^hi kdnhphdp. ludt So 5 (278) - 2015
c i l CACH CHiNB QVYEN BU PHUONG t VIET NJi THEO YEU CAU COA H I I N PHAP NAM 2013
I H O A N G NGQC HAt •
1. Bdi net v l chinh quyen dja phmnig d Vifit Nam
6 nudc ta tii tnrdc din nay, thugt ngii "chinh quyln dja phuang" dupc sd dyng tuong dli rfng rdi va phi biln ttong cdc vdn kifn cua Dang, cac vdn bdn phdp Iugt ciia Nhd nudc, cdc sdch bdo chinh trj phdp ly, cung nhu frong cdc bai phat bilu cua Ianh d^o Ddng vd Nha nudc d trung uong va dja phuang. Theo Difiu 1 Sdc lenh so 63-SL ngdy 23/11/1945 - Sdc Ifnh dau tien v l t l chiic chinh quyln dja phuang ciia Nha nudc Vift Nam da ghi:
"De thyc hifn chinh quyen nhan dan dja phucmg frong nudc Vift Nam, se dgt hai thii ca quan: Hpi ding nhdn ddn vd Uy ban hanh chinh". Trong quy dinh nay, khdi nifim "chinh quyen dia phuang"
chua dupc dl c§p tdi md chi hinh dung bdngphuang phdp lift kfi gIm hai Iogi ca quan: ca quan co tfnh chat hpi ddng do nhan dan bau ra, dupc gpi la Hfi dong nhan ddn vd co quan chap hdnh cua hfi ddng thyc hifn chiic ndng qudn Iy hdnh chinh nhd nudc, dupc gpi Id Uy ban hdnh chinh. Din ndm 1958, khai nifm "chinh quyln dia phuang" mdi lin dau tifin dupc six dyng, ghi nhgn vdi tu each Id mpt ca ciu chinh diiic ciia bf may nha nudc frong Luat Td chiic chinh quyln dja phuang dupc Quic hpi Vift Nam thong qua ngdy 29/4/1958. Tuy nhien, khdi nifm "chinh quyen dja phuang" trong dgo lu^t ndy chi dupc sir dyng frong thdi gian ngdn va dupc thay the bdng cym tir "Hfi dong nhdn dan
va Uy ban hanh chinh" tai Hiln phdp nam 1959, Lu^t Tfi chdc Hpi dong nhan ddn vd Uy ban h ^ chinh cac cap ngdy 27/10/1962 ban hanh sau d6.
Ddn din, cac van ban phap Iugt ciia Ddng va Nha nudc ta sii dyng cum tir "Hpi ding nhdn dan va ty ban hanh chinh" mpt each phd biln vd chi co sir thay ddi nhd thdnh "Hdi dong nhan dan va tJy ban nhan dan" (HDND vd UBND) dl dong bf vd phu hpp ban. Ndm 2013, khi sura dli Hiln phap aka 1992, khdi nifim "chinh quyfin dia phuang" dirge SU" dyng frd Igi. Thay vi ten gpi ciia Chuang Di trudc day la "Hfi ddng nhdn ddn vd IJy ban nhan dan"; Chuang IX cua Hien phdp nam 2013 co ten gpi la "chlnh quyen dja phuang".
Hien nay, khoa hpc phap Iy co hai loai quan dilm khdc nhau v l chinh quyln dia phuang, c6 quan dilm cho ring chinh quyln dja phucmg bao gIm tit cd cdc co quan tiiuc hifn cac cdng viec nhd nudc lien quan tryc tilp din ddi sdng nhan dan d dja phuang, bao gom cac ca quan do dan cil dja phuang Igp ra nhu HDND vd UBND vd cac CO quan khdc nhu: Tda an, Vien kifim sat. NgUijc lgi vdi quan dilm nay Id quan diem khang dinh chinh quyln dia phuang chi bao gIm cdc ca quan do ddn Cli Idp ra dfi thyc hifin cdc cdng viec nhi nudc Iifin quan tryc tilp den ddi sdng nhdn dSn 6 dja phuang Id HDND va UBlsJD, cdn cdc ca quan khde nhu: Toa an, Vien kilm sat... tuy co th\tc hifn cdc cdng vifc ciia nhd nudc frfin lanh till dia
I thihdnh phdp. ludi So 5 (278)-2015
phuong, nhung khdng do nhdn ddn dja phucmg lap ra thi khdng dupc xem Id cdc ca quan thufe thugt ngit "chinh quyfin dja phuang".
