L U A I O A I B A I 'T >/
BAN VE THAM QUYEN, THU TUC GIAI QUYET TRANH CHAP DAT DAI TAI CO QUAN HANH CHINH
LlXU QUOC THAI*
Tdm tat
Bdi viet ndy phdn tich, ddnh gid cdc quy dinh cua phdp ludt vi thdm quyin, thu tyc gidi quyit tranh chdp ddt ddi tgi ca quan hdnh chinh nhdm gop phdn hodn thiin phdp lugt ve gidi quyet tranh chdp ddt dai.
Abstract
This article analyzes and reviews the provisions on the competences and procedures of land disputes settlement at administrative agencies for the improving ofthe law on land disputes settlement
'T"'ranh chap dat dai ludn la hien tugng rdt X phdc tap d nude ta. Theo bao cao cua Bd Tdi nguyen va Mdi trudng, "hdng ndm Bg nhgn dugc gdn 10.000 litgt dan tranh chdp, khiiu ngi, to cdo thugc ITnh vuc tdi nguyin vd moi fytc&ng cda cong ddn 63/63 tinh, thdnh pho true thugc Trung uang, trong do dan thugc Unh vuc ddt dai chiim 98,6% tong so ctow".'Theo bdo cdo cua Vien kiem sat nhan dan tdi eao, tir 01/7/ 2004 din 30/ 8/2010, Tda dn cdc cdp da ttiy ly gidi quyet theo thu tuc so thdra 307.912 vy viec ddn sy, trong dd sd vy viec tranh chap Uen quan den ddt dai Id 69.806 vy viec (chiem 22,70%).^Thyc trang nay da gay ra nhieu bat dn cho ddi sdng kinh te - chinh tri - xa hdi, dnh hudng xdu den hipu qud sir dyng ddt.
Ke tir Lugt Ddt dai nam 1987 - Luat Ddt dai ddu tien duge thdng qua sau khi che dp sd huu todn ddn ddi vdi todn bd ddt dai dugc xdc lap theo Hien phdp nam 1980, thdm quyen giai quyit ttanh chip dit dai cua Uy ban nhan dan (UBND) da dugc quy dinh. Viec quy dinh cho ca quan hanh chinh tham gia gidi quyet "tranh chip tdi san" xult phdt tir nhung dge thu cua quan he dat dai vd ciing nham "chia se" khd
• TS, Trucmg bp mfin Luat Dat dai - Moi trucmg, giaug vien Khoa Lu|t Thuong m^ii, tnrcmg DH Luat Tp. H6 Chi Minh
' Hpi dong phoi hop c6ng tac, pho bien giao dye phap luat ciia Chinh phii (2009), 'Tranh chap, khieu n^ii, 16 cdo vk dit dai
\k giai quyit tranh chap, khieu n?ii, to cao ve dat dai", Dgc san Tuyen truyen phdp lugt, so 9.
^ Bp T^ nguyen va Moi truong (Bao cao 193/BC-BTN- MT), Bdo CO long kit thi hdnh Lugt Dat dai nam 2003 vd dmh huong sita ddi Ludt Bat dai. Ha Npi ng^y 06/9/2012.
khan vdi he thdng tda dn nhan dan (TAND).
Tuy nhien, viec gidi quyet tranh chap ddt dai ndi chung vd gidi quyet tranh chdp ddt dai tgi CO quan hanh chinh ndi rieng chua thye sy hieu qua. Mgt phan nguyen nhan la do eae quy dinh ve thdm quyen, thu tuc giai quyet tranh chdp dat dai tgi bp thdng ca quan nay trong thdi gian qua cdn nhieu bat cap hoac khdng phu hgp. Vi vdy, bai viet ndy se phdn tieh, ddnh gid phdp lugt ve van de nay nhim gdp phan hoan thien phdp ludt, ndng cao hiSu qud boat ddng giai quySt tranh chap dat dai d nude ta.
