yv^
MAY VAN DE VE CHINH QUYEN
THANH PHO T R U C THUOC TRUNG U O N G
d VIET NAM HIEN NAY
VO THLf - DINH NGUYEN MANH
TOM TAT:
Ngay khi Chmh phu lam thdi dffdc lap ra trong Cach mang thang Tam nam 1945, chinh quyen thanh phd' trffc thuoc Trung ffdng da dffdc thanh lap vdi vi tri, vai trd dac biet quan trpng. Bai vie^t nay gdp phan lam rd van de ve td chffc chinh quyen thanh phd' trffc thude Trung ffdng, neu quan diem lffa chpn phffdng an td chffc chinh quyen gitta eac md hinh da dffdc de xuat.
Tuf khoa: Chinh quyen thanh phd trife thude Trung ffdng, Viet Nam.
1. Khai ni§m va dac diem cua chinh quyen thanh pho'trrfc thuoc Trung tfdng
"Chinh quyen thanh phd' trffc thude Trung ffdng" la cum tff ve thffc chat da hinh thanh tff hdn 70 nam nay d nffdc ta, nhffng hieu cum tff nay la gi thi hau nhff trong sach bao phap ly nffdc ta chffa cd ldi giai. Neu chi xem xet ngtt nghia cum tff "chinh quyen thanh phd trffc thuoc Trung ffdng", ngffdi ta cd the giai thich ve sff phu thuoc cua nd vao chinh quyen Trung ffdng bang each dat ra cau hdi: "Tai sao ngffdi ta khdng gpi tinh la tinh trffc thude Trung ffdng?". De tra ldi cho thda dang hdn cho cau hdi tren can tim hieu ngay chinh trong cac quy dinh phap luat.
Ngay khi nffdc Viet Nam dan chu cdng hda ra ddi vdi ban Tuyen ngdn dpc lap ngay 2/9/945, chi It thang sau, Chinh phu lam thdi da ban hanh Sac lenh sd77/SL ngay 21/12/1945 quy dinh ve ehinh quyen do thi. Trong Sac lenh nay, cac dieu 1 va 3 da xac dinh cac thi tran Ha Ndi, Hai Phdng, Nam Dinh, Vinh Ben Thuy, Hue, Da Nfng, Da Lat, Sai Gdn Chd Ldn "dffdc dat lam thanh phd", cdn tai cac tinh ly va nhttng ndi dd hoi "ma lau nay ve mat hanh chinh dffdc biet lap va trffc tiep tinh" se dffde "dat lam thi xa ". Trong sd cac thanh phd, chi
cd thanh phd' Ha Ndi dffdc "dat trffc tiep difdi quyen Chinh phu Trung ffdng". Nhff vay, ngay ttf khi mdi ra ddi, Nha nffdc Viet Nam mdi da chii y ngay den van de do thi va quan ly do thi va thanh phd Ha Ndi da d\i(ic xac lap la thanh phd tnfc thuoc Trung ffdng (du chffa phai la ten gpi chinh thffc). Mac du ban Hien phap dffdc Qudc hdi thong qua ngay 9/11/1946, nhffng Sac lenh ke tren van la van ban dieu ehinh td chffc chinh quyen do thi tren thffc te.
