NGHIEN CCTU-TRAO Ddi
MOTSdVANDEDAT RADOI V6l NOI DUNG QUAN LY NHA Nl/dC VE XAY DUNG DO TH! HIEN NAY
TRAN THI THANH IMAI*
Trin ca sdphin ticb Hiil nigm, n0i dtmg quin If nbi nude vg xiy dpng dd tbi, bii vigt ed nbOng dgxuit giii phip nbim gdp phin ning cao nb$n thtic cing nhu higu qui edng tie quin If nbi nude vgxky dpng dd thjdVi$t Nam bign nay.
Tikbda: Lf luan cabin; quan If nhin udc; xiy dung dd thi; phit tiiin dd thj.
Based on analyzing concepts and content of state management of urban construction, the artide proposed solutions to impmve awareness as wellaseffecthreaess ofstatemanagement of urban construction In Vietnam at present
Keywords: Keytheoretical Issues; state management; urban construction; urban development.
NGAYNH^: 22/6/2020 NGAYPHANBltN,DANHGlA: 20/7/2020 NGiYDUYtT: 17/8/2020
1. Dfin nay, mac dii chua cfi dinh nghia cbinh thtic v^ khii ni^in "xay dung", nhung 0 Viet Nam, "xay dung" da duoc xic dinh gfim hing loat cic boat dfing, nhu: lap quy hoach, kiin true xay dtmg, lip du in dau tu xiy dung cfing trinh, khio sit xay dung, thiet ke xay dtmg, thi cfing xiy dung, giim sat xay dung, quan ly du in, lua chpn nha thiu, nghiem thu, ban giao dua cfing trinb vio khai thac sii dung, bao hanh, bao tti cfing ttinh xiy dung va boat dpng khic cfi lien quan dfin xay dung cfing trinh.
Dfi thi la noi tip trung din cu dfing due, trung tam thuong nghiep, cfi th^ cfi ca sin xuat cfing nghiep, duoc gpi li dianh pho, thi xa, thi trin. Dfi thi gfim cfi cic loai khac nhau dupc xac dinh tten co sfi phin chia cic loai don vi hinh chfnh nfii chung vi phin loai dfi thi nfli rieng, theo cic tieu chi dupc quy dinh.
Do dfi, khii nigm "xiy dung dfi thi" (XDDT)
dupc nhin nhan cfi tinh bao quit trfin tfing thi cac cfing trinh fi mpt khong gian dfi thi hoin chitih va trong mfii hen he giiia cic do thi theo pham vi mpt vung linh tho hoic toan bfl linh thfi quoc gia. Theo quan niem thflng thuflng, XDDT li boat dpng hufing den viec lunh thinh hai loai cfing trinh gom cfing trinh kifin tnic va cic cfing tnnh ha ting ky thuat - xi hpi. Trong dfi, cfing trinh kien tnic la cac doi tupng xay dung nhim phuc vu cho cic nhu cau su dung, huong dung ciia con ngufii mflt cich true tifip, nhu: nha fi, nhi vin hfia, nha miy, nhi kho, nha ga, trufing hpc, benh vien, tru so ca quan, to chfic, don vi... (nhiing cfing trinh cfi khfing gian ben trong, cfl mii che cho nguoi o hoic lam viec, sinh boat chung). Cfing trinh ha
* NCS khoa 2 IB, Tru&ng Dai hoc Ludt Hd Ndi
TAP CHf Q U A N LV N H A NUdC - Sd 295 (8/2020)
Q
NGHIEN curu-TRAODdi
tang ky thuit - xa hpi la cic dot tupng xiy dung mang tinh ky thuit, phuc vu chung cho ca cflng dfing, ciing vfii cic cfing trinh kien tnic hinh thinh nen tong thS cic cfing trtnh kien tnic - XDDT. Dfl co thfi li cic cflng trinh giao thflng (duflng si, ciu cfing...), cap thoit nuoc, tmyen til, cung cap nang lupng, thfing tin lien lac, bao dim an toan xi hpi, quoc phfing, an ninh, bao ve mfii trufing, iing phfi vfii bien doi khi hiu...
