国家公园的特许经营:国际比较与借鉴
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摘要
《建立国家公园体制总体方案》强调国家公园的经营管理实行"特许经营管理",但特许经营的法律依据、特许经营项目、受许人选择,如何监督受许人经营来保证国家公园的生态保护,特许经营的收费标准与依据,和特许经营可能面临的挑战等问题仍不十分清晰。选择以美国为代表的中央集权型、以澳大利亚为代表的地方自治型、以加拿大和日本等国为代表的综合管理型3种国家公园管理模式为分析对象,研究发现各国都以法律的形式明确提出特许经营"必要且必需"和"适当且效率"的开设原则,涉及7个领域的开设项目,且对受许人资格、能力、项目监督和评估机构等在法律中有严格的规定。各国制定特许经营费率的方式可分为单一标准和复合标准,但均是基于公园达到"收支平衡"的收益原则。尽管国外积累了丰富的实践经验,但是日益缩减的财政拨款、运营成本压力和合同分歧等问题也给特许经营带来了挑战。这一结论对制定中国国家公园特许经营制度具有一定的参考意义。
The overall plan for the establishment of national parks puts forward a clear proposal on the establishment of concession management system,but the legal basis of concession,concession project,concessioner selection,how to supervise the concessioner operation to ensure the ecological protection of the national parks,the standard of franchise fee and basis and the challenges are still not very clear.Taking the case of three national park management models,such as centralization represented by US,local autonomy represented by Australia,and integrated management represented by Canada and Japan,we find that the foreign countries all clearly put forward the principles of "necessity and appropriateness"as well as "suitability and efficiency"for concession operations involved in seven types of projects,and there are also strict regulations in the law for the franchisee's qualifications,abilities,project supervision and evaluation agencies. The ways of formulating franchise fees in different countries can be divided into single standard and compound standard,but are all based on the accounting principle of "budget for revenues and expenditures ". Although foreign countries have accumulated rich experience, the increasingly reduced financial allocation,operating cost pressure and contract conflicts have also posed challenge to concession. Our findings would provide reference to the formulation of the concession system of China's national parks.
The overall plan for the establishment of national parks puts forward a clear proposal on the establishment of concession management system,but the legal basis of concession,concession project,concessioner selection,how to supervise the concessioner operation to ensure the ecological protection of the national parks,the standard of franchise fee and basis and the challenges are still not very clear.Taking the case of three national park management models,such as centralization represented by US,local autonomy represented by Australia,and integrated management represented by Canada and Japan,we find that the foreign countries all clearly put forward the principles of "necessity and appropriateness"as well as "suitability and efficiency"for concession operations involved in seven types of projects,and there are also strict regulations in the law for the franchisee's qualifications,abilities,project supervision and evaluation agencies. The ways of formulating franchise fees in different countries can be divided into single standard and compound standard,but are all based on the accounting principle of "budget for revenues and expenditures ". Although foreign countries have accumulated rich experience, the increasingly reduced financial allocation,operating cost pressure and contract conflicts have also posed challenge to concession. Our findings would provide reference to the formulation of the concession system of China's national parks.
引文
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[3]黄进.构建风景名胜区特许经营制度的思考[J].经济体制改革,2009(5):158-161.
[4]王富有,陈建华.自然保护区经费来源问题研究[J].西北林学院学报,2008,23(6):226-228.
[5]田世政,杨桂华.中国国家公园发展的路径选择:国际经验与案例研究[J].中国软科学,2011(12):6-14.
[6]张朝枝.基于旅游视角的国家公园经营机制改革[J].环境保护,2017,45(14):28-33.
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