Theo Sac lenh sd 77/SL ke tren, trong ddn vi hanh chinh thanh phd Ha Ndi cd ddn vi hanh chinh Idiu phd'. O cap thanh phd', cd Hoi ddng nhan dan (HDND) do cff tri thanh phd bau ra, cd quan nay lai bau ra Uy ban hanh chinh (UBHC). 6 ddn vi hanh chinh khu phd cd UBHC dffdc bau ra bdi cff tri khu phd. Sau nay, trong Thdng tff so' 634-TTg ngay 28/12/1957 cua Thu tffdng Chinh phu ve td chii'c chinh quyen thanh phd' tha'y xua't hien hai lan cum tff "HDND va UBHC cac thanh phd trffc thuoc Trung ffdng". Cd the xem day la lan dau tien phap luat Viet Nam xac dinh cd ddn vi hanh chinh dffcfc gpi la "thanh phd' trifc thude Trung ffdng". Den Luat Td chffc chinh quyen dia phffdng nam 1958, cum tff "chinh quyen thanh phd trife thuoc Trung
QUAN TR! - QUAN LY
ffdng" chinh tiiffc dffde sff dung. Theo dd, thanh phd trffc thuoc Trung ffdng van dffdc chia ra cac khu phd. Cac ban hien phap 1959, 1980, 1992, 2013, cac luat ve td chffc chinh quyen dia phffdng sau nay deu xac dinh cac ddn vi hanh chinh thanh phd' trffc thuoc Trung ffdng nhff tren nhffng It nhieu cd nhffng thay ddi. Ke tff Luat Td chffc HDND va UBHC cae cap nam 1962, thanh phd' trffc thuoc Trung ffdng dffdc xac dinh cd them ddn vi hanh chinh ngoai thanh phan biet vdi ddn vi hanh chinh ndi thanh la huyen, xa, thi tran. Va, ke ttt Hien phap nam 1980, ddn vi hanh chinh ndi thanh thanh phd' trifc thuoc Trung ffdng dffdc chia ra cac ddn vi hanh chinh quan, cac ddn vi hanh chinh quan dffdc chia ra cac phffdng. Luat To chffc chinh quyen dia phffdng nam 2015, cd them ddn vi hanh chinh mdi la thanh phd thude thanh phd' trffc thude Trung ffdng. Ve td chffc chinh quyen thanh phd, tff Luat Td chffc chinh quyen dia phffdng nam 1958 den nay, d tat ca cac ddn vi hanh chinh, trong dd cd cac ddn vi hanh chinh thanh phd' trffc thuoc Trung ffdng, deu td chffc hai loai cd quan la HDND va UBHC (hoac UBHC).
Nghien cffu cac quy dinh phap luat ve chinh quyen thanh phd' trffc thuoc Trung ffdng d Viet Nam tff nam 1945 den nay, cd the tha'y cd mot sd diem dang chu y trong qua trinh phat trien cua nd nhff sau:
Mot Id, ngay tff khi nam dffdc chinh quyen, trong cac ddn vi hanh chinh dffdc xac lap, Nha nffdc Viet Nam da y thffc rat rd ve tam quan trpng cua ddn vi hanh chinh thanh phd trffc thuoc Trung ffdng dd'i vdi qud'c gia, sff phat trien xa hdi. Bdi vay, trong Sac lenh sd 77/SL, Chinh phu lam thdi da lap thanh phd' Ha Ndi la thanh phd trffc thuoc Trung ffdng duy nha't khi a'y, "trffc tiep dffdi quyen Chinh phu Trung ffdng" va nd dffdc duy tri lien tuc tff dd de'n nay.
Hai la, ddn vi hanh chinh thanh phd' trffc thuoc Trung ffdng tff chd ban dau xac dinh chi gdm cd cac ddn vi hanh chinh do thi, dan trong qua trinh phat trien vdi nhu cau md rpng, nd cdn cd ca ddn vi hanh chinh ngoai thanh. Gan day, theo Luat To chffc chinh quyen dia phffdng, ngay trong ddn vi hanh chinh ndi thanh cung cd ca ddn vi hanh chinh la thanh phd dffdc gpi la thanh phd thuoc thanh phd trffc thuoc Trung ffdng. Day la cac thanh phd hinh thanh tai vung mdi hoac dang dffdc do thi hda. Ben canh dd, cd nhttng trffdng hdp ddn vi hanh chinh
thanh phd' trffc thude Trung ffdng dffdc md rpng bang each sap nhap ddn vi hanh chinh d tinh lan can. Tbffe te vffa neu cung cd nghia la chinh quyen trong ddn vi hanh chinh thanh phd' trffc thuoc Trung ffdng cung ngay cang dffdc md rpng.
Ba la, ke tff nam 1945 den nay, qua hdn 70 nam, chinh quyen thanh phd'trffc thuoc Trung ffdng theo nhff ten gpi cua nd da dffdc xac dinh tff Sac lenh sd 77/SL da neu, ludn dffdc xac dinh theo tinh than la
"dat trffc tiep dffdi quyen Chinh phu Trung ffdng".
