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Urban transportation is an important part of urban economic structure, which plays an important role in promoting the orderly development of society, residents' work and life. This paper analyzes the fairness in traffic network design problem, constructs the average network improvement index to measure fairness, and establishes a bi-level programming model for road traffic network design considering traffic fairness. The upper model includes the optimal total travel time and traffic fairness, and the lower model is the traffic flow allocation model. Then, according to the characteristics of the model, a genetic algorithm is designed to solve the model. Finally, a simple example is given to illustrate the effectiveness of the mathematical model and algorithm. The model proposed in this paper can get the final road design scheme satisfying the total travel time and traffic fairness of the road network under certain road network conditions, and can provide decision support for traffic planners.