Abstract: In view of sociology,traffic congestion is primarily a social problem,and is also a livelihood issue.To solve such an issue,we should take the change from "car-based" to "people-oriented'',with the core of fair allocation of rights of way and equalization of public service resources.Based on the understanding above,this paper put forward some policy recommendations,such as:the priority right of way of the public transport;limiting car usage by economic levers;development of multi-level public transport system;perfection of slow traffic system;promoting green travel,friendly driving;achieving equalization of public resources and so on.