旅游法草案近日经十一届全国人大常委会第二十八次首次审议后引起了社会的广泛关注。草案第三章为旅游规划和促进,这一章对旅游发展规划编制的主体、内容和规划的衔接、评价及各级政府如何促进旅游业发展等方面作了规定。近日,在由北京第二外国语学院北京旅游发展研究基地主办的《中华人民共和国旅游法(草案)》高端研讨会上,与会学者、业内人士对这一章设置的意义给予了积极评价,认为应当强化对旅游规划的刚性约束,并对具体条款的修改提出了自己的建议。

The draft of the 11th supply recently by the NPC standing committee for the first time after deliberation the 28th time has been attracting wide attention from society.The third chapter the draft for tourism planning and promote,This chapter to the main body of tourism development planning/The content and the planning of cohesion/Evaluation and governments at all levels how to promote the development of tourism industry as well as the rule.recently,In the Beijing second foreign language institute Beijing tourism development and research base of the host[Supply of the People's Republic of China(draft)]High-end conference,The scholars/The personage inside course of study to this chapter the meaning of setting gave a positive evaluation,Think should strengthen tourism planning rigid constraint,And the specific terms of the modification Suggestions are put forward.

强化对旅游规划的刚性约束 To strengthen the tourism planning rigid constraint

　　北京交通大学教授石培华认为,旅游法草案用专章表述旅游规划和促进,特别是对旅游规划的论述,体现了对旅游规划的高度重视,这是一个历史性的突破,具有里程碑意义。

Beijing jiaotong university professor ShiPeiHua think,The draft statement supply with discussed with the tourism planning and promote,Especially for tourism planning, this paper discusses the,Embodies the tourism planning attach great importance,This is a historic breakthrough,A landmark.

　　“草案规定旅游规划和促进,无非是要让旅游业发展保持可持续性,一代代旅游者都对旅游资源享有权利。”北京第二外国语学院法学系主任申海恩副教授说。

"The draft stipulates tourism planning and promote,It is to make tourism development maintain sustainability,A generation of tourists on the tourism resources enjoys the rights."Beijing second foreign language institute director from ShenHai grace associate professor said.

　　但石培华同时指出,草案中对旅游规划描述的条目虽然不少,但略显缺乏刚性约束,更多内容是对旅游规划提出约束性要求,这是必要的,但也需要强化旅游规划的法律效力。

But ShiPeiHua also pointed out,In the draft of tourism planning described though many items,But slightly lack of rigid constraint,More content is put forward for tourism planning binding requirements,It is necessary,But also need to strengthen the tourism planning legal effect.

　　“建议深化对旅游规划重要性、独立性的认识,在下一步审议中,一定要对该章给予保留,并进一步强化其独立性和刚性约束。”石培华说,一是要更加认识到,旅游规划在促进旅游业科学发展,协调均衡各种利益主体利益诉求等具有基础性、统筹性、引领性、源头性、根本性的作用；二是要认识到旅游规划具有独特性,是一种独立的类型,其他规划类型无法取代的。而且,旅游规划有跨地域性和跨专业领域性。因此必须作为一种独立的综合性专业规划。

"Suggestions for deepening the tourism planning importance/Independence understanding,In the next step in the review,Must to this chapter to keep,And further strengthen its independence and rigid constraint."ShiPeiHua said,One is to more aware,Tourism planning in promoting tourism science development,Harmonious and balanced each kind of benefit main body has basic interests and needs/Sex as a whole/Lead sex/Source sex/Fundamental role;The second is to realize tourism planning is unique,Is a kind of independent type,Other planning type can't replace.and,Tourism planning cross regional and cross major field sex.So we must as an independent comprehensive professional planning.

稀缺旅游资源应当控制人数 Scarce tourism resources should be the number of control

　　旅游法草案第二十条规定了国务院、省级人民政府和旅游资源丰富的市级人民政府应当组织编制旅游发展规划。石培华认为,旅游规划不仅仅是发展规划,还有很强的空间性,为保护好各类旅游资源,还建议应该编制各类控制性和修建性的详细规划。因此建议增加对重点旅游区组织编制空间规划和控制性或详细性规划。

The draft supply provided for in article 20 of the state department/The provincial people's government and the tourism resources abundant municipal people's government shall develop tourism development planning.ShiPeiHua think,Tourism planning is not only a development plan,There are strong spatial,For the protection of good all kinds of tourism resources,Also suggested that should prepare all kinds of controlling and build sexual detailed planning.We therefore suggest that increase the key tourist area develop space planning and controlling or detailed planning.

　　针对草案第二十一条规定的规划内容,石培华指出,对旅游业起主导作用和主体功能的特色区域,或旅游产业集聚发展区域,建议应编制区域旅游规划。

According to the provisions of article 21 of the planning content,ShiPeiHua pointed out that,Of the tourism industry plays a leading role and the characteristics of main function region,Or tourism industrial cluster development area,Advice should prepare the regional tourism planning.

　　北京颐和园园长阚跃则建议在该条款中增加“在旅游规划中,对稀缺旅游资源应适当限制人流量”的内容。

The Summer Palace, Beijing KanYue kinzley is recommended in this clause increase"In tourism planning,For scarce tourism resources should be properly limit etc"content.

