我国国家公园特许经营存在问题及法律对策研究——以公益性与营利性的法律关系为分析视角

A Research on Problems and Legal Countermeasures in the Concession Management of National Park of China——An analysis from the perspective of the legal relation between commonweal and profitability

建立以国家公园为主体的自然保护地体系是党的十九大提出的重大改革任务。特许经营作为推进国家公园建设的一项重要制度,其涵括的国家公园的公益性目的与特许经营者营利性目的之间的法律关系,是科学构建国家公园特许经营法律制度的关键所在。以此法律关系为分析视角,发现我国国家公园特许经营制度在实施中存在项目范围边界不清、特许协议法律性质不明确、信息公开不充分等主要问题,并揭示了这些问题与国家公园公益性目的和特许经营者营利性目的法律关系的各种潜在联系。进而结合我国实际,提出立法应明确公益性原则优先并规定公益性目的内涵,明确国家公园特许经营协议法律性质为行政协议,构建国家公园特许经营信息公开法律制度等完善国家公园特许经营制度的法律对策。

It is a major reform task proposed by the party’s 19th National Congress to establish a system of protected areas dominated by national parks.As an important initiative to promote the construction of national parks,concession management includes the legal relation between the commonweal purposes of national parks and the profit-making purposes of concessioners,which is the key to scientifically constructing the legal system of concession operation in national parks.Analyzing from the perspective of this legal relation,the paper finds such major problems as the vague boundary of project scope in the implementation of concession management in national parks of China,the indefinite legal nature of the concession agreement,and the inadequate information disclosure.It also reveals that these issues link potentially with the legal relation between the commonweal purpose of national park and the profit-making purpose of concessioners.Furthermore,it is proposed in regard to the reality in China that legislation should give an explicit priority to the commonweal principle and clarify the connotation of commonweal purpose.The legal nature of national park concession agreement should be taken as an administrative agreement,and the legal countermeasures like the legal system to disclose the concession information of national park should be established to improve the concession management of national park.