LUAT
MO HINH CHINH QUYEN DIA PHlJCfNG d DCfN VI HANH CHINH - KINH TE DAC BIET
TRONG DlT THAO LUAT DOfN VI HANH CHINH - KINH TE DAC BIET
• HOANG THj MINH PHl/dNG
TOM TAT:
Khi ban ve xay dtfng md hinh chinh quyen dja phtfdng d ddn vi hanh chinh kinh td' dac biet, cd quan didm cho rang: "Mud'n mdt ddn vi hanh chinh-kinh te' trd nen dac biet, thi trtfdc hd't nd phai dac biet ve the chd'. Md the chd'thi quan trgng nhat la td chtfc chinh quydn nhtf thd'nao"'.
Dtf thao Ludt ddn vi banh chinh kinh te' dac bidt da phae boa md hinh chinh quyen dia phtfdng cd thtfc stf dam bdo cho stf dac bidt cua ddn vi hdnh chinh kinh td' dac biet hay khdng, bdi vid't dtfdi day se phdn tich dd lam rd hdn vd'n dd nay.
Tuf khda: Md binh chinh quyen dja phtfdng, ddn vj hanh chinh - kinh td' dac biet, dtf thdo ludt ddn vi hdnh chinh - kinh te' dac bidt.
C
d sd phdp ly stf tdn tai ciia md hinh chinh quydn dia phtfdng d ddn vi bdnh chinh kinh te'dacbidtdtfdequy dinh tai Dieu 111, 112, 113, 114 Hid'n phdp 2013; tai Chtfdng V Ludt To chtfc chinh quydn dia phtfdng nam 2015. Trdn ed sd dd, Dtf thao Ludt ddn VI hanh chinh kinh td'dae biet da quy dinh md hinb chinh quyen dja phtfdng d ddn vj bdnh chinh - kinh te' dac biet d Chtfdng IV, theo dd, chinh quydn dia phtfdng dac khu ed nhffng dac didm ed ban sau:1. Md hinh chinh quyen dia phtfdng ef ddn vi hanh chinh kinh te' dac biet cd nhiJng did'm ttfdng ddng vdi chinh quydn dia phifdng ff ddn vi hanh chinh thdng thtfcfng
- Ve cdcd'u
Trtfdc hd't, Dtf luat da quy dinh md hinh chinh quyen dia phtfdng d ddn vi hdnh chinh kinh td' dac biet vdn ca'u thanh mdt cd'p chinh quyen dia phtfdng phu hdp vdi quy dmh eiia Hie'n phdp va Ludt To chtfc chinh quyen dia phtfdng nam 2015,
hay ndi cdch khde chinh quydn dia phtfdng ddn vi hanh chinh kinh td' dac bidt van bao gdm Hdi ddng nhan dan va Uy ban nhan dan (Khoan I Dieu 59 Dtf thdo Luat). Mat khde, stf hinh thanh HDND va UBND d ddn vi hdnh chinh kinh td' dac bidt cung dam bao tinb chd't vd'n cd cua nhtfng cO quan ndy, cu thd:
HDND do cff tri d dac khu bau ra (Khoan 1 Didu 60 Dtf ludt), sd' Itfdng dai bidu dtfa tren so' Itfdng dan ctf trdn dia bdn ddc khu vd khdng qua 15 dai bidu (Khoan 2, Khodn 3 Didu 6 Dtf ludt).
Nhffng quy djnh nay dam bao tinh dai didn cho y ehi, nguydn vpng ciia nhan ddn dia phtfdng ciia HDND. UBND dac khu do HDND dac khu bau, midn nhidm, bai nhidm (Khoan 2, Khoan 3 Didu 61 Dtf luat), Chii tich UBND dac khu chiu trach nhidm trtfdc HDND dac khu (Khoan 2 Dieu 62 Dtf Ludt). Quy dinh ve td chtfc ciia UBND ddc khu the hidn tinh cha'p hdnh dd'i vdi cd quan dai didn la HDND.
