public buses accounting for 26%,
followed by private regular buses at 49%, and mini buses at 25%.

Source: JICA Study Team

Figure 2.4.1 Existing Bus Route Map (2012)

2-25
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Trolley Bus

Source: JICA Study Team

Figure 2.4.2 Operating Trips of Buses per Day (2012)

Table 2.4.3 Weekday Operation by Bus Type (2012)

Weekday operation
Bus Route Operation plan
performance
Operati
Round Operating
No. of Length Speed ng time No. of
Type of Bus trip time hours/day
routes (km) (km/h) interval trips/day
(h:m) (h:m)
(m)
Trolley bus 3 57.3 1:31 12.7 8.7 494:10 333.0
Public Bus 23 640.8 1:28 19.0 15.0 2952:25 2,029.0
Public bus: sub-total (A) 26 698.1 1:29 18.1 15.0 3446:35 2,362.0
Private Private bus: sub-total (B) 54 2,178.6 1:51 25.8 22.4 7604:19 4,373.5
Large/middle-sized bus: total (C) (A+B) 80 2,876.7 1.44 20.7 20.0 11050:54 6,735.5
Mini-bus: sub-total (D) 33 942.1 1:20 21.4 16.2 2974:59 2,276.0
Bus: Total (C+D) 113 3,818.8 1:37 20.9 18.9 14025:53 9,011.5
Source: Transportation Department, UB City

(3) Public Transport and Subsidy for bus fares in UB City

As described above, the primary means of public transport currently is bus, including main bus
which runs on major trunk roads (400Tg at a flat rate), trolley bus (200Tg at a flat rate), and
mini bus which serves around ger areas (fares depend on distance, higher than main bus).
Discount ticket system is popular among students (9,000Tg for 6 months). In addition, the
elderly (male: over 60 years old and female: over 55 years old), the pensioners, the disabled, the
police officers and the retired officers can ride the bus free of charge. According to the results of
the bus user survey conducted by the Transport Department of UB City (Transport Department
after December 2012,) in 2010, nearly half of bus users are students, the elderly, the pensioners,
the disabled, the police officers and the retired officers who do not have to pay the regular fare.
Such discount (free) ticket system is stipulated by the Education Law, the Social Protection Law,

2-26
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

and the Police Law. This system is applied to the buses on regular routes and trolley buses, not
to the mini-buses.
Bus fare is decided from the social welfare viewpoint, and this is historically reviewed as shown
below:
- In 2003, the state issued an order that would require pensioners who enjoy the benefit of
free bus ride to pay bus fare by increasing the amount of the pension annuity so that they
would pay the fare by themselves; however, a demonstration that saw protesters march to
the Ministry of Finance caused the order to be rescinded.
- Subsidy for the bus fare accounted for 20% of the UB City’s budget in 2009 and 50% in
2010, because the bus fare for students, which was half that of adults in 2009, was no longer
collected in 2010, allowing students to ride the bus for free.
- In 2011 and 2012, the subsidy for bus fare was allocated to the budgets of responsible
ministries such as the Ministry of Education, the Ministry of Police, and the Ministry of
Social Welfare and Labor. The Transport Department of UB City is in charge of allocation
of the amount of the subsidy to the bus companies based on monthly reports from the bus
companies as in the past.
At present, the subsidy amount is calculated based on the route, number of buses, operating
times/month, operating (traveling) time, etc. The subsidy is budgeted on the basis of the data of
the Statistical Office that 70% of the elderly and 60% of students (96,000 out of 160,000
students) use bus, though precise numbers are not available, and allocated to the bus companies
according to their actual operation by the Transport Department.
There is a discussion on revising this bus fare subsidy system because it is overgenerous;
however, for political reasons, it is not easy to review the bus fare.

(4) Results of Survey of Vehicle Users and Pedestrians

According to the vehicle user survey (with a total of 2,000 samples including 1,000 bus users,
300 car users, 300 taxi users and 400 pedestrians) conducted by the JICA Study Team in
November 2011, frequent bus users are young people aged 20 years or under and the elderly
aged 60 years or over. As for the bus use by occupation, students, housewives and jobless often
use buses.
As for the bus use by household income level, 80% of income groups lower than 500,000
Tg/month/HH frequently use buses. It is said that the average household income in UB City is
around 700,000 Tg/HH/month while the poverty line is set at 120,000 Tg/HH/month. It is
obvious that low to middle income households frequently use buses and that households over
the average income shift to using cars.
The results of the survey show clearly the effect of the flat fare (400 Tg, as of Dec. 2012)
scheme to promote the use of public transportation by low and middle income households in
accordance with the policy of the Transportation Department of UB City, as well as that of the
discount bus fare for students.

2-27
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Means of transport by age Means of transport by

Purpose of use by means of transport

Means of transport by household income
（mill.Tg/HH/month）

Source: Public Transport User Survey, November 2011, JICA Study Team

Figure 2.4.3 General Characteristics (Age, Occupation, Household Income, and

Transport Means) of Vehicle Users and Pedestrians

(5) Citizen’s Expectation to Metro

Based on the survey, approximately 95% answered that they “highly expected” or “expected”
the Metro project. As to the frequency of use, about 50% said that they “want the Metro daily”.
They also expressed their willingness to pay to Metro with 500Tg on the average (1.2 times the
bus fare) for low-income group (lower than 750,000Tg/HH), 600Tg on the average (1.5 times
the bus fare) for middle-income group (750,000Tg-2,000,000Tg/HH).
In terms of purpose of use, approximately 570Tg (1.4 times the bus fare) is for working, and
500Tg on the average (1.2 times the bus fare) is for going to school. As even students who
currently enjoy the discount system show the willingness to pay 500 Tg per metro ride, the
willingness to pay is relatively high for both purposes of work and school.

2-28
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

To sum up, the interview survey reveals that though public transport mode is limited to bus at
present, expectations for a modern and convenient transport system is very high, and that
willingness to pay for the new system is potentially high especially the mid-income groups and
commuters.
When introducing the Metro, it is required to examine the arrangement of fares of metro and bus,
the necessity of a discount fare scheme for students, elderlies, and others, and measures for
lower income groups.

Source: Public Transport User Survey, November 2011, JICA Study Team

Figure 2.4.4 Willingness to Pay to Metro by Household Income Groups

(Tg/month/HH)

Source: Public Transport User Survey, November 2011, JICA Study Team

Figure 2.4.5 Willingness to Pay to Metro by Purpose Groups (Tg/month/HH)

(6) Present Road Transport Condition

Based on the result of simulation using the System for Traffic Demand Analysis (STRADA),
there are few traffic jams, and V/C (Volume/ Capacity, degree of congestion) is only 0.41. On
the contrary, it is obvious that traffic congestion has been serious especially at the city center
and trunk roads connecting to the city center.
The main factor that causes traffic congestion is not because of lack of roads, but because of
inappropriate usage of road spaces and inefficient traffic management, including bad driving
manners, inadequate traffic lights, and on-street parking, so road transport capacity is not fully

2-29
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

used. Since 2007, traffic demand, especially from private cars has rapidly increased. But road
development has not been preceded, and traffic management has not effectively functioned
though there are various measures conducted such as operation of traffic management center,
installation of signals, and traffic control by police.
To improve utilization of road spaces and traffic management, it will be possible to increase the
traffic volume and to invest on proper road development project.

LEGEND :
( Mode: + 1 + 2 + 3 )
Traffic Flow
VCR<1.00
VCR<1.20
VCR<1.50
1.50<VCR
scale: 1mm =50000(pcu)

Source: JICA Study Team

Figure 2.4.6 Present Traffic Condition (2011)

2.4.2 Baseline Scenario Analysis
(1) Future Traffic Demand
The purpose of the baseline scenario analysis is to analyze future traffic condition of the present
road network, for which no projects will be implemented (Do Nothing Case). In this case, it is
assumed that an existing road network is able to handle as much traffic as its capacity, which
means the optimal use of the road network is realized. Thus, it is a necessary condition that the
spaces of the roads are properly used and the traffic is managed in the right way.
Based on the future population by Khoroo, projected according to the future population
framework in Table 2.3.5, the number of trips will be double from 2011 to 2030, and the traffic
demand (person-km) will be 3.1 times the present. The main reasons for rapid increase of traffic
demand compared to the rate of population increase (1.4 times the present) is because of the
increase in average trip length in conjunction with expansion of urbanized areas and increase in
the number of private cars.
Traffic volume increase of private cars will be a burden to road transport system. The traffic
capacity of main corridors especially Peace Avenue and Chingiss Avenue will be absolutely
insufficient.

2-30
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Table 2.4.4 Future Traffic Demand

No. of Trips (000) Growth Rate (%/year)
2011 2007- 2011- 2020-
2020 2030
(Estimated) 2011 2020 2030
Private 889 1,684 2,263 -0.6 7.3 3.0
Public 119 1,519 1,996 -4.8 2.8 2.8
Walk 103 1,348 2,087 0.0 3.0 4.5
Total 2,078 4,551 6,346 -2.1 4.3 3.4

Source: JICA Study Team

LEGEND :
( Mode: + 1 + 2 + 3 )
Traffic Flow
VCR<1.00
VCR<1.20
VCR<1.50
1.50<VCR
scale: 1mm =50000(pcu)

Source: JICA Study Team

Figure 2.4.7 Future Traffic Demand (Baseline Case, 2030)

(2) Evaluation of Road Network

By 2030, the total transport cost will be 14.1 times the present, two thirds which are shared by
Travel Time Cost (TTC). Loss of value of time will be serious because of the traffic congestion.

2-31
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Table 2.4.5 Traffic Demand and Overall Network Performance (Baseline Case)
2010 2020 2030 2030/10
No. of Trips (000) 2,079 3,203 4,259 2.0
Person-km (000) 13,724 34,120 46,913 3.4
Traffic Demand
Person-hours (000) 1,098 7,589 11,203 10.2
(per day)
PCU-km (000) 5,036 13,533 18,310 3.6
Average trip length (km) 7.4 10.9 11.2 1.5
Road Capacity (PCU-km) (000) 12,296 12,296 12,296 0.0%
Average Congestion Rate:
1） 0.41 1.10 1.49 3.6
(V/C)
Average speed (km/h) 12.7 4.5 4.2 0.3
Traffic
V/C≧1.5 0.0 16.5 28.3 -
Performance Congested
1.2≦V/C<1.5 0.7 10.8 9.9 -
section:
1） 1.0≦V/C<1.2 0.9 13.9 9.6 -
km (%)
V/C<1.0 98.4 58.7 52.1 -
VOC 1,205 6,078 8,717 7.2
Transport Cost
TTC 665 9,169 17,789 26.8
(US$ 000/day)
Total 1,870 15,247 26,506 14.2
Emission NOx 5 19 26 5.2
(000 ton/yr) CO2 591 2,665 3,822 6.5
Note: 1) V/C (volume/capacity) is a ratio of the traffic volume to the road capacity and is used as a
congestion rate: V/C ≧ 1.5 means paralyzed traffic; 1.2≦V/C<1.5 is congested considerably,
1.0≦V/C<1.2 is congested a little, and V/C<1.0 is not congested.
Source: JICA Study Team

As for the traffic volume of cross section of main corridors in 2030, approximately 700,000
persons (200,000 PCU) will cross Peace Avenue daily. Though it will not be seriously congested
inside the city center due to high-dense road network, V/C of main trunk road access to city
center will be 2.6-3.0. In terms of south-north direction, daily trips will be 600,000 persons
(170,000 PCU) in Chingiss Avenue, and V/C will be 5.0 which will be already overloaded.
Lack of road capacities along major corridors will be absolutely serious, so the development of
mass transit and effective road transport control will be crucial to expand transport
infrastructure and services.

K N
J G D

C L
M H E
B
A

Source: JICA Study Team

Figure 2.4.8 Location of Traffic Volume of Cross Section in Main Corridors

2-32
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Table 2.4.6 Assessment of Traffic Volume of Cross Section in Selected Mass

Transit Corridors (Baseline Case, 2030)
Traffic Volume (persons/day) Traffic Volume (PCU/day) Performance
Main Corridor Road
Public Average
Capacity V/C
Private Mass Total Private Bus Total Speed
Name Section Bus (PCU/day) ratio
Transit (km/h)
A 248,032 0 384,034 632,066 248,032 38,146 286,178 72,900 3.9 4.5
B 207,973 0 349,101 557,074 207,973 31,132 239,105 78,975 3.0 4.5
East-West
C 93,986 0 216,863 310,849 93,986 13,516 107,502 74,250 1.5 4.5
Metro
D 196,753 0 213,292 410,045 196,753 15,425 212,178 82,013 2.6 4.5
E 139,269 0 214,890 354,159 139,269 20,644 159,913 54,675 2.9 4.0
F 139,170 0 204,207 343,377 139,170 19,241 158,411 60,750 2.6 4.0
South-North G 46,208 0 29,307 75,515 46,208 3,284 49,492 60,750 0.8 12.6
BRT1 H 65,678 0 204,252 269,930 65,678 15,353 81,031 42,525 1.9 4.0
I 144,669 0 235,087 379,756 144,669 28,543 173,212 34,650 5.0 4.0
J 88,055 0 122,088 210,143 88,055 10,426 98,481 87,750 1.1 4.5
East-West
K 92,955 0 156,930 249,885 92,955 12,307 105,262 48,600 2.2 4.0
BRT2
L 56,520 0 136,260 192,780 56,520 15,575 72,095 54,000 1.3 4.0
East-West M 59,275 0 86,091 145,366 59,275 10,252 69,527 60,750 1.1 4.9
BRT3 N 40,051 0 94,986 135,037 40,051 11,402 51,453 34,650 1.5 4.0
Source: JICA Study Team

2.4.3 Do Maximum Scenario Analysis

(1) Transport Network integrated with Urban Structure
There are two basic ways to control traffic demand: 1) land use/spatial structure of a polycentric
compact urban area, and 2) effective transport network development of road and public
transport with traffic management.
The present urban structure is composed of two parts: compact urban center areas and sprawled
ger areas with low density/ineffective use of land in urban fringe.
Alternative future urban scenarios are farther expansion scenario (sprawl, unintegrated
suburban/satellite city development) and/or compact scenario (densification of existing urban
areas, reduction of ger areas).
Accordingly, the UBMP 2030 aims at formulating a polycentric compact urban area with
controlled suburban expansion, and with integrated sub centers along main transport corridors.
For this, future integrated transport network will be proposed based on the urban development
scenario which is proposed in the UBMP 2030.

