国家公园特许经营制度变迁的多重逻辑

On Multiple Logics of Institutional Change of National Park Concession

特许经营是具有推动国家公园科学运营、永续利用和福祉效用的重要机制,成为各国国家公园演化过程中普遍性的制度选择。以美国、新西兰、加拿大为例,从法律、合同、资金三重维度分析国家公园特许经营管理的制度逻辑:在立法管理层面,美国的“层级提升”路径和新西兰的“权责法定”路径促成了两国特许经营制度进一步的强化,而加拿大的“规范化路径”反使特许经营制度出现消解;在合同管理层面,美国在普遍的“分类管理”模式基础上,经由竞标制度创新提升了合同质量,新西兰通过去中心化改革以分层转换的方式推动制度均衡;在资金制度上,兼顾成本-效率的经费留园机制表现出较强的制度适用性。通过国际比较分析显示,国家公园特许经营制度变迁主要受三组矛盾关系的制衡结果影响,即:法定授权之于部门权力、合同关系之于权力放任、公开竞标之于自然垄断。面向多重的制度变迁逻辑,当前中国应着力于提高立法层次,明确特许经营的法定授权与责权关系、项目范围与类型,分步推动从“集中统一”到“分级分类”的合同管理制度改革,建立兼顾公益性与激励性的资金机制。

Concession as an important mechanism for national parks to promote the scientific operation,sustainable exploitation and benefit effectiveness,has become a universally adopted system in the evolution of national parks all over the world.The paper,from the triple dimensions of legislation,contract and finance,analyzes the institutional logics of national park concession taking the United States,Canada and New Zealand as examples.From the perspective of legislation management,the“level enhancement”approach in the United States and the“legislation of authority and responsibility”approach in New Zealand have further intensified concession system in both countries;the“standardization approach”in Canada instead has weakened the concession system of the national park.From the perspective of contract management,the United States has improved the quality of contracts through innovation of the bidding system on the basis of universal“classification management”,and New Zealand has prompted the system balance by means of partial conversion through de.centralization reform.From the perspective of fund management,the mechanism maintaining the concession income within nation park operation which balances cost and efficiency demonstrates strong applicability.The comparison analysis demonstrates that the change the concession system of national park is mainly shaped by the balance of three contradictory relations,that is,legislative authorization and sector power,contract relation and power abuse,public bidding and natural monopoly.Faced with the multiple logics of institutional change,it’s necessary for China to update the legislation level through defining legislative authorization and responsibility of franchise,clarifying the coverage and category of franchise and pushing forward the mechanism reform of contract management from the centralized model to hierarchical classification model,and thus construct a financial mechanism addressing both the needs of public welfare and competition.