XDDT li boat dflng sang tap mang tinh xi hfli rpng Ifin, hen quan dfin quyen, lpi ich hpp phap vi trich nhiem ciia nhieu loai chu the khic nhau. Dfii vfii cic nufic phit trign, nginh cfing nghiep xay dung thufing chiem ti trpng 6 - 9 % tong sin pham quoc npi (GDP)^ O Viet Nam, thep bip cip ciia Tfing cue Thong ke, trong miic ting truong ciia toin nen kinh te nam 2019, khu vuc cfing nghiep va nganh xay dung ting 8,9%, dfing gfip 50,4% vao mtrc ting truong chung^. Diy li mflt Hnh vuc boat dfing kinh te - xi hfii, mflt nginh cflng nghiep cfl y nghia die biet quan trpng rit cin cfl su dinh hufing, td chuc, kifim tra, giim sit mflt cich thich hpp cua Nhi nufic vi xi hfii, cic chii the tham gia boat dflng niy cin phai cfl ning luc die thil va thfia min cic difiu kien cin thiet. Xi hpi, cic cfing dfing din cu va dat nufic lufln dfii hfii, dit ra nhirng yfiu cau nghiem ngit doi vfli cic chii the tham gia boat dfing xiy dung, nhit la XDDT. Do dfi, xiy dtmg dupc coi li mfit su kien (hnat dflng) cfi tic dpng, anh huong rat Ifin dfin mpi ngufli, lufin dupc sii quan tim, chii y hing dau trong dfii sfing xa hfli, trong phit trien nto kinh te. Ning lite, tu cich chii the tham gia boat dflng xay dung lufin dupc xic djnh la yfiu to het site quan ttpng ttpng boat dpng XDDT, bio dim hieu qui, chat lupng xiy dung va the hien nghia vu, trach nhiem ciia bfin xay diing dpi vfii xi hpi mi ttue tifip li dfii vfid ben su dung cfing ttinh XDDT.
Tren quan diSm phit ttien dfi thi (FTDT) ben viing, viec xiy dtmg cic cflng trinh kign true, ha ting ky thuat - xi hpi cfln phai tuan
thi nguyen tic bao dam sir hai hfla, gSn bu giiia thien nhign vfii con nguoi, gitia the gifii hj nhign vfii the gioi do con ngufii sang tao nen, giila ttuygn thfing vfii hien dai XDDT bao gfim bSn linh vuc hojt dfing CO ban: (I) Quy hoach, kien Onic XDDT; (2) Dau m dtr an XDDT; (3) Bao dam chat lupng cfing ttinh XDDT; (4) Bio dam an toin, bio vg mfii trufing, ling phfi vfii bien dfli khi hiu ttong XDDT.
Nhu viy, quin ly nhi nuac (QLNN) vg XDDT chi'nh li su tic dfing cua cic chu thg quin ly gom co quan nha nufic, ngufli cfl tham quygn, cic ci nhan, to chirc khac (dupc Nhi nufic ttao quygn quan ly trong mflt sfi truflng hop cu thg) Ign khich thfi quin ly (hanh vi ciia con nguoi va cic qui trinh xa hfli) thfing qua doi tupng quan ly la cic co quan, tfi chiic, ci nhin tham gia ho?t dpng XDDT, bing cic cfing cu, phuong tien quin ly (trpng dfi chu ygu la phip luit), theo nhfing hinh thtic, phupng phip thich hpp nhim dat dupc muc tieu dp Nha nufic di xic dinh trnng hnh vuc xay dung, PTDT.
Trong su nghifp dfli mfii, cfing nghigp hfia, hien dai hfia dit nufic, QLNN ve XDDT ngiy cang giti vai trfi quan trpng, dupc thg hien fi nhiing net co ban sau:
Mdt li, ddi vdi hoat ddng xiy dung, PTDT: QLNN vg XDDT viia bau dim quySn cua ci nhin, to chirc trong boat dfing xay dung, PTDT viia kien tao mfii trufing, digu kien phit trign bgn viing cho boat dfing xiy dung, PTDT. Dong thfii, QLNN vg XDDT bio dim trat ttr, k^ cucng cho boat dpng xay dimg, PTDT'. Vai ttfi ciia QLNN ttong vi$c duytti,baodamttittfjXDDTli:baodimsii fin dinh vi phit trign bgn vung ciia xi hfli ttong boat dpng XDDT theo mfit ttat tu quy hoach thfing nhit, thg hien tinh k^ cuang ciia phip luit, cic quy tic vg XDDT dupc bio dam thuc thi, nhim ngin ngira cic hanh vi vi pham ttat tu xay dung, dfing thfii xii ly nghiem cac hanh vi vi pham ttit nr xiy dung, nang cao y thtic chip hinh phip lujt trong ho?t dflng XODT*.
