我国地质公园运营管理模式探析
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摘要
地质公园(Geopark)是自然公园的一种,是广大地学工作者在地质遗迹保护工作中经长期酝酿提出的概念,联合国教科文组织(UNESCO)将世界地质公园定义为:地质公园是指具有明确的边界线,并且有足够大的可以为当地经济发展服务的表面面积的地区。由一系列具有特殊科学意义、稀有性和美学价值的,能够代表某一地区的地质历史、地质事件和地质作用的地质遗址(不论其规模大小)或者拼合成一体的多个地质遗址所组成,它也许不只具有地质意义,还可能具有考古学、生态学、历史或文化价值。根据UNESCO1999年4月“世界地质公园计划”议程,建立地质公园的主要目的有三项:一是保护地质遗迹及其环境;二是促进地球科学科普教育和科学研究的开展;三是合理开发地质遗迹资源,促进所在地区社会经济的可持续发展。地质公园的建立一方面实现了对地质遗迹的保护,另一方面凭借其优美的地质生态环境和引人入胜的自然景观及不可再生的稀世遗迹,通过合理的规划建设而形成的旅游区,成功地推动了当地旅游业发展,增强了地方经济实力,增加了当地居民的就业机会,实现了地方环境、经济、文化的协调发展。
正因为其显著的综合效益,一石激起千层浪,地质公园一经提出,立即引起了各国政府的重视。我国国土资源部自2000年批准设立国家地质公园以来,已批准了138家国家地质公园,141家省级地质公园,遍及大陆所有省、市和自治区,其中有20家已成为世界地质公园。然而,由于地质公园建设起步相对较晚,我国对地质公园的建设与管理的研究相对滞后,地质公园建设缺乏理论指导。地质公园的管理运营也出现了一些问题,例如,经营机制效率不高、管理体制不顺畅、法律法规不健全等。基于此,本文从地质公园的产权着手,运用公共产品理论,阐释了公共产品私人生产的可能性,从而揭示了地质公园产权转移的可行性,为所有权和经营权分离的经营机制建立提供了理论支撑。在管理体制上,吸取国外先进的管理经验,结合我国地质公园的实际情况,以利益相关者理论为指导,构建我国地质公园省市两位一体、权威、统一的管理体制框架。同时为了保障高效的经营机制和合理的管理体制有效实施,进一步对地质公园法律法规的建设进行了探讨,从法律的层面对产权转移过程中所遇到的各种问题进行了规范,也为地质公园的具体管理提供了法律依据。
论文共分六章:
第一章:引言。以回顾国内外地质公园研究动态为核心,阐述了本文研究的缘由,研究对象,研究范围,研究理论、研究的目的、意义、重点、难点、预期的成果、研究方法以及本文的思路框架。
第二章:我国地质公园经营机制的探讨。在分析我国地质公园产权状况及存在问题的基础上,评价了不同专家的建议,确立了产权转移为我国地质公园经营必然选择的思想。并以此为指导,阐述了产权转移的可行性以及在转移过程中应该注意的问题。
第三章:我国地质公园管理体制探讨。分析我国地质公园的管理现状及存在的问题,借鉴国外成熟管理体制,以利益相关者理论为依据,构建我国地质公园的管理框架。
第四章:我国地质公园的立法探讨。分析我国地质公园的法律状况,总结其存在的不足,并争对具体的经营机制和管理体制提出了立法建议。
第五章:案例分析——以云台山世界地质公园为例。介绍了云台山地质公园的管理状况,在对云台山世界地质公园的管理模式评价的基础上,提出了完善其管理的各项措施。第六章:文章的主要结论、创新之处及存在的不足。
论文的主要结论概括如下:
①资源的属性不等于依托资源所提供的产品的属性。地质遗迹资源虽然属于国有性质,但对于依托其建立的地质公园所提供的产品却有多种属性,按产品的属性可以分为,公共产品、私人产品和准公共产品;
②公共产品并非一定由政府来生产,判断一种产品由谁来生产,主要看产品生产的效率。由于种种原因政府在公共产品生产的过程中,会出现“政府失灵”,同时由于地质公园产品的特殊性,部分公共产品的私人生产具有可行性;
③在地质公园发展的过程中,政府的重视是关键,主要体现在建立顺畅的管理体制,发挥政府的服务功能。顺畅的管理体制必须要克服“多头管理、条块分割”,以利益相关者理论为指导,建立统一、权威的管理机构能为地质公园的发展提供良好的外部环境;
④争对地质公园在立法上存在的问题,文章提出了首先要弥补法律断层,构建基本法《地质公园保护法》。并争对地质公园在实际运作中存在的问题,提出了明确地质公园的所有权归属、经营权转让制度、管理体制、资金保障和管理制度、规划制度、监督制度以及其他保护措施的建议;⑤云台山世界地质公园之所以创造“云台效应”,在管理上主要在于其高效的管理体制和政府的高度重视,但在运营机制上依然存在政企不分等问题,在法律上也存在无法可依的状况,阻碍了其进一步发展,走市场化道路,政企分开,加强法律规范,将会更进一步促进云台山的发展。
论文的主要创新之处在于:
①把产品理论运用到地质公园产品的分析,并得出地质公园产品的多种属性,提出了“国有资源提供的并非都是公共产品”的观点;
②在产权转移的过程中提出了建立二级产权交易市场和对旅游企业进行监督的措施,对具体的产权转移具有一定的建设性意义;
③依据利益相关者理论,结合我国地质公园实际的特点,提出了在省级建立旅游发展领导小组,下设一室、一智囊机构(非常设机构)和六个办事处,办事处成员有省级与旅游发展相关的主管部门的办事人员组成;在市级成立旅游产业发展委员会,主要有市级与旅游发展相关的主管部门组成;地质公园由各市旅游产业发展委员会的派出机构独立管理;国土资源部、国土资源厅(局)负责在业务上对派出机构进行指导并监督地质公园的发展的省市两级协调、互动、一体的管理体制;
④在地质公园法律法规的建议中,明确提出了要以法律的形式来保障产权交易市场的地位,保证产权交易的顺利进行,实现资源的优化配置。
Geopark is a tape of natural parks,which is advanced by the workers who have been worked in the study of geological heritage protection for a long time. UNESCO defines the Geopark that a Geopark is an area with a geological heritage of significance, with a coherent and strong management structure and where a sustainable economic development strategy is in place. A Geopark creates enhanced employment opportunities for the people who live there bringing sustainable and real economic benefit, usually through the development of sustainable tourism. In the framework of a Geopark, geological heritage and geological knowledge is shared with the broad public and linked with broader aspects of the natural and cultural environment, which are often closely related or determined to geology and landscape. The