Trfin thyc te, trong t l chdc chinh quyen dia phuang d nudc ta, mdt cip chinh quyln chi bao gIm cd HDND vd UBND, cd bift mdi cd tnrdng hpp Tda dn cung dupc xem la ca quan thupc chinh quyen dja phuong. Theo quy djnh tgi Dilu 14 ciia Luft To chiic HDND vd UBND dupc Quoc hpi tiidng qua ngdy 27/10/1962 till ITOND cdc cdp cdn biu ra Toa dn nhdn ddn cip minh. Nhung lugt v l t l chiic chinh quyfin dja phuang ban hdnh sau nay quy djnh dd dd bi bdi bd.
2. Nhfhig diem mdi ciia Hiln phdp nam 2013 ve chinh quyln dja phirong
Thu nhdtf Hien phdp ndm 2013 v l ca bdn k l thiia quy djnh cda Hiln phdp ndm 1992 v l cdc don vj hdnh chinh, ddng thdi cd mft s l b l sung hpp I^ vira bdo ddm sy thdng nhat, dong bf dn djnh frong ciu tnic hdnh chinh, v^a ddp ling yfiu ciu dli mdi d nudc ta. Cy thl, tgi khodn 1 Dieu 110: '*Nudc chia thdnh tinh, thdnh p h i tryc thufe trung ucmg; tinh chia thdnh huyfn, thi xd vd thanh phi thupc tinh; thdnh pho tryc thufe trung uong chia thdnh q u ^ huyfn, thi xa vd don vj hdnh chinh tuang duang; huyfn chia thdnh xd, thj frin; thj xd vd thdnh p h i thufe tlnh chia thdnh phudng vd xa;
qufn chia thdnh phudng; dem vj hdnh chfnh - kinh t l d$c bifit do Quoc hpi tiidnh I§p". Sy xuit hien thu^t ngli "dan vj hdnh chinh tuang duong" vdi qu§n, huyfn, thj xd frong thdnh p h i tryc thufe trung uang cho thiy, Hiln phdp ndm 2013 dSi dl md khd ndng thdnh lap dem vj hanh chinh mdi trong thdnh p h i tryc thufe trung uong. Cd the thiy, quy djnh mdi ndy tdng khd ndng dy bdo, tdng tfnh I n dinh eiia Hiln phdp tgo t h u ^ lpi cho vifc doi mdi t l chiic vd hogt dpng ciia chinh quyln do thj dang dupc tiiyc tiln ddt ra.
Bfin cgnh dd, Dilu UO cdn b l sung quy djnh:
"Vific thanh lap, gidi thl, nhgp, chia, dilu chinh dia gidi don vj hanh chfnh phdi liy ^ kifin nhdn dan dja phuang vd theo trinh ty, thii tyc do Iuat dinh". Thyc tien cho thay, viec chia tach, sdp nhgp don vj hdnh chinh ISnh t h l cua nudc ta trong thdi gian qua d cac cip difin ra rit phi biln, nen dd cd liic dan din ho^c Idm tdng ddu mli don vi hdnh chinh vd Idm tang to chirc bf mdy, bifin chfi cdng chdc vd tdi chinh cdng... bode hao tdn rat nhilu chi phf quic gia dl Idm vific nay... dan den suy giam hifu qud qudn ly nhd nudc ndi chung vd cdi each hanh chinh hifn nay. Vfy nfin, viec hiln dinh ro ban ve tham quyln, tifiu chi, dilu kifn, thii tuc thanh Igp mdi, sdp nh^p, dilu chinh dja gidi don vj hdnh chinh cua Hiln phap mdi gdp phan bdo ddm tinh I n djnh ciia cde don vi hdnh chinh ldnh till vd ngan ng£ra khdc phyc nhiing hgn chl trong van de ndy.
