特大城市空间疏解与新城发展战略研究
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摘要
城市是区域经济发展的核心,特大城市则是区域经济发展的“引擎”。城市的规模越大,其对区域经济发展的辐射带动作用就越强。但城市规模过大时,社会经济发展要素在城市空间的过度集中,也使得特大城市面临交通拥堵、人口密集、环境污染、空间蔓延等“大城市病”。为缓解这些矛盾和问题,实现特大城市的空间疏解,新城的建设成为世界上一些国家和地区的战略抉择之一。
作为中国最大的城市,上海早在建国之初就开始了新城的规划建设。但发展至今,上海历史上形成的中心城人口和产业过度集中、城镇结构不合理、市区和郊区不平衡的状况仍未发生根本性变化。此外,近年来国内其它(特)大城市也兴起了新城开发的热潮。因此,对比总结新城建设的实效,分析判断新城建设的适用性,对于促进特大城市的合理发展以及规避新城的盲目建设,无疑具有现实的指导意义。
本文在总结回顾新城发展的相关理论及新城建设的实践历程的基础上,深入探讨了新城对特大城市空间疏解的作用效果,并分析了其实现条件。本文研究认为：新城对流向中心城的人口具有一定的截阻作用,但对中心城人口的疏解作用有限；新城一定程度上缓解了中心城产业和职能过度集中的状况,但同时也带来就业居住失衡、卧城等一些新的问题；新城在不同国家和地区的建设效果不同,褒贬不一,难以给与一致的评价。新城对特大城市的空间疏解具有一定的效果,但其实现需要具备一定的社会经济条件：城市经济的高度发展；郊区化趋势的显现；土地开发的严格管理；政府组织的相对集权；充足而多元化的产业支撑等。
此外,针对“上海新城发展”的主题,借鉴关于上海新城及松江新城的已有研究成果,结合分别基于上海中心城与松江新城居民的问卷调查与实地调研,先后研究考察了上海新城在人口疏解与产业分散、松江新城在居住与就业等方面的发展成效与现状,着重分析指出上海新城在发展建设中存在的功能定位偏低、产业支撑不足、规划建设缺乏连续性、缺乏立法保障与政策扶持、轨道交通发展滞后、新城理念宣传不到位、中心城发展与郊区新城缺乏联动性等多方面的问题,并据此提出促进上海郊区新城发展的若干政策建议。
Cities are the cores of regional economic development, while megalopolises are the powerful engines. The scale of cites is closely related to their boosting roles in regional economic development. However, accompanied with cities'overscale, over-agglomeration of socio-economic factors is generally produced otherwise, which results in urban problems in megalopolises, such as traffic congestion, high population density, environmental pollution and spatial sprawl. To tackle the urban troubles, the construction of new towns has become an important development strategy for many countries and regions around the world.
As China's largest city, Shanghai has construsted new towns early since 1940s. However, there are no radical changes to the inner city's chronic problems such as irrational urban structure and excessive concentration of population and industry so far. At the same time, other megalopolises and cities have been enthusiastic in building new towns in recent years. Therefore, it is practically essential for us to summarize, analyze and judge the actual effect and applicability of new towns in order to promote the rational development of megalopolises and cities.
After a general review of theory development and practices of new towns world-wide, this thesis studies the effect that new towns take to megalopolises'spatial dispersion.This article concludes that:new towns restrain the inflow of population to inner city, but can seldom prevent the outflow of population from inner city; new towns alleviate the excessive concentration of megalopolises somehow,while bringing about some other problems on the other hand; it is hard to draw consistent conclusion and rating on new towns'roles and fuctions to the spatial dispersion of megalopolises since they have different results in developed and developing countries. New towns will do some use to megalopolises on the following conditions:developed urban economy, prevalent suburbanization, strict management of land development, relatively centralized governmental organization, adequate and diversified industries.