purposes that UNESCO stressed Geopark establishment are:①protect the geological heritage and its environment;②promote popularization-education on earth science and research;③distribute geological heritage resources rationally to promote continuable development of the region socio-economic. The establishment of Geopark on the one hand realizes the protection of geological relics,on the orther hand successfully promotes local tourism development, enhances local economic strength, increase the employment opportunities of local residents, accomplishes local environmental, economic and cultural development of coordination.
The concept of a Geopark aroused the attention of Governments because of its significant comprehensive benefit. There are 138 National Geopark and 141 Provincial Geopark Across all mainland provinces, municipalities and autonomous regions with the approval of Ministry of national land resources since 2000, of which 20 have become World Geopark..
Construction of Geoparks in China started relatively late, therefore the research on the Geopark construction and management has lagged behind, and the construction is short of theory guidance. Meanwhile, some problems occurs during the Geopark management oprations such as operating mechanism efficiency is not high, management system is not smooth, relative law and regulation is not enough healthiness. Using the public goods theory, this paper explains the possibility of privately production of public goods beginning with the Geopark property rights. feasibility of the Geopark Property Right Transfer has been revealed and provide a theoretical support for the establishment of efficient operating mechanism .On the basis of learning of the advanced foreign management experience, and combination with china's actual situation, with stakeholders theory as the guide, we are constructing one integrated, authority, unified management system framework of Geopark construction in China. The building of Geopark laws and regulations are discussed, and the various problems in the course of property right transfer are encountered by a standardized from a legal perspective to ensure efficient mechanism and reasonable management system implemented effectively.
The dissertation is divided into 6 chapters.
Chapter 1: introduction at the core of Reviewing the dynamic research of Geopark at home and abroad ,this chapter Expounded on the origins of this paper, research, the scope of the study, research theory and the purpose of the study, the significance of major and difficulty, the expected results, research methods and the technical route.
Chapter 2:Study on Geopark operating mechanism. On the basis of Analysis of geological park in China's property rights situation and existing problems, transfer of property rights become an inevitable choice for China's Geopark . on the guidance of this idea, the feasibility of the transfer of property rights and the problem in the transfer process has been discussed.
Chapter 3: Study on Geopark management system. Analyze present management situation of Geopark and the existing problems, with stakeholders theory as the guide, to construct the Geopark management framework by using foreign mature management system for reference .