Dieu dang luu y niia Id Dieu 110 Hien phdp ndm 2013 b l sung quy dinh "don vi hdnh chfnh - kinh t l d ^ bifit do Quoc hpi thdnh lap". Thyc chit, vdn de ndy cung dd dupc de cdp ttong Hifin phap nam 1992 tai khodn 8 Dieu 84 ve thim quyfin ciia Qudc hfi. Day Id quy djnh dupc bo sung trfin ca sd y kiln dl xuat cua cdc dai bilu Quic hfi, cdc CO quan, to chiic (nhit Id }/ kien de xuit ciia Chinh phu) vd cdc dja phuong, nhdm ddp iing nhu cau thifit lap cdc don vj hdnh chinh - kinh tfi ddc bift dang ddt ra d mft s l dja phuang nhu huyfin dao Phii Quic, tinh Kifin Giang hay huyfn Vdn Don, tinh Quang Ninh...
niit hai, dli mdi md hinh t l chdc chinh quyfin dja phuang ddp iing yfiu ciu phdt trien dit nudc ttong thdi k^ mdi nhung vin phdi phii hpp vdi d§c dilm cda dd thj vd ndng thdn. Theo Dilu 118 Hiln phdp ndm 1992, "vifc thdnh lap HDND vd UBND d cac dan vj hdnh chfnh do lugt dinh". Thuc t l .
Dan chu & Phap luatl
^kl ttdnh phdp. Iu4l So 5 (278) - 2015
cdc Lugt t l chirc HDND vd UBND (ndm 1994 vd ndm 2003) dfiu quy dinh: Mpi don vi hdnh chinh deu t l chiic HDND vd UBND. Md huih t l chuc ndy da gay nfin su cdng kfinh, trung ldp ve chiic ndng, nhiem vu gitia HDND vd UBND cac cip, khdng cd sy phan bifit giira md hinh t l chiic chinh quyen dia phuong d ndng thdn, do thi vd hdi ddo.
Do dd, Ddng ta cd chii truang thi diem khong td chftc HDND d quan, huyfin, phudng vd da dupc Quoc hfi hifn thyc hda bang vifc ban hdnh Nghj quylt s l 26 ndm 2008 vfi thi diem khdng td chu'c HDND d qudn, huyen, phudng tgi 10 tuih, thanh phi tryc thufe trung uong. Tuy nhien, frong qud trinh xdy dyng Hiln phdp nam 2013, ket qud trien khai Nghj quylt s l 26 ndm 2008 chua hodn thanh nfin mfi hlnh t l chdc chinh quyen dja phuang da dupc thdo Iudn, liy ^ kiln vd da s l deu thong nhat quan dilm chfnh quyen phdi bao gom: HDND va UBND, UBND do HDND ciing cip bau ra. Vdi quan diem nay, chinh quyen dia phucmg khong cd gi dli mdi so vdi trudc day, tuy nhifin cdn phdi thyc hifn vifc xdc djnh Igi cip chinh quyln theo hudng gidm d n g kinh, phii hop vdi dac dilm nfing thfin, dd thj. Vi vdy, Dilu 111 Hiln phap ndm 2013 quy dinh :
" I . Chfnh quyln dja phuong dupc t l chirc d cdc don vj hdnh chinh cua nudc Cfng hda xa hfi chd nghia Vift Nam.
2. c i p chinh quyln dia phuang gdm cd HDND vd UBND dupc td chiic phii hpp vdi dgc dilm nong thdn, do thi, hai ddo, don vj banh chinh - kinh t l ddc bift do ludt djnh".