Tinh than nay den nay van gitt nguyen y nghia, bdi chi cd Chinh phu la cd quan thffdng xuyen cd quan he vdi chinh quyen thanh phd' trffc thuoc Trung ffdng. HDND thanh phd' chiu sff kiem tra cua Chinh phu trong viec bao dam thi hanh Hien phap, phap luat tai dia phffdng. Chinh phu cd quyen dinh chi viec thi banh nghi quyet cua HDND trai vdi Hien phap, luat va van ban cua cd quan nha nffdc cap tren va de nghi Uy ban Thffdng vu Qud'c hdi (UBTVQH) bai bd. Quan he giffa Chinh phu vdi UBND thanh phd lai cang trffc tiep va chat che.
Chinh phu chi phdi chat che td chffc va boat dpng cua cd quan nay bang cac quy dinh ve nhiem vu, quyen ban cua Thu tffdng Chlnb phu trong viec td chffc UBND (phe chuan ket qua bau cac chffc danh Chu tich, Phd Chu tich UBND...), chi dao boat dpng cua UBND, dinh chi viec thi hanh hoac bai bd van ban cua UBND, Chu tich UBND thanh phd trai vdi Hien phap, luat va van ban cua cd quan nha nffdc cap tren; lanh dao va chiu trach nhiem ve boat dpng cua he thd'ng hanh chinh nha nffdc tff Trung ffdng den dia phffdng, bao dam tinh thdng nha't va thdng sud't cua nen hanh chinh qud'c gia... Trong khi dd, quan he cua Qudc hdi, UBTVQH dd'i vdi chinh quyen thanh phd trffc thuoc Trung ffdng hau nhff khdng cd quan he rieng va trffc tiep nao. Vdi UBND thanh phd' cd the ndi khdng cd quan he trffc tiep. Cdn vdi HDND thanh phd', cd quan nay chiu sff giam sat, hffdng din boat ddng cua UBTVQH;
UBTVQH cd the bai bd nghi quyet cua HDND trai vdi Hien phap, luat va van ban cua cd quan nha nffdc cap tren; giai tan HDND; nhffng quy dinh nhff vay cung la chung cho moi HDND cap tinh.
O day, viec ddn vi hanh chinh thanh phd trffc thuoc Trung ffdng dffdc dat "trffc tiep dffdi quyen"
cua Trung ffdng cd the dffdc hieu la chinh quyen thanh phd' trffc thuoc Trung ffdng tien hanh boat dpng quan ly tren dia ban cd tinh dpc lap nha't dinh, nhffng dffdi sff giam sat, kiem tra, chi dao, hffdng
din, xff ly... cua Chinh phu. Chinh quyen cac tinh cung cd mdi quan he "dffdi quyen" nhff vay, nhffng khac vdi chinh quyen thanh phd trife thude Trung ffdng la nd cung "dffdi quyen" nhffng khdng "tri^c tiep". Hay ndi mdt each tdng quat, chinh quyen thanh phd trffc thuoc Trung ffdng la chinh quyen dffdc chinh quyen Trung ffdng kiem soat chat che hdn chinh quyen tinh.
Tuy nhien, cung vdi qua trinh phat trien, chinh quyen thanh phd trffc thuoc Trung ffdng nffdc ta ngay cang cd tinh ddc lap cao hdn the hien d cac van ban phap luat Luat Thu dd, Nghi quyet ve thi diem cd che, chinh sach dac thu phat trien thanh phd Hd Chi Minh ngay 24/11/2017. 6 day, vipc tang cffdng tinh tff quan, tff chu cua chinh quyen thanh phd trffc thuoc Trung ffdng la nham de eac thanh phd nay sff dung cac ngudn life td't nha't cho phat trien, tff do mdi phat huy dffdc vai trd la trung tam tdng hdp thuc day phat trien kinh te xa hdi cua vung, mien hay ca nffdc, vung lanh thd. Dieu dd khdng cd nghia la ldi long sff kiem soat, chi phdi cua chinh quyen Trung ffdng ddi vdi chinh quyen thanh phd trffc thuoc Trung ffdng ma la sff kiem soat, chi phdi dffdc thffc hien khdng qua cu the, chi tiet de phat huy tinh chu ddng, sang tao cua chinh quyen trffc thuoc.
Bd'n la, chinh quyen thanh phd trffc thuoc Trung ffdng dffdc thiet lap tren cd sd dan chu. Chinh quyen thanh phd trffc thuoc Trung ffdng tff nam 1945 den nay, cac cd quan HDND, cd luc ca UBHC cua nd dffdc thanh lap tren cd sd y chi cua cff tri thanh phd' thdng qua bau cff.