(2) Basic Structure of Transport Network

To have appropriate transport network integrated with future urban structure, infrastructure
development and service improvement plans are proposed.
Infrastructure development includes: 1) three east-west corridors connecting to Sukhbaatar city
center and sub centers of Tolgoit, Sapporo, Amgalan; 2) one north-south corridor connecting to
Yarmag new city center; and 3) seven lateral corridors connecting to east-west and south-north
corridors.
Service improvement means: 1) competitive public transport (mass transit); 2) managed use of

2-33
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

private transport; and 3) conductive environment for NMT (non-motorized transport) including
pedestrian and bicycles.

7 lateral corridors
3 east-east corridors
To Newtown/
Emeelt

Urban area
expansion
towards east is
not advisable
1 south-north corridor

Airport

Source: JICA StudyTeam

Figure 2.4.9 Proposed Transport Network integrated with Urban Spatial Structure

(3) Future Transport Network in 2030

Do Maximum Scenario assumes the following transport facilities to be developed on the
condition that the major road network, the UB Metro, and three routes of BRT are completely
developed:
Road Network: Do Maximum Scenario assumes that major roads proposed in the UBMP 2030
are completely developed.
Public Transport: Mass transit network will be promoted in addition to present bus services: 1)
east-west Metro along Peace Avenue as a backbone of UB City; 2) south-north and lateral BRT
corridors; 3) reformed feeder bus service network (conversion from bus to mass transit along
Peace Avenue)
Ulaanbaatar Railway and the Highway are treated as follows:
Ulaanbaatar Railway: After the development of railway bypass for freight transport (Bogdkhan
Railway), the following functions of UB Railway are proposed: 1) Interface between intercity
passenger service and urban service at Tolgoit and Amgalan terminals; 2) operation of suburban
passenger services; and 3) intra-urban service is limited. According to future demand forecast in
case of development of urban railway on the existing Ulaanbaatar Railway track, the number of
passengers is estimated at 188,000 passengers per day in 2020, and 318,000 in 2030, which
accounts for only around 60% of the future demand on the urban railway developed on Peace
Avenue.

Highway: There are two highway alignment options for the “city south” as follows.
Option (1): The alignment begins at the industrial zones of “city west” and runs along
Ulaanbaatar Railway to Amgalan Station (proposed alignment of this project). Being close to
and parallel to Peace Avenue, this highway drastically improves the traffic flow of Peace
Avenue by distributing the traffic volume of Peace Avenue to the south of the city center. In this
case, it is necessary to coordinate with stakeholders to secure lands around the Ulaanbaatar
Railway and apartment areas of “city east.”
Option (2): This option starts from a river bed of Tuul River to Amgalan Station. In this case, it

2-34
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

is expected that the highway will also serve as a dike of Tuul River. Environmental
consideration is necessary to preserve water reservoir areas and the surrounding environment.
Option (1) has been evaluated as preferable from the viewpoint of environmental protection and
convenience (accessibility to the city center). Therefore, the case of option (1), “Do Maximum
Scenario + Highway,” has also been studied. In addition, UBMP 2030, approved in February
2013, includes the Highway on the route of option (1).

Ulaanbaatar Railway
Railway Bypass (planned)

Source: JICA Study Team

Figure 2.4.10 Proposed Railway Bypass with Urban Transportation Network

BRT 2
Metro

BRT 3

BRT 1

Source: JICA Study Team

Figure 2.4.11 Integration of Mass Transit Figure 2.4.12 Basic Structure of Mass
and UB Railway Transit Corridors (Metro, BRT)

2-35
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

(4) Restructuring of bus routes

Buses are expected to function as a feeder transport to connect ger areas with Peace Avenue, not
as a major transport, after the metro is developed. It is needed to reorganize bus routes in an
integrated and efficient way with the Metro by reducing duplicate bus routes with the Metro and
diverting the trolley bus route into the Metro on Peace Avenue.
A route reorganization plan shall be made based on the future demand and actual operational
performance of each bus route. In this study, the future Metro demand has been forecasted with
the following setting of bus routes:

(1) Fully deleted bus routes because of the full duplication with Metro:
M1, M22, M27, M32, M35, M37, M41, T02, T04, T05, T06, Sub Urban Line to Nalaika,
Nairamdal

(2) Partly deleted bus routes which duplicate with Metro:

M4, M5, M6, M13, M17, M23, M24, M26, M39, M42, SR17, SR35, Sub Urban Line to
Nalaikh, Hurjirbulan, Gordokh, Terelj.

Figure 2.4.13 Existing Bus Route Network

Figure 2.4.14 Proposed Bus Route Network after the Opening of the Metro

2-36
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

(5) Future Traffic Demand and Overall Road Network Performance

In Do Maximum Scenario, future traffic demand analysis aims to clarify future traffic condition
in case all proposed projects for future transport network, including the road network proposed
by UBMP 2030, the UB Metro, and three BRT lines, are realized.
Figure 2.4.15 shows the expected congestion rate (V/C) in trunk roads including roads under
planning. Figure 2.4.16 indicates V/C ratios in case that highway is developed. In addition, the
condition of overall road network performance in case of Do Maximum Scenario is summarized
in Table 2.4.7.
As the table clearly shows, the difference between “with highway” and “without highway” is
shown by the difference of V/C ratios: “With Highway” is expected to make a large
improvement having a V/C ratio of 0.74, which is better than that of “Without Highway” at 0.8.
This improvement contributes to the transport cost savings of the city overall. Specifically, the
transport cost in case of “with Highway” is US$20.4 million per day, which means a cost saving
by over 10% compared with US$22.8 million per day of transport cost when there is no
highway development.

LEGEND :
( Mode: + 1 + 2 + 3 )
Traffic Flow
VCR<1.00
VCR<1.20
VCR<1.50
1.50<VCR
scale: 1mm =50000(pcu)

Source: JICA Study Team

Figure 2.4.15 Future Traffic Condition (Do Maximum Scenario, 2030)

2-37
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

LEGEND :
( Mode: + 1 + 2 + 3 )
Traffic Flow
VCR<1.00
VCR<1.20
VCR<1.50
1.50<VCR
scale: 1mm =50000(pcu)

Source: JICA Study Team

Figure2.4.16 Future Traffic Condition

(Do Maximum Scenario with Highway, 2030)

Table 2.4.7Traffic Demand and Overall Network Performance

(Do Maximum Scenario)
Do Maximum Do Maximum
2010 (without highway) (with highway)
2030 2030/10 2030 2030/10
No. of Trips (000) 2,079 4,259 2.0 4,259 2.0
Traffic Person-km (000) 13,724 47,416 3.5 47,266 3.4
Demand (per
day) Person-hours (000) 1,098 9,024 8.2 8,087 7.4
PCU-km (000) 5,036 18,855 3.7 18,805 3.7
Road Capacity (PCU-km) (000) 12,296 23,108 1.9 25,413 2.1
Average Congestion Rate:
1 0.41 0.82 2.0 0.74 1.8
(V/C) ）
Average speed (km/h) 12.7 5.0 0.4 5.8 0.5
Traffic V/C≧1.5 0.0 10.3 - 6.6 -
Performance Congested
1.2≦V/C<1.5 0.7 10.2 - 8.4 -
section: 1.0≦V/C<1.2 0.9 9.8 - 9.5 -
1
km (%) ）
V/C<1.0 98.4 69.7 - 75.4 -
Transport VOC 1,205 7,924 6.6 7,257 6.0
Cost TTC 665 14,881 22.4 13,106 19.7
(US$000/day) Total 1,870 22,806 12.2 20,363 10.9
Emission NOx 5 23 4.6 22 11.0
(000 ton/yr) CO2 591 3,396 5.7 3,137 5.3
Note: 1) V/C (volume/caacity), which is a ratio of traffic volume to road capacity, is used as congestion
rate. V/C ≧ 1.5 means paralyzed traffic; 1.2≦V/C<1.5 is congested considerrably, 1.0≦
V/C<1.2 is congested a little, and V/C<1.0 is not congested.
Source: JICA Study Team

2-38
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

(6) Assessment of Selected Mass Transit Corridors

Table 2.4.8 summarizes the future traffic volume and congestion of cross section in main
corridors. Due to the increase of mass transit passengers as well as the decrease of private cars
and buses of roads of mass transit corridors, PCU will be absolutely decreased, and V/C ratio in
Peace Avenue (Sections A-E) will be 1.1- 1.7.
The V/C ratio in the most congested section A will still be 1.7, and thus the congestion will
remain to some extent. However, it is fair to say that it will make a large improvement
compared with 3.9 of V/C ratio in case of “Do Nothing Scenario” (see Table 2.4.6).

Table 2.4.8 Assessment of Selected Mass Transit Corridors (Do Maximum Scenario with
Highway, 2030)
Traffic Volume (persons/day) Traffic Volume (PCU/day) Performance
Main Corridor Road
Public Capacity Average
V/C
Private Mass Total Private Bus Total (PCU/day) Speed
Name Section Bus Ratio 1)
Transit (km/h)
A 188,115 262,451 181,114 631,680 102,795 22,164 124,959 72,900 1.7 4.5
B 203,324 239,417 128,826 571,567 111,106 15,033 126,139 78,975 1.6 4.5
East-West
C 132,677 176,012 93,334 402,023 72,501 7,000 79,501 74,250 1.1 5.5
Metro
D 208,208 169,341 48,858 426,407 113,775 5,404 119,179 82,013 1.5 4.5
E 119,989 98,620 115,981 334,590 65,568 12,482 78,050 54,675 1.4 4.0
F 119,223 70,159 143,531 332,913 65,149 13,656 78,805 60,750 1.3 4.0
South-North G 56,887 86,081 30,589 173,557 31,086 3,411 34,497 60,750 0.6 21.6
BRT1 H 78,642 105,082 141,651 325,375 42,974 10,624 53,598 42,525 1.3 4.0
I 80,974 192,957 129,209 403,140 44,248 14,815 59,063 34,650 1.7 4.0
J 164,720 39,818 81,470 286,008 90,011 7,824 97,835 87,750 1.1 4.5
East-West
K 87,560 31,834 114,828 234,222 47,847 9,228 57,075 48,600 1.2 4.6
BRT2
L 51,745 29,927 118,419 200,091 28,276 12,776 41,052 54,000 0.8 21.1
East-West M 97,749 15,796 66,967 180,512 53,415 8,814 62,229 60,750 1.0 8.3
BRT3 N 56,020 20,877 74,398 151,295 30,612 8,971 39,583 31,188 1.3 4.7
Note: 1) Based on the QV (Quantity – Velocity) Curve, which indicates the relationship between traffic
volume (quantity) and velocity, vehicles can run fast when traffic volume is low. However,
because distance between vehicles becomes shorter as traffic volume becomes larger, average
velocity is constant once the V/C ratio surpasses 1.0.
2) See Figure 2.4.8 for the location of sections A to N.
Source: JICA Study Team

(7) Role of Mass Transit

It is difficult to develop new roads and to expand existing roads in the city center, so, the road
development will be insufficient for future traffic demand.
For a compact city development integrated with public transport, it will be effective to develop
public transport service in hierarchical manner, including Metro and BRT as mass transit
services, and bus services to connect mass transit network, as a feeder service.
Mass transit development will be effective to improve mobility of public transport users, but not
enough to decrease traffic congestion of roads. Traffic management measures are indispensable
to control cars.
If mass transit network will be developed in road space, it will affect road traffic flow because
of the decrease of road capacity and segmentation of the area; hence, appropriate road section
plan integrated with BRT and traffic management are important.

