Abstract: The substantial increase in the number of electric vehicles has put forward higher requirements for the scale of charging and swapping facilities in service areas and the diversification of electric energy supply methods. Because of the influence of user charging and swapping decision-making behaviors on the planning results of charging and swapping stations, and from the social perspective, it is hoped that not only excessive investment can be avoided, but also the demand of electric vehicle users can be met more quickly and economically, a planning method for charging and swapping stations in a highway service area based on users' decision-making behavior simulation is proposed. Firstly, considering the coupling of users' decision-making results and the time-varying queuing time, a users' charging and swapping decision-making model based on the utility maximization criterion is established, and the electric vehicle flow in the service area is used as the simulation parameter to determine the users' charging demand and battery swapping demand by simulating the charging and swapping decision-making behavior of electric vehicle users. Secondly, a multi-objective planning model that considers the social comprehensive cost is established and solved by the NSGA-Ⅱ algorithm. Finally, a case study shows that considering the users' decision-making behavior can effectively improve the economy of planning.