TAP CHf Q U A N Vi N H A NUdC - Sd 295 (8/2020)
NGHIEN CCTU-TRAOodi Hai la, ddi vdi QLNN vg cic ttnh vuckhic:
QLNN vg XDDT gfip phan t?o digu kien phit trign bgn viing cho cic Hnh vuc boat dflng kinh tg - xi hfli cfi Ugn quan, dfing thfli phfii hpp, kigm soit vigc thuc hien nhigm vu, quygn han ciia cic chii the QLNN trgn cic linh vttc khic cfi lign quan, gfip phin ngin ngira sit lam quyen fittong cic linh vuc quin ly khic ciia cac co quan va can bp, cflng chiic nhi nufic.
2. Tit nhiing phin tich ngu trgn, cfi thg nhjn thiy npi him cia QLNN vg XDDT dupc the hien o4 nfli dung cobin sau:
Thinhit, QLNN vg quy hoach, kign trie XDDT.
Hnat dflng XDDT trufic hgt lien quan dgn quy hoach vi kign tnic XDDT, dfli hoi phii phi hpp vfii quy hoach xiy dung, PTDT vi kign ttiic XDDT. QLNN ve XDDT cfi npi dung va muc dich nhim bap dam chp cic beat dpng XDDT dip iing dupc ygu can tuin thi quy hoach va kign true xay dung, PTDT nfii chung. Thflng qua cac cfing cu nhu quy hoach xiy dung, PTDT vi kign trie XDDT, Nhi nufic trign khai hai phuong dign nfii dtmg quin ly tuong iing doi vol XDDT. Mdt mit, cic CO quan cfi tham quygn xiy dung, ban hanh phap luit ve quy hoach, kign trie xiy dtmg; chign lupc xay dung, PTDT, cic ban dfi in quy hpach xay dung vi bin thigt kg kign trie XDDT va xem xet quygt dinh (cho phgp, phg duyet); xiy dung, ban hinh cic quy chuan, tieu chuan, quy chg quan ly quy hoach, kign Oiic xay dung. Mat khic, cic CO quan cfi tham quygn chi dao qui trinh thuc thi cac nhiem vu d i dupc vach ra ttong dinh hufing chign lupc, dfi in quy hoach, thigt kg kign trie XDDT; dfing tiifii giam sit, kigm tta, thanh tta, giii quyet khigu nai, tfi cap, xu ly vl pham phip luat lien quan. Nfii dung QLNN vg quy hoach xiy dimg, kien trie dfl thi con dupc thghienficachoatdfing khic nhu cing cfi, phit trign tfl chitc, nhan su cia bfl miy quin ly; dio tao, bfii dufing dfli ngu nhan lire lam quy hoach, kign Unic
XDDT; ung dimg thinh tuu khoa hpc - cfing nghe ttong quy hoach, kien ttue XDDT; giao due, pho bign phip luit, hpp tic quflc tgve quy hoach, kign Oiic XDDT...
niirhai, QLNNveduin diu tir XDDT.
QLNN vg du in dau tir XDDT dupc dig hien trgn cic khia canh nhu xiy dung, ban hanh vin bin quy pham phip luat, quy chuan, tieu chuan, quy trinh, quy chg dau thau, quy chg quan ly du in dau tu vi td chuc thuc hien ttong Unh vuc xay dung cflng trinh dfl thi; giim sat, kigm tta, thanh tta, xu ly vi pham phap luit, giai quygt khigu nai, to cio ttong hoat dpng quin ly du in diu tu xiy dung. Bgn canh dfl, viec phit trien tfi chic bp may, cin bfl quin ly dii in dau tu xiy dung;
dao tao, hfli duong chuygn mfln, nghigp vu cho cin bfl quan Iy; trap doi kinh n ^ e m vfli cac nufic, hpp tic qufie te ttong quin ly du in diu tu XDDT cimg li nhirng nfii dung ttong QLNN vg diu Br XDDT. Tuy nhien, tiarfic hgt, thflng qua vigc xiy dung, ban hanh phip luit, I%i nuflc cin phai xic dinh dupc nhting yeu ciu cfi tinh nguygn tic ttong hoat dpng dau tu, quinlydirandiutu xiy dung nfii chung, ttong dfi cfi dau tir XDDT.