Ndm la, cd cau cua chinh quyen thanh phd' trffc thuoc Trung ffdng cd sff thay ddi qua cac thdi ky.
Ban dau, chinh quyen chi vdi hai cap, cap khu phd chi cd UBHC. Ve sau, mdi ddn vi hanh chinh thanh phd ca ndi va ngoai thanh deu lap ra ca HDND va UBND (hoac UBHC). Nhffng xu hffdng td chffc chinh quyen day du hay hoan chinh d mdi ddn vi hanh chinh lai la van de dang dffdc dat len ban de xem xet lai.
Sdu la, diem khac biet gitta chinh quyen thanh phd trifc thude Trung ffdng nffdc ta vdi cac thanh phd la thu do hay thanh phd ldn d My, Phap, Dffe...
la chinh quyen thanh phd' trffc thuoc Trung ffdng Viet Nam ludn td chffc va boat dpng theo nguyen tac tap trung dan chu vdi sff chi dao cua Trung ffdng the hien trong cum tff "trffc tiep dffdi quyen".
Trong khi d cac thanh phd nay cac thanh phd do la
chinh quyen dia phffdng tif quan, thffc hien cong viec nha nffdc theo quy dinh cua luat ma ve nguyen tac khdng cd sif chi dao cua chinh phu, trii trffdng hdp nha't dinh.
Tff nhttng trinh bay tren day, cd the quan niem ve chinh quyen thanh phd trffc thuoc Trung ffdng cl Viet Nam nhff sau: "Chinh quyen thanh phd tnic thuoc Trung ffdng la chinh quyen do thi dffdc td chffc d ddn vi hanh chinh thanh phd' trffc thu6c Trung ffdng, trifc tiep dffdi quyen cua Chinh phu, bao gdm cac cd quan HDND va UBND dffdc td chffc tren eac ddn vi hanh chinh thude thanh phd.
2. Van de td chtfc chinh quydn thanh ph6' trtfc thude Trung tfofng hien nay
Theo Luat To chffc chinh quyen dia phffPng nam 2015, chinh quyen thanh phd trifc thuoc Trung ffdng gdm HDND va UBND dffdc lap ra d tat ca cac ddn vi hanh chinh cua thanh phd'. Cac ddn vi hanh chinh dd thi bao gdm: thanh phd trifc thuoc Trung ffdng va cac ddn vi hanh ehinh ndi thanh la quan, phffdng va cac ddn vi hanh chinh ngoai thanh la ddn vi banh chinh thanh phd thuoc thanh phd trffc thuoc Trung ffdng, thi xa dffdc chia thanh ddn vi hanh chinh phffdng, huyen dffdc chia thanh cac ddn vi hanh chinh xa, thi tran.
Nhttng nam gan day, chung ta dang cam nhan mot each rd ret ve vai trd cua do thi, ddng thdi la sffc "ndng" cua cac van de phat trien do thi va chinh quyen do thi. Nhttng van ban phap luat quan trpng cua Nha nffdc xep theo van de cd the ke den la Quyet dinh sd445/QD-TTg ngay 07/4/2009 cua Thu tffdng chinh phu Phe duyet dieu chinh dinh hffdng Quy hoach tdng the phat trien he thdng do thi Viet Nam den nam 2025 va tam nhin den nam 2050; Luat Quy hoach dd thi ngay 20/7/2015; Nghi quyet ve phan loai do thi ngay 25/5/2016 va Nghi quyet ve tieu chuan cua ddn vi hanh chinh va phan loai ddn vi hanh chinh ngay 25/5/2016 cua Uy ban thffdng vu Qudc hdi; Luat Thu do nam 2012; Nghi quyet eua Qudc hoi ve thi diem cd che, chinh sach dac thu phat trien thanh phd Hd Chi Minh ngay 24/11/2017; Luat Td chffc ehinh quyen dia phffrfng nam 2015 vdi sff phan biet rd hdn chinh quyen do thi vdi chinh quyen vung ndng thdn, hai dao... Sii ban hanh cua loat cac van ban mdi hoac thay the cac van ban trffde do nhff vffa ke cho tha'y mot thiic te la do thi Viet Nam dang phat trien manh va nhanh chdng. Dd'i vdi dd thi thanh phd trifc thuoc Trung ffdng hien chi cd 5 thanh phd, nhffng cd m6t
QUAN TR! - QUAN LY
so dia phffdng phan da'u de do thi trd thanh dd thi loai nay nhff tinh Bac Ninh...