　　阚跃分析,像颐和园这样的世界文化遗产,或者其他稀缺的、不可再生的自然遗产等,都应该与普通的旅游景区区别开来。近年来我国的旅游产业发展势头强劲,失控、超载游客量对世界遗产地及其他风景区的保护造成严重威胁。国内许多世界文化遗产,如九寨沟、故宫、布达拉宫等,已经开始实施高峰限流。游客超过核定数量一方面影响遗产保护和景区正常秩序；另一方面,开放时间过长也不利于文物和植被的休整。所以建议在规划中写入对稀缺旅游资源限制人流量的条款,以对旅游资源进行有效保护、永续利用。

KanYue analysis,Like the Summer Palace such a world cultural heritage,Or other scarce/Nonrenewable natural heritage, etc,Should with normal tourist scenic spot the difference.In recent years China's tourism industry development momentum strong,Out of control/Overload visits to the world heritage, and other scenic spot protection cause serious threat.The domestic many world cultural heritage,Such as the jiuzhaigou/The imperial palace/The potala palace, etc,Has begun to implement peak current limiting.Tourists exceeds verified quantity on the one hand influence heritage protection and the normal order;On the other hand,Open for a long time but also to the cultural relics and vegetation of retirement.So proposal in planning write for scarce tourism resource limit the terms of the visitors,To effectively protect tourist resources/Sustainable utilization.

解决旅游景区多头管理问题 Solve the traveling scenic area of the multiple management problem

　　旅游法草案第二十二条规定,旅游发展规划应当依据国民经济和社会发展规划编制,并与主体功能区规划、土地利用总体规划、环境保护规划、城乡规划、海洋功能区划相衔接,与自然保护区规划、风景名胜区规划、林地湿地草原森林公园保护利用规划、文物保护规划、历史文化名城名镇名村保护规划等规划相协调。针对这条规定涉及的规划衔接,石培华建议,各类规划也要充分考虑旅游发展需要,将旅游规划内容纳入相关规划,必要时根据旅游规划发展需要,可科学调整相关规划。

The draft of the provisions of article 22 of the supply,Tourism development planning shall be based on the national economic and social development planning,And with the main body of the functional area planning/The general land use planning/Environmental protection planning/Urban and rural planning/Marine functional zoning phase cohesion,And nature reserve planning/Scenic area planning/Forest land wetland grassland forest park protection and utilization planning/Cultural relics protection planning/Historical and cultural city name famous town village protection planning of coordinated planning.According to this rule involves planning cohesion,ShiPeiHua Suggestions,All kinds of planning will give full consideration to tourism development needs,Will travel planning contents into the relevant planning,When necessary, according to the plan of tourism development needs,Can science adjustment related planning.

　　阚跃认为,草案第二十二条提到了与“文物保护规划、历史文化名城名镇名村保护规划”的衔接问题,这一条提得非常好,但能否在兼顾的同时,充分考虑文保单位的旅游特点,站在文物保护的角度上,有针对性对文保单位释放一些权力。比如在旅游活动中破坏文物行为的执法权,比如文物保护优先的权利、再如控制游客数量的权利等,并在规划中予以明确。

KanYue think,Article 22 the draft mentioned and"Cultural relics protection planning/Historical and cultural city name famous town village protection planning"Linking problem,This a mention very well,But if it is possible at the same time of give attention to two or morethings,Fully consider WenBao unit tourism characteristics,Standing in the point of view of the protection of cultural relics in,Targeted WenBao unit to release some power.For example, in tourism activities of the damage to the behavior of the cultural relics perform,Such as the protection of cultural relics of the priority right/Be like again control the number of tourists rights, etc,And in the plan to be clear.

　　北京第二外国语学院旅游管理学院教授邹统钎则认为,在规划衔接的问题上,关键不是协调,而是冲突时,谁服从谁的问题。应该解决旅游景区多头管理的问题,不得多重交叉申请旅游景区类型。

Beijing second foreign language institute of tourism management college professor ZouTong brazing, think,In the planning of cohesion,Key not coordinate,But conflict,Who obey who question.Should solve the traveling scenic area of the multiple management problem,Not multiple cross application traveling scenic area type.

　　旅游法草案第二十四条对规划评价作出了规定,指出:各级人民政府应当组织对本级政府编制或者批准的旅游发展规划的执行情况进行整体评价,并向社会公布。石培华建议,在这一条加上“各级政府要和旅游主管部门组织对旅游规划的审批,并通过相关程序增强旅游规划的约束性”的条款。

Article 24 the draft supply planning evaluation to make the rules,Point out that the people's governments at various levels shall organize to the government at the corresponding level preparation or approved the implementation of tourism development planning for the overall evaluation,Announce to the society.ShiPeiHua Suggestions,In this article a plus"Governments at all levels and the competent department of tourism, tourism planning organization for examination and approval,And through the relevant procedure enhance tourism planning binding force"terms.

　　邹统钎则建议,对各级政府编制或者批准的旅游发展规划的执行情况的评价应该委托给第三方组织,如协会主持规划执行和综合收益的评价,并接受媒体和司法监督。

ZouTong brazing is recommended,Governments at all levels to prepare or approval of the tourism development planning the implementation of the evaluation should be entrusted to the third party organization,Such as association planning implementation and comprehensive income evaluation,And accept the media and the judicial supervision.

　　此外,石培华还建议增加规定,鼓励发展和规范旅游规划设计资质单位资质认定与管理,并探索旅游规划人员资质认定与管理。规划承接单位必须具备旅游规划设计资质或者相关国家承认的资质,以规范旅游规划市场。

In addition,ShiPeiHua also suggested that increase provisions,Encourage the development and regulating the tourism planning and design qualification unit qualification authentication and management,And explore tourism planning personnel qualification authentication and management.Planning to undertake unit must have tourism planning and design qualification or the relevant countries recognized qualification,To standardize plan of tourism market.