QLNN dfii voi du in dau tu XDDT can bao dim tuin theo cic ygu cau nhu: phi hpp vfii quy hoach tdng thg phit trien kitih tg - xi hfli, quy hoach phat trign nganh, quy hoach xiy dung, quy hoach vi kg hoach su dung dit tai dia phuong noi cfi du in diu tu xiy dung;
cin cfi phuong an cfing nghe va phirong in thiet kg xiy dung phu hpp; bao dim chat lupng, an toin trong xiy dung, van hinh, khai thic, su dung cfing trinh, phfing, chong chiy, nfi vi bio ve mfii tnrong, ling phfi vfii bign dfii khi hiu; bao dim cip d i von ding tign dp cia dtr an, hieu qui tii chinh, hieu qui kinh tg - xi hfii cia du in; tuin thi quy dinh khae eia phap luit cfi hgn quan. Ben canh dfi, phai quy dinh rfl trich nhiem, quyen ban cia ca quan QLNN, cia ngufii quyet dinh dau tu, chi dau tu vi cic tfi chuc, ca nhin cfi Ugn quan den thuc hien cac hpat
TAP CHf Q U A N LV N H A N a d c - Sd 295 (8/2020)
NGHlENCOrU-TRAO o d i
dpng diu tu xiy dung cia du in... Theo ttmh tu diu tu, cac bufie hen hanh, thuc hign du in XDDT, cfi the thiy nfli dung QLNN 6 day dupc ttign khai qua ba giai doan: (I) Chuan bi du in; (2) Thuc Men du in; (3) Ket tiiuc xiy dung, dua cflng ttinh vio khai thic s i dung.
Tha ba, QLNN ve chit luang cdng trinh XDDT.
QLNN vg chat lupng cflng ttinh XDDT dupc tigp can chi ygu theo nfli dung tao lip, hinh thinh ngn cic quy chuan, tigu chuan, chi din, quy trinh boat dpng xiy dimg cic cfing trinh dfi thi vi ttich nhiem hufing din, kigm tra, danh gia sir tuin t h i cic quy chuan, tigu chuan, quy trinh dfl. QLNN vg chit lupng cflng ttmh XDDT cfl thg dupe thuc hien tren hang loat cac phuong thiic boEit dflng nhu thi nghiem chuygn nginh xiy dung; quan trie cflng trinh; trie dac cflng trinb; kigm dinh xay dung; giim dinh xiy dung; giim dinh tu phip xay dtmg; dinh gii hpp quy ttpng hpat dpng xay dtmg; dinh gii hpp chuan trong boat dflng xay dung... Npi dung QLNN vg chat lupng cfing trinh XDDT lign quan dgn ttich nhiem cu thg cia cic ca quan QLNN theo quy dinh cia phip luit.
Theo dfi, QLNN vg chit lupng cfing trinh xiy dung dupc xac dinh thuflc vg ttich nhigm cia Bfl Xiy diing, eac bfl quin ly xiy dung chuygn nginh, UBND cap tinh QLNN ve chat lupng cfing trinh xiy dung ttgn dia bin.
Sfi xay dung va cac sfi quan ly cfing trinh xay dipig chuyen nganh giip UBND cap tinh quin ly chit lupng cflng trinh chuyen nganh tten dia ban. Npi dung QLNN vg chat lupng cflng trinh xiy dimg dupc quy dinh theo ttmg Ipjl chi thg nhu Bfl Xiy dung, cic bp, ca quan ngang bp khac; UBND cap tinh, cic co quan chuygn mfin cia UBND.
