中国城市群形成发育的新格局及新趋向

通过对中国城市群识别标准与现状格局的基本判断,提出了城市群形成发育的现状格局是由15个达到发育标准的城市群和8个未达到发育标准的城市群组成的"15+8"的空间格局,分析了中国城市群形成发育中呈现出的高密度集聚、高速度成长、高强度运转的"三高"特点,认为中国城市群形成发育中存在"四低"问题(发育程度低,投入产出效率低,紧凑度低,资源环境保障程度低)、"四争"问题(不顾条件盲目跟风争相纳入国家战略、争建国家试验区,不顾红线争相扩权强势、引发大规模的变相圈地造城运动,不顾深度合作争相重复建设、出现徒有虚名的高度一体化,不顾资源环境承载力争相提出高目标、滋生区域剥夺行为)、"四过"问题(过多的政府主导与行政干预、过高的发展前景估计、过密的集聚负效应和过大的发展差距)和"五缺失"问题(缺失统一的城市群识别标准、缺失规范的统计数据、缺失明确的归口管理机关、缺失公认的规划编制办法与执业制度、缺失权威的城市群规划法律地位);进而提出了中国城市群的总体发展战略与建设目标,认为未来中国城市群将形成由23大城市群、6大城市群集聚区和"π"字型城市群连绵带组成的国家城市群空间结构体系。最后提出了城市群建设的政策保障机制与对策建议。建议组建国家级城市群协调发展管理委员会和地方级城市群协调发展管理委员会,建立城市群公共财政机制和公共财政储备制度;修订《城乡规划法》或出台《区域规划法》,增补城市群规划的内容,制定城市群合作公约,出台《城市群规划编制审批办法》和《城市群规划实施管理条例》,建立城市群规划执业制度;出台城市群规划技术导则,引导城市群科学规划,加强城市群资源环境保障能力和可持续发展能力建设;依托快速国土轴,加快建设国家高速公路的7918网和以四纵四横为干线的国家高速铁路网,完善城市群快速交通系统;规范统计标准数据,编制并出版中国城市群统计年鉴。

New Structure and New Trend of Formation and Development of Urban Agglomerations in China

Based on the basic judgment of identification standards and spatial structure of urban agglomerations in China, this paper considered that "15+8" spatial structure system comprised of 15 compliance and 8 non-compliance of urban agglomerations was the present structure of formation and development of urban agglomerations in China. The main conclusions were as follows. Firstly, analyzing the "three high" characteristic comprised of high-density cluster, high-speed growth, high-intensity operation of urban agglomerations in China, this paper put forward: 1) "Four Low" problems containing low development degree, low input-output efficiency, low compact degree, low resources and environmental protection degree, 2) "Four Competition" problems comprised of blindly competing for national strategies regardless of own condition to strive for national pilot area, expanding their power regardless of the red line to trigger a large-scale land to construct cities, leading to the so-called high degree of integration with competing for construction repeatedly regardless of cooperation, breeding area deprivation with drawing up high goals careless for the resources and environmental capacity; 3) "Four-off" problems containing excessive intervention of government and administration, high estimated of the development prospects, dense negative effect of the clustering size, large development gap and 4) "Five Missing" problems comprised of lack of unified identification standard of urban agglomerations, lack of standardized statistical data, lack of centralized management with specific authorities, lack of accepted planning approach and implementation institution, lack of planning legal status of urban agglomerations. Secondly, this paper brought forward the overall development strategy and construction goals of urban agglomerations in China and thought that it would form national urban agglomerations spatial structure system comprised of 23 urban agglomerations, 6 urban agglomerations gathering area and "π" shaped urban agglomerations continuous band. Finally, some policy support mechanism and countermeasures suggestions for the construction of urban agglomerations in China were put forward: 1) to formate a national-level and local-level coordinated development management committee of urban agglomerations, public finance mechanisms and public financial reserve system for urban agglomerations, 2) to revise Town and Country Planning Act or to introduce Regional Planning Act which will add the content of urban agglomerations planning and draft treaty for cooperation of urban agglomerations, 3) to introduce Urban Agglomerations Planning Approval Approach and Urban Agglomerations Planning Implementation Management Ordinance and to build urban agglomerations planning implementation institution, 4) to introduce technical guide to guide scientific planning for urban agglomerations and to strengthen resources and environmental protection capacity and sustainable development capacity of urban agglomerations, 5) relying on the rapid land-axis and speeding up to construct the 7 918 national highway network and "four vertical and four horizontal" high-speed railway network for improving rapid transit system of urban agglomerations, and 6) to specify standards of statistical data and compile and publish Statistical Yearbook of Urban Agglomerations in China.