NGHliN CUU
Chinh sach va phap luat deit dai cua Hoa Ky va bai hoc kinh nghiem cho Viet Nam
•fr^PhanHigu Trudng Dai hoc Su pham. Dai hgc Da N&ig
Nlu bd qua khic bidt vl che dp sd hflu dit dai gifla Hoa Yd v i Vidt Nam, ehflng ta co Uil hpe hdi nhflng kinh nghiem tdt tu qui trinh xiy dung phip lu^t vi cbinh sich dit dai cua Hoa Ki dd li: (I) eo c h l xiy dyng phip lu$t vi ehinh sich dit dai khoa hpe, ed tinh tham gia Idn v i minh baeh; (II) nhflng quy dinh chit ehe vl quyin ddi vol dat dai d i m b i o van hanh cac quan he 6 ndng thdn ttdn n l n tang liy dit dai lim tmng tam; (iii) mdi quan he mat thiet giua phap luat va chinh sich de dam b i o tinh hidu lyc eua phap luit vi tt'nh hidu qui cua ehinh sieh; (iv) sy phdi hpp cie ehinh sich dit dai va nOng nghidp thfle day hinh thinh va cflng cd md hinh trang ttgl gia dinh la hgt nhin cfla kinh tindng nghidp d Hoa IQ... Tu dd, gdp phin hoan thidn phip luit vi chinh sich dat dai nham thuc diy ndng nghiep, ndng dan, ndng thdn d Viet Nam ttong giai doan hidn nay.
I.Mffdau
Hoa Ki Ii quOe gia ed didn tieh dit ehua khai phi ldn nhat t h i gidi, dien ttch dat ed lhl canh tic binh quin diu ngudi l i 10.41 miu/ngudi. Xiy dung Iuat va chinh sach dit dai li mOt trong nhflng phip Idnh eflng nhu chinh sich kinh t l sdm nhit cua chinh phu. He thdng phap luit vi ehinh sieh dit dai ed quy mo Idn, hoin chinh vi cd b l diy Iich sfl hon 200 nam. Qua vide khao cflu, tOng hpp, phin Ueh nhflng tii lieu lidn quan d i n h | thdng phip luit, chinh saeh dit dai va nOng nghilp cfla Hoa Ki, chflng tdi da Um thay nhflng dilm uu vi|t trong eo e b l xiy dyng luit vi ehinh sich dit dai, b i o ve cic quyin ddi vdi dit dai, ehinh sieh b i o hd dit, ehinh sich thflc diy sy hinh thinh vi phat trilnefla md hinh ndng trgi gia dinh cfla Hoa Ki... ed thi van dyng d Viet Nam.
2. Qua binh xay flung phap iuat va chinh sach flat ffai Tu nam 1776, sau khi danh dOe lip, d l phit triln n l n kinh t l dde lap ly chfl ttong diiu kidn khdng ed bat ki Ipi l h l n i o ngoii tii nguydn dit phong phu, Hoa Ki bit buOe phii phit triln ndng nghiep. Vi viy, giai quylt van d l dat dai l i ylu eiu eip bieh ddi vdi chinh quyin lidn bang.Thay vi k l thfla e h i dO trang vidn cua thyc dan Anh d l lai hoae duy tri ehd dO nd le dupe hinh thinh trong thdi ky thyc dan, Hoa Ki d i lua chpn xay dyng c h l dp dat dai mdi toan di|n. Cflng vdi vide xae lip quyin tii sin dit dai cho ndng din, tu nhin hoi dat cdng huu bang nhilu hinh thflc khic nhau, cic chinh sieh niy quylt dinh d i n su vin ddng cfla quan hd dit dai vihinh thanh ehe dO nOng trang 6 Hoa Ki ngay nay.
