特大城市的人口调控:东京经验及其启发

Population Regulation of Urban Agglomeration:The Tokyo Experience and Its Implications

特大城市是城镇化的客观必然。尽管特大城市容易滋生大城市病,但是如果规划和管控得好,特大城市不仅可享受更高的城镇化质量,而且可以容纳更多的人口。特大城镇化的本质是人口的调控和人口再分布。因此从特大城市入手更容易发现人口调控的内在规律。在世界上众多特大城市中,东京的特大城镇化战略无疑是目前世界比较具有代表性、较为成功的特大城镇化案例。本文将深入剖析东京特大城镇化的发展演变历程,并总结贯穿于其中的人口调控经验,最后结合中国国情,为中国特大城镇化进程及其人口调控提供政策参考。本研究发现,东京都市圈进程中的人口调控经验可以归纳为六个点:一是政府发挥主导性作用;二是调整产业结构布局,中心区高端化;三是引导城市由单一中心型向多核心型城市结构转型;四是建立都市圈;五是便捷的交通设施网络;六是提高核心区生活成本,生活成本阶梯化。本文认为,特大城市的人口调控的基本思路应该是在科学发展观的指导下,遵循特大城市化人口分布规律,充分调动市场在人口调控中的决定性作用,最大限度发挥政府在人口调控中的引导性作用,以转变经济发展方式为人口调控的根本,以完善城市科学管理为关键;以国家层面调控为大背景,以区域层面的合作和分流调控以及城市层面的调控为重点;以产业等经济性手段调控为主,以技术性手段和行政性手段为辅;以企业调控为主,以流动人口和出租房屋主的管理调控为辅,做到标本兼治,努力实现多层面协作、多主体调控、多手段并用、多部门合作的人口调控工作格局。

Urban agglomeration is the inevitable consequence of urbanization. Although the extra large cities easily resulted into the cities diseases, with well planning and smart regulation of the mega cities, we can finally have high quality extra-large cities which can accommodate more people. The essence of the urban agglomeration is the regulation or re-distribution of the population. In this sense, it is easier to grasp the rules of population regulation to examine the process of the urban agglomeration. Of all the urban agglomerations in the world, Tokyo undoubtedly is the most representative and most successful urban agglomeration in the world. This study will analyze the process of urban agglomeration of Tokyo, conclude the experience of population regulation which is embedded throughout, and based on the China＇ s national conditions propose some suggestions for the process of future urban agglomeration in China. This paper summarizes the experiences of Tokyo in six points. The first is to play the dominating role of government ; the second is to adjust the structure of industry to make the center of city high-end oriented; the third is to guide the urban transformation of central urban structure from single core to multiply cores; the fourth is to establish a metropolitan area; the fifth is to establish the convenient transport facilities network; the sixth is to increase the living cost in the core area and gradually decrease the cost of living outward. This study suggests that the basic idea of population regulation of the urban agglomerations is to fully develop the decisive role of market in the population regulation, based on the rules of population distribution in the extra large cities, under the guidance of scientific developmental view; to develop at the most the guiding role of government in the population regulation; to set the transformation of economic development as the fundamental policy ; to consider perfecting the scientific governance of city as the crucial policy ; to view both the region and inter cities collaboration, under the background of national regulation, for split-flow of the population as the key policy; to mainly use the economic regulation with supplementary of technical means from the city planning and administrative means from the city governance ; to mainly employ the enterprise regulation with assistance of floating population and rental housing owners ; to achieve the work pattern of the multi-level, multi-body, multiple tools, multi-sectoral collaboration of the population regulation.