So 6 - T h a n g 4/2019 47
- Ve nhiem vu quyen han
Cd the tha'y nhiem vu quydn han eiia chinh quyen dia phtfdng d ddn vi hdnh chinh kinh te' dac biet vdn phdi dtfa trdn chtfc nang thudc bdn cha't ciia chinh quydn dia phtfdng: (1) chtfc nang quye't dinh cdc va'n de ciia dia phtfdng do ludt dinh, cd thd gpi ngan gpn la "Chtfc nang ttf quan"; (2) chtfc nang thtfc thi phdp ludt, chinh sdch, quye't dmh ciia cd'p trung tfdng hoac eiia cd'p trdn tai dia phtfdng, ed thd gpi ngdn gpn la "Chffc nang chd'p bdnh"-. Dieu nay dtfdc the hidn thdng qua nhidm vu cu the cua HDND va UBND dac khu. Theo dd, HDND ban hanh nghi quyd't cdc vd'ndd vd td chtfc bd may chinh quyen dia phtfdng, phat trien kinh te', xa hdi; gidmsdtvide tudn theo phdp ludt cua UBND, cac chii the san xud't - kinh doanh va cdng ddn trdn dja bdn (Dieu 67 Dtf ludt); UBND chiu trach nhidm trien khai, thi hdnh cdc nghi quyd't cua HDND dac khu, cd quan nha ntfdc cd'p trdn, ban hanh cdc quye't dinh dd quan Iy cac boat ddng kinh te', van hda, xd hdi d dac khu (Dieu 68 Dtf Luat).
2. Md hinh chinh quydn dia phtfdng d ddn vi hanh chinh kinh td'd§c biet cd nhiJng diem khac so vdi chinh quyen ddn vi hanh chinh thdng thtfdng
- Chinh quydn dia phtfdng dac khu cd td chtfc linh hoat hdn so vdi ddn vi hanh chinh thdng diffdng
Tinh linh boat d ddy dtfdc hidu la cd ca'u chinh quyen dia phtfdng se khdng theo md hinh chinh quydn dia phtfdng thdng thtfdng ma se ed stf tinb giam hoac bd sung mdt so bd phdn dd ddp tfng nhu cau quan Iy d ddn vj hdnh chinh kinh td' dac biet.
Dieu nay dtfdc thd hien trong Dtf luat, cu the:
Mot Id, cd cd'u HDND tinh ggn hdn so vdi HDND d cac ddn vi hdnh chinh thdng thtfdng:
Theo Dtf Luat, HDND dac khu khdng td chtfc Thtfdng tftfc HDND vd cdc ban HDND. HDND dac khu se la ed quan Iam vide thtfdng xuyen thdng qua cdc daj bidu HDND chuyen trach\ chtf khdng theo ky hpp nhtf HDND cac ddn vi hdnh chinh thdng thtfdng.
Hai la, sd' Itfdng thanh vidn ciia UBND tinh gon, gdm Chii tjch va 02 Phd ehii tich. Cd cd'u thanh vien eiia UBND dac khu chi ttfdng dtfdng vdi thanh vidn UBND ca'p xa hien nay. Mac du chinh quyen dja phtfdng dac khu ed cd quan chuydn mdn
thudc UBND nhtfng khdng ndm trong ed cd'u eiia UBND ma ehi ddng vai trd la cd quan giup vide cho UBND (Khoan 2 Dieu 63 Dtf Ludt). Y nghla ciia quy dinh nay khdng chi tinb ggn cd ca'u UBND ma cdn the hien de cao tinh chiu trach nhidm ciia ngtfdi dtfng dau UBND, cac thii trtfdng cd quan chuyen mdn Iuc nay chi ddng vai trd la ngtfdi tham mtfu cho Chu tieh UBND ma khdng tham gia quyd't dinh vdi ttf each la thanh vien cua UBND nhtf cdc ddn vi hdnh chinh thdng thtfdng.
