The Challenges机遇与挑战

Tourism and Heritage in China中国的旅游和遗产Mark Eadie

Director, Social Consulting Practice社会咨询服务总监ERM China

It’s not all about pandas and the Great Wall….中国的遗产不仅仅是熊猫和长城 ……

…although it can be … 虽然它依然是中国的国宝

So you think you know China? 你认为你了解中国了吗？

Photograph by very kind permission of Mr Li, Cultural Heritage Management Officer, Matisi Scenic Area Administration Office照片由马蹄寺景区管委会文化遗产管理办公室，李先生提供

Foothills of the Qilianshan, western Gansu 祁连山麓，甘肃西部

Photograph by very kind permission of Mr Li, Cultural Heritage Management Officer, Matisi Scenic Area Administration Office照片由马蹄寺景区管委会文化遗产管理办公室，李先生提供

Matisi, Zhangye, Gansu 马蹄寺，甘肃张掖

The first challenge 挑战一

The concept of ‘scenic spots’“风景点”的定义

Scenic Spot 景点Characteristics: 特点：Defined Place 固定地点Strictly Delimited 严格的界限Promoted as “A Scenic Spot” 作为“景点”促销Isolated from Context 与周边环境相独立A Presentation 有一定的主题或含义Managed 需要管理Created or Recreated History, Society 传承或者创造着历史、社会Outcomes: 现状：Unconnected 独立存在Weak Promotion and Marketing 宣传促销不够 Few Synergies 合作少“Everything Charged” 乱收费

Destination 目的地Characteristics: 特点：Defined or Undefined Area 固定或不固定的地点Partially Delimited 部分划界Promoted as “An Area” 作为“一个区域”来推广Context is Everything 周边环境都包括在内Unstaged 不正规Unmanaged 没有专门的管理Product of History 历史产物Outcomes: 现状：Usually connected 通常是独立的Stronger Promotion and Marketing 宣传促销较强Natural Synergies 与其他部门自然形成合作Focused Charging 集中收费

The dilemma 困惑

Anxi County (renamed Guazhou County in late 2005), Jiuquan, Gansu 甘肃酒泉安西县（ 2005 年末更名为瓜州县）

Twenty three significant Silk Road sites; only one mentioned in any foreign guidebook (Yulin Grottos) andOnly three mentioned in Chinese language guidebooks (+ Eastern Qianfodong, Suoyang)丝绸之路上的 23 处重要景点，仅有 1 处可以在外文旅行指南上找到（榆林石窟），仅有 3 处在中文旅行指南上有所介绍（榆林石窟，东千佛洞，琐阳石窟）

Small villages…. 小村镇 ……

Anxi County, Jiuquan, Gansu 安西县，甘肃酒泉

Unknown little snippets of history. 不为人知的历史片断Ask the locals for details. Everyone will come out to tell you what it is it for.And insist that you have lunch with them afterwards.问当地人关于村子的故事，每个人都会告诉你这是什么，做什么用的。并且坚持邀请你与他们共进午餐。I’m not going to spoil the surprise. 我想保留这份惊喜。This is not Beijing. Or Shanghai, Guilin or Xi’an. This is local China, with 5,000 years of history waiting for you. 这不是北京、上海、桂林或者西安。这是最本色的中国，有着 5000 年历史的她在等待你们。

The second challenge 挑战二

Authenticity真实性

The third challenge 挑战三

Enhancing management加强管理

Local Government…who does what in heritage and tourismTourism Bureau• Certifies hotels, facilities• Promotion and marketing• Licences tour operators• Licences tour guides• QC mechanism

Cultural Heritage Bureau• Asset owners for listed

cultural heritage• Manages cultural

heritage sites• Role on intangible

heritage uncertain• Archaeology

Construction Bureau• Urban and rural planning*• Responsible for

UNESCO World Heritage Sites

• Responsible for “Famous Cities and Historic Spots”