1. v l khai ni^m "tranh c h i p d4t dai" vd tham quyen cua cff quan hanh chinh trong giai quyit tranh c h i p ddt dai
Thugt ngii "tranh chap dat dai" duge sii dung tii rdt Idu ttong cdc Ludt Dit dai nhung chi dugc ehinh thiic gjai thich ldn dau tien tgi khoan 26 Dilu 4 cua Ludt Dat dai nam 2003.Theo dd:
"Tranh chdp ddt dai Id tranh chdp vi quyin vd nghia vu cua nguai su dung ddt giiea hai hogc nhieu ben trong quan hi ddt dai." Dinh nghia ndy mdt ldn nira dugc lap lgi "nguyen van" tai khoan 24 Dilu 3 Luat Ddt dai nam 2013. Rd rang, khai niem "tranh chdp dat dai" ndi tren qud rdng den miic khdng the xac dinh het ndi ham ciia nd, nhu chu thS tranh chdp la ai (hai hay nhiiu ben ttong quan he ddt dai), quyin, nglua vy tranh chdp Id ^ , . . . chua ke den sy bat hgp ly d ndi dung' tranh chdp ve nghia vu eua ngudi sir dyng dat", bdi thdng ttiudng ngudi ta ehi tranh chap quyen, lgi ich hgp phap ehu khdng ai ttanh chdp viee thye hipn nghTa vy, trii khi nghia vy dd ddng thdi ciing la quyen, quyin lgi.
T4P CHI KHOA HQC PHAP L Y SO 5/2015 Trong dieu kien ttiam quyen giai quyet eac
tt:anh chdp cd lien quan din ddt dai dugc giao cho hai he ttidng co quan khde nhau, viee xdc dinh cy ttil "ddi tugng" tt^nh chip ttong tt-anh chdp ddt dai cd y nghia rdt quan trpng. Nd vira giup xdc dinh chinh xac tham quyen gidi quyet cac ttanh chip v l dit dai de han che tmh ttang
"diin day" ttanh nhiem gidi quyet ttanh chap giiia hai he thdng ca quan TAND va UBND, ddng thdi ddm bdo quyen khdi kien ciia cdc ben tranh chap. Neu la tranh chdp quyen sir dyng dat (QSDD) thi phap luat khdng quy dinh thdi hieu khdi kien, nhung neu la eac tranh ehap khde cd hen quan den QSDD (nhung khdng phai ttanh chip QSDD) nhu tt:anh chdp hgp ddng giao dieh QSDD thi cdc ben tranh chap chi dugc khdi kien trong mdt khodn thdi gian nhdt dinh.^
Ngoai ra, vipc xdc dinh rd ddi tugng tranh chap ttong ttanh chap ddt dai cung se giiip xdc dinh duge logi ttanh chdp nao can phdi thdng qua thu tuc "hda gidi bat budc" tai UBND cdp xa theo quy dinh eua Dieu 135 Luat Dat dai nam 2003, Dilu 202 LudtDat dai nam 2013.
Theo khodn 3 Dilu 8 Nghi quyit 05/2012/
NQ-HDTP ngay 03/12/2012 cua Hdi ddng thdm phdn TAND Tdi cao (hudng din thi hanh Bd lugt Td tting ddn sy nam 2004 da dugc sira dii, bd sung nam 2011- ggi chung la BLTTDS),
"khi xae dinh dieu kien khdi kien vu an ddn sy ma ddi tugng khdi kien la quyen su dyng dit thi thyc hien nhu sau:
"a) Doi v&i tranh chdp ai co quyin su dung ddt thi phdi tiin hdnh hoa gidi tgi UBND xd, phuang, thi trdn nai co ddt tranh chdptheo quy dinh tgi Diiu 135 cua Lugt Ddt dai ndm 2003.
b) Doi v&i tranh chdp liin quan din quyin su dung ddt nhu: tranh chdp ve giao dich lien quan den quyin sic dung ddt, tranh chdp vi thiea ke quyin su dyng ddt, chia tdi sdn chung cua vg chong Id quyin sie dung ddt,... thi khong phdi tiin hdnh hoa gidi tgi UBND xd, phuang, thi trdn nai co ddt tranh chdp nhung vdn phdi thuc hiin thii tuc hda gidi theo quy dinh cdg Bg lugt To tyng ddn su".
^ Xem diSm a, b khoan 3 Di6u 23 Nghi quygt 03/2012/NQ-HDTP ngay 03/12/2012 cua TAND T6i cao v's huong din thi hanh Bp lu^t T6 tyng dan s\r.