Ba Id, so vdi cac chinh quyen dia phtfdng d ddn vi hanh chinh thdng thtfdng, chinh quyen dac khu khdng ehi cd UBND va HDND ma cdn cd them mdt sd' bd phdn, chtfc danh nham ddm bao tinh chuydn nghiep trong qudn ly boat ddng kinh te xa hgi d dac khu, cu the: Dieu 64 Dtf ludt quy djnh chtfc danh Trtfdng khu hanh chinh vdi vai trd "la ngtfdi dtfng dau khu banh chinh, thtfc hien nhidm vu, quyen ban vd gidi quye't tbii tuc hdnh chinh, cung cd'p dieh vu cdng, thtfc hidn cdc gidi phap quan ly dan ctf va cac boat ddng quan Iy nha ntfdc khac trdn dia ban khu hanh chinh theo phdn ca'p, ijy quyen ciia Chii tich Uy ban nhdn dan dac khu, bao gdm nhidm vu, quydn ban ciia Uy ban nhdn dan, Chii tieh Uy ban nhan ddn phtfdng theo quy dinh eiia phap ludt ed lidn quan va cdc nhidm vu, quyen ban khac, trtf tham quyen ban banh van ban quy pham phdp luat''. Cd the thd'y, vdi tinh chd't cua ddn vj hanh chinh - kinh td' dac bidt thi hoat ddng lidn quan de'n dieh vu cdng, thu tue hanh chinh ddi hdi phai nhanh chdng, chuyen nghidp dd dap tfng nhu cau phat tridn ciia cdc ddn vi nay, do vdy, vide dat ra chffc danh Trtfdng khu hanh chinh la phu hdp, thd bien stf linh boat trong td chtfc chinh quyen dia phtfdng.
Mat khde, Dtf luat quy dinh vd bp may giiip vide cho HDND va UBND bao gdm: Van phong giup vide chung cho HDND vd UBND, Trung tdm hanh chinh cdng va cdc cd quan chuyen mdn thudc UBND (Didu 63 Dtf ludt). Nhtf da phan tich d hdn, stf dnh ggn cd cd'u HDND va UBND nhara dd cao trach nhidm cho cdc thanh vidn eiia cdc ed quan nay, ddng thdi cung the hidn xu htfdng day manh phan cd'p, phdn quyen trong hoat ddng quan ly cua chinh quyen dja phtfdng dac khu tren ed sd HDND vd UBND ehi thtfc hien cong viec mang tinh djnh htfdng, ke hoach, quyd't dinh cdc van de quan trpng cdn cac cdng vide mang tinh thu tuc, chi tiet se
So 6 - T h a n g 4/2019
LUAT
giao cho ed quan giup vide va cac bd phdn mang tinh chuydn mdn, nghiep vu.
- Dif ludt quy djnh dd cao tinh ttf chu cho Chinh quydn dja phtfdng dac khu trong Iinh vtfc quan ly kinh te'.
Nhtf dd phdn tieh d trdn, chtfc ndng kep ciia chinh quydn dia phtfdng la tinh ttf chu va tinh chap hanh, hai chtfc nang nay ed xu htfdng van ddng trdi chieu nhau*^, tily vao ddc diem cua mdi dja phtfdng ma mdt trong hai chffc nang nay cd tinh noi trdi hdn chtfc nang cdn lai. Dd'i vdi ddn vi hanh chinh - kinh td' dac bidt thi nhu cdu ttf chu Id rd't ldn de dap tfng stf linh hoat trong quan ly nham thuc ddy stf phdt trien kinh td'. Theo do, so vdi chinh quyen dia phtfdng d cdc ddn vj hdnh chinh khde, Dtf luat trao cho chinh quydn dia phtfdng dac khu nhidu quydn ttf chii hdn trong linh vtfc kmh te', tai chinh, ngdn sdch, vi du: Theo Khoan 2 Didu 67 Dtf luat: HDND dac khu c6 quydn quyd't dinh chu trtfdng ddu ttf dtf an dau ttf cdng nhdm A, nhdm B sii dung von ngan sach dac khu, trong kbi dd dd'i vdi cac khu vtfc khac thd'm quydn ndy thudc vd trung tfdng theo Ludt ddu ttf cdng nam 2014^; "Quyd't dinh cac chd' dd, tieu chuan, dinh mtfc cbi ngdn sach dd'i vdi mdt sd' nhidm vu ehi ed linh chd't dac thu d dac khu ngoai cdc che' dp, tidu chuan, dinh mffe chi ngdn sach do Chinh phii, Bd trtfdng Bd Tai chinh ban hdnh de thtfc hidn nhidm vu phdt tridn kinh td' - xa hdi, ddm bao trat ttf, an toan xa hdi trdn dia ban, phu hdp vdi kba nang can dd'i ngdn sach ciia dac khu". Dieu 68 Dtf ludt quy dinh UBND cd thim quydn "Ban hdnh quy chuan ky thuat de dp dung trong pham vi dac khu dd'i vdi san pham, hang hda, djch vu, qua trinh dac thu ciia dac khu vd ydu clu cu the vd mdi trtfdng cho phu hdp vdi dac didm cua dac khu vdi cac quy dinh ve ky thudt va quan ly nghiem ngat hdn so vdi quy chuan ky thuat qudc gia va quy chuanky thudtcuatinhndicddackhu"(Khoan7);
\! "Quy dinh tidu chi xdc dinh dd'i ttfdng nha quan ly, ( nhd khoa hpc, chuyen gia ed trinh dp chuyen mdn I cao can thu hut lam viec tai dac khu" (Khoan 9)...