• Responsible for urban parks

• Construction of infrastructure

• Landscaping

DRC• Economic planning• Approves development

and master plans• Approve feasibility

studies• Local investment advice

Finance Bureau• Fiscal management*• Approves and provides

annual budgets for all bureaus

• Approves feasibility studies

Commerce Bureau• Approves pricing*• Provides business

licences• Promotes and approves

foreign investment*• QC mechanism*

Forestry Bureau• Asset owners for most

national parks, nature reserves

Public Security Bureau• Register hotel guests• Policing

Personnel Bureau• “Human Resources”

function for bureaus• Provide staff• Training

Land & Resources Bureau

• Responsible for GeoParks

• Land use permits• Land acquisition

Education Bureau• Overall UNESCO focal

point• Sets educational

framework

Religious Affairs Bureau• Responsible for “live”

temples and monasteriesEnvironmental Protection Bureau

• Environmental permitting• EIAs• Waste disposal issues

Water Resources Bureau• Responsible for parks

that include dams or reservoirs

• Allocate water

Communication Bureau• Publishing• Printing• Information dissemination

Ethnic Nationalities Bureau

• Active involvement in areas where there are minorities

Transportation Bureau• Operate trains, some

buses• Set timetables and fares

The OperatorsThe Rulemakers Internal Enablers

Universities• Research, development• CH Master Plans

Design Institutes• Master plans• Landscape plans

Cultural Institutes• Advice• Control many assets

Chinese Media• Promotion

External EnablersKey

地方政府…在遗产旅游中扮演什么角色，起到什么作用旅游局• 评定酒店、旅游设施• 宣传和营销• 为旅游经销商颁发许可证• 授予导游许可证• 质量控制机制

文物局• 在册的文化遗产的资产所有者• 管理遗产地• 在无形文化遗产中的作用不明确• 考古

建设局• 城镇规划 *• 负责世界遗产地• 负责“著名城市和历史景点”• 负责城市公园•基础设施建设• 景观

发改委• 经济规划•审批开发规划•审批可行性研究报告•对地方投资提供建议和意见财政局•财政管理 *• 为各局提供和审批年度预算•审批可行性研究

商业厅•价格审批 *• 颁发商业执照•吸引外资 *• 质量控制机制 *

林业局•大多数国家公园、自然保护区的资产所有者 公安局

• 酒店客人登记•治安

人事局• 负责各局的人力资源• 提供适合的人员•培训

国土资源部• 主管地质公园•土地使用许可•土地征用

教育局•联合国教科文组织的关注重点•建立教育体系宗教事务局• 负责尚存的寺庙和道观

环保局• 环境许可• 环境影响评估•废物处理问题

水利局•对有大坝和水库的公园负责•水利分配

宣传局• 发行•出版•信息发布

民族事务局• 处理地方少数民族事务

交通局•火车、公交运行•建立时刻表和价格表

经营者制定政策 对内的促进者

大学•研究，开发• 文物遗产保护总体规划 设计机构

• 总体规划• 景观规划

文化研究所•建议• 管理一定资产

媒体• 宣传

对外的促进者重点

Body of Best Practice

Government Ministries Key Universities Key Institutes

Provincial Authorities

Municipal Authorities

Prefectures, Counties, Districts

HeritageSites

TourismSites

SACHCNTAMinistry of Construction, etc

PekingTsinghuaSichuan, etc

CASCASSDunhuang, etc

ENORMOUS GAP

China: two worlds

最佳操作体

政府部门 重点大学 重点科研机构

省级政府部门市级政府部门地方、县、区遗产地 旅游地

国家文物局国家旅游局建设局，等北大清华川大，等

中国科学院中国社会科学院敦煌研究院，等

显著分歧

中国：两个世界

“Rural” Scenic Area Administration Bureau

“Urban” Tourism Development Company

Heritage and Tourism Management in China

Tourism Bureau

Cultural Heritage Bureau

Development & Reform Commission

Commerce Bureau

Environmental Protection Bureau

Communication Bureau

Religious Affairs Bureau Ethnic Nationalities

BureauForestry Bureau

Construction Bureau Tourism Bureau

Cultural Heritage Bureau

Construction Bureau

• Each agency owns and operates own assets or different parts

• Each has its own plans• Gate revenue shared• Partial P&L accounts (many costs not

known)• Tends to encourage private sector• Tends to be isolated from other sites and

destinations• Tends to be rural/park

• Each agency usually owns shares• Usually integrated plan• TDC will operate public sites• TDC will operate public assets• Often competes unfairly with existing

private sector• Stronger P&L approach• Tends to constrain private sector• Tends to promote better• Tends to be command-and-control• Tends to be urban

Important Note: Increasing involvement of DRC tends to increase good practices – management, financial, operational.

