東京都政府體制之研究：廣域與分權治理的觀點

Abstract

關於「區域」與「都會」的治理，在當前的學術討論，主要有三大觀點，分別為「傳統改革主義者」、「公共選擇理論」與「新區域主義」；前者，強調地方自治體之間的整併，居次者強調地方自治體的分化與民眾的多元選擇；新區域主義強調地方自治體之間的夥伴關係建立與跨域的連結。三者討論的觀點不一，但討論的範疇皆為一個大區域如何面臨廣土眾民的問題。 日本東京位於關東平原之中，人口超過1300萬人；除此，周邊的埼玉縣、千葉縣、神奈川縣等，總計人口超過3500萬人，為世界最大的都會區，人口高度密接，而且分屬不同的地方自治體，其如何進行地方整合，實為重要課題。基此，本研究的討論課題如下： 一、隨都市規模的擴大，都市行政區域調整與跨域合作機制的分析比較； 二、廣土眾民的地方自治法人，其次級地方政府組織的體制應如何設計； 三、廣土眾民的地方自治法人，其都市地區與鄉村地區的治理模式為何； 四、研究東京都與周邊縣份的跨域合作，及轄下各地方自治體跨域運作； 五、東京都政府其都市治理運作經驗對於我國直轄市體制得予借鏡之處。 以日本東京都體制作為討論的對象，其特殊之處在於，在上層東京都政府之下，有62個地方自治體；其中，23個為「區」的體制；39個為「市町村」體制，係一個城市、兩種基層政府組織制度，不同的基層自治體體制，更展現出不同的廣域與分權自治模式。除此，在這樣的結構之下，東京都作為廣域自治體，如何整合62個基層自治體，以利都市整體政策的推動；同時又如何與周邊埼玉縣、千葉縣、神奈川縣進行跨域合作，甚至整合進入日本「首都圈」區域治理的大型計畫之中。 本文試圖從東京都廣域治理的經驗，分析整併、多元分化與自治體之間跨域合作的機會與限制。

Abstract Regarding the governance of “region” and metropolitan, in the current academic discussions there are three major views, respectively are “traditional reformist”, “public choice theory” and “new regionalism”; the first emphasizes the merge between local autonomous bodies, the second emphasizes the differentiation of local autonomous bodies and multiple choices of the public; while new regionalism emphasizes the establishment of partnerships and cross-region connections between local autonomous bodies. The views of discussion among the three are different, but all the scopes of discussion are the problems of how to face with wide public people of a large region. Tokyo of Japan is located in the Kanto Plain, with a population of more than 13 million; in addition, if added the population of surrounding Saitama, Chiba, and Kanagawa, the total population will exceed 35 million and become the world's largest metropolitan area with a highly and closely connected population, and belong to different autonomous bodies, so how to conduct local integration is indeed an important issue. Based on the above the subjects discussed in this study are as follows: 1. With the expansion of urban scale, the analysis and comparison of urban administrative region adjustments and cross-region cooperation mechanisms; 2. Regarding the local autonomies of wide public people, should how to design the system of second-level local governmental organizations; 3. Regarding the local autonomies of wide public people, what will be the governance model for their urban area and rural area; 4. The study of cross-region cooperation between Tokyo and surrounding counties, and the cross-region operations of various local autonomies under its jurisdiction; 5. What are the urban governance operational experiences of the Tokyo Metropolitan Government can be drawn on for the system of our country’s municipalities. Taking the system of Tokyo Metropolis as the object of discussion, its special features lie in that under the upper layer Tokyo Metropolitan Government there are 62 local autonomies; among them 23 are of a system of “district”; 39 are of a system of “city/town/village”, so is a city with two basic-level government organization systems, and the different basic-level local autonomous systems more show a different model of wide-area and decentralized autonomy. In addition, under such structure, as a wide-area autonomous body Tokyo Metropolis is how to integrate the 62 basic-level autonomous bodies in order to facilitate the promotion of overall policy of the city; at the same time how to conduct cross-region cooperation with neighboring Saitama, Chiba, and Kanagawa, and even be integrated into the wider large-scale plan of regional governance of Japan’s “capital circle”. Based on wide area governance experiences of Tokyo Metropolis, this paper attempts to analyze the opportunities and limitations of the merge, diversified differentiation and cross-region cooperation among local autonomies.