1. - Mtfc dd kidm tra, gidm sdt dd'i vdi td chtfc va i hoat ddng ciia chinh quyen dia phtfdng d ddn vi ( hanh chinh - kmh td' dac biet chat che hdn so vdi ) chinh quydn dia phtfdng cdc ddn vi hanh chinh II! thdng thtfdng
([ Cd thd thd'y, cung vdi lang ctfdng tinh ttf cbii i> cho chinh quydn dia phtfdng dac khu thi keo theo
dd yeu cau kiem tra, giam sat ciia cd quan nha ntfdc cd'p tren va tinh chju trach nhidm trtfdc nhdn dan cung phai dtfdc ndng cao. Didu ndy dam bao chinh quydn dia phtfdng dac khu vdn dung cac quy dinh vd thd'm quydn dtfdc chii ddng, hnh hoat nham phat tridn kinh te' trdn dia ban nhtfng ddng thdi khdng de lam quyen, di ngtfdc lai Idi ich eiia ngtfdi dan, nha ntfdc. Do vay, Dtf ludt cung da cd nhtfng quy djnh the bidn mtfc do Mem tra gidm sdt dd'i vdi to chffc hdat ddng ciia chinh quydn dia phtfdng dac khu chat che hdn so vdi cac ddn vi hanh chinh thdng thtfdng, cu the: Mac du quy md eiia chinh quydn dia phtfdng dac khu chi ttfdng dtfdng vdi chinh quydn dia phtfdng d ddn vi hdnh chinh trtfc thudc tinh nhtfng tham quydn phe duyet cac thanh vidn cua HDND va UBND ed stf phd'i hdp cua nhieu chu thd, tang ctfdng vai trd ciia ed quan nha ntfdc d trung tfdng: Chu tjch HDND va Phd ehii tjch HDND dtfdc UBNTVQH phd chud'n (khodn 4 Didu 60 Dtf ludt); Chii tieh UBND dtfdc HDND theo gidi thieu eiia Chii tjch Uy ban nhan ddn cap tinh. Kd't qua bin, midn nhidm, bai nhidm Chii tich Uy ban nhan ddn dac khu phai dtfdc Thii ttfdng Chinh phii phe chuan (Khodn 2 Dieu 61 Dtf ludt).
Bdn canh dd, Didu 66 Dtf ludt quy dmh nguyen tac boat ddng ciia chinh quyen dia phtfdng dac khu dam bao tinb cdng khai, minh bach dd ngtfdi ddn cd thd tid'p cdn cdc thdng tm, chinh sdch dtfdc tridn khai tai dac khu, ddng thdi ed the kiem tra, giam sat hoat ddng eiia chii the sff dung quydn ltfe nha ntfdc gdp phin phdng chd'ng tham d, tham nhung.