Ljch sfl phap luit v i chinh sieh dit dai efla Hoa Ky ehia thinh cie thdi ki sau: Thdi kl khai thie (tfl 1776 din Uiip nidn 30 l h l ki XX), thdi ki thfle Unh (tfl thip
nidn 30 den 70 lhl ki XX), Uidi ki bao hd (tu thip nien 70 d i n gifla thip nidn 90 thd ki XX) vi thdi ki flng biln (tu giua thip nidn 90 d i n nay). Tuy mdi thdi ky, ehinh phfl CO nhflng chiln lupc khic nhaunhung chfl ylu lip tmng vio 2 ming chinh: mOt la phin phdi (bin, tang miln phi), khai thae va su dyng til nguyin dil (tip tmng ehfl ylu d thdi ky khai thac); hai la chuyen lu phan phd'i dil sang b i o hp dit.
2.1. Phip luit v i ehinh sach dit dai cfla Hoa Ki Uidl ky khai thie
Tu khi Luit n h i o ra ddi n i m 1862 lim mdc thi Uidi ki khai thac chia lam 2 giai dogn va ed 4 dac dilm:
mdt Ii, tardc nam 1862, dau gia cdng khai bin dit cdng hflu visau nam 1862, chia dit mien phi cho nhung ngudi khai hoang. Hal li, boat ddng diu gii vi bin dit cdng hflu tung buoc hudng d i n mye tllu cd Ipi eho sy phit triln tiiu ndng Ii mpt trong nhflng ylu td quan trpng tie dpng d i n vide xiy dyng va cflng cd ehe do trang trgi gia dinh. Ba li, cung vdi Luit nha d nam 1862, cac dgo lugtdupe ban hanh sau dd da thflc diy sy phit triln dn dinh eua c h l dO ndng trang. Bdn li, ehinh sich chia dit trong thdi ky khai tbiekhdng nhung hinh thinh md hinh trang ttgi gia dinh m i eon cd y nghia quan trqng ddi vdi sy phat trilnndng nghidp cflng nhu n l n kinh t l eua Hoa Ki.
2.2. Phip Iuat va chinh saeh dit dai tfl ttiip nidn 30 efla l h l ky XX trd vl sau
Dau nhflng nam 30 lhl ky XX Ii bude ngo^t trong chinh sieh dit dai efla Hoa Kl.ehinh phfl bit diu ehfl trpng din cdng tie b i o hd dit dai. Din thap nidn 70, Luat dit dai dupe xay dyng theo phuang thuc gdp, tip hpp c i c dgo luit vl ndng nghiep da dupe ban hanh trude diy. Luit ndng nghiep "tip hpp" cd ndi dung rdng,bao gdm k l hogch sin xuit nOng nghidp, bao hd dil dai vi giao dich ndng sin... Nhung sau thip niln
70
iNH Tt CHAu A - T H A I B I N H1990, Luit nOng nghiep cd su thay dOi can bin, ttieo hudng giim thilu sy ean thiep efla nhi nudc vio ndng nghidp, n h i m tflng bude Uut bd ginh nang tii ehinh tfl hoat ddng Up gia nPng sin.
Din thgp nien 30 cfla lhl ky XX, Chinh phfl Hoa Ki CO ban hoan tit viec chia dit edng huu.H^u qui cfla vi§c phi rung v i khai thie dit dai d quy md Idn lim cho dit dai ngiy cing bi xdi mdn. Hon nfla, vi|e su dyng mOt lupng ldn eic hda chit trong qui trinh canh tic cflng lim cho dat dai bi thoai hda nghidm trpng.
Tfl thyc trang trdn, mpi ngudi bat diu y thfle tim quan trpng cua cdng tie bao hp dit dai. Dd ehlnh li nguyin nhin thay dOI eieh Ulp eintrong xiy dyng phip lugt vi chinh sach dat dcd. Chinh phfl Hoa Ki tiln hanh ap dyng cac chinh sach b i o hp dit dai, bao gdm: (i) Han chl chan thi gia sue sd lupng ldn v i phi hogi ciy rflng; (II) Ap dung ehinh sieh Up gii vi hgn mfle ttdu thy d l khdng che s i n xuit ndng nghidp; (iii) Thyc hidn k l hogch "ngin hing dit", din din mOt lupng ldn dien tieh dit tgm ngflng eanh tie hoie chim dflt eanh lie; (iv) Chinh phu tip tmng xiy dyng he thd'ng de dllu, tiln hinh eanhtie trdn dit bi xdi mdn.