Futhermore, based on questionnaire surveys and spot investigation taken both in inner city and songjiang new town in shanghai, this paper summarizes and analyses the present situation and troubles of shanghai's new towns, songjiang new town included, in the dispersion of population and industry, and housing and employment. Aamongst the study, the problems involved with new towns'development are specially emphasized as the following:irrational function orientation, inadequate industry support, lack of legislation and laws, lag in construsting rail transit, poor advertising and promoting of new towns etc.And finally, some policies and suggestions concerned are put forward accordingly.
作为中国最大的城市,上海早在建国之初就开始了新城的规划建设。但发展至今,上海历史上形成的中心城人口和产业过度集中、城镇结构不合理、市区和郊区不平衡的状况仍未发生根本性变化。此外,近年来国内其它(特)大城市也兴起了新城开发的热潮。因此,对比总结新城建设的实效,分析判断新城建设的适用性,对于促进特大城市的合理发展以及规避新城的盲目建设,无疑具有现实的指导意义。
本文在总结回顾新城发展的相关理论及新城建设的实践历程的基础上,深入探讨了新城对特大城市空间疏解的作用效果,并分析了其实现条件。本文研究认为：新城对流向中心城的人口具有一定的截阻作用,但对中心城人口的疏解作用有限；新城一定程度上缓解了中心城产业和职能过度集中的状况,但同时也带来就业居住失衡、卧城等一些新的问题；新城在不同国家和地区的建设效果不同,褒贬不一,难以给与一致的评价。新城对特大城市的空间疏解具有一定的效果,但其实现需要具备一定的社会经济条件：城市经济的高度发展；郊区化趋势的显现；土地开发的严格管理；政府组织的相对集权；充足而多元化的产业支撑等。
此外,针对“上海新城发展”的主题,借鉴关于上海新城及松江新城的已有研究成果,结合分别基于上海中心城与松江新城居民的问卷调查与实地调研,先后研究考察了上海新城在人口疏解与产业分散、松江新城在居住与就业等方面的发展成效与现状,着重分析指出上海新城在发展建设中存在的功能定位偏低、产业支撑不足、规划建设缺乏连续性、缺乏立法保障与政策扶持、轨道交通发展滞后、新城理念宣传不到位、中心城发展与郊区新城缺乏联动性等多方面的问题,并据此提出促进上海郊区新城发展的若干政策建议。
Cities are the cores of regional economic development, while megalopolises are the powerful engines. The scale of cites is closely related to their boosting roles in regional economic development. However, accompanied with cities'overscale, over-agglomeration of socio-economic factors is generally produced otherwise, which results in urban problems in megalopolises, such as traffic congestion, high population density, environmental pollution and spatial sprawl. To tackle the urban troubles, the construction of new towns has become an important development strategy for many countries and regions around the world.
As China's largest city, Shanghai has construsted new towns early since 1940s. However, there are no radical changes to the inner city's chronic problems such as irrational urban structure and excessive concentration of population and industry so far. At the same time, other megalopolises and cities have been enthusiastic in building new towns in recent years. Therefore, it is practically essential for us to summarize, analyze and judge the actual effect and applicability of new towns in order to promote the rational development of megalopolises and cities.
After a general review of theory development and practices of new towns world-wide, this thesis studies the effect that new towns take to megalopolises'spatial dispersion.This article concludes that:new towns restrain the inflow of population to inner city, but can seldom prevent the outflow of population from inner city; new towns alleviate the excessive concentration of megalopolises somehow,while bringing about some other problems on the other hand; it is hard to draw consistent conclusion and rating on new towns'roles and fuctions to the spatial dispersion of megalopolises since they have different results in developed and developing countries. New towns will do some use to megalopolises on the following conditions:developed urban economy, prevalent suburbanization, strict management of land development, relatively centralized governmental organization, adequate and diversified industries.
