分权化对旅游地空间不均衡发展的影响

分权化制度框架下的旅游政策、公共设施建设、旅游投资等发展要素的差异是旅游地空间不均衡发展的根本原因。本文对相关文献进行了系统分析,界定了中国旅游分权化的利益主体,探讨了旅游利益主体组成的旅游地权力网络的分权形式、不同旅游分权利益主体在旅游发展中的角色与功能,提出了不同层面的不均衡表现及未来应关注问题。结果表明,中国分权化框架下的财税制度、利益分割引起不同旅游发展主体间的利益冲突,利益权力网络的空间不对称导致旅游产业结构、旅游土地利用、公共基础设施与旅游服务设施和社区空间发展不均衡。未来研究应以各级政府、投资商和社区居民三方利益的均衡与权力重组为出发点,从区域旅游组织分权、社区参与制度保障及其技术支持、产业空间再结构化、乡村旅游发展的政治角色4个方面展开,以实现旅游地的可持续发展。

Influence of decentralization on spatially uneven development of tourism destinations

Decentralization is the main cause of differences in tourism policy, public infrastructure development, tourism investment and so on, which have aggravated the spatial unevenness of tourism development in China. Since the reform and opening up from the late 1970s, services previously provided by the national government was replaced by those provided by different public sectors in the local governments as well as private and voluntary organizations, increased the spatial diffusion of authority and diversity of network structure and patterns. There has been a large number of empirical studies on the spatial unevenness of tourism development. However, these studies mainly attribute causes of such development to urban development factors, such as tourism resource endowment, location in transportation network and infrastructure. Discussions of these problems did not address root causes of the spatially uneven development. Empirical search for a direct relationship between institution and tourism growth remains inconclusive. The objective of this paper is to examine the spatially uneven development of tourism destinations in China in the market-oriented reform process. Existing research shows that spatially uneven development of tourism destinations was aggravated by decentralization, which leads to differences in tourism policy and investment and the provision of public goods and services, and a profound analytical framework is needed for further empirical studies. This paper reviewed relevant studies on the links between decentralization and development of tourism, spatial influences of decentralization on tourism, and put forward a theoretical framework of resort spatial optimization based on a political economy analysis. We define four types of stakeholders under the decentralization framework-the central and local governments, capital enterprises, non-profit organizations, and local communities-and discuss the spatially uneven development as a result of the power distribution of tourism destinations comprised of the four stakeholder groups identified above. Future research should take the relationships among three stakeholders-the government, investors, and community residents-as a starting point, and reveal existing problems in the following four areas: the decentralization of authority of regional tourism organizations, institutional and technical supports of community participation, restructuring of industrial space, and the political role of rural tourism development, and to realize the sustainable development of tourism destinations. It is worth noting that decentralization in China has been a huge system engineering endeavor. This paper simply analyzes the spatially uneven development of tourism destinations caused by unequal network relationships among the main stakeholders, without dealing with many details that should be taken into consideration in further in-depth study.