我国经济在快速发展的同时，对各种货物的运输需求量也有了较大幅度的增长，但同时也出现了铁路运输占比持续降低且下降幅度持续扩大、公路运输独占鳌头的现象。大量的公路运输导致氮氧化物、颗粒物等污染物的排放量居高不下，而铁路单位货物周转量的能源消耗和环境中污染物排放量与公路运输方式相比非常低。且铁路运输方式的成本低、污染小，因此增加铁路货物运输量不仅可以减少交通运输行业对大气污染物的排放，还能够从源头节约运输成本，提高经济效益。在此背景下，2018年7月3日国务院正式颁布《打赢蓝天保卫战三年行动计划》，积极调整全国的整体交通运输方式和结构，发展健康的绿色交通运输体系，大幅提升铁路货物运输在全部货物运输中所占的比重，尤其是大宗商品的运输量。同年9月，由国务院印发的《推进运输结构调整三年行动计划（2018-2020）》正式出台，旨在优化全国货物运输结构，降低通过公路的货物运输量，提升铁路和水路所承担的大宗货物运输量。

我国作为一个煤炭能源消费的大国，其每年的煤炭运输总量一直保持不断增长的趋势，而我国的煤炭资源分布主要集中在西北地区，主要生产省份有内蒙古自治区、陕西省和山西省。S铁路线位于以上三省交汇之处，身处世界五大煤田之一的神府-东胜煤田，是我国继大秦铁路之后的第二条西煤东运大通道，承担着神府-东胜煤田、集团自产煤炭和部分地方煤炭的外运任务。“公转铁”政策的提出为该铁路线的业务发展带来了新的机遇。因此如何将“公转铁”政策有效落地实施对于公司提升运量及长远发展显得尤为重要，为榆林市、陕西省推进“公转铁”政策发挥起到表率作用，同时也可为其他地区推进“公转铁”政策有效落地及运输结构调整提供借鉴经验。

本文收集整理了该公司近几年来煤炭运输及其他货物运输量等数据资料，通过研读国家及陕西省、榆林市关于运输结构调整相关政策和国内外“公转铁”的相关文献，综合运用史密斯政策执行过程模型，阐述了“公转铁”政策在S铁路线执行的具体情况，得出的结论是截止政策规划时间即2020年底，包括全国和S铁路线范围在内，均没有完成“公转铁”政策的规划目标，而全国对政策规划目标的完成比例高于S铁路线；进而运用史密斯政策执行过程模型对S铁路线在“公转铁”政策执行中存在的问题及原因进行了分析，分析得出存在问题及原因体现在以下四个方面：政策本身存在一定缺陷、相关执行部门的推进力度不够、目标群体影响政策执行效果、缺乏良好的政策执行环境。针对分析出的以上问题提出了相对应的解决策略：完善政策内容、相关政府部门发挥好带头及协调作用、目标群体积极推进落实、优化政策执行环境。

With the rapid development of China's economy, the transportation demand for all kinds of goods has also increased by a large margin, but at the same time, the proportion of railway transportation has continued to decrease and the decline rate has continued to expand, and road transport is at the top of the list.A large number of road transportation leads to a high emission of pollutants such as nitrogen oxides and particulate matte, while the energy consumption of railway per unit freight turnover of railway and the emission of pollutants in the environment are very low compared with road transport.Moreover, the railway transportation mode has low cost and little pollution.Therefore, increasing the railway freight volume can not only reduce the air pollutant emissions from the transportation industry, but also save the transportation cost from the source and improve the economic benefits.In this context, on July 3, 2018, the State Council formally promulgated the "three-year Action Plan for winning the Defense of the Blue Sky", actively adjusting the overall transportation mode and structure of the whole country, developing a healthy green transportation system, and greatly increasing the proportion of railway freight transportation in all freight transport, especially the transportation volume of bulk commodities.In September of the same year, the "Three-year Action Plan for promoting Transportation restructuring (2018-2020)" issued by the State Council was formally issued, which aims to optimize the national freight transport structure, reduce the volume of goods transported through roads, and increase the volume of bulk goods carried by railways and waterways.

As a large country of coal energy consumption, the total amount of coal transportation in China has maintained a growing trend every year, while the distribution of coal resources in China is mainly concentrated in the northwest region. the main producing provinces are Inner Mongolia Autonomous region, Shaanxi Province and Shanxi Province. S railway line is located at the confluence of the above three provinces and is located in Shenfu-Dongsheng coalfield, one of the five major coalfields in the world. It is the second major channel for transporting coal from west to east in China after the Daqin Railway. It undertakes the task of outward transportation of Shenfu-Dongsheng coalfield, self-produced coal and some local coal.The proposal of the "public transfer iron" policy has brought new opportunities for the company's business development. Therefore, how to effectively implement the "transit iron" policy is particularly important for the company to improve transport volume and long-term development, and plays an exemplary role in promoting the "transit iron" policy in Yulin City and Shaanxi Province. at the same time, it can also provide reference experience for other areas to promote the effective landing of the "public transfer iron" policy and the adjustment of transport structure.

This paper collects and sorts out the company’s coal transportation and other cargo transportation data in recent years. Through studying the relevant policies of the country, Shaanxi Province, and Yulin City on transportation structure adjustments and related domestic and foreign "Road-to-Rail" related documents. The law and Smith policy implementation process model elaborated on the specific situation of the implementation of the "Road-to-Rail" policy in S railroad line, and concluded that as of the end of 2020,the policy planning time, including the country and the S railroad line, the "revolution" has not been completed. "Road-to-Rail" policy is the planning goal, and the proportion of the country's policy planning goals is higher than that of S railroad line; then using the Smith policy implementation process model to analyze the problems and reasons that S railroad line has in the implementation of the "railway transfer" policy is reflected in four aspects: The policy itself has certain shortcomings, the implementation of relevant departments is not strong enough, the target group affects the effect of policy implementation, and there is a lack of a good policy implementation environment. In response to the analysis of the above problems, corresponding solutions are proposed: perfect policy content, relevant government departments play a leading and coordinating role, target groups actively promote implementation, and optimize the policy implementation environment.

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