美国风景道政策演进：历程、特征及启迪

doi:10.13284/j.cnki.rddl.003294

摘要/Abstract

摘要：

政策是保障和推动风景道建设与发展的重要措施、手段、依据和基本准则。文章围绕美国风景道政策演进这一主线，从演进背景、政策类型、政策主体、政策主题、政策手段等5个方面，深入剖析其百年演进历程，并在此基础上刻画和识别其演进特征。结果表明：1）美国风景道政策演进历经“萌芽酝酿”“起步探索”“成长发展”“转型变革”4个时期，是一个动态演变的历史过程，标志性政策的出台促进与推动政策变迁迈入新的进程；2）美国风景道政策演进受社会文明与思潮、经济与生态环境发展、交通建设和旅游需求、风景道自身发展等内、外各种因素的共同影响；3）法案、技术指南和研究报告“三位一体”，共同促进美国风景道政策演进；4）历经百年变迁，美国已形成由交通部门主导、多部门跨部门联合、注重公众参与的政策制定主体格局；5）美国已形成一套相对完整的风景道政策体系，涉及“建管养运”各方面。最后，基于美国经验，结合中国风景道政策现状和问题，提出未来中国应遵循风景道政策演进规律，考虑内、外影响因素，进一步丰富政策类型、设立风景道主管或牵头部门、关注“建管养运”全过程等。

关键词: 风景道, 政策演进, 启示, 美国

Abstract:

This study analyzed the American scenic byway policy evolution process from five aspects, namely policy evolution background, policy types, policy subjects, policy themes, and policy instruments. On this basis, the authors described and identified its evolution to provide some enlightenment and references for the construction and improvement of China's scenic byway policy. The results showed that: 1) the American scenic byway policy evolution process has gone through four periods, namely germination, initial exploration, growth and development, and transformation. This is a historical process of dynamic evolution and a landmark policy promotes historic turn. 2) The evolution of scenic byway policy in United States is influenced by various internal and external factors, such as social civilization and ideological trends, economic and ecological environment development, traffic construction and tourism demand, and the development of the scenic byway itself, which promote historical policy change through interaction and mutual driving. 3) The Act, technical guide, and research report are a triad that jointly promotes the evolution of the American scenic byway policy. Among them, research reports are the premise, acts play a guiding and leading role, and technical guides are practical. 4) After one hundred years of changes, America has formed a structure of policy-making, which is dominated by the transportation sector, united by multi-sector and cross-sector, and and participated by the public. The special scenic byway management organization has been established at the national level (National Scenic Byways Advisory Committee). 5) The United States has formed a relatively complete and practical value scenic byway policy system, which involves "construction, management, maintenance, and transportation" and provides comprehensive policy support and institutional guarantees. Finally, this paper proposed that China should follow the general law of the evolution of scenic trail policies, consider various internal and external factors, further enrich policy types, incorporate the scenic byway into China's national calendar system as much as possible, establish national-level scenic byway directorate or leading department as soon as possible, and pay attention to the whole process of "construction, management, maintenance, and transportation", based on the experience of the United States, combined with the current situation and problems of China's scenic byway policy.

Key words: scenic byway, policy evolution, revelation, United States

中图分类号:

K901.4

孙盼盼, 余青. 美国风景道政策演进：历程、特征及启迪[J]. 热带地理, 2020, 40(6): 1136-1149.

Panpan Sun, Qing Yu. Scenic Byway Policy Evolution in United States: Process, Characteristics, and Enlightenment[J]. Tropical Geography, 2020, 40(6): 1136-1149.

图/表 4

图1

表1

表2

美国国家层面“成长发展期”风景道政策一览"

年份	政策名称	政策类型	政策主体	参考文献
1991	《冰茶法案》（Intermodal Surface Transportation Efficiency Act）	法案	国会	U. S. Congress（1991）
1993	《国家风景道咨询委员会报告》（National Scenic Byway Advisory Committee Report）	研究报告	国家风景道咨询委员会	National Scenic Byways Advisory Committee（1993）
1995	《国家风景道计划》（National Scenic Byway Program）	技术指南	联邦公路管理局	Federal Highway Administration（1995）
1995	《风景道—州使用的几何设计标准》（Scenic Byway-States’ Use of Geometric Design Standards）	技术指南	审计局	U. S. General Accounting Office（1995）
1997	《风景道规划与管理的社区指南》（Community Guide to Planning & Managing a Scenic Byway）	技术指南	联邦公路管理局	Federal Highway Administration（1997）
1998	《续茶法案》（Transportation Equity Act for the 21st Century）	法案	国会	U. S. Congress（1998）
1999	《风景道起点：理解、调查和评估小道的价值要素》（Understanding, Inventorying and Evaluating a Byway’s Intrinsic Qualities）	技术指南	联邦公路管理局、国家公园管理局	Federal Highway Administration等（1999）
1999	《国家风景道营销工具包》（National Scenic Byway Marketing Tool Kit）	技术指南	国家风景道计划营销委员会	National Scenic Byway Program and Marketing Committee（1999）
2001	《国家风景道营销计划》（National Scenic Byway Marketing Planning）	技术指南	联邦公路管理局	Federal Highway Administration（2001）
2002	《风景道路侧提升设计指导》（Scenic Byways: A Design Guide for Roadside Improvement）	技术指南	农业部林务局、圣迪马斯技术研发中心	USDA Forest Service等（2002）
2004	《保护我们珍贵的场所：管理风景道视觉质量》（Conserving Our Treasured Places: Managing Visual Quality on Scenic Byways）	技术指南	风景道资源中心	America’s Byways Resource Center（2004）
2005	《SAFETEA-LU法案》（Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Uses Act ）	法案	国会	U. S. Congress（2005）
2006	《分析现有风景道》（Analyze the Existing America’s Byways）	研究报告	联邦公路管理局	Federal Highway Administration（2006a）
2006	《计划的方向》（Directions for the Program）	研究报告	联邦公路管理局	Federal Highway Administration（2006b）
2007	维护美国小道品质策略（Identify and Recommend Strategies for Maintaining and Ensuring the Quality of America’s Byways）	技术指南	联邦公路管理局	Federal Highway Administration（2007）
2008	《国家风景道计划提名指南》（National Scenic Byways Program Nominations Guide）	技术指南	联邦公路管理局	Federal Highway Administration（2008）
2011	《风景道道路展示手册》（Wayshowing for Scenic Byway）	技术指南	联邦公路管理局、风景道资源中心	Federal Highway Administration等（2011）
2012	《风景道营销指导手册》（Marketing Your Byway）	技术指南	风景道资源中心、唐·法利奥广告设计公司	America’s Byways Resource Center（2012）
1992- 2012	《国家风景道计划资助信息指南》（1992—2012年）（National Scenic Byways Program FY (1992-2012) Grant information）	技术指南	联邦公路管理局	Federal Highway Administration（1992-2012）

表2

图2

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