Vdi quy dinh tten thi TAND Tdi eao da
"ddng nhat" ttanh chdp ddt dai vdi tt'anh e h ^ ^ " "
QSDD, bdi Dilu 135 Ludt Dit dai nam 2003 (van ban ma Nghi quyit 05/2012/NQ-HDTPdl cap din) quy dinh "hda giai tranh chip dit dai"
chu khdng dung cym tir "hda giai tranh chip QSDD". Ngoai ra, Dilu 203 Ludt Dit dai nam 2013 khi quy dinh thdm quyin gidi quyit ttanh chip ciia UBND ciing dung cym tir "giai quyit tranh chip dit dai". Quy dinh nay budc chiii^
ta phai khing dinh, tranh chap dat dai chi co thi bilu Id tranh chdp QSDD (tiie ttanh chip de xac dinh ai la ngudi cd QSDD hgp ph^) bdi UBND khdng cd thdm quyen gidi quyit cac ttmih chip cdn lai cd lien quan den ddt dai nhu tranh chip hgp ddng giao dieh QSDD, ttanh chip tai sdn gan lien vdi dit.
Tdm lai, ca quan hanh chinh chi cd the giai quyit ttanh chip QSDD, khdng hdn vdi tir each la ca quan phdn dinh quyen "sd hiiu" ddi vdi tai sdn tt-anh chap ma edn la chu the dgi dipn cho ehu sd huu Nha nude ddi vdi dat dai de quyet dinh ai la ngudi cd the sir dyng tai sdn eiia Nha nude.''
2. Hda giai tranh chap dat dai tai cff quan hanh chmh
2.1. Hoa gidi tranh chdp tgi UBND cdpxa Ke tu khi Ludt Ddt dai nam 2003 cd hieu lyc, viee hda giai ttmh chip dat dai tai UBND c ^ xa (noi cd dat tranh ehap) ttd thanh mdt thii tyc mang tinh chdt bat bude.' Tuy nhien, gdn nhu tirong sudt khoang ttidi gian Ludt Ddt dai nam 2003 cd hieu lye, viee hda giai ttanh chap ddt dai tgi UBND cdp xa tdn tai nbilu vudng mdc:
(i) Vi logi tranh chdp phdi hoa gidi tai UBND cdpxa
Nhu da phdn tich d ti^n, do khdi niem tm^
chap dat dai tai khodn 26 Dieu 4 Lugt Ddt dai nam 2003 qua rgng nen thyc te da cd hai each hieu khde nhau ttong viee thyc hien ttiu tuc h6a giai bat budc tai UBND d p xa. Cach hiiu thti nhat cho rang, tit cd cdc ti-anh c h ^ cd lien quan '• Xem them Luu QuIc Thai, "Ban vh khai ni$m
"tranh chip dit dai" trong Luat DSt dai 2003 ", Tap chi Khoa hpc Phdp ly, s6 02 (33)/2006.
' Xem diam 2 Cong van 116/2004/KHXX ngiy 22/7/2004 cua TAND Toi cao hucmg dan th\rc hi$n diim quyan cua TAND theo Luat DSt dai nam 2003.
LU^T DAT BAI 33 den ddt dai diu phdi dugc hda giai tgi UBND
cap xa, trong khi theo quan diim cdn lgi ttii ehi nhimg tianh chip QSDD mdi phai tiin hdnh hda gidi theo thii tiie nay. Mai din khi Lugt Dit dai ndm 2003 sdp hit hipu ttii hdnh thi Nghi quyit 05/2012/NQ-HDTP eiia HOi ddng ttidm phdn TAND Tdi cao mdi xdc dinh ehi nhiing '*tranh ehap ai cd quyen sir dung dit thi phdi tiin hanh hda gidi tgi UBND xa, phudng, ttii ti^ nai ed ddt tranh chip". Tuy nhiSn, quy dinh nky eiing ldm phat sinh nhiing vdn dl phdp ly nhdt dinh. Thie nhdt, N ^ quyit ndy cua TAND Tdi eao hudng ddn thi hdnh Bd ludt Td tyng dan sy (tren ca sd thdng nhit y kiln cua Vien trudng ^^en kiem sat nhan tdi cao va Bd trudng Bp tij phdp), vdy lieu nd cd dugc eoi Id ddng thdi CO gia tti hudng ddn thi hdnh Luat Ddt dai bdi ttidm quyin gidi quyit ti-anh chip dit dai khdng chi thupe ve he thdng ea quan tda dn va Nghi quyet nay khdng the hien y kiln eua ca quan quan ly ddt dai d trung uong la Bd Tai nguyen vd Mdi tindng? Thic hai, Nghi quyit ndy ban hanh vao thdi diim Luat Dit dai nam 2003 cd hieu lye nhung nay Ludt ndy da bi thay ttie bdi Luat Dit dai nam 2013 thi heu nd cd cdn gia tri dp dyng hay khdng?
