从《物权法》的裁判法属性及要求考虑，对公共利益的规范不仅要有抽象规定，而且要有具有可操作性的具体规范。类似的，《旅游法》关于可资利用的公共资源的界定也应当明晰，并根据产权属性授权相应级别的政府分级管理。

从[The property law]The referee method of attributes and asked to see,Not only must have the abstract norms on the public interest,Specific specification and must be operable.Similar to the,[proposals]About the definition of the public resources available in should also be clear,And according to the property attribute authorized corresponding levels of the government at different levels.

　刘思敏 LiuSiMin

　　4月25日，十二届全国人大常委会二次会议表决通过了《中华人民共和国旅游法》，该法将于10月1日正式实施。《旅游法》的通过，不仅标志着旅游业将进入依法治理的轨道，更表明旅游已经成为中国公民的常态生活，成为公民权利与福利的重要组成部分，因而得到全社会上上下下的关注与重视。

4月25日,Twelfth session of the standing committee of the National People's Congress second conference voted through[The tourism law of the People's Republic of China],The law will take effect on October 1.[proposals]Through the,Not only marks the tourism industry will enter the orbit of governance according to law,More show that tourism has become the norm in Chinese citizens' life,Become an important part of citizens' rights and benefits,So get ran up and down the concern and attention.

　　对比《旅游法》草案二次审议稿，可以发现，提交本次全国人大常委会会议的三审稿做了多处重要修改，广泛吸纳了社会各方的意见。

对比[proposals]The second version draft,Can be found,Submitted to the standing committee of the National People's Congress meeting of the three editors made several important changes,Widely absorbs the social opinions of all parties concerned.

　　其中，旨在消除零团费模式对旅游者影响的第三十五条和控制景区门票涨价的第四十三条格外引人注目。第三十五条规定：“旅行社不得以不合理的低价组织旅游活动，诱导、欺骗消费者，并通过安排购物或者另行付费旅游项目获取回扣等不正当利益。旅行社组织、接待旅游者，不得指定具体购物场所，不得安排旅游者购物，不得安排另行付费旅游项目。但是，经旅游者要求、双方协商一致，且不影响其他旅游者行程安排的除外。”第四十三条规定：“利用公共资源建设的景区的门票和景区内的游览场所、交通工具等的收费，实行政府定价或者政府指导价，严格控制价格上涨。拟提高价格的，应当举行听证会，征求旅游者、经营者和有关方面的意见，论证其必要性、可行性……”

其中,Aimed at eliminating zero inclusive-fee model article 35 and control of the impact of tourist scenic spot ticket prices of article 43 is particularly captivating.Article 35. The provisions:"Travel agencies shall not unreasonable low price group tourism activities,induced/Cheat customer,And arrange shopping or pay separately by tourism projects get kickbacks and other improper benefits.Travel agency/Reception of tourists,Shall not designate specific shopping places,Shall not be arranged the tourists shopping,They shall not be arranged to be tourism projects.but,Required by tourists/Both sides talks things over consistent,And does not affect other tourists travel arrangements."Article 43 the rules:"Use of public resources of the construction of the scenic spot tickets and visit places of scenic spot/Of the traffic tools, etc,Implement the government pricing or government guidance prices,Strictly control the prices.Plans to raise prices,Should hold a hearing,For tourists/Operators and the related aspects,Demonstrate its necessity/The feasibility……"

《旅游法》治理零团费和门票涨价问题的决心由此可见一斑。 [proposals]Governance zero inclusive-fee and increase the price of tickets for problem determination.

　　公正客观地说，这么多年来，零团费这种商业模式能流行开来，有一定的合理性。只要不欺骗、不强迫，这种模式理论上是可行的，实际上在一些地区实现了多方共赢的局面。但是随着强制交易、坑蒙拐骗等违法行为的猖獗，这种模式就沦为一种充满陷阱的销售。

公正客观地说,Over the years,Zero inclusive-fee this business model can be popular,Have certain rationality.As long as you don't cheat/Don't force,This model is feasible in theory,In fact in some areas to achieve the win-win situation.But with the deal/Rampant're incapable and other illegal behavior,This model is reduced to a kind of full of the sale of trap.