Khi di sdu vdo phdn tt'ch Dilu 111, cd thl thiy rdng, da cd sy xuit hifn khai nifm "cip chinh quyln dja phuang". Khai niem ndy da phan bift rd giOa cdch phdn chia don vi hanh chinh d l qudn I^ vdi md hinh to chiic ehinh quyen d tiing dan vj hdnh chinh. Vdi quy djnh nay, don vj hdnh ehinh
lanh thd ndo cung cd chinh quyen dja phurnig nhung khdng thl gidng nhau d tat cd cdc don vj hanh chinh, cip chinh quyln dupc td chiic phai phii hpp vdi dgc dilm cua timg vimg miln. 6 dau dupc coi Id cip chinh quyen, thl chinh quyln 6 dd bao gdm HDND vd UBND, UBND do HDND ciing cip biu ra. Nai khdng dupc coi Id cap chinli quyln thi se cd co quan hdnh chfnh thyc hi^
nhifim vu qudn \j hanh chinh vd djch vy cong tiii
dia ban. '^'' Nhu vgy, Hifin phdp nam 2013 da md ra nhihig
kha nang d l lugt quy dinh vd khdc phyc nhQng bat cap trong td chtic chfnh quyfin dia phucmg theo Hiln phdp ndm 1992, dong thdi, doi mdi m^t budc quan ttpng t l chiic chinh quyln dja phucmg.
Thu ba, ve vai ttd, chiic ndng, nhifm vy ciia chinh quyen dja phuang. Hien phdp ndm 2013 xac dinh nhifm vy, quyen han cua chinh quyen dia phuong tren co sd phan djnh thim quyln gi&a cac CO quan nha nudc d trung uong vd dja phuang vd ciia mdi cdp chinh quyen dja phuong. Theo d6, chfnh quyfin dja phuang cd 2 logi nhifm vg ci^
the: (1) Nhifm vy t l chiic va bao dam vifc thi hanh Hifin phap va phdp Iugt tgi dja phuang vd (2) quyet djnh cdc van dfi ciia dia phuang do ludt dinh (khoan 1 Difiu 112). Trong mft Nhd nudc phip quyen xa hpi chii nghTa, vific thi hdnh Hien phip va phdp lugt phdi dupc de cao vd phdi dupc bao dam thyc hifin trfin thyc te, do dd vdi tu cdch Id co quan qudn 1^ nhd nudc tgi dja phuong, nhifm v^
CO ban hang dau cua chfnh quyen dja phucmg \i td chirc vd bdo ddm viec thyc hifn Hien phap vS phdp lugt tgi dia phuong. Ding thdi, chinh quyen dja phuong thuc hien cde nhifm vy xuat phdt tir tinh dac thii ciia dja phuong. Ddy la quy djnh thl hifn nhiem vy cd tfnh ty qudn cao cua chfnh quyen dja phuong, nhdm phat huy Ipi thl ciia moi dja phuong trfin thye te.
Qhi kdnhphdp. ludt Sd 5 (278)-2015
Bfin cgnh dd, tgi khodn 3 Dilu 112 ghi nh|in:
'Trong trudng hpp cin thiet, chinh quyen dja phucmg dupc giao thuc hifn mpt so nhifm vy cua CO quan nhd nudc cap tren vdi cdc dieu kien bdo ddm thyc hifin nhiem vu dd". Trfin thyc tfi, cd rat nhilu nhifm vu ciia trung ucmg dupc giao cho dja phuang thyc hifin, nhung lai khdng dua ra nhihig dieu kien dfi thyc hifin, dan tdi khd khdn cho dia phuang, cd trudng hpp thyc hifn khdng diing gay ra hgu qua khdn ludng fren thyc tl, do dd vdi quy dinh ndy dd gidi quylt nhihig buc xiic ciia dja phuong hifn nay.
Ngodi ra, ve tinh chat, vai trd, nhiem vy quyen hgn cua HDND vd UBND, Hiln phdp nam 2013 dd quy djnh khdi qudt, ngdn gpn hon; nhiing quy djnh chung chung, quy djnh thu^c thim quyln ciia Lu^t dd dupc lupc bd, bdo dam Hiln phdp thuc sy Id dgo ludt gdc ciia dat nudc. Cy the, Hien phdp ndm 2013 tilp tyc khdng dinh HDND Id ca quan quyln luc nhd nude d dja phuang, dai difin cho y chi, nguyfn vpng vd quyen lam chu eiia nhan ddn, do nhan dan dia phuang bau ra, chju trdch nhifm trudc nhdn dan dja phuang vd co quan nhd nudc cip trfin. HDND quylt djnh cdc vin d l cua dja phuang do Iuat djnh; gidm sdt vifc tudn tiiu theo Hien phdp, phdp lu|it d dia phuang vd viec thyc hifn nghj quyfit cua HDND.
