شاید بتوان یکی از مهم ترین ابزارهای قانونی ایجاد شده برای رسیدن به اهداف ترسیمی مناطق آزاد را ماده 27قانون چگونگی اداره آنها دانست. آنجا که می گوید مدیرعامل منطقه آزاد به نمایندگی از دولت بالاترین مقام اجرایی بوده و برای مدیریت متمرکز و هماهنگی کامل، سایر دستگاهها بایستی وظایف و اختیارات خود را به وی تفویض نمایند.
اما در واقع هیچ وقت چنین امری محقق نشد.بدلیل نبود دستورالعمل مشخص در اجرای این ماده قانونی و وجود ابهامات فراوان در شیوه اجرای آن بویژه با توجه به شرایط بسیار متفاوت مناطق آزاد از همدیگر، رفتار دستگاهها نیز متنوع و بعضا سودجویانه بود. آنها به طور کلی چندین هدف را دنبال می کردند:
ارتقای جایگاه اداری مدیران مستقر محلی در سیستم و تشکیلات بالادستی.
تامین هزینه های اداری و پشتیبانی به بهانه مستقر شدن در منطقه آزاد ارس.
تامین بودجه برنامه توسعه زیرساختی دستگاه در منطقه از محل درآمدهای منطقه آزاد ارس.
ارتباط دادن کم کاریها و نقاط ضعف چندین دهه گذشته به وجود منطقه آزاد ارس.
بعبارتی دستگاههای دولتی، اجرای ماده 27 را نه برای تمرکز مدیریتی بلکه برای کسب درآمد و بودجه می پذیرفتند و چون در سالهای اولیه تاسیس، زمینه آنرا در سازمان ارس نمی دیدند مقاومت می کردند.
اولین سازمانی که تصمیم به تفویض اختیارات گرفت، میراث فرهنگی صنایع دستی و گردشگری بود. البته او هم با زیرکی تمام، اعتبارات استانی و ملی خود را برای مرمت و بهسازی فضاهای تاریخی شهر جلفا و اطراف آن تعدیل یا حذف و تمام خرابه های ناشی از بی توجهی خود به تاریخ این منطقه را تحویل سازمان منطقه آزاد داد!
این نگاه تا جایی پیش رفت که در مقطعی شاهد رفتار عجیب استانداری آذربایجان شرقی با پروژه های نیمه تمام دستگاههای دولتی واقع در محدوده منطقه آزاد بودیم. دستور توقف تامین اعتبار برای برخی طرح های استانی و ملی واقع در جلفا!
موضوعی که چالش های فراوانی را به سازمان تازه تاسیس ارس که در تامین هزینه های جاری خود دچار مشکل بود تحمیل کرد و البته موجب چالش های مدیریتی گردید.
نمایندگان مجلس که شاهد درگیری مناطق آزاد با سازمان های دولتی بویژه شهرداری ها بودند در بند الف ماده 35 قانون برنامه چهارم و ماده 112قانون برنامه پنجم توسعه با تاکید بر لزوم اجرای ماده 27 قانون مناطق آزاد و اصلاح و رفع مغایرت های مقرراتی دستگاهها با قوانین مناطق آزاد، جایگاه مدیران عامل را در ارتباط با شوراها و مصوبات آنها نیز مشخص کردند.
اما این نیز کارساز نشد. رقابت شهرداری ها با معاونت های عمرانی منطقه آزاد و مصوباتی که برخلاف اصل و اساس مناطق آزاد و فلسفه یکپارچگی مدیریتی بود باعث تشدید درگیری ها و حتی منجر به پیگیری حقوقی اصلاح قانون شوراها نیز شد که البته به نتیجه نرسید.
به همین ترتیب در سالهای بعد با فعال شدن بخش های مختلف منطقه آزاد ارس، شاهد تفویض اختیار وزارت هایی چون صمت،کشاورزی،کار،فرهنگ و ارشاد اسلامی،ورزش و جوانان،سازمان استاندارد،غذا و دارو و … بوده ایم که البته در برخی موارد بعد از چندسال منجر به سلب تفویض شد.
تضعیف جایگاه مناطق آزاد در مجلس و دولت قبل و بازتعریف آنها ذیل وزرات اقتصاد که نتیجه درگیری مدیران عامل، دبیرخانه شورایعالی با نمایندگان بود، ضربه دیگری به این مناطق بود تا بدین ترتیب نه تنها مدیریت متمرکز ناممکن شود بلکه حداقل های هماهنگی درون منطقه ای نیز رعایت نگردد.
با این رویکرد به حدی از جایگاه مناطق آزاد رسیدیم که وزارت اقتصاد و گمرک، قانون مصوب مجلس را در برابر بخشنامه دولت نقض کرده و با اعمال محدودیت های واردات و ثبت سفارش کالا و مالیات بر ارزش افزوده در برابر قانون مجلس ایستاد و موجبات ناهماهنگی های اساسی در فعالیت های اقتصادی سرمایه گذاران منطقه آزاد شدند.
نتیجه چنین چالش هایی رفع مسئولیت مدیران مناطق آزاد و مدیران دستگاههای اجرایی مستقر در منطقه از وظایف خود و نهایتا اعمال مضاعف قوانین مناطق آزاد و قوانین سرزمین اصلی برای موضوعی واحد و تبدیل مناطق آزاد به سرزمین هایی با چند مدیر و چند قانون و فرار فعالان اقتصادی به سرزمین اصلی شده است! / اتمام گفتار اول
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