3. Kd't luan
Cd the tha'y, chinh quyen dia phtfdng dac khu trtfdc he't van phai dam bao tinh chat chung cua chinh quydn dia phtfdng la stf hien dien eiia Nha ntfdc thtfc hidn cdc cdng vide cua Nhd ntfdc tai dja phtfdng va phue vu Idi ich cua nhdn ddn d dja phtfdng, thd hien qua tinh tff chu va tinh chd'p hdnh, do dd md hinh chinh quyen dia phtfdng dac khu vdn se ed nhffng diem gid'ng vdi chinh quydn dia phtfdng d cac ddn vi hdnh chinh thdng thtfdng. Tuy nhien, stf "dac bidt" cua ddn vj hanb chinh - kmh td'dae biet ddi hdi md hinh chinh quydn dja phtfdng d ddy phai thtfc stf ed nhffng didm khde biet Mac du Dtf ludt da quy dinh nhidu didm khac trong md hinh chinh quydn dia phtfdng dac khu so vdi chinh quyen dia phtfdng d cac ddn vj hanh chinh thdng thtfdng nhtfng cd le nhin vao nhffng quy dmh ndy
So 6-Thong 4/2019 49
chung ta chffa thd'y nhtfng dot phd thtfc stf. Vide quye't djnh nhanh chdng vd va'n de chju trdch vdn ed HDND va UBND chtfa thtfc stf dem lai stf nhiem cung dtfdc xdc dmh rd rang. Tuy nhidn, ndu nhanh chdng va hnh boat trong quan ly^ Cd le vl phtfdng an nay dtfdc ghi nhdn thi cung cdn phai vay ma md hinh chinh quydn dia phtfdng dac khu xem xet lai cdc quy dinh cua Ludt Chinh quydn vdn cdn nhidu quan didm ke ttf phia ede nhd khoa dia phtfdng 2016 vd td chffc chinh quyen dia bgc ldn cd quan nha ntfdc de xud't cdc phtfdng an phtfdng d ddn vj hdnh chinh kinh te dac bidt, theo khde vdi quy dinh trong Dtf ludt^ Phtfdng an dang Dieu 75 thi chinh quyen dia phtfdng d ddn vj hanh dtfdc chu y nhidu dd la phtfdng an dtfdc dd xua't chinh kinh te dac biet vdn ed HDND va UBND, do bdi Chinh phti, theo dd, chinh quydn dia phtfdng dd, neu mud'n ed mdt md hinh chinh quydn dia ddc khu se khdng td chtfc HDND va UBND ma chi phtfdng khdng cd HDND vd UBND thi ddi hdi phai cd thid't che' duy nhd't la trtfdng ddn vi. Md hinb sffa Luat dd dam bao tinb thd'ng nhat trong hd nay cd tfu diem la thtfc stf tinh gpn, cdc cdng vide thd'ng phdp ludt •
Bai bdo ndy dUtfc thdc hifn trong khudn khd de tdi cua TrUdng Dai hoc Luat Hd NQI, Chinh quyen ddn vi hdnh chinh - kinh teddc biet trong M thdng chinh quyen diaphiimg d Vi?t Nam hi$n nay.
TAI LIEU TRICH DAN:
'TS. Nguyin ST Ddng, Tap chi Tia sdng, "Dan vi hdnh chinh-kinh tS'ddc biet: Md hinh chinh quyin ndo", -Chuang 16: Chinh quyen dia phuang, Gido trinh Luat Hie'n phdp Viet Nam, TrUdng Dai hoc Ludt Hd Noi, tr. 607.
^Khodn 2 Diiu 60 Du Ludt sd luang dai biiu HDND da sd hoat ddng chuyen trdch.
"Chuang 16: Chinh quyen dia phuang, Gido trinh LudtHiin phdp Viet Nam, Trudng Dai hpc Ludt Hd Noi, tr. 607.
^DieuI7. Thdm quyen quyet dinh chii trUOng ddu tU chUOng trinh, dudn: 3. Thu tudng Chinh phii quyit dinh chu tntOng dau tU chuang trinh, dU dn sau ddy:
a) Dudn nhdm A;
4. NgUdi diing dau cdc Bo, ca quan Trung Ucfng quye't dinh chu trUcfng ddu tu du dn sau ddy:
a) Du dn nhdm B vd nhdm C sd dung vd'n ddu tU td ngdn sdch nhd nUdc, vdn cong trdi qud'c gia, vdn trdi phiiu Chinh phu, vdn tin dung ddu tUphdt trien cua Nhd nUdc, vdn td nguon thu de lai cho dau tunhung chUadUavdo can ddt ngdn sdch nhd nudc do caquan minh qudn ly, trd dUdn quy dinh tai diem c khodn 3 Dieu ndy.