Futhermore, based on questionnaire surveys and spot investigation taken both in inner city and songjiang new town in shanghai, this paper summarizes and analyses the present situation and troubles of shanghai's new towns, songjiang new town included, in the dispersion of population and industry, and housing and employment. Aamongst the study, the problems involved with new towns'development are specially emphasized as the following:irrational function orientation, inadequate industry support, lack of legislation and laws, lag in construsting rail transit, poor advertising and promoting of new towns etc.And finally, some policies and suggestions concerned are put forward accordingly.
引文
A.K. Constandse, Almere:A New Town in Development:Problems and
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Anderton著,中国建设信息编辑部译.英国的郊区新城[J].中国建设信息.2004(19)： 56.
Hassan Afrakhteh著,唐子颖译.发展中国家的城市增长和新城规划：德黑兰大都市区案例研究.国外城市规划,2003(2)：5-9.
Markusen, A. R., “National Contexts and the Emergence of Second Tier Cities.” Second Tier Cities:Rapid Growth Beyond the Metropolis. Eds. Ann R. Markusen, Yong-Sok Lee and Sean Di Giovanna. Minneapolis:MN:University of Minnesota Press,1999.65-94.
Peter Hall. Urban and Regional Planning. London:Unwin Hyman,1989:81. Richardson, H. W.,C. C. Bae and M. Jun,“Migration and the Urban System of South Korea.” International Handbook of Urban Systems:Studies of Urbanization and Migration in Advanced and Developing Countries. Ed. H. S. Geyer. Cheltenham, UK:Edward Elgar,2002.503-524.
Stewart, D. J.,“Cities in the Desert:The Egyptian New Town Program.” Annals of the Association of American Geographers.86:3(1996):459-480.
Turner, A. (1980) Part One, of Turner, A.(ed.) Cities of the Poor:settlement planning in developing countries, London:Croon Helm.
William Alonso, What Are New Towns for, Urban Study,1970 (7):37-54.
白德懋.卫星城能起控制市区规模的作用吗[J].建筑学报.1981(4)：26.
陈凯龙.新城建设研究——以上海为例[D].上海：同济大学,2003：26.
丁成日.国际卫星城发展战略的评价[J].城市发展研究,2007(2)：121-125.
杜宁睿.荷兰城市空间组织与规划实践评析[J]_国外城市规划,2000(2)：12-14.
段小梅.经济发展水平与城市化特点[J],重庆商学院学报,2001(2)：39-40.
段小梅.控制大城市：措施的弊端[J].城市问题,2001(1)：2-6.
段小梅.世界城市化进程中的大城市—兼议我国大城市[J].城市,2000(2)：14-17.
甘信标、张越.我国新城建设的若干问题与启示[J].科技信息,2008(7)：285.
黄胜利、宁越敏.国外新城建设及启示[J].现代城市研究,2003(4)：12-17.
黄文忠.上海卫星城与中国城市化道路[M].上海：上海人民出版社,2003：10.
金经元.法国的新城政策.[J].国外城市规划,1981(1)：58-69.
孔祥智.北京卫星城发展的现状、问题和对策建议[J].北京社会科学.2005(3)：11-12.
李健、宁越敏.1990年代以来上海人口空间变动与城市空间结构重构[J].城市规划学刊,2007(2)：20-24.
林洪波.中国大城市新城建设研究[D].北京：首都经济贸易大学,2006.
吕颖慧、曹文明.国外新城建设的历史回顾[J].阴山学刊,2005(2)：103.
米歇尔·米绍著,何枫、任宇飞译,法国城市规划40年[M].北京：社会科学文献出版社,2007：10,110.
石忆邵.国际大都市建设用地变化特征、影响因素及对上海的启示[J].城市规划学刊,2008(6)：33.
宋春华.大城市发展与卫星城建设[J].建筑学报,2005(7)：36-40.
孙平.上海城市规划志[M].上海：上海社会科学院出版社,1999.