2-39
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

By 2030, east-west Metro along Peace Avenue, south-north and lateral BRT lines will become
the main transport structures. After 2030, it will be necessary to consider how to manage heavy
traffic demand of south-north direction which will be overloaded of BRT. Long-term
improvement plan will be necessary.
(8) Role and Impacts of Highway
Impacts of highway on the south of Peace Avenue will be significant. Through-traffic flow
between east and west will use the highway, and the traffic volume of Peace Avenue will be
distributed to the “city south,” and so the congestion will be drastically improved.
The highway is obviously effective. UBMP 2030 designates the highway aligned along the Tuul
River; however, it is necessary to further study the alignment of the highway in the Feasibility
Study.
2.4.4 Proposal for Future Comprehensive Transport Network
It is obvious that future transport demand is large, much larger than the growth of population.
Appropriate transport network will be significant to connect sub centers toward a polycentric
compact urban development.
Comprehensive approaches are necessary for urban transport improvement such as 1) effective
urban growth management; 2) road network expansion/configuration; 3) increase in capacity
and efficiency of public transport; 4) controlled/restricted use of private cars; and 5) much
improved traffic management and people awareness.
Public Transport System: Public transport system must be developed in combination with
different systems including Metro, BRT, Bus, and others depending on demand characteristics
of corridors and areas. Peace Avenue is the most important urban and transport backbone of the
city, requiring high quality transport services and integrated urban development.
Road Development: Hierarchical road network including the main corridors of east-east and
south-north, the sub corridors to distribute to ger areas, and the highway for through-traffic flow
will be necessary.
Traffic Management: Comprehensive traffic management program should also be included
particularly the control measures of private vehicles such as road pricing and ticket system of
city center, the Park and Ride (P&R) to promote mass transit utilization of sub-urban areas, the
common ticket system of mass transit and bus, car parking control; and pedestrian space
improvement.

2-40
3 Concept Design of
Ulaanbaatar Metro
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

3 Concept Design of Ulaanbaatar Metro

3.1 Present Condition and Development Strategy for Peace Avenue
3.1.1 Station Influence Area
Approximately 70% of citizens live along Peace Avenue and in the Central Business District
(CBD) around the Sukhbaatar Square. There are various urban facilities such as public service,
commercial and business facilities and apartments. Located in the west of Peace Avenue is the
3rd Power Plant which supplies heating services to apartment areas, through underground
pipelines along the Peace Avenue.
The spatial structure of Ulaanbaatar City is a ladder shaped one, extending from east to west,
and is surrounded by mountains in the north and south. Peace Avenue is the only trunk road that
connects east and west of the city, so most of urban facilities and traffics are gathered along this
road. Based on the result of simulation of STRADA, about 700,000 trips (approximately 35% of
the 2 million trips) are concentrated in Peace Avenue. Among the 58 main bus routes of the city,
21 routes (36%) run along this trunk road.
In this way, Peace Avenue serves as the backbone of urban service, transport and utility service
in Ulaanbaatar City. There are various development opportunities along this road in a strategic
way.
In the city center, many of the middle and high-rise apartments are very old, and factories and
warehouses are scattered with low density, so it is required to redevelop these areas. In a rapid
urbanization process, renovation of central infrastructure facilities and strengthening its
provision capacity are urgent issues.
In the near future, it is expected that population along Peace Avenue will be increased because
of reconstruction of apartments and resettlement from Ger areas. In addition, employment
opportunities will increase as a result of commercial and business development. Furthermore,
consolidation of social infrastructure and public service facilities along this road will provide a
convenient living environment for citizens.

3.1.2 Development Issues and Strategies

Major development issues along Peace Avenue are summarized in three points, and its
development strategies are shown in Table 3.1.1.
1) Restructuring and strengthening urban functions (Promotion of integrated urban
development and creation of investment opportunities).
2) Competitive and convenient transport development (Development of Ulaanbaatar (UB)
Metro as the core of public transport network).
3) Improvement of urban image (Development of modern and comfortable urban spaces
with mass transit corridors as a driving force).

3-1
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Table 3.1.1 Development Issues, Strategies and Impacts of Metro Development

Issues Strategies Impacts of Metro Development
Restructuring Urban development along Promotion of socio-economic activities by urban redevelopment, old
urban function Peace Avenue apartment reconstruction, commercial and business development
Creation of job opportunities Employment promotion by commercial and business facility
development
Improvement of urban Consolidation and strengthening of public facilities and infrastructure
service services
Living condition improvement Living condition improvement by urban redevelopment and road
development projects
Creation of investment Sub center development, new town development, underground space
opportunities development integrated with UB Metro development
Competitive Reduction of traffic Reduction of private transport by promotion of mass transit and traffic
and convenient congestion management
transport Promotion of public transport Provision of integrated public transport services of Metro, BRT and bus
development utilization
Improvement of transfer Development of intermodal transfer facilities and restructuring of bus
condition routes
Improvement of pedestrian Improvement of safe and comfortable access roads to station
spaces
Traffic management Comprehensive traffic management including intersection
improvement, parking management, road pricing, etc.
Improvement Strengthening of local Promotion of modern image of UB Metro
of urban image identity
Urban design Spatial and facility development based on local characteristics
Creation of green spaces Development of environmental spaces around stations
Reduction of air pollution Reduction of auto emission by promoting public transport utilization
Community improvement Promotion of local community activities around station
and public participation
Source: JICA Study Team

Source: JICA Study Team

Figure 3.1.1 Concept of Station Influence Area of Metro and Feeder Bus Service

3-2
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

3.2 Development Orientation of Ulaanbaatar Metro

3.2.1 Railway Alignment Plan
Advantages of mass transit development along Peace Avenue are as follows:
1) Transport development
• UB Metro will be developed within a road space without reducing the traffic
capacity of Peace Avenue; traffic capacity can be increased by reducing vehicles.
• UB Metro will be appropriately integrated with other transport network.
• UB Metro will be properly connected to Ulaanbaatar Railway.
2) Urban development
• UB Metro will be a trigger to strengthen existing urban areas and to develop sub
centers.
• UB Metro will lead appropriate urban growth toward the west side (though urban
expansion toward the east is not recommended in terms of water reservoir
preservation).
• UB Metro will be developed without serious social and technical disincentives.

UB Metro project is proposed to develop a mass transit between Tolgoit Station and Amgalan
Station within the road spaces along Peace Avenue.

3.2.2 Railway System

(1) Criteria for Selection of Railway System
When considering the selection of the mass transit system, some criteria such as i) demand at
peak hour, ii) economic consideration, iii) safety, and iv) easy maintenance would be considered
in comprehensive manner.
In addition, with the long-term operation period, flexible railway system to respond future urban
growth and increase of passengers is expected. Furthermore, selection of facilities and
equipment which can adapt to special climate condition of Ulaanbaatar City is indispensable.
For this, v) flexibility for future expansion (increase in the number of cars and decrease in travel
time), and vi) resistance to cold climate, are important criteria for Ulaanbaatar City.

(2) Technical Precondition

For the selection of railway system, technical precondition in 2030 are as follows (see Chapter 4
in detail).
• Demand : app. 17,000 PHPDT (Peak Hour Peak Direction Traffic)
• Headway : 5 minutes (12 trains/hour/direction)
• Unit Volume : 17,000 / 12 =1,400 persons/train
• Route : Tolgoit to Amgalan along Peace Avenue (17.640km)
• Station interval : 1.356km on average
• Structure : viaduct (elevated), at grade, underground
• Alignment : excessive gradient and curve are not required
• Climate : large difference in temperature between summer and winter, less
than minus 40 degree in winter

(3) Comparison of Urban Railway System

Urban railway system is classified by structure, capacity and system of transmission of power.

3-3
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Table 3.2.1 Typology of Urban Railway System

Rail- & Steel wheel and Adhesion driving Conventional Railway (MRT)
guideway-based rail system Light Rail Transit (LRT)
transport system
Non Adhesion driving Linear motor railway (LIM
Train)
Rubber tire Monorail Straddle type monorail
system Suspended type monorail
Rubber tire guideway Automated Guideway Transit
transit (AGT)
Levitation Non Adhesion driving High Speed Surface Transport
system (HSST)
Non rail- & On-road operation by bus BRT
guideway-based
transport system
Source: Guideline of railway transport planning, Japan

Among these systems above, iron wheel and iron rail system (MRT: Mass Transit Transport and
LRT: Light Rail Transit), and rubber tire system (monorail, AGT: Automated Guideway Transit)
are the prospects which fulfill criteria. HSST (High Speed Surface Transport) is not popular at
present and will not be appropriate as a trunk railway system, so this system is excluded.
Table 3.2.2 Examples of Urban Railway System
Steel wheel and steel Steel wheel and steel Monorail Rubber tire guideway
System
rail system (ex. MRT) rail system (ex. LRT) (ex. Straddle type) transit (AGT)

Exterior of
Vehicle

Car length 20.0m 16.0m 15.0m 9.0m

Car width 2.95m 2.4m 3.0m 2.5m

Car height 3.65m 3.4m 5.2m 3.5m

Traction Electric motor and Electric motor and Electric motor and Electric motor and
system steel wheel steel wheel rubber tire rubber tire
Guidance
Steel rail Steel rail Track beam Concrete slab
system
Maximum
110 km/h 70 km/h 80 km/h 80 km/h
speed

Minimum 200m (desirable) 150m (desirable)

30m 30m
curve radius (120m absolute min.) (100m absolute min.)
Maximum 3.5% (6% for linear 3.5% (6% for linear
6% 6%
Gradient Metro) Metro)
Capacity per
10,000 – 50,000 5,000 – 35,000 7,000 – 25,000 10,000 – 20,000
hour/one
persons/hour persons/hour persons/hour persons/hour
direction
Source: JICA Study Team

3-4
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

(4) Selection of Railway System

The optimum system to be adopted for the project should be selected by setting several criteria.
Different railway systems have different features to respond to the curve and the gradient of
targeted lines; and therefore, the feature is normally included in the criteria. However, the UB
metro line (Peace Avenue) is straightforward, and there is little difference in that point between
railway systems. Thus, this is not included in the criteria of this study.
Prospective railway systems are assessed based on various criteria, and it is proposed to select
MRT as an optimum mass transit system for Peace Avenue.
Table 3.2.3 Assessment of Prospective Railway System
Category System MRT LRT Monorail AGT
Technical Energy saving A B C C
Expansion potential A B C C
Compatible with cold climate B B C C
High speed transport B C C C
Environment Gas emission, noise, vibration C C B B
1)
Daylight interferance C C B C
Novelty and innovation C C C C
Service Frequency and conformability A A A A
Finance Maintenance cost B B C C
2)
Total Assessment Score 9 6 4 3
Note:1) In the case of monorail, shaded areas are smaller because of the design of the elevated portion.
2) Score is calculated as follows:
A “Preferable”= 2, B “Positive” = 1, C “Satisfactory” = 0, D “Negative” = -1

Source: JICA Study Team

3.2.3 Structure
There are three types of Metro structures: elevated, at grade and underground. Based on criteria
below, alternatives of structure are assessed.
1) Socio-economic impact: land acquisition, land use
2) Traffic function: impact on road transport (avoidance of decrease of carriage way,
grade crossing with road, impact on intersection)
3) Environmental consideration: landscape, noise and vibration, safety
4) Technical appropriateness: construction method, construction cost
There is another alternative structure, all underground, but it was not examined in this study
because the construction cost is very high, and no land acquisition is needed in suburban areas
even if the structure is elevated or at grade.
Based on the result of assessment, alternative A “Underground in city center, elevated in sub
urban area” is proposed in this project.

3-5
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Table 3.2.4 Alternative Metro Structure

A: Underground in city center, C: Elevated in city center, at
B: All elevated
Elevated in sub urban area grade in sub urban area
Elevated Underground Elevated All Elevated At grade Elevated At grade

Section
Image

Suburban Center Sub urban Suburban Center Sub urban Suburban Center Suburban

○ Not necessary △ Necessary to secure present ×Necessary to secure present

Land
width of carriage way and width of carriage way and
Acquisition
sidewalk in city center sidewalk
Road ○ Less impact on road transport △ Some negative impacts on city × Serious impacts because of
Transport center because of pillars grade crossing with road
△No negative impacts in city ×Serious Impacts both in city ×Serious Impacts in both city
center but some negative center and suburban areas center and suburban areas.
Landscape
impacts in suburban areas Particularly, significantly affects
the city center.
△No negative impacts in city ×Serious negative impacts, such ×Serious negative impacts, such
center but some negative as noise and vibration because of as creating noise and vibration,
Environment
impacts in suburban areas such the elevated structure and splitting of communities
as noise and vibration
Cost × △ ○
Note: Cost of each case includes only the development cost of the train infrastructure. This means that it
does not include the cost of loss from the decrease in carriageway width, land acquisition of the
reduced carriageway or grade crossing with road.
Source: JICA Study Team

3.2.4 Selection of Station Location

Station locations are selected based on the following criteria:
• Potential of urban core: consolidation of urban facilities and socio-economic activities
at present and in the future
• Intermodal transfer condition: connectivity to other transport modes (cf. Ulaanbaatar
Railway, BRT, bus)
• Physical condition: utilization of existing median and open space to avoid land
acquisition at grade, geological condition (cf. soil, water)
• Accessibility: Station distance is within walking distance (app. 500m – 1km),
accessible space for bus and pedestrian
Based on criteria above, 14 stations are proposed from Tolgoit Station to Amgalan Station, with
a total of approximately 18 km.
Metro

BRT

Ulaanbaatar Railway

Sub Center

Underground Station

Intermodal to UB
Railway

Source: JICA Study Team

Figure 3.2.1 Concept of Intermodal System with Mass Transits

3-6
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Table 3.2.5 Station List of Ulaanbaatar Metro

Other Mode to
Structure Main Function
Transfer
Name of Station
At Under- Sub Inter- UB
Elevated Intermodal BRT P&R
Grade ground Center mediate Rail
W7 Tolgoit 〇 〇 〇 〇 〇
W6 West Bus
〇 〇 〇
Terminal
W5 Qarakorum
〇 〇
Market
W4 Sapporo
〇 〇 〇 〇
Rotary
th
W3 25 Pharmacy 〇 〇 〇
W2 Gandan
〇 〇 〇
Temple
W1 Nomin
〇 〇
Department
CS Sukhbaatar
〇 〇 〇 〇
Square
E1 Wrestling
〇 〇
Palace
E2 Cinema Studio 〇 〇
E3 Officer Palace 〇 〇 〇
E4 West
〇 〇
Botanical Park
E5 Trolley Bus
〇 〇 〇 〇
Terminal
E6 Amgalan 〇 〇 〇 〇
Source: JICA Study Team

A possibility of extension of the line shall be planned towards the west in accordance with the
expansion of urbanized area and a new town development in the west of Ulaanbaatar City. The
total length of the Metro will be about 26.6 km to connect with the new town. On the other hand,
in the east of Ulaanbaatar City, as there is a water resource area, the development must be
restricted. Accordingly, the extension of the Metro to the east is not planned, with the terminal
Amlgalan Station in the east. The terminal station is expected to serve as an intermodal transfer
facility between the Metro and Ulaanbaatar Railway.