(ii) Ve vdn di ngi dung quy dinh hoa gidi vd trdch nhiem cua UBND cdp xa trong viic thuc hiin hoa gidi tranh chdp ddt dai
So vdi Lugt Dat dai nam 2003, Lugt Dat dai nam 2013 vd cdc van ban quy dinh ttii hdnh da cd rat nbiSu tiin bd trong cdc quy dinh ve hda gidi tranh chip dat dai tai UBND cdp xa. Ben canh viec quy dinh lgi thdi ban hda gidi dai ban (45 ngay so vdi 30 ngay trudc day)* de ddm bdo tinh kha thi, eac npi dung quan ttgng khde nhu:
ttidnh phin Hdi ddng hda gidi; edeh thiic gidi quySt khi mgt ttong cac ben tranh chip vang mgt tgi budi hda giai iln thii hai hogc cac ben cd thay ddi y kiln sau khi hda giai thanh ciing dugc quy dinh. Cy the:'
- Vi§c hda gidi chi duge tiin hdnh khi eae ben tranh chap diu cd mat. Trudng hgp mdt trong
* Diam a khoan 3 DiSu 54 Nghi djnh 43/2014/ND- CP ngay 15/5/2014.
' Xem Di6u 88 Nghi dinh 43/2014/ND-CP ngay 15/5/2014.
cdc ben ti-anh chip vang mat din ldn thir hai thi dugc coi la viee hda giai khdng thdnh.
- Trudng hgp hda gidi khdng thanh hodc sau khi hda gidi ttidnh ma cd it nhat mdt ttong cac ben thay ddi y kien vl kit qud hda giai thi UBND cdp xa ldp bien ban hda gidi khdng thdnh va hudng ddn cdc ben ttanh chdp gui dan den ca quan cd ttidm quyin gidi quyit tranh chdp tiep theo.
Cdc quy dinh nay da tao dilu kien thudn lgi eho cdc ben tranh chap cd ttil nhanh chdng khdi kien yeu cau ca quan cd tham quyen giai quyet.
Tuy nhien, trdch nhiem td chiie hda giai tranh chdp ciia UBND cdp xa vdn cdn diem bdt cap.
Thu nhdt, neu UBND cdp xd khdng td chirc hda giai ttong thdi hgn quy djnh thi cae ben tranh chap phdi lam gi de cd ttil khdi kien ra ca quan cd thdm quyen? Thu hai, trong trudng hgp hda giai khdng thdnh theo quy dinh eiia phap lugt nhung UBND cap xa Ididng ldp bien bdn hda gidi khdng thanh thi cac ben tranh ehap phai lam sao? Nhiing bat cdp ndy niu khdng dugc sdm ldm rd se khien cho tranh ehap dat dai keo dai, anh hudng khdng ^ t din quyin, lgi ich chinh ddng cua ngudi su dung dat hgp phdp.
2.2. Hoa gidi tranh chap ddt dm t^i ca quan CO thdm quyen gidi quyit tranh chdp
Khae vdi quy dinh trudc ddy, viec gidi quyit tranh ch^ ddt dai tai ca quan hanh chinh ed tham quyen giai quyit tranh chdp theo quy dinh ciia phap ludt hi6n hdnh cd them giai dogn hda giai tiirde khi eae ca quan ndy ban hanh quyet dinh gidi quyet. Viee hda gidi nay dugc thyc hien d cd UBND cap huyen, cap tinh va Bd Tdi nguyen vd Mdi trudng.^ Ddy cd thi coi la mdt diem tien bd eua phdp lugt, tan dyng mgi dieu kipn cd the de hda giai cdc ttanh chip ddt dai vdn rat phiic tap va khd giai quyet.
Tuy nhien, ciing khac so vdi quy dinh vl hda gidi tai UBND cdp xa, ket qud hda giai (thdnh) tgi UBND cdp huyen, cdp tmh vd Bp Tai nguyen vd Mdi trudng lgi cd ca cbl bat budc phai thyc hipn. Cy the, neu hda gidi thanh, ngudi cd thim quyen ban hdnh quyit dinh giai quyet tranh chip dit dai se ban hdnh quyit dinh
* Khoan 3 Dieu 89, khoan 2 Dilu 90 Nghi dinh 43/2014/ND-CPngly 15/5/2014.
TAP CHI KHOA HOC PHAP L Y SO 5/2015 cdng nhdn ket qud hda gidi.' Neu cdc ben tranh
chdp khdng tu nguyen ttiyc hien ttieo ndi dung hda gidi da dugc cdng nhgn thi se bi cudng che ttii hanh quyit dinh cdng nhgn hda giai ttianh theo quy dinh chi tilt cua UBND cap tinh nai cd ddt tranh chdp.'"