Chapter 4: Chinese Geopark on the legislation. Analyzed China's legal situation of Geopark, summed up the inadequacies of its existence, and put forward legislative proposals on the specific operating mechanism and management system.
Chapter 5: A Case Study of Yuntai mountain world Geopark. Intrudoction and evaluation of Yuntaishan Geopark on the present situation and management system, some proposals and methods in perfecting its management are presented.
Chapter 6: The main conclusions of the article, innovation and lackness.
The main conclusions:
①The production attribute which depending on the resources is not the resources attribute itself. The geological relics resources with the state-owned nature, but the Geopark has provided a variety of attributes of products, according to the properties can be divided into public products, private products and quasi-public goods products.
②Public goods is not necessarily produced by the Government, they should mainly depend on the efficiency of production. Due to various reasons in the process of the production of public goods, there will be "government failure", on the other hand, because of the particularity of Geopark products, some of the private production of public goods is feasible;
③In the development of Geopark, the Government's attention is the key, mainly reflected in the establishment of smooth management system, the displaying of government's service function. The smooth management system should be integrated, authority and unified so as to provide good external environment for the Geopark development;
④In view of the question which existed in Geopark legislation, the article proposed that the fundamental law "Geological Park Protection method" should be constructed to make up the legal fault. Aiming at the question which exists in the actual operation, several relative suggestions explicit the property rights ownership of the Geopark, the management right transfer system, the management system, the fund safeguard-control system, the plan system, the supervision system as well as other protective measures suggestion are put forward in this paper;
⑤The reason of“Yuntai Effect”is mainly in its efficient management system and government’s important attach.But in the operating mechanism“Zhengqibufen”problems still exist in, the law can not exist Follow the situation, hindered its further development, and take the path of the market, separating government from enterprises, strengthen the legal norms, will further promote the development of Yuntaishan.
The main innovation of the thesis is that :
①The use of Products Theory in the analysis of geopark and the products that Geopark different attributes amend the traditional values that the "state-owned resources are public goods;
②In the process of the transfer of property rights, I have proposed to establish two property rights trading market for tourism enterprises and to supervise the measures,all these have a constructive meaning to specific property transfer ;
③Stakeholders based on theory and Geopark in China with the actual characteristics, propose to establish leading group in tourism development in the provincial ,under one room, set up a think tank (very body) and six offices, the Office of members and the development of tourism-related departments in charge of the staff component in the establishment of municipal development of the tourism industry, the main city and the development of tourism related departments in charge of the composition of Geoparks by the Tourism Industry Development Board dispatched an independent management body; land and nature resources, land and nature resources department (bureau) is responsible for the operational agencies to send guidance and supervision of the development of Geopark provincial and municipal levels of coordination, interactive, integrated management system;