　　零团费的问题根源并不是这种商业模式本身有问题，而是因缺乏有效监管导致恶性竞争。在现实操作中，这种模式针对的都是中低端客源，旅行社通过非常低的价格，诱惑这些游客上路，上路之后，在旅游过程中，就千方百计要掏游客的腰包，通过让游客在指定场所购物的方式得到回扣。如同直销在中国往往异化为传销或老鼠会一样，零团费这种商业模式也全面异化，最终导致服务质量下降，旅游者的体验质量也下降，损害旅游者利益的事件时有发生。导游的生存状态也相应恶化，大多数极端恶性案例的出现，都缘于导游心理失衡。

零团费的问题根源并不是这种商业模式本身有问题,But due to lack of effective regulation lead to vicious competition.In the real operation,This model is aimed at mid-range customers,Travel agency by a very low price,Temptation to the travelers on the road,After the road,In the process of tourism,One thousand ways to cut the pockets of tourists,Let visitors in a designated place shopping ways get kickbacks.As the direct selling in China often alienated to MLM or rats,Zero inclusive-fee this business model also complete alienation,Eventually led to the decrease of the quality of the service,Tourist's experience quality decline,Events that damage the interests of tourists.The survival state of the tour guide also deteriorate accordingly,The most extreme cases of malignant,Due to their tour guide psychological imbalance.

　　而今《旅游法》既对这种商业模式以及另行付费的旅游项目采取严格禁止，同时又规定了例外的情形，这表明《旅游法》表现出了适度的灵活性，增大了这个条款的可操作性，这会大大缓解零团费模式对中国旅游业和旅游者的伤害。为了增强这两个条款的可操作性，建议在实施细则、配套制度或司法解释中，进一步明确组团旅行社的先行赔付义务和连带责任。

而今[proposals]For both the business model and tourism projects take is strictly forbidden to pay separately,Specifies the exception again at the same time,This suggests that the[proposals]Showed a moderate flexibility,Increase the maneuverability of this clause,This will greatly ease the zero inclusive-fee mode for China's tourism industry and tourists.In order to enhance the operability of the two terms,Suggested in the detailed rules for the implementation/The complete system or judicial interpretation,Further defined group travel advance compensation obligation and joint liability.

　　因产权属性、管理等级不同以及作为旅游资源的品质等级不同(世界级？国家级？省级？县级？)，公共资源所代表的公共利益、公共属性可能差别很大。公共利益是《物权法》涉及土地征收时提到的一项重要内容，但《物权法》仅仅规定公共利益为征收的依据，并没有规定公共利益的内涵、外延的界定标准，这使得征收中公共利益的判断主体、判断标准十分模糊。

因产权属性/Different management level as well as tourism resources of different quality level(World class?At the national level?At the provincial level?At the county level?),Public resources represent the public interest/Public properties may vary widely.Public interest is[The property law]Mentioned an important content of land expropriation are concerned,but[The property law]Public interests as the only levied on the basis of,And not the connotation of public interest/Denotation defined standards,Making a public interest in the judgment of the subject/Judgment standard is very fuzzy.

　　从《物权法》的裁判法属性及要求考虑，对公共利益的规范不仅要有抽象规定，而且要有具有可操作性的具体规范。类似的，《旅游法》关于可资利用的公共资源的界定也应当明晰，并根据产权属性授权相应级别的政府分级管理。

从[The property law]The referee method of attributes and asked to see,Not only must have the abstract norms on the public interest,Specific specification and must be operable.Similar to the,[proposals]About the definition of the public resources available in should also be clear,And according to the property attribute authorized corresponding levels of the government at different levels.

　　而且，没有实施细则、司法解释或配套制度的细化，即便是很明确的“利用公共资源建设的景区”，也难以对景区涨价进行有效听证。比如故宫，如果要举行涨价听证的话，其旅游者听证代表该怎么选择？是从北京、全国还是全世界范围筛选听证代表？毕竟旅游者的成分实在是太复杂了。

而且,No detailed rules for the implementation/Judicial interpretation or supporting system elaboration,Even if is very clear"Use of public resources of the construction of the scenic spot",Effectively for the scenic spot prices are hard to hearing.Such as the Palace Museum,If to a rise in price hearing,The hearing on behalf of its tourists how to choice?From Beijing/Across the country or around the world to the hearing on behalf of the screened?毕竟旅游者的成分实在是太complicated了.