Quy dinh ve thii tuc hda giai ndi tren cd nhiing diem kha gidng vdi thu tuc hoa giai ttong td tiing dan sy. Tuy vdy, so vdi quy dinh cua Bd ludt Td tung ddn sy (^LTTDS), quy dinh eua phap lugt dat dai ve van de nay van cdn kha sa sdi md neu thyc hien tten thyc te se phat sinh nhieu van de khdng the giai quyet:
(i) Thii nhdt, viec hda gidi tai cdc ca quan hanh chinh tren ed phai la thu tue bat budc hay khdng? Neu cdc b8n ttanh chap dugc mdi den hda giai ma cd tinh khdng den thi eac co quan ndy cd dugc ban hdnh quyet dinh gidi quyet hay khdng?Trong khi dd, theo quy dinh tai Dieu 182 BLTTDS nam ?ddi vdi nhiing vy dn khdng tien hdnh hda gidi dugc thi Tda an quyet dinh dua vu an ra xet xOr, bao gdm:
- Bi dan da dugc Tda dn trieu tap hgp le den ldn thii hai md vdn cd tinh vdng mat;
- Duang su khdng ttie tiiam gia hdagidi dugc vi ed ly do ehinh ddng;
- Duong sy la vp hogc chdng ttong vy an ly hdn la ngudi mat nang luc hanh vi dan sy.
(ii) Thii hai, sau khi cd kit qua hda gidi, phdp ludt ddt dai khdng cd quy dinh ve khoang thdi gian di cdc bin tranh chdp cdn nhdc ve nhihig thuang lugng, thda thudn cua minh nhu quy dinh ciia phap ludt td tung dan sy. Theo quy dinh tgi Dilu 187 BLTTDS, hit ttidi hgn 7 ngdy, k l tii ngay lap bien bdn hda giai ttidnh ma khdng ed duang sy nao thay ddi y kiln v l sy ttida thudn cua minh thi thim phdn chu tti phien hda giai hoge mdt ttiam phdn duge chanh an tda an phan cdng ra quyit dinh edng nhan sy thda ' Khoan 4 Diau 89, khoan 4 Di6u 90 Nghi dinh 43/2014/ND-CPngay 15/5/2014.
'° Khoan 2 DiSu 91 Nghi dinh 43/2014/ND-CP ngay 15/5/2014. Tren th\rc ta da co dia phuang ban hanh quy dinh va vin da nay. Vi du nhu Quyat dinh s6 03/2015/QD-UBNDngay 29/01/2015 ciia UBND tinh Soc Trang v6 viec ban hanh quy dinh trinh tu, thu tuc cuang cha thi hanh quyat dinh giai qayk tranh chip dat dai, quy6t dinh cong nhein hoa giai thanh.
thudn ciia cac duang sy. Trong thdi ban 5 ngdy lam viec, ke tir ngdy ra quyit dinh cdng nhslii'^
sy thda thugn cua cdc duong sy, tda dn phai giri quyit dinh dd cho cdc duang sy vd Vien kiim sat cimg cap. "Thdm phdn chi ra quyit dinh cong nhdn su thoa thugn cua cdc duang su neu cdc duang su thoa thudn dugc vol nhau vi viic gidi quyet todn bg vy dn. Trong tnmng hgp quy dfnh tgi khodn 3 Diiu 184 BLTTDS md cdc duang su co mat thoa thudn dugc v&i nhau ve viic gidi quyet vu dn thi thoa thudn do chi CO gid tri doi v&i nhimg ngu&i co mgt vd dugc thdm phdn ra quyit dinh cong nhdn niu khong dnh hu&ng den quyin, nghig vu cdg duang sif vdng mat Trong tru&ng hgp thdo thugn ciia hg CO dnh hu&ng den quyin, nghia vu cua cac duang su vdng mat thi thoa thugn ndy chi co gidi tri vd dugc thdm phdn ra quyit dinh cong nhdn niu dugc duong su vdng mgt tgi phien toa dong y bdng vdn bdn.Theo quy dinh tai Diiu 188 BLTTDS, quyit dinh cong nhgn su thdg thudn cua cdc duang su co hiiu lucph^
lugt ngay sau khi tda dn ban hdnh. Duang su khong CO quyin khdng cdo, viin kiim sdt Idling CO quyin khdng nghi phuc thdm doi v&i quyet dinh ndy".'^^
Tuy nhi&i, ttieo Dilu 188 BLTTDS ttii quySt dinh cdng nhgn sy tiida thudn cua cac duong sy vdn cd the bi khang nghi theo thii tyc giam ddc thdm neu cd can cii cho rang sy thda thuan dd la do bi nham ldn, lira ddi, de dpa hoac vi phgm dieu cam cua phap lugt, trai dgo diic xa hpi. Ddy cung Id mgt vdn de hodn todn co the xdy ra doi v&i hogt dgng hoa gidi tranh chap ddt dai tgi caquan hdnh chinh nhungphap lu^t ddt dai hodn todn khong co quy dinh du lieu hu&ng xu ly.