④In the laws and regulations of geopark, clearly put forward that we must protect the property rights in trading market position in the form of law and ensure the progress of property rights transactions smooth and optimize resource allocation.
正因为其显著的综合效益,一石激起千层浪,地质公园一经提出,立即引起了各国政府的重视。我国国土资源部自2000年批准设立国家地质公园以来,已批准了138家国家地质公园,141家省级地质公园,遍及大陆所有省、市和自治区,其中有20家已成为世界地质公园。然而,由于地质公园建设起步相对较晚,我国对地质公园的建设与管理的研究相对滞后,地质公园建设缺乏理论指导。地质公园的管理运营也出现了一些问题,例如,经营机制效率不高、管理体制不顺畅、法律法规不健全等。基于此,本文从地质公园的产权着手,运用公共产品理论,阐释了公共产品私人生产的可能性,从而揭示了地质公园产权转移的可行性,为所有权和经营权分离的经营机制建立提供了理论支撑。在管理体制上,吸取国外先进的管理经验,结合我国地质公园的实际情况,以利益相关者理论为指导,构建我国地质公园省市两位一体、权威、统一的管理体制框架。同时为了保障高效的经营机制和合理的管理体制有效实施,进一步对地质公园法律法规的建设进行了探讨,从法律的层面对产权转移过程中所遇到的各种问题进行了规范,也为地质公园的具体管理提供了法律依据。
论文共分六章:
第一章:引言。以回顾国内外地质公园研究动态为核心,阐述了本文研究的缘由,研究对象,研究范围,研究理论、研究的目的、意义、重点、难点、预期的成果、研究方法以及本文的思路框架。
第二章:我国地质公园经营机制的探讨。在分析我国地质公园产权状况及存在问题的基础上,评价了不同专家的建议,确立了产权转移为我国地质公园经营必然选择的思想。并以此为指导,阐述了产权转移的可行性以及在转移过程中应该注意的问题。
第三章:我国地质公园管理体制探讨。分析我国地质公园的管理现状及存在的问题,借鉴国外成熟管理体制,以利益相关者理论为依据,构建我国地质公园的管理框架。
第四章:我国地质公园的立法探讨。分析我国地质公园的法律状况,总结其存在的不足,并争对具体的经营机制和管理体制提出了立法建议。
第五章:案例分析——以云台山世界地质公园为例。介绍了云台山地质公园的管理状况,在对云台山世界地质公园的管理模式评价的基础上,提出了完善其管理的各项措施。第六章:文章的主要结论、创新之处及存在的不足。
论文的主要结论概括如下:
①资源的属性不等于依托资源所提供的产品的属性。地质遗迹资源虽然属于国有性质,但对于依托其建立的地质公园所提供的产品却有多种属性,按产品的属性可以分为,公共产品、私人产品和准公共产品;
②公共产品并非一定由政府来生产,判断一种产品由谁来生产,主要看产品生产的效率。由于种种原因政府在公共产品生产的过程中,会出现“政府失灵”,同时由于地质公园产品的特殊性,部分公共产品的私人生产具有可行性;
③在地质公园发展的过程中,政府的重视是关键,主要体现在建立顺畅的管理体制,发挥政府的服务功能。顺畅的管理体制必须要克服“多头管理、条块分割”,以利益相关者理论为指导,建立统一、权威的管理机构能为地质公园的发展提供良好的外部环境;
④争对地质公园在立法上存在的问题,文章提出了首先要弥补法律断层,构建基本法《地质公园保护法》。并争对地质公园在实际运作中存在的问题,提出了明确地质公园的所有权归属、经营权转让制度、管理体制、资金保障和管理制度、规划制度、监督制度以及其他保护措施的建议;⑤云台山世界地质公园之所以创造“云台效应”,在管理上主要在于其高效的管理体制和政府的高度重视,但在运营机制上依然存在政企不分等问题,在法律上也存在无法可依的状况,阻碍了其进一步发展,走市场化道路,政企分开,加强法律规范,将会更进一步促进云台山的发展。
论文的主要创新之处在于:
①把产品理论运用到地质公园产品的分析,并得出地质公园产品的多种属性,提出了“国有资源提供的并非都是公共产品”的观点;
②在产权转移的过程中提出了建立二级产权交易市场和对旅游企业进行监督的措施,对具体的产权转移具有一定的建设性意义;
③依据利益相关者理论,结合我国地质公园实际的特点,提出了在省级建立旅游发展领导小组,下设一室、一智囊机构(非常设机构)和六个办事处,办事处成员有省级与旅游发展相关的主管部门的办事人员组成;在市级成立旅游产业发展委员会,主要有市级与旅游发展相关的主管部门组成;地质公园由各市旅游产业发展委员会的派出机构独立管理;国土资源部、国土资源厅(局)负责在业务上对派出机构进行指导并监督地质公园的发展的省市两级协调、互动、一体的管理体制;
④在地质公园法律法规的建议中,明确提出了要以法律的形式来保障产权交易市场的地位,保证产权交易的顺利进行,实现资源的优化配置。
Geopark is a tape of natural parks,which is advanced by the workers who have been worked in the study of geological heritage protection for a long time. UNESCO defines the Geopark that a Geopark is an area with a geological heritage of significance, with a coherent and strong management structure and where a sustainable economic development strategy is in place. A Geopark creates enhanced employment opportunities for the people who live there bringing sustainable and real economic benefit, usually through the development of sustainable tourism. In the framework of a Geopark, geological heritage and geological knowledge is shared with the broad public and linked with broader aspects of the natural and cultural environment, which are often closely related or determined to geology and landscape. The purposes that UNESCO stressed Geopark establishment are:①protect the geological heritage and its environment;②promote popularization-education on earth science and research;③distribute geological heritage resources rationally to promote continuable development of the region socio-economic. The establishment of Geopark on the one hand realizes the protection of geological relics,on the orther hand successfully promotes local tourism development, enhances local economic strength, increase the employment opportunities of local residents, accomplishes local environmental, economic and cultural development of coordination.
The concept of a Geopark aroused the attention of Governments because of its significant comprehensive benefit. There are 138 National Geopark and 141 Provincial Geopark Across all mainland provinces, municipalities and autonomous regions with the approval of Ministry of national land resources since 2000, of which 20 have become World Geopark..
