深圳“无形二线关”亟待撤除

八月 5, 2008 by 弦音阁主  
类别: 城市物语

最近有媒体报道《深圳将取消"关内""关外"》,很让人感兴趣,仔细一看,原来又是"标题党"吸引眼球的噱头,因为真正的内容不过是深圳为解决"一市两制"的政策差别,将在10月允许特区内外户口自由迁移。
迁徙自由是一个公民的基本权利,但户籍制度的存在不但限制了公民这个权利,而且造成城乡差别、城乡歧视等人为的不平等、不自由,尤其在市场经济条件下户籍制度也不利于人才流动。因此,深圳市取消户口迁移限制不仅是深圳"农村城市化"改革的需要,也是适应时代发展的需要。
深圳取消特区内外户口限制不等于"关内""关外"就此消失。众所周知,这个"关"指的是"二线关",也就是深圳经济特区管理线,自启用起至今已有二十多年。二线关在深圳经济特区的发展上起到过巨大作用,但由于二线关人为隔开深圳市,造成特区内外发展不平衡,进出交通不畅,查验费时,浪费时间,再加上管理混乱,滋生腐败,因此1997年香港回归后,各方质疑二线关是否必要、建议撤关的声音不断。但是,经济特区是由国务院决定设立,二线关由广东边防总队实施管理,因此二线关撤与不撤不是深圳乃至广东能够决定的,而是需要国务院和中央军委一起来决定的。
2000年6月国务院体改办调研组在深圳调研一周后认为,深圳经济特区政治意义大于经济意义,暂时不能撤。不过也由此也拉开二线管理改革序幕,到现在出入关已经很方便了,有人认为二线关已经名存实亡了,尤其当深圳地铁全面贯通关内关外时,二线关将没有任何实际作用了。不过我认为,尽管二线关徒具政治意义,但实际作用也不是没有的,尤其在一些特殊时期,二线关启用可以发挥一些特别作用,因此二线关的实体暂时不要撤掉。

可见,有形的二线关撤不撤不重要,关键是"无形二线关"亟待撤除。无形的二线关除了上述的户籍差别之外,还有特区内外城市建设水平差异、城市管理差别、生活环境差别、工作待遇差别等,以及由此形成关内外环境截然不同的"同市不同城"现象。由此也让深圳市民心理上产生关内外的差别,似乎关内才是干净整洁、环境优美的花园城市,关外就代表脏、乱、差,以至于关外的房地产价格在两三年前就一直没有起色。因此,一些房地产开发商和学者认为这是二线关所造成,力主撤关。实际上不然。最主要原因其实是深圳长期忽视关外发展、关外城市建设严重滞后而造成(当然,这其中或许有二线关的心理因素在里面)。比如说,前段时间深圳下暴雨,关外是泽国一片,关内则影响不大,原因在于关外排水系统落后,防洪标准只是一两年一遇,而关内则是二十年一遇。关外由于城市化水平启动太迟,很多片区连基本的雨水管道、防洪沟都没有,泵站泄洪能力也很低,下起暴雨来不涝才怪。
除了防洪系统外,关外其他城市规划水平、环境治理水平也落后于关内。不过,这两年关外城市化水平加快,关外交通、治安、配套等综合环境系统得到很大改善。这也在关外的房价上得到反映。一个片区综合环境改善,该片区房价自然水涨船高。关外环境的改善也吸引关内工作的市民到关外去住。
这些环境差异及其变化是一眼就可见的,但是目前关内关外最大的无形差异却不是普通市民可以感受到的,但对于深圳市政府人员和投资经商者来说则是深有体会,那就是特区立法权不能适用于特区之外。尽管深圳利用较大市立法权突破一些障碍,但"一市两法"问题还是非常突出。近年来深圳一直希望能在全国人大上扩大特区法规的适用范围,已经有所成效。一旦特区立法权扩大到特区之外的宝安、龙岗及光明新区,深圳二线关才真正是徒具形式了。

 

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