3. Tham quyen, thu tuc giai quyit tranh chap tai ca quan hanh chinh
Theo khodn 2 , 3 Dilu 203 Lugt Dit dai nam 2013, ttanh chip ddt dai ma duong sy khdng co Gidy chiing nhdn quyin sir dyng ddt, quyen so
" Xem them; Minh Nhat,//da gifli (rong W ft su - mot vdiy kien de hodn thiin, http://moj.gov.vn/ct/
tintuc/Pages/nghien-cuu-trao-doi.aspx?ItemID=6769 (website B9 Tu phap), truy cap liic 11 gicr 15 ngiy 09/6/2015.
LUAT DAT UAI 35 hiiu nhd d vd tai san khac gan Uln vdi ddt gidy
chiing nhgn va cae giay td quy dinh tai Dieu 100 Lugt Ddt dai nam 2013 tiii duong sy dugc lya chgn mgt ttong hai ca quan gidi quyet la ca quan hanh chmh hoge TAND. Nhu vgy, neu duang sy khdng chgn TAND thi ca quan hanh chinh mdi cd thdm quyen gidi quyet ttanh chdp.
So vdi Luat Dat dai nam 2003, thim quyin giai quyet cua ea quan hdnh chinh da bi thu hep han.'^
Trong trudng hgp co quan hanh chinh cd ttiam quyen gidi quyet ttanh chdp dit dai thi thdm quyen dugc quy dinh cy the nhu sau:
a) Trudng hgp tranh chdp giua hd gia dmh, ca nhdn, cdng ddng dan eu vdi nhau thi Chu tich UBND cap huyen gidi quyet; neu khong ddng y vdi quyet dinh giai quyet thi ed quyen khieu ngi den Chu tieh UBND cap tinh hoac khdi kien tai TAND ttieo quy dinh cua phdp ludt ve td tung hdnh chinh;
b) Trudng hgp tranh chap ma mdt ben ttanh chip Id td ehire, ca sd tdn gido, ngudi Viet Nam dinh eu d nude ngodi, doanh nghiep ed vdn dau tu nude ngodi tiii Chu tieh UBND cap tmh giai quyit; neu khdng ddng y vdi quyet dinh giai quyet tin ed quyen khieu ngi den Bd trudng Bd Tai nguyen va Mdi trudng hoge khdi ki§n tgi TAND theo quy dinh cua phdp ludt ve td tung hdnh chinh.
Nhu vgy, thdm quyen giai quySt ttanh chap dit dai ciia ca quan hanh chinh dugc phan thdnh hai d p tuy thudc vdo ehu the tiranh chap.
NIU ehi lya chgn con dudng gidi quyet tai ca quan hanh chinh thi cap gidi quyet thd hai dugc coi Id d p gidi quyit cudi cimg. Tuy nhien, khde vdi Ludt Ddt dai nam 2003, Ludt Ddt dai nam 2013 cho phep cdc ben ti-anh chip ttiem mpt lya ehgn cdch thiic gidi quyet sau khi da duge giai quyit theo thdm quyen (ldn dau). Neu nhu khdng ddng y vdi lan gidi quyet ndy, cdc ben tt-anh chip cd thi khdi kipn vy an hanh ehinh
'^ Theo Dieu 136 Luat DSt dai nam 2003 thi co quan hanh chinh co tham quyen giai quyet cac tranh chip dat dai ma duong sir co giiy chiing nhan quySn su dung dit va cdc giay td quy dinh t^i khoan 1, 2, 5 Diau 50 Luat Dat dai nam 2003. Luat Dat dai nam 2003 khong cho phep duang s\r lua chpn ca quan giai quyit tranh chap nhu Luat Dat dai nam 2013.
ddi vdi quyit dinh giai quyet ti-anh chap ciia chii tich UBND ttieo phap ludt td tiing hanh chinh thay vi chi duge yeu cdu cap cao ban giai quyet nhu ttordc day.