2.3. Dilm mdi trong phip luat va chinh sach dil dai tfl thip nidn 90 t h i ki XX
Din thip nien 90, chinh phfl Hoa Ki vin ehfl trpng bio hp dit dai, nhung ed nhilu thay ddi trong phuong thflc thue hidn. Cie dgo luit dat dai tfl thip nidn 30 trd lgi day, chinh sich gii ndng sin vi h6 trp thu nh^p d i kit hpp nhilu chinh sieh ndng nghidpvdi nhau vi la mpt trong nhflng cdng cy quan trong d l diiu ehinh ndng nghiep. Tic dyng chu ylu cfla chinh sich nay trong viec b i o hd dit dai dd Ii:
Mdt li, khuyen khieh nhilu ehfl trang trgi tham gia cae k l hoaeh cfla Bp NOng nghidp, tu dd, phin ldn dien Ueh dat efla ehfl Uang Uai nim trong phgm vi diiu chinh cfla luit v i chinh sich dit deil liln bang.
Hai Ii,thflc diy ehfl ttang Ugi ty nguy|n tham gia k l hoach b i o hO dat dai. Khuyin khich canh tie eie logi ciy trdng cd Ipi cho dat, giim canh tic eie logi ciy cd hai lam giam chit Iuong dit. Nhu viy, vua hgn c h l linh trgng sin xuit thfla dOi vdi mOt sd ndng sin (nhu cic logi hgt, bdng, UiuOc la...), vfla b i o hO dit. Ddng thdi, hudng din cie chu trang trai cit giim 1 phin dl|n tich dit canh tic, dua vio su dyng vdi mye dieh bio hO dit.
Ba la, ap dyng ddng thdi ehinh sich hd trp gii vi hgn c h l sin xuat mang linh cudng chl. Tfl nim 1933, vi|c hgn che sin xuat duoe thyc hidn thdng qua 2 phuong thuc: (i) phin phOI hgn mfle didn tieh eanh tie: ein efl vao sin lupng ndng sin tdn kho cua nam trudc va nhu eau thi Irudng nam k l hoach d l xac dinh sin lupng va didn ttch eanh tie thye t l cho nim k l hogeh, sau do, chuyin ke hogch niy cho tflng dia phuong va timg hd trang trgi; (ii) vl hgn mfle lidu thy, can efl vio sin lupng phin phdi hgn mue Udu thy tOi
da ddi vdi tflng logi ndng s i n eho eic trang trai.
Nam 1990, Luit Bao hp vi m i u dich thyc pham, ndng nghiep, tii nguydn ra ddi. Myc tieu giim ginh n ^ g tii chinh efla ehinh phfl, ddng thdi md rOng xuit khiu ndng sin, duy tri tang trudng thu nhip cho ndng dan.
Nam 1996, Luit Hoin thidn vi cii cich ndng nghidp dupe ban hinh, dinh diu sy chuyin biln to Idn Uong ehinh sieh nOng nghi|p. Chinh phfl Illn bang giam mfle dO can thidp, cit giim dy toin binh on, sfla doi k l hogeh khdng khi thi. Ddng thdi, ngudi ndng dan cung nhan thuc tim quan trpng phai md rdng thi trudng qudc t l vi i p dyng phuong thuc kinh docinh moi.
3. Ban iuan va bai hoc kinh nghiem cho Viet Nam 3.1. v l CO e b l xiy dyng, dae dilm cfla phap Iuat vi chinh sach dat dai.
Qua khio sit cd thi thiy phip luit vi ehinh sieh dat dai cua Hoa Ki cd co c h l xay dyng tuong dOi khoa hpc va dae dilm rp ring. Co e b l xay dyng cd tinh tham gia rat ldn, tat ca cac bdn lidn quan diu tham gia vao qui trinh lap phip vi quylt dinh ehinh sieh, ngogi trfl nghi si qude hpi vi eic quan chuc hinh chinh.
