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You can frame this many ways.

#1 it's second, not first.

#2 there are at least 10 different train/subway companies in Tokyo so it's 1 of 10 (JR, Eiden, Toei, Tokyu, Keisei, Keikyu, Keio, Odakyu, Tobu, Seibu)

#3 the government gets to pick the best spots via eminent domain

#4 lots of conflict of interest when government, via #3, decides who gets what

#5 It's not just Tokyo. Other big Japanese cities also have multiple train companies. Kyoto has at least 4 (JR West, Hankyu, Keihan, Keifuku), I'm sure Osaka has several too (haven't spent as much time there so not as familar)

#6 The fact that the gov trains exist does not in any way suggest that they couldn't rely on private companies completely, especially given the 9 other companies doing just fine



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