从旅游管理到旅游治理——中国旅游管理体制改革与政府角色扮演逻辑

Tourism Management System and the Logic of Government Roles of China——In the Perspective of Governance

中国旅游业近40年的大发展,见证了旅游体制改革深化。近期各地"旅游局"更改为"旅游委"的进程,也引发旅游学界有关政府角色的热议。文章以"治理"为框架,从政治、政体、政策三个维度来分析旅游治理,并从经济建设型、守夜人型、企业管理型、社团组织型、多元政体型、社会崇拜型六个范式分析旅游管理体制,从而为旅游政策的制定及政府在旅游经济发展中的角色选择提供更坚实的理论基础。从历史上的重大旅游政策、政府角色变迁和中国旅游治理范式演变,发现中国的旅游管理体制从旅游行政管理演化到旅游大众治理,同时又有回归到以政府为主导的旅游管理的迹象,各地政府开始积极规划新机构并加强旅游市场协调能力。文章旨在呼吁各旅游部门在转型期重新思考政府角色、进行旅游管理体制创新。

Tourism management system has played a pivotal role in the process of tourism economic development since 1978. Starting from the concept of governance, its three dimensions of politics, government, policy, to analyze tourism governance frame-work.Tourism economic governance model, pro-growth, clientelist, management, corporatist, pluralist governance, populist model is to explicitly study tourism management system, tourism policy and the government role. The study of policy of tourism in recent 40 years,the change of the government’s role and the China tourism governance paradigm evolution discovered that China’s tourism management system evolved from tourism management to public governance, recently, there are signs of a return to the government-leading tourism administration, as local governments started to actively planning MICE tourism. The study of latest tourism new policies and major roles of government aims at establishing the scientific management principles to design reasonable policy and tourism organization as a history lesson.