^Theo y kien ciia TS. Nguyen ST Ddng: "TrUdc hit, hdnh chinh Id viic ban hdnh cdc quyit dinh (cdc chinh sdch cdng) vd thuc thi cdc quyet dinh dd. Mo hinh hien tai vdi ba chd the tham gia quyi't dinh (cdp uy Ddng, UBND vd HDND) qud thUc khong phdi Id mdt mo hinh mdi Cdc Uu, khuyit diem cua mo hinh ndy chung ta deu dd biet rd't rd Diiu de nhan thay nhdt Id theo mo hinh nhU vdy, viSc ban hanh quyet dinh thudng rat cham tri; chi phi thdi gian, chi phi thu tuc vd clu phi co hoi thUdng hit sdc to ldn. Dd Id chua ndi tdi tinh trgng dd quyit dinh theo che dp tdp the lai cdn hi vdn hoa dong thudn chi phdi, do vdy cdc quyet sdch co thi trd nen meo mo vd nhoinMt (qud nhieu muc tieu vd gidi phdp duac bo sungde vifa Idng tdtcd cdc thdnh vien cd quyen tham gia quyit dinh).
Cdc quyit sdch nhSi nhet ve ca bdn khdng the thuc tin duac trong cudc sdng, vl khong mdt chinh quyen ndo cd du nguon life di thuc thi hdng chuc mifc tieu cdng mdt luc". Nguon: http://tiasang.com.vn/-dien-dan/Don-vi- hanh-chinhkinh-te-dac-biet-Mo-hinh-chinh-quyen-nao-10952
WBTVQH chua xem xet Du dn luat dan vi hdnh chinh kinh teddc biet nhudu kiin tai phien hpp td ngdy 11/8 din ngdy 13/8/2018. "Quyit dmh chiia dUa du dn Ludt Bac khu ra thao ludn tgi phien hop cua UBTV Qudc hoi duac gidi thich Id "di co thSm thdi gian nghien cdu, tiip thu td'i da cdc -y kiin tdm huyit, trdch nhiem, xdc ddng cua cdc Vl dgi bieu Qudc hoi, cdc cdn bp Ido thdnh, chuyen gia, nhd khoa hpc vd nhdn ddn, hodn thien dU thao ludt cho thdt sQ cha't luang"
Nguon: http-//duthaoonline.quochoi.vn/DuThao/Li.m/TT_T!NLAPPHAP/View_Detail.aspxntemID=3202
5 0 So 6 ' T h a n g 4/2019
LUAT
T A I L I E U T H A M K H A O :
1. Hiin phdp 2013;
2. Luat To chdc chinh quyen dia phuang ndm 2015;
3. Ludt Dau tUcdng ndm 2014;
4 Trudng Dgi hpc Lugt Hd Noi, Gido trinh Luat Hiin phdp Viet Nam, NXB. Cong an nhdn ddn, Hd Noi, 2018;
5. http://duthaoonline.quochoi.vn
6. http://tiasang.com.vn/-dien-dan/Don-vi-hanh-chinhkinh-te-dac-biet-Mo-hinh-chinh-quyen-nao-I0952
Ngay nh$n bai: 22/3/2019
Ngay phan bidn danh gia va su'a chiJa: 1/4/2019 Ngay cha'p nh$n dang bai: 11/4/2019
Thong tin tdc gia:
ThS. HOANG THI MINH PHlTCfNG
Khoa Phap lu^t hanh chinh - Dai hpc Luat Ha Noi
THE LOCAL GOVERNMENT MODEL
FOR SPECLVL ECONOMIC AND ADMINISTRATIVE UNITS ACCORDING TO THE DRAFT LAW ON SPECIAL
ECONOMIC AND ADMINISTRATIVE UNITS
• Ph.D HOANG THI MINH PHUONG Faculty of Administrative Law
Hanoi Law Unlveristy ABSTRACT:
When discussing the establishment of the local government model in special economic and administrative units, there is a view that the special economic and administrative units must firstly be special in terms of institutions, especially the organization of instimtions. This article is to analyze the organization of institutions for special economic and administrative units according to the draft Law on Special Economic Administrative Units,
Keywords: Local government model, special administrative-economic unit, draft Law on Special Administrative and Economic Units.
So 6 - T h a n g 4/2019 51