3.3 Demand Analysis of Ulaanbaatar Metro

3.3.1 Approaches for Demand Analysis and Precondition
For demand analysis of Ulaanbaatar Metro, Origin-Destination (OD) table is updated by
applying the results of traffic count survey in November 2011 (11 locations of cordon line
survey and 10 locations of screen line survey and passenger occupancy survey), based on OD
Table of UBMPS, 2007.
Passenger occupancy survey identified average numbers of passengers of each type of vehicle,
by counting the number of vehicle and its number of passengers. Based on this, average
occupancy and PCU (Passenger Car Unit) was calculated.
Road transport network in 2011 was formulated by distributing OD Table of 2077 to updated

3-7
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

network including new or upgraded roads until 2011.

Table 3.3.1 Passenger Occupancy and PCU by Vehicle Type
Vehicles Passenger Occupancy P CU
Cars 181,855 332,575 1.83 1.0
Micro bus 8,089 66,319 8.20 1.5
Small Bus 605 7,062 11.67 2.0
Large Bus 6,231 245,865 39.46 3.0
Small Truck 17,045 30,776 1.81 2.0
Large Truck 5,088 8,455 1.66 3.0
Motorbike 239 294 1.23 0.7
Others 0 1.00 1.0
Private 204,227 372,100 1.82 1.13
Public 14,925 319,246 21.39 2.15
Source: JICA Study Team

Table 3.3.2 Adjusted Number of Trips by Mode

2007 2011
Mode of Transport
Trip (%) Trip (%)
Walking 1,035.4 32.4 1,035.4 33.2
Private 801.7 25.1 889.8 28.6
Bicycle 2.1 0.1 1.3 0.0
Motorcycle 0.6 0.0 0.8 0.0
Car - driver 480.4 15.0 536.5 17.2
Car - passenger 267.0 8.4 302.4 9.7
Tourist Bus 0.3 0.0 0.4 0.0
Company Bus 10.4 0.3 16.3 0.5
School Bus 1.5 0.0 2.4 0.1
Truck 39.2 1.2 29.4 0.9
Others 0.2 0.0 0.4 0.0
Public 1,356.6 42.5 1,189.0 38.2
Minibus (<=25 pax) 664.1 20.8 243.2 7.8
Standard Bus (>25 pax) 377.6 11.8 588.3 18.9
Trolley Bus 7.6 0.2 11.9 0.4
Taxi 307.3 9.6 345.3 11.1
Rail Train 0.0 0.0 0.3 0.0
Air 0.0 0.0 0.0 0.0
Total 3,193.7 100.0 3,114.1 100.0
Source: JICA Study Team

3.3.2 Demand Analysis of Ulaanbaatar Metro

(1) Fare System
One of the major indicators of traffic demand analysis is fare system. Based on the proposed
future transport network (Do Max case) in Chapter 2 of this report, demand of UB Metro is
estimated based on various fare system (see Table 3.3.3). According to this, the number of
passengers with an average trip length of 6.0 km is maximized, if the fare is free of charge.

Table 3.3.3 Demand Analysis of Various Fare System (2030)

No. of Revenue Average Average
Fare System Passengers Fare Trip Length
(persons/day) ($/day) (Tg/person) (km)
Free 0Tg 914,904 0 0 6.0
400 Tg (same as bus) 409,521 123,266 400 8.1
500 Tg (bus x1.25) 310,606 116,788 500 8.6
Flat Fare 600 Tg (bus x1.5) 238,600 107,609 600 9.0
700 Tg (bus x1.75) 176,682 92,935 700 9.6
800 Tg (bus x2.0) 116,665 70,232 800 10.0

3-8
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

20Tg/km 865,424 77,888 120 5.8

40Tg/km 808,746 137,487 226 5.6
Distance-b
60Tg/km 706,864 162,579 306 5.1
ased Fare
80Tg/km 594,090 154,463 346 4.3
100Tg/km 508,238 142,307 372 3.7
Note: 1US$=1330Tg
Source: JICA Study Team

Source: JICA Study Team

Figure 3.3.1 Number of Passengers and Revenue by Fare System
(Left: Flat Fare, Right: Distance-based Fare)

The present bus fare is fixed price (400 Tg), but in the case of the metro, which serves
long-distance travel, mixed fare including fixed price for short-distance and distance-based fare
for mid- to long-distance trips is common. Based on this assumption, a fare system is identified
to maximize both passenger demand and fare revenue.
A flat fare of 400 Tg and a distance-based fare of 60 Tg/km both will generate the maximum
number of passengers (see Figure 3.3.2). Therefore, both conditions are taken into consideration,
and it is proposed that the flat fare be applied up to a certain short distance, and the
distance-based fare be applied for a mid- to long-distance travel over the certain short distance.
Fare ＝400/2 + (distance - km) x 60/2 = 200 + (distance - km) x 30

Distance-based Flat

Source: JICA Study Team

Figure 3.3.2 Average Trip Length and Number of Passengers
by Mixed Fare System

3-9
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Based on the result of traffic demand analysis, the fare systems to maximize number of
passengers and revenue are identified:
1) Maximum number of passengers: Fare =200+(k-4) x 50 570,685 passengers
2) Maximum revenue: Fare =200+(k-2) x 60 US$158,467/day, and average trip length is
approximately 6.0 km.
Table 3.3.4 Demand Analysis of Mixed Fare System (2030)
No. of Average Average
Revenue
Fare System Passengers Fare Trip Length
($/day)
(persons/day) (Tg/person) (km)

200Tg within 2km 200+(k-2) x 50 486,975 155,832 426 6.3

+ distance-based 200+(k-2) x 60 466,080 158,467 452 6.1
fare over 2km 200+(k-2) x 70 439,565 149,452 452 5.5

200Tg within 4km 200+(k-4) x 50 570,685 142,671 333 6.4

+ distance-based 200+(k-4) x 60 558,562 150,812 359 6.2
fare over 4km 200+(k-4) x 70 541,685 151,672 372 5.9

300Tg within 2km 300+(k-4) x 50 418,070 146,325 466 6.8

+ distance-based 300+(k-4) x 60 404,958 145,785 479 6.6
fare over 4km 300+(k-4) x 70 389,560 144,137 492 6.3
300 + k x 50 287,971 138,139 638 6.8
Others
600+(k-2)x50 84,554 55,818 878 7.5
Note: 1US$=1330Tg
Source: JICA Study Team

In addition to the result of the demand analysis, other conditions are taken into consideration: a)
result of public transport user survey (willingness to pay to Metro fare with approximately
1.2-1.5 times the bus fare); and b) actual distance of UB Metro (approximately 18 km between
W7 to E6, approximately 6 km between W4 to E1 of city center). Based on these conditions, it
is proposed to apply the mixed fare system below1:
Fare = 200Tg + (distance - 2) x 50Tg
In this case, the number of users is 486,975/day; fare revenue is US$155,832 per day; and the
fare is 1,000Tg for 18 km between W7 to E6, and 400Tg for 6 km at average trip length. It
seems it will be easier for bus passengers to use UB Metro.

(2) Passenger Volume of Cross Section and Each Station

Based on the proposed fare system above, traffic demand of UB Metro is analyzed. The
maximum passenger volume of cross section is between W5 Qarakorum Market and W4
Sapporo Rotary. The station with maximum daily passenger volume is W6 West Bus Terminal.

1
These fare systems are the ones applied in demand forecast described in Chapter 3 and Engineering Plan in Chapter
4
Financial. In Chapter 10, a comparative financial analysis and evaluation is made based on three kinds of average
fare (400 Tg, 600 Tg and 800 Tg).

3-10
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Table 3.3.5 Estimated Maximum Passenger Demand of Ulaanbaatar Metro

Station 2020 2030

Maximum Volume of W5 Qarakorum Market 83,750 persons/day 139,540 persons/day

Cross Section - W4 Sapporo Rotary (10,050 persons/peak (17,000 persons/peak
hour) hour)

Maximum Volume of W6 West Bus Terminal 133,970 persons/day 227,050 persons/day

Station
Source: JICA Study Team
Note: Peak hour ratio is 12% of total daily passengers, based on the result of time distribution of person
trip, Household Interview Survey of UBMPS, 2007.

Table 3.3.6 Estimated Passenger Demand of Cross Section and Each Station
in 2020
West to East East to West Daily
Station passengers
Board Alight Carried Board Alight Carried (persons/day)
W7 Tolgoit 19,270 0 0 0 15,010 15,010 34,290
W6 West Bus Terminal 66,650 2,650 19,270 3,340 61,320 72,990 133,970
W5 Qarakorum Market 3,520 3,050 83,280 5,580 4,030 71,440 16,200
W4 Sapporo Rotary 18,340 22,320 83,750 16,660 13,800 68,570 71,130
th
W3 25 Pharmacy 5,180 10,390 79,770 4,370 3,970 68,180 23,910
W2 Gandan Temple 4,810 20,680 74,560 14,990 6,940 60,120 47,430
W1 Nomin Department 4,840 8,010 58,690 4,750 7,680 63,050 25,290
CS Sukhbaatar Square 16,700 19,980 55,520 25,750 20,160 57,450 82,610
E1 Wrestling Palace 8,260 9,570 52,240 6,620 8,640 59,470 33,100
E2 Cinema Studio 4,740 9,930 50,940 14,360 5,000 50,120 34,050
E3 Officer Palace 5,690 15,840 45,750 15,440 5,740 40,420 42,720
E4 West Botanical Park 130 3,620 35,600 7,620 340 33,140 11,730
E5 Trolley Bus Terminal 760 7,590 32,110 9,340 370 24,170 18,070
E6 Amgalan 0 25,290 25,290 24,170 0 0 49,460
Total 158,950 158,950 - 153,060 153,060 - 624,030
Source: JICA Study Team

Table 3.3.7 Estimated Passenger Demand of Cross Section and Each Station
in 2030
West to East East to West Daily
Station passengers
Board Alight Carried Board Alight Carried (persons/day)
W7 Tolgoit 29,450 0 0 0 19,990 19,990 49,450
W6 West Bus Terminal 113,520 3,340 29,450 3,680 106,500 122,820 227,050
W5 Qarakorum Market 4,150 4,240 139,630 7,580 5,600 120,830 21,580
W4 Sapporo Rotary 31,560 40,380 139,540 37,670 25,530 108,700 135,150
th
W3 25 Pharmacy 5,880 21,830 130,710 12,480 6,430 102,650 46,640
W2 Gandan Temple 7,000 22,410 114,770 18,230 8,960 93,370 56,610
W1 Nomin Department 4,730 11,670 99,360 6,620 10,600 97,360 33,630

3-11
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

CS Sukhbaatar Square 23,820 35,120 92,420 35,310 32,840 94,880 127,100

E1 Wrestling Palace 7,960 16,150 81,120 8,440 9,960 96,410 42,520
E2 Cinema Studio 4,420 12,110 72,920 17,710 6,290 84,990 40,550
E3 Officer Palace 8,160 24,630 65,240 29,050 8,280 64,220 70,130
E4 West Botanical Park 1,910 4,040 48,770 14,200 1,950 51,970 22,130
E5 Trolley Bus Terminal 840 12,540 46,640 16,690 510 35,790 30,600
E6 Amgalan 0 34,940 34,940 35,790 0 0 70,740
Total 243,450 243,450 - 243,510 243,510 - 973,950
Source: JICA Study Team

3.3.3 Overall Concept of the Metro Project

(1) Outline of Ulaanbaatar Metro
The outline of Ulaanbaatar Metro project is summarized in Table 3.3.8.
Table 3.3.8 Outline of Ulaanbaatar Metro
Name Ulaanbaatar Metro
Route Tolgoit Station – Amgalan Station (Phase1)
Total length 17.7km
No. of station 14 stations (8 elevated, 1 at grade and 5 underground)
Space Inside the Peace Avenue
Facilities Railway, station, entrance, depot
Source: JICA Study Team

(2) Total Image of Metro Project

To make Ulaanbaatar Metro as a centric network of public transport and urban functions, it
should be integrated as a main network of public transport system of Ulaanbaatar City.
If the promotion of urban development around UB Metro triggers Metro development, various
issues of progress in Ulaanbaatar City such as socio-economic development, investment
opportunity creation, employment opportunity creation, and environmental improvement will
follow.
To increase synergy effects of UB Metro project, comprehensive and integrated urban and
transport development program is indispensable.