Dg bio dim chat lupng cfing tiinh XDDT, nguygn tic dit ra li cfing trinh xiy dung phai dupc cic chi thg cfi ttich nbiem giim sit vg chit lupng, khoi lupng, tign dp, an tpan lao dpng vi bio ve mfii trufing ttong qui trinh thi cfing. Dfing thoi, Nhi nufic ciing thg hien
vai ttfl to Ion ttong quin ly vi chil lupng cflng trinh XDDT nfii chung, khuyen khich viec giim sat chat lupng ttong thi cfing xay dung cac nhi fi rigng le.
Thu ta, QLNN vg an toin, bio v$ mdi trudng, ling phd vdl bign ddi khi biu ttong XDDT.
Dg QLNN, cac ca quan cfi tham quygn thvrc hien giim sit digu kien lao dflng tai cic cfing trinh, nhit la tuyen truygn, phfi bign an toin ve sinh lao dfing cho ngufii lao dpng, dfii tupng sir dyng lao dflng va ap dyng chg tai x i ly nghigm khic. Digu niy gop phan quan ttpng ttong viec ning cao y thic quia ly cia nhi diu tu, nhi thiu, giam thigu tam ly chil quan, coi thuang quy dinh, dg phflng tai nan cua ngufii lao dpng. Bgn canh dfi, phii nSm rfi nguygn tic yen cau tit ci cic beat dpng ttong qui trinh xiy dyng, PTDT til quy hoach, kign tiiic dgn thiet kg, thi cfing xiy dvmg cfing trinh dfi thi diu phdi bio dam su p h i hpp voi chinh sach phat trign, chign lupc, quy hoach chung cia dit nufic, bao dim cic ygu tfi qufie phfing, an ninh.
Hoat dflng XDDT cfi tic dfing rit Ion dgn mfii truflng sinh thii or khu virc dfi thi vi tren pham vi ca nttfifc nfii chung, do dii, can QLNN vg bao ve mfii trufing, ung phfi vfii bign dfii khi hau trpng XDDT dieo nguygn tic cia boat dflng xay dvmg nii chung vi XDDT nfii rigng la phil phu hpp vfii quy hoach.
QLNN vg XDDT vfii 4 nfii dung ngu ttgn thufing duac flig hien dufii cic hinh diiic nhu: (I) Xiy dvmg, ban hanh phip lujt vl XDDT; (2) Ban hanh vin ban ip dung phip lullt; (3) Thiic hign nhung hp^t dflng khic mang tinh phip ly, ching hjn Mgm tta giSy phgp xay dvmg; kigm tta chung chi hanh nghg, chung chi ning Iiic tiiam gia hojit dOng xay dving... ding ky cap chung chi ning Ivic khap sit xiy dvmg; lap hoic cip mfit sfi lo?!
giay to nhu lip bien bin xu ly vi pham hanh chinh, cip chung chi hanh nghg...; (4) Ap dvmg nhiing bign phip td chic trirc tigp
o
TAP CHf Q U A N L* N H A Nl/(JC - Sd 295 (8/2020)NGHieNCOrU-TRAO Ddi nhu: ket hpp gitia t$p thg linh dap vi ca
nbin phu ttich ttong beat dfing quan ly; tfi chitc chuan bi va Ugn hanh cic cuflc hpp, tpa dam, hfli nghi, hfli thao ve cie bien phip QLNN; phin cfing thuc hien nhiem vu cfing tic gitia cic bp phin ttpng mpt ca quan quan ly, hay giia cic thinh vien trong mfit bp phan; td chic boat dflng thi dua, khen diupng, tflng kit va pho bign kinh nghigm tien tign, tfi chuc ling dung nhiing thanh tvm khoa hpc cflng nghg vao to chuc, boat dflng cia bfl miy quan ly; (5) Thvrc hien nhiing tic dflng vl nghigp vu ky thuat nhu ung dung cfing nghg thfing tin ttong lip hfi so khio sit, thigt kg kign trie xay drmg, lip cic trang thfing tin dien t i de pho cap, cfing khai, minh bach cic thfing tin Ugn quan...