Construction of Geoparks in China started relatively late, therefore the research on the Geopark construction and management has lagged behind, and the construction is short of theory guidance. Meanwhile, some problems occurs during the Geopark management oprations such as operating mechanism efficiency is not high, management system is not smooth, relative law and regulation is not enough healthiness. Using the public goods theory, this paper explains the possibility of privately production of public goods beginning with the Geopark property rights. feasibility of the Geopark Property Right Transfer has been revealed and provide a theoretical support for the establishment of efficient operating mechanism .On the basis of learning of the advanced foreign management experience, and combination with china's actual situation, with stakeholders theory as the guide, we are constructing one integrated, authority, unified management system framework of Geopark construction in China. The building of Geopark laws and regulations are discussed, and the various problems in the course of property right transfer are encountered by a standardized from a legal perspective to ensure efficient mechanism and reasonable management system implemented effectively.
The dissertation is divided into 6 chapters.
Chapter 1: introduction at the core of Reviewing the dynamic research of Geopark at home and abroad ,this chapter Expounded on the origins of this paper, research, the scope of the study, research theory and the purpose of the study, the significance of major and difficulty, the expected results, research methods and the technical route.
Chapter 2:Study on Geopark operating mechanism. On the basis of Analysis of geological park in China's property rights situation and existing problems, transfer of property rights become an inevitable choice for China's Geopark . on the guidance of this idea, the feasibility of the transfer of property rights and the problem in the transfer process has been discussed.
Chapter 3: Study on Geopark management system. Analyze present management situation of Geopark and the existing problems, with stakeholders theory as the guide, to construct the Geopark management framework by using foreign mature management system for reference .
Chapter 4: Chinese Geopark on the legislation. Analyzed China's legal situation of Geopark, summed up the inadequacies of its existence, and put forward legislative proposals on the specific operating mechanism and management system.
Chapter 5: A Case Study of Yuntai mountain world Geopark. Intrudoction and evaluation of Yuntaishan Geopark on the present situation and management system, some proposals and methods in perfecting its management are presented.
Chapter 6: The main conclusions of the article, innovation and lackness.
The main conclusions:
①The production attribute which depending on the resources is not the resources attribute itself. The geological relics resources with the state-owned nature, but the Geopark has provided a variety of attributes of products, according to the properties can be divided into public products, private products and quasi-public goods products.
②Public goods is not necessarily produced by the Government, they should mainly depend on the efficiency of production. Due to various reasons in the process of the production of public goods, there will be "government failure", on the other hand, because of the particularity of Geopark products, some of the private production of public goods is feasible;
③In the development of Geopark, the Government's attention is the key, mainly reflected in the establishment of smooth management system, the displaying of government's service function. The smooth management system should be integrated, authority and unified so as to provide good external environment for the Geopark development;
④In view of the question which existed in Geopark legislation, the article proposed that the fundamental law "Geological Park Protection method" should be constructed to make up the legal fault. Aiming at the question which exists in the actual operation, several relative suggestions explicit the property rights ownership of the Geopark, the management right transfer system, the management system, the fund safeguard-control system, the plan system, the supervision system as well as other protective measures suggestion are put forward in this paper;
⑤The reason of“Yuntai Effect”is mainly in its efficient management system and government’s important attach.But in the operating mechanism“Zhengqibufen”problems still exist in, the law can not exist Follow the situation, hindered its further development, and take the path of the market, separating government from enterprises, strengthen the legal norms, will further promote the development of Yuntaishan.
The main innovation of the thesis is that :
①The use of Products Theory in the analysis of geopark and the products that Geopark different attributes amend the traditional values that the "state-owned resources are public goods;
②In the process of the transfer of property rights, I have proposed to establish two property rights trading market for tourism enterprises and to supervise the measures,all these have a constructive meaning to specific property transfer ;
③Stakeholders based on theory and Geopark in China with the actual characteristics, propose to establish leading group in tourism development in the provincial ,under one room, set up a think tank (very body) and six offices, the Office of members and the development of tourism-related departments in charge of the staff component in the establishment of municipal development of the tourism industry, the main city and the development of tourism related departments in charge of the composition of Geoparks by the Tourism Industry Development Board dispatched an independent management body; land and nature resources, land and nature resources department (bureau) is responsible for the operational agencies to send guidance and supervision of the development of Geopark provincial and municipal levels of coordination, interactive, integrated management system;
④In the laws and regulations of geopark, clearly put forward that we must protect the property rights in trading market position in the form of law and ensure the progress of property rights transactions smooth and optimize resource allocation.
引文
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