Nhiing diem mdi ttong quy dinh ve tham quyen gidi quyet ttanh chdp dat dai cua ca quan hanh chmh dudng nhu tao ra nhieu lya chpn, nhieu co hpi hon cho cdc ben ttanh chdp bao vp quyen sir dyng ddt hgp phap cua mmh. Tuy nhien, nhimg tiiay ddi nay lgi dat ra nhieu van de can phdi lam rd khi ma phap ludt van edn qua chung chung:
(i) Thic nhdt, nhu da tiinh bdy, ttudng hgp duang sy khdng cd GCN va cae gidy td quy dinh tai Dilu 100 Lugt Dit dai nam 2013 ttii duang sy dugc lya ehgn mdt ttong hai ca quan giai quyit Id ca quan hdnh ehinh hoac TAND.
Se cd hai khd nang xay ra ddi vdi trudng hgp nay ma phdp luat chua quy dinh each giai quyet.
Mgt Id, trudng hgp ed mdt duong su vua gui dan den UBND va giii don dSn TAND; va hai Id, mdt duang sy giri dan den UBND cdn mdt (hodc cdc) duong sy edn lai nop den TAND yeu d u giai quyit ti-anh chdp. Vgy, ca quan ndo se gidi quyet ttanh chap neu cdc tinh hudng nay xdyra?
(ii) Thii hai, ttong tiirdng hgp cdc ben ttanh chip deu lya chgn UBND giai quyet vd sau khi da cd quyet dinh giai quyet cua ehu tieh UBND theo thim quyin, mpt ben ttanh chdp gui dan yeu cau ca quan cdp cao hon giai quyet ttong khi dd phia cdn lai gdi don den TAND cd thim quyin giai quyit theo ttiii tuc td tung hdnh chinh thi se xu ly ra sao?
(iii) Thu ba, trudng hgp vu viee dugc dua din TAND giai quyit theo ttiu tyc td tyng hanh chmh. Trudng hgp nay TAND khdng cd thdm quyen giai quyit tranh chdp ddt dai ma cbi cd quyin xem xet tinh hgp phap ciia quyet dinh hdnh chinh ve giai quyet tranh chap ddt dai cua chu tich UBND. Hdi ddng xet xu (HDXX) vy dn hanh chmh ehi cd thdm quyen "bdc yeu cdu cua nguai kh&i kien" hoac "chdp nhdn mgt phdn hodc todn bg yiu cdu kh&i lain, tuyin huy mgt phdn hogc todn bg quyit dinh hdnh chinh trdi phdp ludt; bugc ca quan nhd nu&c hodc ngu&i co thdm quyen trong ca quan nhd
36 T4P CHI KHOA HQC fHAJf LYSO 5/2015 nu&c thuc hien nhiem vy, cong vy theo quy dinh
cua phdp /ua/"'^chir khdng ed quyin siia quyet dinh gidi quyit tranh chdp ddt dai ciia chu tich UBND.
Nhu vgy, ttong trudng hgp HDXX vy an hanh ehinh tuyen buy mdt phdn hoac toan bp quyit dinh hdnh chinh ve gidi quyet tranh chip ddt dai ttii se phat smh ttiem nhiiu thu tiic khde. N I U nhu quyit dinh cua HDXX khdng bi khdng cdo, khdng nghi thi se dugc dua ve UBND da giai quyit ttanh chip d l gidi quyit lgi. Khdng loai tiir khd nang sau khi gidi quyet lai, quyit dinh giai quyet lai tiranh chip cua chu tich UBND lai bi khdi kien theo thii tyc hdnh chinh rapt ldn nua. Cir the viec gidi quyet tranh chip se ldng vdng, khdng ed "dudng" ra.
Trudng hgp quyit dinh cua HDXX bi khang cdo, khdng nghi thi se dugc giai quyet theo thu tuc phiic thim. Ngodi ra, ttong trudng hgp dgc bipt, ban an da cd hieu lyc cua IffiXX vy dn hdnh chuih ddi vdi quyet dinh gidi quyet tianh chdp ddt dai se bi xem xet lai theo thu tuc Gidm ddc tham hogc Tai tham. Ca Hdi ddng Giam ddc thdm va Tdi thdm deu khdng cd quyen sira ban an da cd hieu lyc ma chi co the tuyen buy an de xet xu lgi.''' Vy viee se cd Ihl keo ddi khdng cd thdi hgn tai TAND ttieo thu tiac td tung hdnh chinh chi de nham xac dinh quyet dinh gidi quyet ttanh ehap dit dai cua chu tich UBND ed hpp phdp hay khong chii khdng ttil phdn dinh QSDD ttanh chip thudc v l ai. Ro rdng, ddy khdng bin la lya chgn tdt cho cae ben tranh chap dat dai.