3. Nhin chung, dufii gfie dfi nhin thitc ly luin CO ban, khai niem QLNN vl xay dvmg nfii chung fi Viet Nam di cfi buoc phit trign, dip ung dfii hfii cia thvrc tiln doi mfii, hfli nhip quoc te hien nay. Tuy nhign, tten thiic tl cfl thg thiy, ben c?nh khii nigm QLNN vl xiy dvmg d i hinh thinh thgm kbit nigm QLNN vl trat tvr XDDT. Digu nay cin dupc bd sung trong nfii him cua khii niem QLNN.
Bfii, ttit tvt xiy dvmg khfing phii li doi tupng ma la khich the cua QLNN vl xiy dvmg.
Nhan thiic duac svi thieu thflng nhit ttong ly luin va thuc tiln xay dvmg, ban hinh phip luit, thvic hign phip luit, tfi chuc bfl miy QLNN vg xay dimg nhu thoi gian qua, dli nfli dung vl ttat hr xiy dvmg duoc dit ra dfii vfii tit ci cic linh vvtc QLNN vg XDDT.
Viec thi digm thanh lap "dfli quan ly trat tit xiy dtmg" o cap qu?n tai Hi Npi hien nay vi cfi thg se ip dving d ca TP. Ho Chi Minh tfii diy vavi|c dua vio dvr thdo Luatsia doi Luat Xiy dpngmot sfi quy dinh vl quin ly trat tir xiy diing nhu bien nay li khflng p h i hpp vfii CO sfi ly luin cia QLNN vg xay dvmg nfli chung.
Dg khic phuc bit c?p ttgn, tiufi*; hgt phai quan nigm mpt cich ding din: trat tij xay
dvmg la khach thg cua QLNN vl XDDT, bae dim trat tti XDDT li yeu ciu muc tigu can dat duac ttong QLNN vl XDDT. Day la co so ly lujn CO ban dg cfi thg di den thfing nhdt trong thvtc tiln hai phuong huong quan ttpng sau:
(1) VI xiy dvmg, ban hdnh phap luat khflng cin phii quy dinh ttong Luat Xiy dung cung nhu cic vin ban quy dinh chi tilt vdn dl qudn ly trat hr xay dvmg.
(2) VI tfi chuc bp miy QLNN, khfing ngn thinh lap dpi qudn ly ttit tit xiy dvmg thuflc chinh quygn cdp quan 6 cac dfl thi Ifin. Tuy nhign, ching ta cung ngn sia dpi, bfi sung Luit Thanh tra, Luat Td chdc chinb quyen dia ph uong, mfirakhdndngchophepthdnh lip thanh tra chuygn nginh xiy dvmg fi chinh quyen dfi thi cdp quin^ cu thg tai thi xi, thinh phfl thufic tinh, quin t^i cic thdnh pho trvre thuflc trung uong vi thinh phfl thuflc thinh phfi tnrc thufic trung uong.
Digu niy khflng dupc lam dfing loat mi can cfi bfi tigu chi cu thg, ngu dia phuong d i dilu kien thi mfii dupc thdnh lap va phdi thvic hign thep 16 trinh thich hpp. Trufic mit, chi ngn chp phgp thdnh lap thanh tra xiy dvmg fi cdc qudn, thi xi (hpic thinh phfl ngu cfi) cia 2 dfi thi loai die bigt la Hi Npi vi TP.
HflChlMuihCJ Cbi tiiich-
1. Chitkara, K. K. (1998). Constmction Project Management, New Delhi: Tata McGraw-Hill Ed- ucation, p.4, ISBN 9780074620625.
2. Thdng cao Bio chi vi tinb hinh kinh ti - xi hpi quylVva ndm 2(/J9. https://www.gso.gov.vn, ngay 28/7/2020.
3. 4. Nguygn Ba Phiing. Xulf vipham hanh chinh tiong linh vuc quin If trat tuxay dung dd thj: thpc ttang vi giaipbiplUian an uen sy Luat hpc, Hpc vien Khoa hpc xa hpi. H, 2015, tr. 27,28.
5. Pham Thi Anh Dao. Td chic vi boat dgng thanh tra xiy dpng hiin nay/Luan an tien sy Luat hpc, Hpc vign Khoa hpc xa hpi. H, 2017, u. 136.
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