UBND d cdp chfnh quyln dia phuong do HDND cihig cap bdu Id co quan chap hdnh cda HDND, CO quan hdnh chinh nhd nudc d dia phuang chju trdch nhifm trudc HDND vd co quan hdnh chinh nhd nudc cip frfin. Hien phdp quy djnh rd hon tinh chit, tiiam quyln cua HDND vd UBND d l phii hpp vdi nguyfin tdc t l chiic quyln lye nhd nudc tiling nhit vd mli quan hf giiia trung uong vd dia phuong frong tinh hinh mdi.
Nhu vgy, cdc quy dinh trong Hifin phdp ndm 2013 v l chfnh quyen dja phuang <K k l thira nhilu
quy dinh cua Hiln phdp nam 1992, ding thdi la kim chi nam cho cdng cupc cdi each chfnh quyen dia phuong trong thdi gian tdi md tien de Id vific xdy dung Lugt T I chiic chinh quyen dia phucmg.
3. Mgt so y£u c i u dat ra cai each chfnh quyen dia phuong hien nay
Hifin phdp ndm 2013 ra ddi da tgo ra budc tien vupt bgc trong cdng cudc cai cdch chfnh quyen dia phuang hifn nay, tuy nhien d l thyc hifin mot each trift de can phai cd nhting vdn bdn phdp luat cy the hda nhimg quy dinh trong Hien phdp md trudc mdt do Id vifc xdy dung Lugt To chiic chinh quyen dja phuang, do do trong thdi gian tdi de thyc hien vifc cai each chinh quyln dia phuang cd hifiu qud can phdi chii y nhung npi dung sau day:
Mgt Id, to chuc chinh quyen dia phuang theo dung duang loi, chu truang cua Ddng vd cdc quy dinh cua Hien phdp
Cdc vdn kien ciia Dang vd chfnh sdch ciia Nhd nudc ludn de cap tdi vin de can ddi mdi to chuc vd hogt dpng cua bf may nhd nudc nhu: " Dieu chinh CO ciu chinh quyen dia phuong cho phii hpp vdi nhung thay ddi chiic nang, nhifim vy. Phdn biet r5 nhihig khdc bifit giiia chinh quyln ndng thdn vd chinh quyln do thj de td chiic bp may phii hpp"', ddc bift trfin tinh than Hien phap nam 2013 cin chii ttpng dli mdi cdn ban md hinh t l chiie ehinh quyfin dja phuong; day mgnh vifc phan cip, phan quyfin, tang quyen tu chO, tu chiu frdch nhiem nhdm nang cao hifu iuc hifiu qua hogt dfng cua eac cip chfnh quyln dia phuong trong vific quylt djnh cac vin d l cua dia phuang, dong thdi bdo dam su quan ly thong nhdt cua trung uong, bdo ddm tinh thing nhit ciia nin hanh chfnh quic gia.
Hai Id, to chuc chinh quyen dia phuang phdi mang tinh dgc thii cua moi dja phuang
Mdi dia phuong vdi nhftng ddc dilm v l dja ly, ddn cu, difiu kifn khac nhau thi cd nhCing nhu
Dan chu & Phap luatl
QkL hdnh phdp. luM 5 6 5 ( 2 7 8 ) - 2 0 1 5
ciu phat trien, t l chiic qudn I^ khdc nhau. Do do, vifc td chuc chinh quyen dja phuang cdn phai dupe xem xet ky ludng tgo dilu kifn dl mli dja phuong khac nhau cd the t l chiic bf may quan ly d dia phuong minh phii hpp vdi d|ic dilm ciia dia phuang, nhung vin ddm bdo nhfhig nguyen tdc chung ve chirc ndng, nhifm vy quyln hgn cua mpt chinh quyen dja phuang.