Either system can work well, but they can go wrong

“乡村”风景区管理部门 “城市”旅游开发公司中国的遗产和旅游管理

旅游局

文物局

发改委

商业局

环保局 宣传局

宗教事务局 民族事务局林业局

建设局 旅游局

文物局

建设局

• 各部门拥有和管理各自所属的部分资产• 各部门有自己的规划• 共享门票收入• 部分损益帐目 ( 许多未知成本 )• 鼓励私营业主• 与其他地区和目的地分离• 逐步形成田园 / 公园风景

• 各部门通常拥有自己的股份• 通常是做整体规划• 旅游开发公司管理景区公共场所• 旅游开发公司管理景区公共资产• 与私营业主存在不平等竞争• 强大的损益方法• 趋向于限制私营业主• 宣传促销上更具优势• 趋于指挥－控制模式• 趋于城市化

注意：发改委的参与能够在管理、财政方面提供更多优势

两种体系都可以运作的很好，但也可能运作不当

Structure of Government…provincial and below - simplified

Municipal Government

Tourism Bureau Cultural Heritage Bureau

Development & Reform Commission

Taxation Bureau

Commerce Bureau

Personnel Bureau Labour and Social Security Bureau

Public Security Bureau

Environmental Protection Bureau

Pricing and Quality Bureau Education Bureau

Finance Bureau

Communication Bureau

Transportation Bureau

Railway Bureau

Religious Affairs Bureau

Ethnic Nationalities Bureau

Water Resources Bureau

Forestry BureauConstruction Bureau

Vice-Mayor 1 Vice-Mayor 2

“Rural” Scenic Area Administration

Bureau“Urban” Tourism Development Company

Direct Inputs

Direct or Indirect Inputs

政府结构…省级和省级以下——逐级简化市政府

旅游局 文物局

发改委

税务局

商业局

人事局 劳动与社会安全保障局

公安局

环保局

物价局 教育局

财政局

宣传局 交通局铁路局

宗教事务局

民族事务局

水利局

林业局建设局副市长 1 副市长 2

“乡村”风景区管理部门 “城市”旅游开发公司

直接参与

直接或间接参与

Excellent, world-class museum design 世界级的出色博物馆设计

Xue Tao Museum, Chengdu, Sichuan 薛涛博物馆，四川成都

Intangible heritage 无形文化遗产

Suoyang, Anxi County, Jiuquan, Gansu 锁阳，甘肃酒泉安西县

Rot of cynomorium plant, found at Suoyang and reason for its original construction 2,000 years ago.Earns the site twice as much as gate revenue.琐阳，名贵药材，又称沙漠人参，出土于甘肃琐阳，据考证其历史可以追溯到 2000 年前。此种遗产使琐阳城门票收入翻了一番。

Structure of Government…provincial and below - simplified

Municipal Government

Tourism Bureau Cultural Heritage Bureau

Development & Reform Commission

Taxation Bureau

Commerce Bureau

Personnel Bureau Labour and Social Security Bureau

Public Security Bureau

Environmental Protection Bureau

Pricing and Quality Bureau Education Bureau

Finance Bureau

Communication Bureau

Transportation Bureau

Railway Bureau

Religious Affairs Bureau

Ethnic Nationalities Bureau

Water Resources Bureau

Forestry BureauConstruction Bureau

Vice-Mayor 1 Vice-Mayor 2

“Rural” Scenic Area Administration Bureau

“Urban” Tourism Development

Company

Direct Inputs

Direct or Indirect Inputs

政府结构…省级和省级以下——逐级简化市政府

旅游局 文物局

发改委

税务局

商业局

人事局 劳动与社会安全保障局

公安局

环保局

物价局 教育局

财政局

宣传局 交通局铁路局

宗教事务局

民族事务局

水利局

林业局建设局副市长 1 副市长 2

“乡村”风景区管理部门 “城市”旅游开发公司

直接参与

直接或间接参与

Explanatory information panels in different languages….不同语言的解说板 …… ….and with maps…. 以及地图

Chengdu City Centre, Sichuan 成都市中心，四川

Helpful signboards 标识牌

Giant Panda Breeding Research CentreChengdu, Sichuan大熊猫繁殖基地，四川成都

Low impact signs 效果不明显的标志

Suoyuan, Anxi County, Jiuquan, Gansu琐阳城，甘肃酒泉安西县

Current trends

Areas strengthening currently• Conservation Master Plans• Enforcement of environmental and heritage

laws• Scope of environmental and heritage laws• Knowledge and “connectedness” at national

level and key universities and institutes• Financial accountabilities at provincial level• Regional and site infrastructure• Holistic approach in many places:

Hangzhou, Ningbo, Shaoxing, Xi’an especially

• Improved collection and site management: Chengdu, Changsha, Nanjing, Shanghai

• Improved publications (in Chinese)• Foreign investment opportunities• Air route frequencies• Emphasis on sustainable development• WTTC TSA for China

Areas lining up for improvement• Railway infrastructure• Tourism statistical collection and analysis• Hotel service management• Knowledge at provincial level• Financial accountabilities at municipal and

site level• Municipal infrastructure• Inter-provincial learning• Lessening of petty rules at museums and

sites (“No Photography”, “No Walking on Grass”, etc)

• Improved publications (in English, Japanese, Korean)

• Interpretation at sites• Municipal-level destination management• Private sector involvement• Sector co-ordination• E-government initiatives for planning• Rural tourism initiatives• Sustainable cities initiatives• Authenticity starting to be debated actively• TSA for Beijing planned

当前趋势受到重视的地区• 保护总体规划• 强制执行环境和遗产法• 环境和遗产法的范围• 国家级重点科研院校的相关学科，以及相互交流合作• 省一级的财政责任• 地区和遗产地的基础设施建设• 许多地方有整体分析：杭州、宁波、绍兴、西安• 遗产收集和遗产地管理的改进：成都、长沙、南京、上海• 完善了旅行手册 ( 中文版 )• 外资机会• 增加航线• 强调可持续发展• 世界旅游及旅行理事会关于中国的旅游卫星帐户

等待改进的地区• 铁路基础建设• 旅游统计和分析• 酒店管理与服务• 省一级的学科的建立• 市一级和遗产地区一级的财政责任• 市级基础设施建设• 省际之间的交流学习• 减少博物馆和遗址的一些琐碎规定 (“ 不许拍照” , “ 不许践踏草坪”，等 )• 完善旅行手册 (英文、日文、韩文 )• 遗产的解说• 市一级的目的地管理• 私营部门的参与• 部门间的协调• 发展电子政务的规划措施• 发展乡村旅游的倡议• 发展可持续城市的倡议• 从实际出发，积极展开讨论• 北京旅游卫星帐户计划

Current trends

Areas of concern• Domestic aviation capacity concerns• Domestic air fares too high• Impacts of Golden Weeks• Rail ticketing systems• Over-emphasis on infrastructure investment• Unfair market advantage of some local

TDCs• Salaries and opportunities for site level staff• Growing obligations on sub-provincial

authorities with less opportunities for revenue creation

• Unrealistic tourism demand forecasts• Planning and analysis competence with

external institutes and universities• “Look at Lijiang; copy Guilin” mindsets• Financial state of many assets• State of many museums, collections• “Charge for everything” attitudes gaining

ground• Food hygiene• Road and pedestrian safety

Golden opportunities• Free marketing though internet• Enthusiasm and thirst for learning,

especially at site level• Beijing Olympics experience• Involvement in World Bank, ADB, UN

programmes• Growing experience• Growing understanding of inbound tourism• Growing outbound market maturity• Expand beyond

“culture + cuisine+UNESCO” to wider range of attractions and activities

• Many sub-sectors in earliest stages: conventions, incentive travel, resort-based

• Safe destination perceptions increasingly important

• Establishment of Chinese “National Trust” as semi-independent steward of heritage

• Framework for privatization of many assets• Growing skilled labour

当前趋势关注地区• 关注国内航行能力• 国内机票票价过高• “黄金周”效应• 铁路售票系统• 过分强调基础设施投资• 很多地方性旅游开发公司存在不公平的市场优势• 遗址工作人员的工资和机遇• 省级以下部门的职责增加了，但创收机会减少了• 不现实的旅游需求预测• 外部机构和学校的规划以及分析能力• 盲目 “学习丽江，复制桂林” 的心态• 许多资产的财政状况• 许多博物馆的现状• “ 什么都要收费” 的观念根深蒂固• 食品卫生• 公路和人行道安全问题

黄金机遇• 通过互联网进行免费促销• 对知识的渴望，尤其是在遗产地区这一层次• 北京奥运会• 世界银行、亚洲发展银行、联合国项目的参与• 不断增加的经验• 对境内旅游的理解和认识不断加深• 境外市场日渐成熟• 超越“文化＋美食＋世界遗产”模式，发展更广泛的旅游吸引物和旅游活动 • 许多业务尚处于早期阶段 : 会议、奖励性质的旅游、度假• 目的地安全问题越来越重要• 作为遗产的半个管家，中国要建立”国家信任”• 资产私有化框架• 不断增加的熟练工人