　　笔者一直主张对景区进行分类管理，除了不是利用公共资源建设的景区，比如上海的迪士尼等“市场型景区”应该由市场调节之外，“利用公共资源建设的景区”也应分类细化。一类是如四川九寨沟、湖南张家界、安徽黄山、北京长城、山东曲阜的三孔(孔府、孔庙、孔林)等具有不可替代价值、产权为全民所有的景区，理应通过“国家公园”的形式成为“公益型景区”，未来由中央政府全额或差额补贴，实行免票或者低门票价格，各省也可以相应设置一些“省立公园”类型、层次低于国家公园的“公益型景区”;另一类则应为“混合型景区”，虽然利用了公共资源，但其依托的公共资源可能质量等级不是太高，可替代性比较强，在从旅游资源转化成为旅游产品的过程中，需要地方政府或投资商高成本投入，则应由地方政府实行市场指导价或最高限价管理。

笔者一直主张对景区进行分类管理,In addition to not use public resources of the construction of the scenic spot,Such as Shanghai Disney, etc"Market-oriented scenic spot"Should be determined by the market regulation,"Use of public resources of the construction of the scenic spot"Should also be classified elaboration.One kind is such as jiuzhaigou valley in sichuan/Zhangjiajie in hunan province/Huangshan mountain in anhui/The Great Wall in Beijing/Shandong qufu three holes(Confucius/Confucius temple/Konglin was suggested)Has irreplaceable value, etc/Property under ownership by the whole scenic spot,Should pass"The national park"Be in the form of"Public welfare scenic spot",The future subsidies by the central government or the balance in full,For free or low price tickets,Can also set up some corresponding to the provinces"Provincial park"type/Level is lower than the national park"Public welfare scenic spot";Another kind is should be"Hybrid scenic spot",Although the use of public resources,But it depends on the level of public resources may be the quality is not too high,Alternative is stronger,In the process of from the tourist resources into tourism products,High cost investment need local government or investors,Should be managed by local governments to market price or highest price.

　　建议中央政府明确，在条件成熟时实行国家公园制度的时间表与路线图，同时将《国家公园预备清单》作为过渡性管理措施。国家有关部门可选择大约100个最具代表性和保护价值的景区列入《国家公园预备清单》，并明确授权地方政府暂时托管这些列入预备名单的景区，明晰责权利;在正式实行国家公园制度之前的过渡期内，可明确“国家公园预备清单”中的景区执行以“合理成本+合理利润”为原则的门票定价机制，并仿效上市公司，定期公布经过第三方审核的财务数据，将其经济运行情况置于全社会监督之下，兼顾游客、管理者和地方政府等多方利益。

建议中央政府明确,When conditions are ripe for the national park system of the timetable and roadmap,At the same time will[National park reserve listing]As a transitional management measures.Relevant state departments can choose about 100 of the most representative and protect the value of the scenic area included[National park reserve listing],And a clear mandate local government temporarily custody the preliminary list of scenic spots,Has clear;Officially adopted in the transition period before the national park system,Can be clearly"National park reserve listing"In the scenic spot to execution"Reasonable cost plus reasonable profit"For the principle of pricing mechanism,And follow the listed company,Published on a regular basis after the third party audit of financial data,The economic operation under all social supervision,Visitors give attention to two or morethings/Managers and local government interests.

　　此外，湖南凤凰古城等社区型景区显然不能简单地参照“利用公共资源建设的景区”来管理。凤凰古城、江苏昆山市的周庄以及安徽黟县的宏村等传统社区型景区主要是由私有产权性质的民居聚合而成的人文景观，其公共资源的产权属性及其代表的公共利益显然是有边界的，是属于当地人民的集体利益。将凤凰古城划入“混合型景区”比较适合，如要“圈城收费”或涨价的话，则要有利益博弈、决策磋商的过程，有对利益主体的补偿机制和分配机制。

In addition,Hunan phoenix ancient city obviously cannot simply refer to local community scenic area"Use of public resources of the construction of the scenic spot"To manage the.The ancient city of phoenix/Zhouzhuang of kunshan city in jiangsu province and anhui province yixian hong cun traditional local scenic spot mainly by private property rights such as the nature of the local-style dwelling houses aggregation of human landscape,Its property right attribute of public resources and represent the public interest is obviously have boundaries,Belongs to the collective interests of the local people.The ancient city of phoenix delimit"Hybrid scenic spot"Is suitable for,If you want to"Circle the city charges"Or rise in price,Should have interest game/The process of decision-making consultation,There are compensation mechanism and the distribution mechanism of interest subjects.

　　(作者系中国社科院旅游研究中心特约研究员、社会学博士)

(The author is the Chinese academy of social sciences tourism research center special researcher/Sociology, Ph.D.,)

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7.0 -magnitude earthquake in ya 'an in sichuan province

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