Table 3.3.9 Total Image and Comprehensive Project Matrix of UB Metro

City Center Peri Urban Area Sub Urban Area
Total Image International Modern sub center Middle dense living
competitive development with environment
development with intermodal cores improvement with
commerce and accessibility to city
business, culture and center
tourism cores

3-12
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Transport Appropriate traffic Distribution for road Development of

Development management network development access road to trunk
Pedestrian network to Intermodal service roads and bus routes
station with feeder bus with BRT and buses to Improvement of bus
service connect to Ger areas feeder service
Private vehicle control
by road pricing and
ticket system
Urban Restructuring of urban Competitive District commercial
Development function by old commercial and and business center
apartment business districts with and public service
reconstruction convenient urban center
Underground facilities Living environment
development Convenient improvement of Ger
Urban design and commuting service areas
modern townscape Public apartment
improvement complex development
for resettlement of
people from Ger areas
Source: JICA Study Team

3-13
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Location Map of Ulaanbaatar Metro (Draft)

Figure 3.3.3

3-14
4 Urban Transport
System Development Plan
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

4 Urban Transport System Development Plan

4.1 Route Plan
4.1.1 Selection of the Structure: Elevated, Underground, At-grade
(1) Prerequisites for Selection of the Structure
For the selection of structure (elevated, underground, at-grade), the following prerequisites are
set:
Avoiding road closure to minimize impact on traffic congestion, i.e., avoiding
reduction in the number of lanes and removal of existing intersections and
turn-around points as much as possible.
Avoiding land acquisition as much as possible to avoid delay or abortion of the
project or changing of the plan.
No level crossing (railway crossing) provided between the Metro and road traffic.
Considering environmental aspects, such as landscape, noise, vibration,
sunlight, etc., particularly in the central part.

(2) Selection of the Structure

The type of structure is selected as follows based on the above prerequisites.
Underground structures will be used in the central part where there is no median
strip and there is not much public land on the roadside.
Ramp sections are to be provided in the roads with a median strip to enable
passengers to exit from the underground.
Elevating the subsequent section extending into the suburbs because this section
crosses intersections (roundabouts, ordinary crossroads, ordinary T-junctions),
turn-around points, and railway crossing.

The ramp section will have a retaining wall and an embankment of about 9 m in width and about
400 m in length. The ramp section will be provided in the median strip between Sapporo Rotary
Station and 25th Pharmacy Station at a point on the east side of East Intersection. Cinema Studio
Station is located at a transition point between underground and elevated sections and the section
has a median strip. Accordingly, this station will be an at-grade station (over-track station with the
track on the ground and the main station building over the track). The details are shown in Figure
4.1.1.

4-1
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Elevated Section

At-grade Section
Ramp Section
Underground Section

Ramp Section
Elevated Section

Source: JICA Study Team

Figure 4.1.1 Elevated, Underground, and At-grade Sections

4-2
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

4.1.2 Alignment plan

(1) Prerequisites for Establishment of the Alignment
1) Horizontal alignment
Horizontal alignment is examined on the basis of the following principles:
Underground section: Track center shall be run along the centerline of the road in principle.
Elevated section: Track center shall be run over the median strip for sections with a median strip.
Other sections: Track center shall be run along the wayside public land or the centerline of the
road.
Forward/backward of the trolley bus terminal station: Since the trolley bus station is located
within the botanical garden, the track center is relocated from the road into the garden.
Note that the radius of the horizontal curve must comply with the conditions stipulated in 4.4.3.
2) Rail level
Elevated station with vehicle traffic down below:
The rail level shall be set at 15 m above the road surface level taking into account the
construction gauge height (5.5 m or more) of the road, girder height, overhead clearance below
girder of the concourse floor, and building construction height.
Elevated station without vehicle traffic down below:
The rail level shall be set at 9 m above the road surface level while including the concourse on
the ground floor and the platform on the second floor.
Underground station
The underground station is planned as a two-level structure with the concourse on the first
basement level and the platform on the second basement level. The rail level shall be set at 17 m
below the road surface level to secure the space for an underground walkway and underground
utilities at a depth of 5 to 6 m below the road surface level.
3) Vertical alignment
On the basis of the rail level of each station above, the vertical alignment shall be set on the
conditions of the vertical gradient and the radius of the vertical curve stipulated in 4.4.3.
Rail levels shall be kept at 15 m above the road surface level for the sections between elevated
stations, to secure overhead clearance below the girder for the Ulaanbaatar Railway, which is
expected to have large-span bridges, and at points crossing the Sapporo Rotary, as well as to
ensure satisfactory ride quality.

(2) Result of the Study on Horizontal and Vertical Alignments

The schematic vertical alignment diagram planned according to the conditions described above is
shown in Figure 4.1.2. The detailed vertical alignment diagram is shown in 4.6 Civil Structure
Plan (Underground), and the horizontal alignment diagram is shown in Appendix.

4-3
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Source: JICA Study Team

Figure 4.1.2 Schematic Vertical Alignment Diagram

4-4
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

(3) Coordination with road flyover projects

At present, four road flyover projects (West Intersection, East Intersection, Sapporo Intersection
and Tolgoit), which are shown in Figure 4.1.3, are being planned on the proposed metro route.
Outlines of these projects, including measures against these projects’ impacts, are as follows.

① West Intersection
② East Intersection
③ Sapporo Intersection
④ Bayanburd Intersection
⑤ Tolgoit
⑥ Ajilchin
⑦ Intersection at Olympic Street and
Naranii Zam

Source: UBMP 2030 (draft)

Figure 4.1.3 Road Flyover Projects in Ulaanbaatar

1) East Intersection
Detailed design for this project has been completed by a Korean consultant team and was
approved. Utilization of funds from Mongolian Development Bank has been considered, and as
soon as it is deiced, a tender for the construction will be held.
This project is to separate a grade crossing between Peace Avenue and North-South Avenue by
building overpass in the east-west direction at the East Intersection. Pedestrian underpasses with
entrances at four corners are also included in this project. The plan of the flyover project at East
Intersection is shown in Figure 4.1.4.
As for measures for the metro project, it will be designed that metro tunnels are constructed by
shield method at both sides of the flyover so as to keep some clearance with the pedestrian
underpass.

4-5
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Source: UB City, Road Department

Figure 4.1.4 Flyover Project at East Intersection (Plan)

2) West Intersection
Detailed design for the project has been completed by a Chinese consultant team in 2008, using
the Ulaanbaatar City Government budget, and it was then approved. This project is planned to be
constructed through Chinese loan. When the evaluation and the approval from MRTCUD and the
parliament are completed, the construction will be scheduled to start this year.
This project has two overpasses. One is a continuous overpass to be constructed in the east-west
direction over the West Intersection and the next intersection. The other one is the overpass to be
constructed in order to connect North and West. The plan of the flyover project at West
Intersection is shown in Figure 4.1.5.
Since the flyover which connects North and West will be constructed, a lot of piers of the flyover
are designed on the Peace Avenue and the Intersection as if the piers block metro’s path. As for
measures for the flyover design, there is an idea that the flyover and the metro are constructed at
the same time and these are designed as integral-type structure. However, since the actual
construction time of the flyover is earlier than the metro construction, it will be requested to
change the layout of some piers so that the metro can go through the flyover with the minimum
requirement.

4-6
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Source: UB City, Road Department

Figure 4.1.5 Flyover Project at West Intersection (Plan)

3) Sapporo Rotary
The designing of a flyover for the Sapporo Rotary has not started yet. An elevated rotary of
turbine type was under consideration before, but the concept is not proceeding. On the other hand,
a tender for selection of consultant for flyover at Sapporo Rotary was carried out and the Chinese
consultant would be selected, but it was declared null and void. Retender for consultant selection
will be carried out around March or April, 2014. The concept which the consultant proposed is to
make grade separation by building flyover in an east-west direction at the center of Peace Avenue.
If the concept was adopted, it was required to change the proposed alignment. As for the design of
metro at Sapporo Rotary, it is required to watch future trends in plan of flyover and review our
proposed plan holing consultations with Public Transport Department and Road Department of
Ulaanbaatar City.

4) Sonsgolon (Tolgoit)
The Sonsgolon project is a grade separation between the Ulaanbaatar Railway and roads. The
feasibility study on the project is now in progress with a German consultant team. It is said that
the construction of the project will be carried out through Chinese loan, but it has not yet been
determined. The project consists of a flyover which passes over Ulaanbaatar Railway and
connects North and South and an underpass which passes under Ulaanbaatar Railway at the west
side of the existing level crossing. The plan of the Sonsgolon project is shown in Figure 4.1.6.
Metro project will be designed so as not to have effect on the Sonsgolon project.

4-7
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Source: UB City, Road Department

Figure 4.1.6 Flyover Project at Sonsgolon (Plan)

4.2 Transport Plan

4.2.1 Outline of the Transport Plan
The transport plan of Ulaanbaatar Metro is outlined in Table 4.2.1. Since there are a few sharp
curves and the distances between stations are relatively long, the train running time required
between two terminal stations can be shortened by setting the maximum speed to 100 km/h. To
reduce the construction cost and to ensure effective train operation, the number of cars for a train
should be six (6).

4-8
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Table 4.2.1 Outline of the Transport Plan

Item Description
Gauge (mm) 1,435
Traction system DC1.5 kV 50 Hz overhead line
Corridor St. Tolgoit – St. Amgalan
Route length (km) 17.640 km (between starting and terminal stations)
Minimum curve radius of main line
200
(m)
Maximum actual gradient of main
30.0
line (‰)
No. of stations 14 (including five underground stations)
Inter station Maximum 2,640
distance (m) Minimum 864
Average 1,356
Service hours 6:00 AM to 11:00 PM
Demand forecast
th
Corridor St. Sapporo Rotary – St. 25 Pharmacy Station
Year 2020 2030
PHPDT (pax) 10,729 17,767
Car composition for a train 6
Train capacity (180%) 1,428 1,428
Headway (peak hour) (sec) 515 300
Schedule speed (km/h) 39.2
Schedule time (minute) 27
Maximum operation speed (km/h) 100 (80 for underground section)
Average dwell time (sec) 30
Minimum shuttling time (sec) 300
Maximum number of trains in
7 12
operation
Maximum number of cars in
42 72
operation
Train make-up 2020 2030
Required No. of trains 8 13
No. of spare trains for inspection 1 1
No. of spare trains for extra
1 1
service
Total 10 15
Source: JICA Study Team

4.2.2 Train Operation Plan

(1) Traffic Volume at Peak Hours
The traffic volume at peak hours deduced by the demand forecast is shown in Table 4.2.2.

4-9
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Table 4.2.2 Traffic Volume at Peak Time (PHPDT)

Corridor YR 2020 YR 2030

th
St. Sapporo Rotary – St. 25 Pharmacy Stations 10,729 17,767
Source: Study Team

(2) Train Capacity

The train capacity based on the car composition is shown in Table 4.2.3.
Table 4.2.3 Train Capacity According to the Number of Cars
Train Capacity 4-car train 6-car train
Ridership 100% 618 pax 942 pax
Ridership 150% 826 pax 1258 pax
Ridership 180% 940 pax 1428 pax
Note: Calculation made with Tc: control car = 147 pax, M: motor car = 162 pax,
T: trailer car = 162 pax, 4-car train: Tc + M + M + Tc = 618;
6-car train: Tc + M + M + T + M + Tc = 942 pax
Source: JICA Study Team

(3) Simulation of Train Operation

The result/data of the train operation simulation is presented in Table 4.2.4.
Table 4.2.4 Simulation of Train Operation
Item Description
Corridor St. Tolgoit – St. Amgalan
Corridor length 17.640 km (between starting and terminal stations)
Overhead line voltage 1.5 kV
Maximum speed (km/h) 100 (80 for the underground section)
Car composition 3M3T
Congestion rate 180%
Train weight (t) 265
Train
Departure acceleration (km/h/s) 3.5
Deceleration (during running) (km/h/s) 2.0
Deceleration (stop) (km/h/s) 2.5
Operational time (minutes) 21
Dwell time (seconds) 30
Scheduled operation time (minutes) 27
Scheduled speed (km/h) 39.2
Source: JICA Study Team

(4) Calculation of Required Number of Trains

From the information in Table 4.2.2, the number of trains, train operation headway and number of
cars required for ridership were presented in Table 4.2.5. Analyzing the data, the 6-car train is
more efficient than the 4-car train. The required number of trains is calculated using the following
formula:

4-10
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

.
( time required to run train one way
+ time required to return to terminal) x 2
Required number of trains =
Train operation headway at peak hour

Table 4.2.5 Required Number of Trains

Number of Cars per Train 4 cars 6 cars
(Congestion rate: 180%) 2020 2030 2020 2030
Train operation headway at peak hours (minutes) 5 3 8 5
Time required to return to terminal (minutes) 5 3 5 5
Required number of trains 13 20 8 13
Required number of cars 52 80 48 78
Source: JICA Study Team

(5) Train Operation Plan

Train operation plans for 2020 and 2030 are shown in Table 4.2.6 and Table 4.2.7.

