How to improve the operating mechanism of government management of scenic spots

First, the system and management status of China tourist attractions

According to relevant surveys, there are currently more than 20,000 scenic spots in China, accounting for more than 80% of the public scenic spots, and most of them undertake various functions, such as nature protection, cultural relics protection, scientific research, investigation and reception, etc. Management function is just one of them. Most of the operating income of scenic spots comes from tickets, especially natural and cultural scenic spots. Due to many factors, the diversified characteristic business activities of scenic spots have not been carried out smoothly and the industrial chain cannot be formed. In addition, the management cost of scenic spots is high, the burden is heavy, and the operating efficiency of most scenic spots is not ideal, so it is difficult to maximize the value, which has caused the limitation and waste of resources to some extent.

There are two kinds of scenic spot management: enterprise management and non-enterprise management. The former includes four types: state-owned enterprise management, private enterprise management, joint-stock enterprise management and overall lease management, while the latter is divided into two types: management with administrative functions and management without administrative functions.

Second, the scenic spot management mode and its advantages and disadvantages

1. government monopoly model

In this mode, the management organization established by the government manages the scenic spot and implements unified financial revenue and expenditure.

The advantage of this model is that the government can comprehensively coordinate various functional departments and integrate social resources, which can make the scenic spot develop rapidly. The disadvantage is that the government may regard scenic spots as a cash cow, especially in some backward areas. Scenic spots are the financial source of the government, so it is impossible to have spare money for the protection and development of scenic spots. In addition, due to the owner's absence in management, no one is responsible for the operating efficiency of the scenic spot, which leads to overstaffing and inefficiency, or being eaten by insiders or becoming a reception scenic spot.

The typical forms of government monopoly mode are direct management of county (city) government, management of administrative bureau, management of villages and towns and divide and rule. The direct management of county (city) government refers to the direct management of tourist attractions by the government. The biggest advantage is that you can be fully responsible for the planning, development and management of the entire scenic spot. It is a local people's government at the first level, which has the functions of planning, investment and development, management, protection and local legislation. Its functional departments can become the main body of administrative law enforcement, which can avoid the disadvantages of the "divide and rule" model, such as fragmented management, consideration of local interests and repeated construction. However, the existing problem is that many tourist attractions have a large scope, which is beyond the jurisdiction of counties and cities. On the contrary, there will be a phenomenon of divide and rule, competing for tourism resources and tourists.

Administrative management refers to the unified management of a tourist area by the scenic area management bureau established by the higher level government. According to the provisions of relevant laws or documents, the Administration has set up a series of functional management institutions corresponding to the internal organs of the government at the same level. The purpose of setting up the administration of scenic spots by the higher government is to have a special organization to plan, develop and manage scenic spots. But in fact, because the administration is not a local people's government at the first level, it is only an administrative agency. These functional management institutions established by the administration have no administrative law enforcement power, and the management implemented can be said to be reasonable or illegal. In addition, it is difficult to fully implement the administrative responsibilities, rights and interests, and it is impossible to effectively manage and develop the entire scenic spot.

Township management means that a tourist attraction is directly managed by a township government. Generally speaking, the tourist attractions that adopt this management mode are all newly developed, or the scenic spots are under the jurisdiction of several administrative regions, and the scenic spots outside the main scenic spots are developed and managed by the local township government. The advantages and disadvantages of this management model are similar to those of the county and city management model, but it is worse than the model that is not listed and directly managed by the county government in terms of development investment, supporting services and management.

"Divide and rule" management means that a tourist area is managed by two or more administrative units. For example, the land department manages the land and geological landscape in the scenic area, the cultural protection department manages the cultural relics in the scenic area, and the tourism department manages the reception and service facilities in the scenic area. This management mode can easily cause various departments to be unfavorable to the development of the whole scenic spot because of their interests.

2. Mode of transfer of management right

This model mainly obtains the development or management right of scenic spots in a certain period of time through leasing, contracting or selling. The characteristics of this model are: through leasing or contracting, the government may get more income than its own operation without much effort and investment, and through selling, it can get considerable funds at one time to solve the government's financial difficulties.

The advantage of this model is that the management right and ownership of scenic spots are separated, which is conducive to the independent operation of developers or operators, maximizing the marketization of scenic spots resources and providing market increments for scenic spots.

However, the value of scenic spots is realized through the efforts of operators. If well managed, it can have unlimited value. If it is not well managed, it may depreciate and even lead to losses for operators. Therefore, when leasing or selling, it is difficult to price according to any standard, and it is easy to use black-box operation to underestimate the price of state-owned resources and lose state-owned assets.

In addition, the management and development of scenic spots have strong professionalism and management inheritance. If the contractor or the buyout does not understand the management rules of the scenic spot, lacks management talents, lacks the understanding of the history of the scenic spot and the foresight of its development, the predatory management and development of the scenic spot and the short-term behavior in management benefits are likely to lead to serious damage to the scenic spot. Therefore, it is necessary to choose a professional scenic spot investment management company to lease, contract or sell.

3. Modern enterprise management mode

This mode usually has the following two ways:

Entrusted management: the owner of the scenic spot entrusts the scenic spot to a professional scenic spot management company to be responsible for its operation and management. The entrusting party is responsible for the planning, investment and construction, resource protection and relationship coordination of the scenic spot, and pays appropriate management fees to the management according to the comprehensive factors such as its management content and operation.

Cooperative operation: the owner of the scenic spot evaluates the operating assets in the scenic spot, absorbs other professional scenic spot management institutions and other economic components to form a joint-stock company with diversified economic components, and uses the modern enterprise system to operate and develop the scenic spot.

The biggest feature of adopting modern enterprise management mode in scenic spots is that the functional management department of scenic spots is separated from the operators, which avoids the situation that the functional management department of scenic spots is both a referee and a coach and an athlete. As a government agency, the functional management departments such as the Scenic Area Management Committee or the Administration Bureau are only responsible for the development planning, construction plan approval and resource protection supervision of the scenic area. Scenic spot operators (joint-stock companies suitable for modern enterprise system management) mainly carry out scenic spot management activities for the purpose of maximizing interests, including tourist service, scenic spot maintenance and marketing. Managers have clear responsibilities and effective implementation, and operators are market-oriented and put benefits first, which provides practical and effective institutional guarantee for the development and protection of scenic spots and can effectively avoid the loss of state-owned resources.

For example, 1999, Wuyishan Scenic Area took the price of state-owned operating assets as 5 1% of the total share capital, and absorbed private capital and internal employees to share shares in cash, accounting for 49% of the total share capital, and initiated the establishment of Wuyishan Tourism Development Co., Ltd., and the scenic area management Committee turned over 50% of the operating income to the government as the franchise fee of the scenic area and handed over the scenic area management right to the company. By 2002, the joining fee paid to the government alone was more than the total operating income of the self-operated management Committee 1999. Coupled with taxes, the fiscal revenue of government-run scenic spots is several times higher than that of its own operation.

However, the use of modern enterprise management mode to manage scenic spots should also pay attention to the distribution of interests and the balance of rights of all parties, have consistent goals and constantly revise them. Therefore, the two sides need good communication before cooperation to avoid conflicts afterwards, which will lead to cooperation failure.

Through the current management system and mode of scenic spots in China, it is imperative for the development and management of scenic spots to take the road of separation of ownership and management rights and marketization.