4. Ket luan va kiln nghi
- Hda gidi ti-anh chap ddt dai bit budc tai UBND cdp xa la ttiu tue d n tiiilt. Cdc quy dinh cua Luat Dat dai nam 2013 v l vdn d l nay gdn nhu da kba ddy du, ro rang. Tuy nhien, phap luat edn bd sung quy dinh ve trudng hgp UBND d p xa khdng td chiic hda gidi dung ttidi ban quy dinh hogc khdng lap bien bdn hoa giai khdng thanh theo quy dinh cua phap ludt d l cac ben ti-anh chap ed tiie nhanh chdng khdi kien ra ca quan ed thdm quyin. Cy ttil, niu hit thdi hgn hda gidi ma UBND d p xa khdng t l chiie hda ' ^ Khoan 2 Dilu 163 Luat T6 tung hanh chinh nam 2010.
'* Dieu 225,237 Luat T6 tyng hanh chinh nam 2010.
gidi hogc khdng lap bien bdn hda giai khony thanh thi cac ben ed the tranh chip ed tbl caP cii vdo bien nhgn dan yeu d u hda gidi dk khoi kipn din ca quan cd thim quyen gidi quygt tranh chdp.
- Phdp luat dit dai hipn hanh da giam thim quyin gidi quyit ttanh chdp dit dai cua ca quan hanh ehhih xuong miic "tdi ttiilu" vi ngay ca trong tiirdng hgp duang sy khdng cd giiy td vl quyin sir dyng ddt ttii ttilm quylngiai quyit vdn cd tbl ttiupc v l TAND. Quy dinh ndy till hien vipc Nhd nude dd danh gid dugc khd nang giai quyit tit cd cdc ttanh chip dat dai cua TAND.
Vi vdy, vdi nhiing ban che ddi vdi viec giai quyit tt-anh chip dit dai tai ea quan hanh chinh nhu da phdn tich d tten va de phii hgp han dfli vdi chiic nang cua tung logi ca quan nhd nuoc, tdc gia kiln nghi siia ddi quy dinh iham quyen gidi quyet tranh chdp ddt dai theo hudng giao todn bd cho TAND gidi quyet. Mpc thay dii nay se tranh duge tinh trgng mdt tranh chap tai sdn lai dugc giai quyet tai ca quan hdnh chinh, sau dd lai di ldng vdng qua TAND theo thu tuc td timg hdnh chinh rdi lgi quay ve UBND de lam lgi, chua ke din mgt thyc t l Id viee ngiroi ddn thing kipn ca quan hdnh ehinh la dieu lit khd.'^ Ngodi ra, xet ve nhan sy ttii HDXX ciia TAND ttieo thu tuc td tiing ddn sy chac chan dugc "chuan hda" ban so vdi dpi ngii can bo qudn ly hdnh chmh ciia UBND nen chit lupng gidi quyet ttanh chap se "dn dinh" ban. Hieu qua gidi quyet tranh ehap dat dai ciia TAND se duge nang cao neu nhu co ehl phdi hgp gim be thdng ca quan nay va ea quan qudn ly dat dai dugc quy dinh cu tbl, ro rang, hgp ly. Day Id dieu cd the de dang thyc hien dugc thong qua mdt van ban lien tieh giiia cac ca quan Tda an - Kiem sat - Tai nguyen va Mdi tiirdng. •
' ' Tran thirc t i , vi?c nguoi dan di kien ca quan hanh chinh theo thii tuc t i t i ^ g hanh chuih duac vi nhu la
"con kiin di ld?n cu khoai". Xem them y kiin ciia ong Trin Du Lich (D^i bilu Qu6c h^i) tai ky hQp Quic hoi vho ngay 04/6/2014 dupe ghi lai tren Bio Tuoi tre: "Ddn kien chu tfch huy$n: "Dimg bdy ddn cai chuyen mdt thi gicr"", http://tuoitre.vn/tin/chinh-tri- xa-hoi/20150604/dan-kien-chu-tich-huyen-dung-bay- dan-cai-chuyen-mat-thi-gio/756972.html, truy cSp lie 11 gia 10 ngay 10/6/2015.