Table 4.2.6 Train Operation Plan for 2020

Year 2020
Section St.Torgoit - St.Amgalan
The number of cars per train 6
Train operation headway at peak hours (minutes) 7.5
Train operation headway at off-peak hours (minutes) 15
Train operation headway in early morning and late night (minutes) 30
Source: JICA Study Team

Table 4.2.7 Train Operation Plan for 2030

Year 2030
Section St.Torgoit – St.Amgalan
The number of cars per train 6
Train operation headway at peak hours (minutes) 5
Train operation headway at off-peak hours (minutes) 10
Train operation headway in early morning and late night (minutes) 30
Source:JICA Study Team

4-11
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

(6) Required Number of Trains and Cars

Table 4.2.8 Required Number of Trains and Cars
Year Trains required for Spare train for Spare train for Total number Total number
ordinary service inspection extra service of trains of cars
2020 8 1 1 10 60
2030 13 1 1 15 90
Source: JICA Study Team

(7) Train-kilometers and Average Daily Train-kilometers

The daily train-kilometers and average daily train-kilometers for 2020 and 2030 are shown in
Table 4.2.9.
Table 4.2.9 Train-kilometers and Average Train-kilometers
Year Train-kilometers/day Average
train-kilometers/day
2020 2,504.88 192.68
2030 3,845.52 295.8
Source: JICA Study Team

4.3 Car Plan

4.3.1 Outline of the Car Plan
It was proposed that the car plan use the advanced Japanese car model as a base. Japanese cars are
superior specifically in the reduction of the environmental load while achieving the required four
basic elements of RAMS (Reliability, Availability, Maintainability, Safety). The car plan of
Ulaanbaatar Metro is outlined in Table 4.3.1.
Cars of the Ulaanbaatar Metro must comply with the following requirements.
Reliability
Availability
Maintenance free
Safety
Redundancy and durability during frigid weather
Universal design and barrier-free
Crime and disaster prevention
Energy conservation, low maintenance cost, high recyclability

4-12
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Table 4.3.1 Outline of the Car Plan of Ulaanbaatar Metro

TC M (Motor Car) T (Trailer)
(Control Car)
Gauge (mm) 1,435
Electric system DC 1500 V
Car body length (m) 20 20 20
Car width (m) 2.95 2.95 2.95
Car height (m) 3.655 3.655 3.655
Car body Non-coated lightweight stainless steel or aluminum alloy
Car composition number 6
Car composition Tc + M +M +T + M +Tc
Axle load (t) 14
Tare weight (t) 25.7 28.2 22.4
Congestion rate 100 150 180 100 150 180 100 150 180
% % % % % % % % %
Seated 48 48 48 54 54 54 54 54 54
Standing 99 149 178 108 162 194 108 162 194
Total 147 197 226 162 216 244 162 216 244
Max. weight of riding 20 (average)
(t/car)
Designed max. speed 110
(km/h)
(Operation max. speed)
Max. acceleration (m/s*s) 0.92 (3.3 km/h/s), constant up to the riding mass of 21 t/car
Normal deceleration 0.97 (3.5 km/h/s), constant up to the riding mass of 21 t/car
(m/s*s)
Emergency deceleration 1.25 (4.5 km/h/s), constant up to the riding mass of 21 t/car
(m/s*s)
Bogies Bolsterless air spring
Traction motor 3-phase AC induction motor
Speed control method VVVF inverter controlled (IGBT)
Current collector Single arm pantograph
Braking system Electrical command brake, regenerative brake
Signal system Digital ATC
Gangway Provided (including the front through door)
Monitoring system TIS (Train information system)
Gradient climbing For the 35‰ gradient, short-term operation is possible at the
conditions passenger mass of 21 t/car by startup with one unit (8 MM) open.
Train and driving possible by connecting a train (starting
impossible) under similar load conditions.
TC: trailer with control M: motor car T: trailer

Source: JICA Study Team

4-13
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

4.4 Civil Engineering Facilities Plan

4.4.1 Ground Condition1
The ground condition of this route is characterized by the following:
1) The ground mainly comprises gravel and sand; however, the standard penetration test
shows that ground with N= about 20～30 is predominant. This ground condition
requires due care when selecting the bearing layer for the pile foundation;
2) The presence of a sandstone layer was confirmed from the underground CS
(Sukhbaatar Square) station to East Intersection. Sandstone was also confirmed at GL
-2 m at East Intersection;
3) The ground contains abundant groundwater, with the groundwater level ranging from
-0.8 m to -8.4 m; and
4) The freezing depth ranges from GL -3 to -4 m.

4.4.2 Underground Utilities and Obstacle Structures

(1) Underground Utilities
There are underground utilities including heating pipes, water supply pipes, sewerage systems,
communication cables and electric cables along the new route. The underground utility map has
been provided by the Engineering Facilities Division of Ulaanbaatar City.

(2) List of Infrastructures that Obstruct the New Route Plan

The infrastructures that must be considered when designing the horizontal and vertical alignment
plans in the new East-West Line route plan are listed below.

Table 4.4.1 Obstructive Structures

No. Infrastructure Location
1 Electric power steel towers Power steel towers close to or crossing the new
route plan
2 Road bridge Peace Avenue
3 Road bridge Peace Avenue
4 Underpass Two underpasses on Peace Avenue
5 Pedestrian bridge Peace Avenue
Source: JICA Study Team

1
The geological survey results from the following two surveys were referred to: 1) Feasibility Study on Metro
Construction Project in Ulaanbaatar City, June 2011; Public Transport Department of the capital city, Soosung, Seoul
Metro; 2) Report on Engineering Geological Investigation for the Basic Study on Urban Transmit Network for the
City of Ulaanbaatar: MON-MFF: TA 7156-MON: Ulaanbaatar Urban Transport Development Project, 2012

4-14
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Ped estrian b ridge

El ectric Power s teel tower

R oad b ridge

Underpass Unde rpass

Roa d brid ge

Source: JICA Study Team

Figure 4.4.1 Obstructive Structure Map for Peace Avenue

4.4.3 Design Condition of Civil Facilities

For the system selected after review in section 3.2, the railway design conditions for railway civil
facilities are established as shown in Table 4.4.2 in order to ensure safe operation with
considerations given to the local state.

Table 4.4.2 Railway Design Conditions for Civil Facilities

Item Design Condition
Gauge (distance between rails) 1,435 mm (standard gauge)
Space between rails (Rail center distance) 4,000 mm

Horizontal curve radius (R)

Main line 300 m or more (200 m or more at minimum)
Along platform 800 m or more
Depot 140 m or more

Maximum gradient
Main line 35 ‰
Sidetrack and Depot 3.5 ‰
Vertical curve radius (R) 3,000 m or more
Platform length 130 m (6 cars per train)
Source: JICA Study Team

4-15
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

4.5 Civil Structure Plan (Elevated)

4.5.1 General Construction of Elevated Structure
Since this Metro train will run above Peace Avenue, a combination of single-column piers and
girders is planned as the base structure type to minimize impact on the road traffic. However, in
locations where provision of a single-column pier in the roadway is not desirable, a portal pier
will be adopted.

(1) Superstructure
The standard superstructure will be constructed by pre-stressed concrete box girders 25 m in
length, which is the most economical bridge in general. The standard cross section is shown in
Figure 4.5.1.

Source: JICA Study Team

Figure 4.5.1 Standard Cross Section of Elevated Structure

(2) Substructure
Generally, the gravel layer with an N value of 20 ~ 30 exists at the depth of 10 ~ 40 m from the
surface in Ulaanbaatar City, and the rock mass exists below this gravel layer. Although it may be
possible to adopt friction piles, it would be better and desirable to drive piles into the rock which
is support layer. Detailed study will be carried out at the design stage.
In the case of pile foundations being constructed along the road without a median strip, a
large-sized single column foundation might be considered better than a pile group type with
footing in the respect that the impact range during work can be minimized. This idea will be
examined in the next design stage on which type to select.

4.5.2 Special Construction of the Elevated Structure

The length of the main span of the bridge to be constructed at the road crossing section of
Ulaanbaatar Railway will be 70 to 80 m, and pre-stressed concrete continuous box girders are
considered most suitable.

4-16
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

4.5.3 General Construction of the Elevated Station

JICA Study Team proposes the following two (2) types of elevated station.
Elevated station
1) Elevated station over roadways: Both track and concourse floors are elevated.
2) Elevated station over locations other than roadways: Only the track floor is elevated.
The standard cross sections are shown respectively in Figures 4.5.1 and 4.5.2.

Source: JICA Study Team

Figure 4.5.2 Standard Cross Section of Elevated Station (Two-layer Structure)

Source: JICA Study Team

Figure 4.5.3 Standard Cross Section of Elevated Station (Single-layer Structure)

4-17
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

4.5.4 General Structure of At-grade Station

Cinema Studio Station is located at the midpoint between the underground section and elevated
section. As the medial strip is wide enough to accommodate a station, this station is planned as an
at-grade station. The general cross section is shown in Figure 4.5.4.

Source: JICA Study Team

Figure 4.5.4 Cross Section of the At-grade Station (Over-track Station)

4.6 Civil Structure Plan (Underground Structure)

4.6.1 Underground Structure Plan
(1) Underground Station Structure
Cut-and-cover construction for underground stations can be categorized into two types as shown
in Table 4.6.1, namely, the top-down method and the bottom-up method. The study team
recommends that the bottom-up method be adopted for underground station construction. As
most of the underground construction works of UB Metro will be done below the road surface
level, road decking should be made to ensure unrestricted road traffic.
Table 4.6.1 Types and Features of Cut-and-Cover Method
Method Features
Bottom-up ・ Construction sequence is as follows:
method 1) Excavation and installation of struts and walers are carried out sequentially
2) After final excavation, the structure work is carried out sequentially from bottom upward.
3) Struts and walers are removed and backfilling is carried out.
・ Direct water-proofing of sidewalls
Top-down ・ This method integrates the structure and temporary support. The structure to be constructed
method under the ground is completed sequentially from the top downward through concrete placement
in parallel with excavation. An earth-retaining wall is used for structure. This method is used for
work close to buildings or the railway for example, to prevent deformation of the backside ground.
・ A diaphragm wall is mostly used for the earth-retaining wall. The ground condition of this new
route is mainly sand and gravel. Ground treatment work will be needed to prevent collapse of the
pore wall during the construction of diaphragm walls. The cost for such ground treatment work
will be relatively high.
・ The pile foundation of Narneezam Bridge currently constructed under Japanese ODA was made
by cast-in-place all casing piles. This is the method to cope with the risk of collapse of the pore
wall during the top-down method.
・ When the reinforced concrete diaphragm wall is used according to the top-down method, there is
the risk of water leakage in the future because waterproofing of sidewalls cannot be done.
Source: JICA Study Team

4-18
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

(2) Impact on Groundwater Vein

In the UB Metro plan, the rail level of the underground section is set at about 17 m underground
with underground station dimensions of about 23 m in width, about 210 m in length and about 13
m in height, and twin shield tunnels constructed in parallel between stations. For such structures,
the impact on groundwater vein at the underground section in service and construction periods
shall be considered. Since there is not so much silt and clay in the geologic strata around here, it
can be said that there is no permeable layer. It is understandable because the coefficient of
permeability obtained from the permeability test of the existing data is about 10-2, which is
relatively high. Therefore, it is unlikely that the groundwater vein is affected by the shield tunnel
of about 7 m in diameter located 17 m below ground surface.
As for underground stations, it is required to adopt a groundwater pump-up method to lower
groundwater level or a soil improvement method so that the underground construction work can
be conducted under conditions of no groundwater. In the case of adoption of the groundwater
pump-up method, it is required that a close study be made of the risk of ground settlement and of
wells drying up. On the other hand, in the case of adoption of the soil improvement method, the
construction cost is higher. With respect to an impact on groundwater vein, it is desirable to adopt
the soil improvement method. As for a permanent structure, groundwater vein may be impacted
by the station itself and the soil improvement for 210 m long per station. However, measures
concerning this impact have been investigated and it is already actualized in Japan. Some
measures are proposed and the mechanism of such measures is assisting seepage flow of
groundwater held back by the station itself using pipes or pervious materials. As already
mentioned, since there is probably no impervious layer up to the rock layer which exists at the
bottom, groundwater can flow under the station and diaphragm wall, unless the layer on which the
station is constructed is a layer of rock. Therefore, underground stations do not necessarily cut off
groundwater vein. It will be analyzed what measure is required for it with detailed data at the next
step.