Trudc khi xiy dyng Iuat vi dua ra quylt dinh vl ehinh sich, cic bdn Hen quan ed eo hpi dupe trinh biy mOt each diy dfl nhflng Ipi ich cfla minh, ttong qui trinh tranh luin cie ben nhugng bd lin nhau. Nho viy, eie dgo luit va ehinh sich dupe ban hinh trinh dupe nhflng sai sdt va loai bd dupe cic trd ngai ttong q u i trinh thyc ttil. Mil khac, la mdt qudc gia ed thi e b l ehinh tri dae thfl, eie nhdm lpi ich eua cic ling lop trong x i hpi diu cd td chuc dgi didn, do dd, d i ed khi ning gayanh hudng. Nhd viy, viec "trung eiu y kiln"
ttong quy trinh xiy dpng luit va ehinh saeh khdng mang ttnh hinh thuc. Hon nfla, qui trinh xiy dyng Iuat phap va chinh sach dil dai rat minh bgch, ttong qui trinh tranh luin v i bidn luin, cic td chflc hudng lgi tfl eic dgo luit vi chinh sich ed thi nim dupe toin bO qui trinh, tfl dd giam thilu nhflng phin ung eua x i hOi khi ban hanh dgo Iuat mdi.
3.2. v l mdi quan hd gifla eie dgo lu^t va chinh sich dit dai
Cd thi nhin thiy, mdi chinh sich vl dit dai dupe ban hinh diu cd cdn cu phap li, sau khi mOt dgo luit dupe ban hinh sd phii chi dinh mdt don vi ehuydn mdnphy trieh vide lip ra chinh sieh d l thye thi dgo luit, ddng thdi giim sit kit qui thye hidn. Nhu viy, lip phip ban hinh dgo luit vi ehinh sich, tu phip giim sil vi hilu qui thyc thi ehinh sich eua ehinh phfl dupe lien kit vdi nhau mpt eieh huu eo. Nho dd, b i o d i m eie dgo luil duoe triln khai thue hi|n mdt cieh hieu qui, cung nhu b i o d i m tinh phip li cfla tung ehinh sieh, ting cudng ttnh hl|u Iuc efla chinh saeh khi thue thi. Phap luat vi ehinh sieh ed md'i quan
1 Tt C H A U A - THAI E
71
he chit ehe, do dd da giim thilu sy tfly ti|n ttong q u i trinh chip hinh.
3.3.VI nOi dung luit va ehinh sich dit dai Nlu lilp cin theo chilu dpc, phip luit vi ehinh sieh dit dai cua Hoa Ki chu ylu rihim giii quylt hai nhdm vin d l ehinh l i phin phdi dit cOng hflu vi bao hO tai nguyin dit. Cic dao luit v i ehinh sieh phin phO'i dat cOng huu ehfl ylu cd Igi cho vi|e xiy dyng md hinh trang trgi gia dinh trong c h l dp tu huu quyin tii sin.Trong khi dd, ehinh sieh b i o hO tii nguydn dit chfl ylu nham khdi phue thim thyc vat, giam thilu sy xdi mon dit miu, ting dd miu md cho dit, cii thidn phuong phip eanh tie, hgn ehd di|n tt'ch dit eanh tie.
Thdm vio dd, Hoa Ki la dit nudc hda binh trong thdi gian dii, ndn myc tteu cua cic dao luat vi chinh sieh eflng dupe thi hinh mdt eich thuin lgi.
Nlu xit vin d l theo chilu ngang, luit phip vi chinh sieh dil dai efla Hoa KJ bao ham mpi mat efla c h l dd quyin tai sin dat dai. Tu cie quy dinh d l cd dupe quyin sd huu dit, quyin sfl dyng dit, quy dinh vl cho thud, chuyin nhugng, ding ky thi chip vi eic quyin Ipi cd lidn quan khac, cho d i n quan he giua vp ehdng, ngudi thin, hing xdm vl dit dai, phit Uiln khu dan eu, quy hogeh dat dai, w.. .Trdn eo sd dd b i o d i m dupe mdi quan he x i hpi 6 khu vyc ndng thdn dupe hinh thinh trdn nen ting liy dit dai lim trung tam phat triln dn dinh, giflp eho kinh t l ndng thdn tflng budc phat trien dn dinh va cic khu dan cu ndng Uidn On dinh lau dii.