檀学文,北京卫星城人口变动及其对新城发展的启示[J].人口与经济,2008(3)：11-12.
陶希东.国际化大都市建设中的郊区新城发展政策[J].科学发展,2009(2)：34-44.
王鹏.从卫星城到新城——跳出同心圆的人口和产业,北京规划建设[J],2005(2)：139.
王唯山.密尔顿·凯恩斯新城规划建设的经验和启示[J].国外城市规划,2001(2)：46.
吴健熙、李志武、田一平.上海通史·第9卷.上海：上海人民出版社,1999.
项鼎.汉城：都市区的发展与规划管理[J].城市开发,2000(8)：20.
肖亦卓.规划与现实：国外新城运动经验研究[J].北京规划建设,2005(2)：136.
谢守红.大都市区空间组织的形成演变研究[D].上海：华东师范大学,2003.
徐文通.国外卫星城建设[J].基建优化,1983(2)：11-16.
杨卡、张小林.大都市郊区新城住区的空间演变与分化[J].城市规划,2008(5)：58-59.
杨卡.我国新城建设的现状与展望[J].现代经济探讨,2007(12)：28
叶贵勋.上海城市空间发展战略研究[M].北京：中国建筑工业出版社,2003：18.
叶贵勋.循迹·启新：上海城市规划演进.上海：同济大学出版社,2007.
叶建红、陈小鸿、李晔.上海城市快速扩张中交通系统特征变化分析[J].城市规划学刊,2007(6)：103-108.
袁朱.国外大都市圈或首都圈产业布局规划与实践[J].经济研究参考,2007(2)：1-3.
张捷、赵民.新城规划的理论与实践[M].北京：中国建筑工业出版社,2005：82,128,159.
章光日.关于新城开发热的冷思考[J].城市与区域规划研究,2008,1(1)：83-96.
郑正.关于上海卫星城镇建设方针政策的建议[J].城市规划汇刊.1984(2)：24-30.
郑正.上海卫星城服务设施建设与职工郊迁[J].城市规划汇刊.1987(4)：39-41.
钟荣魁.大城市的发展及其最佳模式[J].财经研究,1989(10)：34-36.
周志龙.台湾新市镇开发历程与政策[J].经社法政论丛,2000(25)：287-308.
朱东风、吴明伟.战后中西方新城研究回顾及对国内新城发展的启示[J].城市规划汇刊,2004(5)：31-36.
Perspectives[J]. Journal of Housing and the Built Environment 1989,4(3):235-255.
Anderton著,中国建设信息编辑部译.英国的郊区新城[J].中国建设信息.2004(19)： 56.
Hassan Afrakhteh著,唐子颖译.发展中国家的城市增长和新城规划：德黑兰大都市区案例研究.国外城市规划,2003(2)：5-9.
Markusen, A. R., “National Contexts and the Emergence of Second Tier Cities.” Second Tier Cities:Rapid Growth Beyond the Metropolis. Eds. Ann R. Markusen, Yong-Sok Lee and Sean Di Giovanna. Minneapolis:MN:University of Minnesota Press,1999.65-94.
Peter Hall. Urban and Regional Planning. London:Unwin Hyman,1989:81. Richardson, H. W.,C. C. Bae and M. Jun,“Migration and the Urban System of South Korea.” International Handbook of Urban Systems:Studies of Urbanization and Migration in Advanced and Developing Countries. Ed. H. S. Geyer. Cheltenham, UK:Edward Elgar,2002.503-524.
Stewart, D. J.,“Cities in the Desert:The Egyptian New Town Program.” Annals of the Association of American Geographers.86:3(1996):459-480.
Turner, A. (1980) Part One, of Turner, A.(ed.) Cities of the Poor:settlement planning in developing countries, London:Croon Helm.
William Alonso, What Are New Towns for, Urban Study,1970 (7):37-54.