Ba Id, hodn thi^n quy dinh cua phdp lugt ve chinh qiiyen dja phuang. Hifn nay, tten co sd Hiln phdp ndm 2013 thl dy dn Lu^t T I chirc chinh quyen dja phuang se dupc trinh Quic hpi khda XIII cho S kiln tgi ky hpp thii 9. Cd rat nhifiu vin de dupc nfiu ra nhu: Cd nen xay dyng thfim mft Iu|it khdc v l hogt dfng gidm sat cda HDND nhu da dy kiln, hay cdch thiic xdc djnh thim quyln ban hanh vdn bdn quy phgm phdp luft cda chinh quyln dja phuang, quan hf phdn cip gitia trung ucmg va dja phuong nhu thl ndo?... dd vd dang dupc thao lugn kJ* ludng de cd till dua ra nhting phuong an hpp I^ nhit. Hy vpng rfing trong thdi gian tdi, khi Lugt T I chiic chfnh quyln dja phuong ra ddi se khic phyc vd hoan thifn nhting thieu sdt hifin nay.
Ben canh dd, Chfnh phu cin nghifin ciiu, sogn thao cdc dy an lu|it cd lifin quan khdc nhu Lugt v l dilu kifn trinh ty, thii tyc thdnh I|ip mdi, gidi till, chia, tdch dia gidi hdnh chfnh, Lu|it Trung ciu ddn y...
Bon Id, nghien cuu tiep thu nhimg kinh nghiem vi mo hinh td chirc chinh quySn dia phuang cua
cdc nudc lien lien tren the gidi, nhirng dieu kt?n va kha ndng co the ap dung duac d nudc ta de hudng tdi doi mdi mpt each ca ban to chiic chinh quyen dia phuang trong giai doan mdi. Dong thoi, tren ca sd tong ket thi diem hai mo hinh ve chinh quyen do thi va md hinh khong to chiic HDND huyen, quan, phudng can phai riit ra nhung kinh nghidm cin thiet trong qua trinh xay dyng mo hinh chinh quyen dia phuang.
Ndm id, ddy mgnh phdn cdp qudn ly cho chinh quyen dja phucmg cdc cdp moi cdch long the, phii hop vdi trinh dp va yeu cau phat trien kinh te - x3 hpi trong thdi ky day manh cong nghiep hoa, hl?n dai hoa dat nudc.
Sdu id, ndng cao lieu chudn vd ndng iuc cho ddi ngU cdn bg, cdng chuc dja phuang. De dam bao viec phan cap quan ly do! vdi chi'nh quyen dia phuong dupc thuc hien hieu qua can nang cao ndng luc dpi ngii can bp, cong chiic d dia phucmg, nhat la cap xa de khi phan cap, phan quyen cho chinh quyen dja phuong thi dpi ngu can bf, cong chiic nay dii nang lyc de hoan thanh nhifm vu.
Vay nen, can bo, cdng chuc dia phucmg can phal c6 trinh dp, phai dugc dao tao ve hoc van, chuyen mdn phu hpp dap ung duac yeu cau. Dong thoi, Nha nudc cung can quy dinh cu thl vl tieu chu§n ddi vdi can bp m6i cap, tir do mdi co thl thirc hien cong cupc cai each chinh quyen dia phuang mot each triet de Q
Thi li^u tham kbio:
1. "Ve vande ddn cha trong cdi cdch chmh quyin dja phuang a ViH Nam " - Phan Thanh Hd, Nhd nuac vd Phap lugt, Vifn Nhd nudc vd Phdp lugt. so 12/2011. tr.2l- 26.
2. "Boi mai td chic va hogt dgng cua bg mdy chinh quyen dia phuang cap tinh, huy^n dap ungyeu cdu cua nen kinh ti thi truang dinh hudng x3 hpi chd nghia " - Hd Quang Ngpc. Nhd nudc vd Phdp ludi, Vien Nhd nudc vd Phdp ludt. s6 1/2007. tr 17-23. 30.
3. "ThtfC Irgng phdp lugt td chdc vd hogi dgng cua chinh quyin dja phuang nudc ta " - Tg Ngpc Hdi, Tgp chi Ddn chu vd Phdp lugt - Bg Tuphdp. s6 4/2009, tr.18- 21.
4. "Mdy vdn de /j/ lugn vd thuc tiin viphan cap qudn ly cho chinh quyin dia phuang a nudc ta " - VH Thu, Nhd nudc vd Ph^ ludt. Vi^n Nhd nudc vd Phdp ludt, si 4/2009. tr.3-10.