3.4. v l Unh bleu qui cua phip luat v i chinh sich dit dai
Phip luit vi ehinh sich dit dai l i hgt nhin trong qui trinh phat triln nOng nghidp efla Hoa Ki. Viec hinh thanh v i phat triln dn dinh eua c h l dp ttang ttgi gia dinh, sy phit triln co sd hg ting, trang thilt bi ndng nghidp vi die biet Ii mfle dO co gioi hda, he thOng giao thdng van tii hoan chinh... cac yeu td dd d i u ed mdi qucin he mat thilt vdi c h l dp phan phdi dit dai.
Ngay nay, Hoa IQ sd di cd nln ndng nghidp hidn dai hda phat triln nhit thi gidi, ngoii nhung lpi t h i dac thu (dit rdng nguiri thua, dit eanh tic ndng nghiep nhilu, khi hiu phfl hpp, khdng ed chiln tranh...) thi phip luit vi ehinh sieh dit dai d i phit huy tie dyng quan trpng. Cbinh sieh bao hd dit dai phit huy hidu qui ly tudng. Thdng qua vide ban hanh eie dgo luit, x i e dinh Ueu chuan xu ly ngudn d nhidm, cd co c h l chip phap hidu qui trong vide xiy dyng phap luit vi tidu chuin cd lidn quan. Tuy nhidn, xet vl mpi mat, khdng thi phfl nhcin trong bd'i cinh chinh thi lien bang vi lhl c h l kinh t l thi trudng, ehinh phfl ed thi i p dyng cie chinh sieh vi edng ey d l diiu hanh hing tram ngin hd kinh doanh e i thi theo md hinh trang trgi gia dinh, quin ly va sfl dyng dat dai mOt each hidu qui, dd l i nhflng kinh nghiem quan ly quy bau d l hpe lip.
N G H l i N CUU 4. Ket luan
Hoa IQ l i qudc gia cd n l n ndng nghidp hing diu thd gidi, d l cd dupe vi tri dd hp d i giii quylt vin dl dil dai mOt cich hpp li, ddng thoi kit hop e i c ehinh sieh mOt cieh hi|u qua d l dgt c i c mue Ulu.Thdi ki diu,chfl ydu phin chia dit cdng bing c i e hinh thflc khae nhau d l thfle diy phit triln kinh t l ndng nghilp ttdn eo sd ttang trgi gia dinh; thdi ki sau thyc hi|n ehinh sich b i o hO tii nguyen dit nhim khdi phyc thim thyc vat, glim thilu sy xdi mdn dat mau, ting dp mau md cho dit, cii thidn phuong phip canh lie, hgn c h l di|n Uch dit eanh tie... ehung tOi da Um thiy nhflng diem eo thi van dyng phfl hpp vdi diiu ki|n efla Vidt Nam. Hy vpng nghidn cuu nay cung eip thdm CO sd thyc Uln giflp hoan thi|n phap luit va chinh sich dit dai trong thdi gian din./.
Tai iieu tham i(hao
Rutherford H. Piatt (1996), Land Use and Society:
Geography, Law and Public Policy. Washington, D.C, Island Press;
John Opie (1995), The Law of ttie Land: Two Hundred Years of Ameriean Farmland Policy. Lincoln:
University of Nebraska Press;
Xia Chunmi, Wang Xiaojin, Xiong Xuewen, Cao Guangsi (2013). Foreign tax support policies on family frarms Enlightenment. Hunan Agricultural machinery, (40-11).
He Duoqi (2009), The Family Farm System in Uie Western America during the 19th Century and the TranformaUon of the TradiUonal ^riculture, Joumal of South China Normal University (Social Science Editton), (4), p26-30
Rutherford H. Piatt (1996), Land use and Society:
Geography, Law and Public Policy, Washington, D.C:
Island Press.
Nguyin Dinh Bdng (2014), Md hinh quin li dit dai hl|n dgi d mdt sd nudc vi kinh nghidm cho Vilt Nam, NXB Chinh tri quOe gia. Hi npi