(3) Impact on Hydrometeor

Ground settlement caused by groundwater is classified into consolidation settlement and
immediate settlement. Consolidation settlement means that the ground of small grain size such as
clay and silt is compressed gradually over a period of time with draining, and immediate
settlement means that the ground of large grain size such as sand and gravel is elastically and
momentarily compressed regardless of draining. Both of them are phenomena caused by the
increase in load at layer object to settlement, and as a phenomenon caused by groundwater, there
is the increase in effective stress caused by the drop of groundwater level. As already mentioned
above, there is perhaps no need to worry about consolidation settlement, as the ground around
here does not contain so much clay or silt. However, attention should be given to the immediate
settlement. Since almost all N value of sand and gravel layers around here is over 23 and its
elasticity coefficient is relatively high, the amount of immediate settlement is probably not so
much. It shall be determined if the groundwater level should be lowered during the construction
period at the design stage after detailed investigation of impact on it.

(4) Tunnel between Underground Stations

The tunnel between underground stations can be constructed according to (1) cut-and-cover
method, (2) shield tunneling method, and (3) NATM (New Austrian Tunneling Method), as
shown in Table 4.6.2. The table also shows the features of each method. Among these methods,
the shield tunneling method is proposed in view of the impacts on the traffic and the construction
cost.

4-19
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Table 4.6.2 Types and Features of Tunneling between Underground Stations

NATM (New Austrian Tunneling
Cut-and-cover method Shield tunneling method
Method)
Ground is excavated, and A shield machine is driven from a Temporary members are
using temporary supporting shield launching pit and the installed after the ground is
members such as walls and tunnel is constructed, excavated by using an
strust, the underground assembling segments made of excavator or other equipment.
Outline of Method tunnel is constructed in it. concrete or steel. The tunnel is constructed by
After that the excavation is using rock bolts and concrete,
backfilled. Temporary road if required.
panel is generally used to
avoid a negative impact on
road traffic.

This method has a cost This is a standard method for This method can be used for
advantage where traffic is not urban tunnels at present in limited soil conditions, and it is
much and the tunnel is not Japan. It is required to dispose not suitable for high water
deep. It is possible to dispose of high water content soil level. It is identified that water
Feature of excavated soil by cut and excavated by a shield machine level is relatively high at the
cover tunneling as general as industrial waste. However, it area of the proposed corridor.
surplus soil. is possible to dispose of it as
general surplus soil if a
solidification method is used.

Application to sand and ○ ○ -

gravel layers

○ ○
Application to rock

Cost × △ -
(Since the proposed tunnel is (This construction method is low
relatively deep and almost all cost for sand and gravel.)
temporary materials are
imported, this construction
method is not low cost.)

Considerable adverse × ○ -
impact on the road traffic
(Even though road panel is (There is low impact on road
used, it is impossible to avoid traffic as compared with the cut
temporary impact on road and cover method)
traffic.)

Impact to Environment △ ○
(It is required to consider (It is required to reduce noise,
appropriate measures for vibration, dust particles, etc. and
excavation work in the case impact on traffic and civilians.)
of rock layers)

Land acquisition/ ○ ○ -
resettlement
Since the construction area is Since the construction area is
inside public roads, there is inside public roads, there is no
no special impact. special impact.

Source: JICA Study Team

4-20
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

In urban areas and in ground with high groundwater levels, a closed type slurry shield machine or
earth pressure shield machine is used. When selecting the shield machine type for stabilizing the
face, due attention must be paid to the geological and ground water conditions, ground condition,
environment around the shaft, safety and economical efficiency. The following shield machines
will be used for the underground section of this UB Metro:
Shield machine compatible with gravel
Shield machine compatible with rock mass
The photos of slurry type and earth pressure type shield machines are shown below.

Reference Fig. 21.3 Example of structure of the slurry shield

hi

Reference Photo 21.2 Example of slurry shield machine

(Source: Design Standard for Railway Structures, and explanation; Shield tunnel, 2002, Railway Technical
Research Institute)

Figure 4.6.1 Slurry Shield Machine

Reference Fig. 21.2 Example of structure of the earth pressure shield

hi

Reference Photo 21.2 Example of earth pressure shield machine

(Source: Design Standard for Railway Structures, and explanation; Shield tunnel, 2002, Railway Technical
Research Institute)

Figure 4.6.2 Earth Pressure Shield Machine

4-21
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

(5) From Underground to Above-Ground

It is proposed that cut-and-cover by the bottom-up method should be adopted for the construction
of the transition section from underground to ground.
In this section, the track spacing changes from 13 m at the underground section to 4 m at the
ground section. The overall structural type is shown in Figure 4.6.3.

Source: JICA Study Team

Figure 4.6.3 The Overall Structural Type for the Transition Section

(6) Construction of Underground Utility Tunnel

A shield tunnel is proposed for the metro project. Although lifelines such as power supply
cables, communication cables, water supply pipes, sewage pipes and gas supply pipes are
generally not accommodated in railway shield tunnel, it is possible to construct an underground
utility tunnel through either a cut-and-cover method or a shield method at a required scale.

4.6.2 Size of Underground Structures

(1) Underground Station
The schematic drawings for an underground station are shown in Figures 4.6.4 and 4.6.5.
Length of underground station: L1=210 m
Length of platform : L2 = 20 m × 6 cars + 2 × 5 m = 130 m
Width of platform : B1 = 10 m

4-22
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Note: The width and height of the shield machine launching and arrival areas are larger than the ordinary
station structure.
Source: JICA Study Team

Figure 4.6.4 Plan View and Profile of Standard Underground Station

In the figure above, shield machine launching and arrival areas are planned at both ends of the
station.

Source: JICA Study Team

Figure 4.6.5 Sectional View of Standard Underground Station

(2) Shield
The shield section will be selected from either double-track shield or single-track paralleling

4-23
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

shield.
Since an island type platform is basically considered for the underground station to consider the
convenience of passengers, the single track paralleling shield is proposed because of its
advantageous alignment.
Generally, spacing of single track paralleling shield is 1D (D: outside shield diameter). As the
ground conditions are good for this project, spacing of parallel shields will be around 0.25D for a
section on the near side of the shaft in the east to be described later.
The advance shield may develop deformation under the influence of thrust force of the
succeeding shield. However, the recent shield design and construction technologies are fully
capable of predicting and evaluating such behavior.

1D

0.25D

Source: JICA Study Team

Figure 4.6.6 Image for Spacing of Parallel Shields

(i) Shield specification: Single track paralleling shield

Shield diameter: about φ6.7 m - φ7.2 m
Distance of shield center:
Maximum B1= 13 m, minimum B2=9 m
(ii) Shield excavation progress (as proposed)

Figure 4.6.7 shows the shield excavation progress (as proposed).

For the construction method of the section from the E-1 station up to the ground in the east, the
cut-and-cover method may be considered. However, considering the ground features and
appearance of sandstones as well as adverse impacts of the cut-and-cover method on the heavy
road traffic at East Intersection, the shield method will be proposed.
Accordingly, a shaft for U-turns was planned to the east of East Intersection.

4-24
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Source: JICA Study Team

Figure 4.6.7 Shield Excavation (as planned)

4.6.3 Vertical alignment plan of the underground section

Conditions for the vertical alignment plan of underground section are enumerated below:
1) Overburden of the station: As underground utilities are located at about 3 m below the
ground surface, the overburden of 4 m or more will be secured to accommodate space
for underground utilities.
2) The vertical alignment was planned in such a manner that a drainage pump room is
not provided between underground stations.
3) The vertical alignment was planned in such a manner that drainage is totally handled
by each underground station.
4) The spacing from the ground surface to the top of the shield was set to 1D or more.
5) The spacing from the underground walkway and bridge foundation from the bottom to
the top of the shield was set to about 1D.

▽GL

H > 1D

Source: JICA Study Team

Figure 4.6.8 Image for spacing between shields and ground surface

The vertical diagram is shown in subsequent pages.

4-25
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Source: JICA Study Team

Figure 4.6.9 Route Vertical View (1)

4-26
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Source: JICA Study Team

Figure 4.6.10 Route Vertical View (2)

4-27
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

Source: JICA Study Team

Figure 4.6.11 Route Vertical View (3)

4-28
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

4.7 Car Depot and Inspection/Maintenance Facilities

4.7.1 Outline of the Car Depot
A designated car depot will be provided for the purposes of car inspection/maintenance, servicing,
and nighttime storage. This will be a consolidated depot including the facilities for simple
inspection and repair and those for disassembly/priority inspection and overhaul. In this depot,
duties of the crews will also be determined. The details of duties of the crew in this depot are
summarized in Table 4.7.2
Table 4.7.1 Outline of the Car Depot Plan
Rolling Stock
Year 2020 2030
Corridor St.Tolgoit – St.Amgalan
Headway in peak hour (sec) 515 300
Car composition 6
Rakes required 10 15
Cars required 60 90
Plan for Maintenance Line
Designed car composition 6 cars: 15 rakes
No. of lines provided Car repair line (6 cars) 4
Special repair line (3 cars) 1
Wheel turning line 1
(12 cars)
Test line 1
Reset/composition line 1
(6 cars)
Plan for Car Maintenance Equipment Plan
Washing・cleaning track 3
(6 cars)
Plan for Stabling Line
Car composition 6 cars
Year 2020 2030
Required number of storage 10 15
lines
No. of storage lines in the 10 15
depot
Source: JICA Study Team

Table 4.7.2 Details of Duties at the Car Depot

Duties Details
Cars Operation in yard, car maintenance work, car inspection/repair
work, car operation plan, technology management
Crew Crew operation plan, crew operation control, guidance and
training
Management and Planning, management (cars, employees), materials
operation
Source: JICA Study Team

The consolidated car depot will have an operation control center and other related facilities, such
as the track facilities, machinery, power, signal, communications, maintenance bases, and
employee training and learning centers.

4-29
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

4.7.2 Car Depot Location

The functions of a depot are not only for inspection, maintenance and car parking but also for
working space of the crew.
It is desirable to place the depot around or near terminals or stations expected to have different
levels of passenger demand. It is also desirable to place the depot in the forward direction from
stations. Currently, the following nine prospective sites are proposed; these are described in
Table 4.7.3 and shown in Figure 4.7.1. Depot location shall not be determined in this study; it
will be discussed by the Mongolian Government from this time forward.
The following site conditions are required for the proposed depot.
1) Accessibility to main track
2) Rectangular land
3) Few existing buildings around the site
4) Required area (14 ha, at least)
In addition, the possibility of land use is being investigated by Ulaanbaatar City considering the
following two matters:
1) Avoidance of compulsory resettlement
2) No impact on the source of water supply (well)
Since it is not easy to understand the type of land ownership and the existence or absence of
land registration in Mongolia, it is required to select a suitable land based on the investigation
by Ulaanbaatar City. Moreover, proper attention should be paid to this process to avoid
negotiating a large compulsory resettlement; thus, the site proposed shall be withdrawn if
compulsory resettlement is expected..
When the location is decided, the following environmental considerations should be taken:
1) Noise/Vibration: It is impossible to perfectly eliminate noise and vibration generated by
trains arriving at or leaving the depot, but it is proposed to use ballast track in view of cost
and noise reduction measures. The potential site of No. 9 is the best location in terms of
minimizing noise and vibration, but it is required to select a location considering its distance
from the main track, among other conditions.
2) Water Contamination / Soil Contamination : Sewage generated by washing track shall be
isolated into oil and water and neutralized. And then it shall be drained after improvement
of the water quality. Since suitable sewage disposal for water generated from depot is
carried out, there is no difference for each location of prospective depots.
3) Wastes: Scrap iron waste generated by lathing wheel and consumables for the maintenance
of rolling stock shall be disposed of according to applicable criteria.
4) Air Pollution: There is no emission that will pollute air from depots.
Ulaanbaatar City was investigating a possible site for the depot and concluded that “No. 9:
Vacant place about 4.5 km to the west of the planned location of Tolgoit Station” is appropriate
among the prospective depot sites. But this is not a final decision, and further discussions with
the national government and Ulaanbaatar City are necessary.

4-30
Table 4.7.3 Prospective Car Depot Sites
Land Acquisition / Resettlement
Location Function Current Status

1 Railway facility Comprehensive Depot At present, this land is occupied by a private Landowners are plural private firms and land
right-of-way to the north enterprise, but it may be used for the car depot of acquisition is required.
Amgalan Station on Metro if the bypass route of Ulaanbaatar Railway is
Ulaanbaatar Railway developed.
2 Botanical garden near Comprehensive Depot The land is partly owned by a research institute, Landowner is National Science Academy and land
the planned location for The National Science Academy, and the institute has acquisition is required.
the trolley bus terminal been actively using the land since 1961. The area of
the botanical garden is 32 ha and it is used for
research/experiments, education and production.
The botanical garden is designated as green area by
the city urban master plan, which was approved by
Parliament in February 2013, and land development
may be regulated. Therefore, it may pose some
difficulty to use this land for the depot of the project.
And since there are only a few green in Ulaanbaatar

4-31
City, decreasing green makes a negative impact on
natural environment.
3 Passenger car depot to Comprehensive Depot Passenger car depot. Possibility of use is being Landowners are plural private firms and individuals,
the west of Ulaanbaatar confirmed. and land acquisition is required. Since there are some
Station on Ulaanbaatar apartments, resettlement may also be required.
Railway
4 Land located at east Storage tracks only Industrial area. Possibility of use is being confirmed. Landowners are plural private firms and individuals,
side of Harhorin market and land acquisition is required. Since there are some
apartments and houses, resettlement may also be
required.
5 Land located at west Storage tracks only Industrial area. Possibility of use is being confirmed. Landowners are plural private firms. There are some
side of Harhorin market apartments while other parts of the land are vacant at
present. Land acquisition and resettlement may be
required.
Land Acquisition / Resettlement
Location Function Current Status

6 Land located at north Comprehensive Depot Industrial area. Possibility of use is being confirmed. Landowners are plural private firms and individuals,
side of Peace Avenue and land acquisition is required.
around Tolgoit
7 Land located at south Comprehensive Depot Industrial area. Possibility of use is being confirmed. Landowners are government and plural private firms
side of Peace Avenue and individuals, and land acquisition is required. The
around Tolgoit number of landowners is more than those of other
proposed lands.
8 Land located at south Comprehensive Depot Industrial area. Possibility of use is being confirmed. Landowners are government and plural private firms
side of Peace Avenue and individuals, and land acquisition is required. The
around Tolgoit number of landowners is more than those of other
proposed lands. Moreover, there are some apartments
and houses and resettlement may be required. There
is a hospital and a school as well.
9 Vacant place about 4.5 Comprehensive Depot This land is planned for a residential area, but the Landowners are government and plural private firms
km to the west of the possibility for use as a car depot remains. The only and individuals, and land acquisition is required.