白德懋.卫星城能起控制市区规模的作用吗[J].建筑学报.1981(4)：26.
陈凯龙.新城建设研究——以上海为例[D].上海：同济大学,2003：26.
丁成日.国际卫星城发展战略的评价[J].城市发展研究,2007(2)：121-125.
杜宁睿.荷兰城市空间组织与规划实践评析[J]_国外城市规划,2000(2)：12-14.
段小梅.经济发展水平与城市化特点[J],重庆商学院学报,2001(2)：39-40.
段小梅.控制大城市：措施的弊端[J].城市问题,2001(1)：2-6.
段小梅.世界城市化进程中的大城市—兼议我国大城市[J].城市,2000(2)：14-17.
甘信标、张越.我国新城建设的若干问题与启示[J].科技信息,2008(7)：285.
黄胜利、宁越敏.国外新城建设及启示[J].现代城市研究,2003(4)：12-17.
黄文忠.上海卫星城与中国城市化道路[M].上海：上海人民出版社,2003：10.
金经元.法国的新城政策.[J].国外城市规划,1981(1)：58-69.
孔祥智.北京卫星城发展的现状、问题和对策建议[J].北京社会科学.2005(3)：11-12.
李健、宁越敏.1990年代以来上海人口空间变动与城市空间结构重构[J].城市规划学刊,2007(2)：20-24.
林洪波.中国大城市新城建设研究[D].北京：首都经济贸易大学,2006.
吕颖慧、曹文明.国外新城建设的历史回顾[J].阴山学刊,2005(2)：103.
米歇尔·米绍著,何枫、任宇飞译,法国城市规划40年[M].北京：社会科学文献出版社,2007：10,110.
石忆邵.国际大都市建设用地变化特征、影响因素及对上海的启示[J].城市规划学刊,2008(6)：33.
宋春华.大城市发展与卫星城建设[J].建筑学报,2005(7)：36-40.
孙平.上海城市规划志[M].上海：上海社会科学院出版社,1999.
檀学文,北京卫星城人口变动及其对新城发展的启示[J].人口与经济,2008(3)：11-12.
陶希东.国际化大都市建设中的郊区新城发展政策[J].科学发展,2009(2)：34-44.
王鹏.从卫星城到新城——跳出同心圆的人口和产业,北京规划建设[J],2005(2)：139.
王唯山.密尔顿·凯恩斯新城规划建设的经验和启示[J].国外城市规划,2001(2)：46.
吴健熙、李志武、田一平.上海通史·第9卷.上海：上海人民出版社,1999.
项鼎.汉城：都市区的发展与规划管理[J].城市开发,2000(8)：20.
肖亦卓.规划与现实：国外新城运动经验研究[J].北京规划建设,2005(2)：136.
谢守红.大都市区空间组织的形成演变研究[D].上海：华东师范大学,2003.
徐文通.国外卫星城建设[J].基建优化,1983(2)：11-16.
杨卡、张小林.大都市郊区新城住区的空间演变与分化[J].城市规划,2008(5)：58-59.
杨卡.我国新城建设的现状与展望[J].现代经济探讨,2007(12)：28
叶贵勋.上海城市空间发展战略研究[M].北京：中国建筑工业出版社,2003：18.
叶贵勋.循迹·启新：上海城市规划演进.上海：同济大学出版社,2007.
叶建红、陈小鸿、李晔.上海城市快速扩张中交通系统特征变化分析[J].城市规划学刊,2007(6)：103-108.
袁朱.国外大都市圈或首都圈产业布局规划与实践[J].经济研究参考,2007(2)：1-3.
张捷、赵民.新城规划的理论与实践[M].北京：中国建筑工业出版社,2005：82,128,159.
章光日.关于新城开发热的冷思考[J].城市与区域规划研究,2008,1(1)：83-96.
郑正.关于上海卫星城镇建设方针政策的建议[J].城市规划汇刊.1984(2)：24-30.
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