4-32
planned location of drawback is the distance.
Tolgoit Station

Source: JICA Study Team

THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

5 4
6 1

3
2
8 7

Source: JICA Study Team

Figure 4.7.1 Location Map of the Prospective Car Depots

4.7.3 Car Depot Development Plan

(1) Outline of the Car Depot Development Plan
The consolidated car center will perform duties related to the crews in addition to the
inspection/repair and maintenance, as well as nighttime storage. For these duties, the following
facilities may become necessary:
Car storage track group
Car inspection/repair equipment
Car maintenance track group
Crew-related facilities
Consolidated car depot operation-related facilities
To ensure smooth and effective implementation of all works of this car depot, close tie-up of
principal facilities/equipment is vital. Facilities/equipment arrangement must be such to achieve
this close linkage.

4-33
Inspection/repair track
(major inspection)
Inspection/repair track
(minor inspection)

Storage track group

Maintenance track group
Office

Source: JICA Study Team

Figure 4.7.2 Proposed Layout of the Consolidated Car Depot

4.8 Technical Issues on Works and Measures

Underground and elevated sections are proposed for this project. Since the work in the center of
Ulaanbaatar city is the first large underground construction, elaborate plan at the design stage and
thoroughgoing supervising system are required. It is needless to say that the environmental
protection and the safety management are required for the construction of elevated section as well,
but issues and measures on underground works which especially require attention are mainly
described in this section.
4.8.1 Elevated Works
The elevated sections of the Metro line, which occupy 61 % of the whole line, are approximately
10.8 km long in total. The elevated sections are slightly away from the center of the city, but since
the sections are on Peace avenue which has heavy traffic, the impact on the road traffic, the
environmental preservation and the safety management should be noted. Main points to note are
as follows:
(i) Segment method shall be selected so that impact on road traffic can be reduced and
construction period can be shorten.
(ii) Adoption of single pile foundation of large diameter shall be considered as an alternative so
that impact on road traffic can be reduced.
(iii) Special considerations should be given for the construction and curing of concrete during
wintertime in cold climate areas.

4.8.2 Underground Works

A cut-and-cover method for underground stations and a shield method for the section between
underground stations are proposed so that the impact on the road traffic and the construction cost
can be reduced. While the shield method is a field-proven and established method, there are
several things to be considered when the method is adopted, to wit:.

(1) Environmental Preservation

Essential matters to preserve environmental impacts are: (1) the establishment of a management
system by clients and contractors and guidance and education to workers and preservation of
documents; (2) forecasts and measures in a preparatory study; (3) discussions with local residents
before the start of the construction and even during the construction stage; and (4) monitoring
before construction, during construction and after construction. Specific contents on the
environmental preservation are as follows:

4-34
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

1) Noise and Vibration

Noise and vibration under construction by shield method are caused by gate type crane at TBM
launching pit, earth-and-sand hopper, blower, mud-water treatment equipment, grouting
equipment, heavy construction equipment and dump trucks. Preventive measures that could be
adopted are as follows:
(i) Adoption of soundproofed machines, to soundproof machines, to install soundproof
cover or silencer
(ii) Inspection and maintenance of machines and careful operation
(iii) To invent arrangement of sound source
(iv) Sound insulation equipments (soundproofing panel, soundproofing house)
(v) Consideration of working hours
(vi) Adoption of machines which generate little vibration
(vii) To install rubber and air spring as vibration isolator
(viii) Proper selection of machine layout
2) Ground Subsidence
Subsidence caused by shield tunnel works is described in (2) Ground Deformation and
Neighboring Construction in this sub-section.
3) Water Pollution
As for water generated by shield tunnel works, supernatant fluid is generally discharged after
suspended solids are removed and pH treatment is conducted. This treatment is conducted by
systematized turbid water treatment plant. The supernatant fluid is discharged into sewers or
rivers, but discharge destination shall comply with Sewerage Act, River Act, Ulaanbaatar
municipal bylaw and so on. And plan for sewage treatment method and equipment shall be set up
after grasping environment conditions for the periphery and Acts and Laws concerned prior to the
commencement of construction.
4) Excavated Soil
Muddy excavated soil and muddy water caused by excavation are called mud. Out of them the
mud regarded as industrial waste disposed as described in waste disposal treatment act etc. is
construction sludge. Dump truck of standard specification cannot load with construction sludge
and person cannot walk on the construction sludge because of high liquidity. The disposal of the
construction sludge shall comply with waste-disposal act, municipal law etc. in Mongolia and it
shall be disposed properly.

(2) Ground Deformation

It is possible to curb ground deformation caused by shield tunnel works at a minimum by proper
selection of construction method and construction supervision. For that it is required to
understand factors and mechanism of ground deformation caused by shield tunnel method and to
take some measures against it. Measures against deformation prevention are as follows:
1) Measures against Earth Pressure Imbalance at Cutting Face
As for earth pressure shield method, chamber pressure which is commensurate with earth and
water pressures at shield cutting face shall be applied by regulating propulsion speed, the number
of revolution of screw, conveyor. Suitable additives shall be infused so as to make liquidization as
necessary and void in the chamber shall not be produced.

4-35
As for slurry shield method, quality of slurry shall be regulated according to permeability of
ground to be excavated and slurry pressure which is commensurate with earth and water pressures
at shield cutting face shall be applied.
2) Measures against Disturbance of Ground during Propulsion of TBM
Disturbance to the neighboring ground with TBMs shall be curbed as much as possible. Sufficient
attitude control of TBM shall be conducted so that meandering TBM propulsion would be curbed
at a minimum.
3) Occurrence of Tail Void and Back-filling
Back-filling materials which are pervious and high in strength for consolidation shall be selected
depending on ground conditions. Appropriate impregnating pressure and percentage shall be
determined conducting trial construction.

4) Deformation of Primary Lining and Measures against Displacement

Joint bolts shall sufficiently tighten and joint structures with certain rigidity shall be adopted to
avoid deformation of segment ring.

5) Measures against Drop in Groundwater Level

Segment shall be elaborately assembled and sealing materials of high imperviousness and
endurance shall be used to prevent water leakage from joints of segment and voids in
back-filling.

(3) Neighboring Construction

As for neighboring construction, it is required to conduct preparatory survey and analysis of
behavior of the ground around the shield machine and its impact to neighboring buildings. If it
resulted in the malfunction of neighboring buildings or in physical damage to the buildings ,
measures against them shall be made depending on the degree. Impact of neighboring buildings
caused by shield tunnel construction depends on distance, length, ground deformation and
conditions, rigidity type of foundation of neighboring structures. Therefore, it is required to
consider these particulars and grasp impact of the neighboring construction.

4.8.3 Measures against Cold Climate Areas

(1) Considerations for Construction
The temperature of Ulaanbaatar in winter falls to minus 30 to 35 degrees Celsius, and it even
registers minus 40 degrees or below depending on the day. Therefore, it is very severe to work
outdoors during the three months of December, January and February and thus deliberate
measures against construction in the period must be taken. It is required to pay special attention
particularly to concrete works.
According to the standard specification for concrete works in Japan, the following matters are
laid down. 1) The temperature of concrete during curing shall be kept at 5 degrees or over; 2)
AE concrete shall be used; 3) The temperature of concrete during pouring shall be kept at 5 to
20 degrees; 4) Sand and gravel shall be heated; 5) Portland cement and mixed cement B class
shall be used. Even if conditions during pouring can be met, it seems to be very difficult to meet
conditions required for curing outdoors. It is unrealistic to take measures against curing to keep
the required temperature at a huge cost. In addition, according to interviews with some

4-36
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

construction companies, they mentioned that they do not pour concrete outdoors in Ulaanbaatar
during winter season. Therefore, during winter season, pouring concrete should not be
conducted outdoors and it is required to take measures such as making precast concrete indoors.
It is probably possible to pour concrete for underground station by the cut and cover method if
the conditions of curing concrete are met.
It is desirable that trustworthy companies which have advanced construction techniques for cold
climate areas and plenty of experiences will join the project in order to properly implement the
civil works during the cold winter.

(2) Considerations for Facilities and System

As measures against cold climate areas, it is required to give special consideration to facilities
and systems. Specific items for the measures are as follows: 1) protection against wind at station,
2) freeze-proofing of point, 3) frost-heaving, 4) freeze-proofing of traction power cable, 5)
protection against condensation and snow for electric items, 6) rolling stock specified for cold
climate areas (anti-slip measure of wheel, souped-up heater, semi-automatic door, protection
against low temperatures for windows and strengthening of insulation, etc.).

4.8.4 Procurement Schedule

It is required to conduct a preliminary study for the promotion of the project without any delay,
so that detailed design and preparation of tender documents can be commenced in 2014.
Supposedly, the construction commencement of permanent structures and the procurement of
other systems is scheduled some time in April 2016. Preparatory works and the works from the
commencement onward are set up as shown in Figure 4.8.1.

4-37
Work Item M/J 2012 2013 2014 2015 2016 2017

1 JICA F/S J
Offical Approval/ Inclusion into the
2 M
Concession Project List
Supplemental Study for Facilitation
3 J/M
of the Project Implementation
Budgeting for Preparatory Work
4 M
(EIA, UB-Metro Corp.)
Detail Design Work / Preparartion of
5 M/J
Tender Documents

Project Preparation
Tendering for the Infrastructure
6 M/J
Construction
Commencement of the >> >> >> >>

4-38
7 -
Construction
8 Preparation of the Legal Framework M
Environmental Impact Assessment
9 M/J
(EIA)
Official Procedure for Yen-loan
10 M/J
Procurement for Infarstrcuture
Offical Procedure for Establsihemnt
11 M
of the UB Metro Corporatioin
Business Commencement of the UB
12 M

Institutional Arrangement
Metro Corporation
Source: JICA Study Team
Final Report(Copy for Public Use)

Figure 4.8.1 Preparatory Works and Construction Schedule

THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
THE STUDY ON IMPLEMENTATION OF ULAANBAATAR CITY URBAN TRANSPORT PROJECT IN MONGOLIA
Final Report (Copy for Public Use)

4.9 Rough Estimate of Construction Cost

This is the first urban railway project in Mongolia and large underground and elevated
constructions are included in the project. And since it is very cold and construction is restricted in
the winter in Mongolia, special specifications of system to be used for cold districts are required
for the project.
Since there is no similar project in Mongolia, it is not easy to estimate project cost for the above
conditions. But the project cost has been estimated referring to procurement and winter
construction circumstances described above and comparing with Korean FS and construction cost
of Japan and other foreign countries.

Table 4.9.1 Urban Railway Outline Comparison between Korean FS and JICA
study
Item Korean FS JICA-FS(UTPUB) Remarks
Total Length 28.38km 19.3km Total length of whole route
At-grade Section 1.62km 0
Length Elevated Section 14.64km 12.73km
Underground Section 12.12km 6.62km
At-grade Section 1 1
The
Elevated Section 8 8
Number of
Stations Underground Section 12 5
Total 21 14
Method of Tunnel Construction Cut and Cover Method Shield Method
Mode of Urban Railway LRT MRT
The Number of Train Set 18 Trains 10 Trains (2020)
Source: Final Report, Feasibility Study on Metro Construction Project in Ulaanbaatar City

Table 4.9.2 Cost Comparison between Korean FS and JICA study

Koran FS JICA – FS
Item
Million US$ (Million US$)
Civil works Main track 739.8
Station 296.6 913.0
Sub-total 1,036.4
Construction
Track 97.6 65.0
Cost
Architect / System 588.0 300.0
Removal of obstacle 28.5 25.0
Sub-total 1,750.5 1,303.0
Land acquisition 39.2 30.0
Rolling stock 122.6 122.4
Contingency / Miscellaneous expenses 1,598 84.0
Total 2,229.6 1,539.4
1) Construction cost per KM（Million US$） 61.68 67.51
2) Rolling stock cost per car（Million US$） 1.80 2.04
3) Project cost per KM（Million US$） 78.56 79.76
Source: Final Report, Feasibility Study on Metro Construction Project in Ulaanbaatar City

4-39