Dieu can ndi la trffde tbffe te nhff vay, Luat To chffc chinh quyen dia phffdng nam 2015 du cd phan dieu chinh rieng chinh quyen do thi, trong dd cd chinh quyen thanh phd' trffc thuoc Trung ffdng, nhffng ve cd ban md hinh chinh quyen khdng khac trffde. Nhieu nghien cffu de xua't da khdng dffdc dffa vao Luat To chffc chinh quyen dia phffdng.
Trong Bao cao Tong ket 10 nam thi hanh Luat To chffc HDND va UBND nam 2003 cua Bp Ndi vu ngay 03/10/2014 da chi ra nhttng ket qua va nhttng ban che trong td chffc va hoat dpng cua HDND va UBND, trong dd, mdt ban che dffdc neu la: "Md hinh td chffc bp may va phffdng thffc boat dpng cua HDND va UBND dffdc ap dung cho tat ca cac cap hanh chinh, khdng phu hdp vdi dac diem va yeu cau quan ly cua ddn vi hanh chinh d do thi". Rat nhieu nghien cffu ve chinh quyen do thi cung dffdc the hien tren cac dien dan khoa hpc va thffc te.
Trffde do, tff nam 2013, Bp Ndi vu da xay dffng De an thi diem md hinh td chffc chinh quyen do thi va cung trong nam, thanh phd' Hd Chi Minh va thanh phd Da Nang cung xay dffng cac de an thi diem ve chinh quyen dd thi. Dang tide, cac de xuat td chffc chinh quyen thanh phd' trffc thuoc Trung ffdng chffa du sffc thuye't phuc, chffa cd dffdc sff ddng thuan de dffa vao Luat. Nen tuy Luat To chffc chinh quyen dia phffdng dffdc thdng qua nam 2015 khdng lau, nhffng mdi day, Nghi quyet so' 18- NQ/TW ngay 25/10/2017 cua Ban Chap hanh Trung ffdng Dang khda XII van chi ra ban che trong td chffc chinh quyen dia phffdng la: "Chffa phan dinh that rd tinh dac thu cua chinh quyen do thi, ndng thdn, hai dao" va dat van dd phai: "Tiep tuc sffa ddi, bd sung, hoan thien the che xay dffng chinh quyen dia phffdng theo hffdng phan dinh rd hdn td chffc bp may chinh quyen do thi, ndng thdn, hai dao, ddn vi hanh chinh kinh te dac biet".
Trong didn bien mdi nha't, thanh phd Ha Ndi dang xuc tien manh viec xay dffng de an thi diem md hinh chinh quyen do thi tai Ha Ndi. Dieu nay cho tha'y tinh thdi sff cao eua viec xay dffng chinh quyen do thi ndi chung, chinh quyen thanh phd trifc thuoc Trung ffdng ndi rieng.
Vi vay, den bay gid cac quan diem, de xua't ve td chffc chinh quyen do thi ndi chung, chinh quyen thanh phd' trffc thuoc Trung ffdng vIn la nhttng van de can phai dffdc dat len ban xem xet lai, tinh den
bd'i canh mdi hien nay. Hai van de ldn dat ra trong td chffc chinh quyen thanh phd' trffc thuoc Trung ffdng la xac dinh ddn vi hanh chinh va md hinh chinh quyen.
Trffde bet ban ve van de td chffc cac ddn vi hanh chinh d thanh phd' trife thude Trung ffdng.
Nhff trinh bay d tren, ke tff khi Luat To chffc HDND va UBHC nam 1962 den nay, ddn vi hanh chinh thanh phd' trffc thuoc Trung ffdng khdng chi thuan tuy do thi ma cdn bao gdm ca khu vffc ndi thanh la cac ddn vi hanh chinh do thi va ddn vi hanh chinh ngoai thanh vdi cac huyen, thi xa. Va, tff Luat To chffc chinh quyen dia phffdng nam 2015, cdn bao gdm ca thanh phd' thuoc thanh phd trffc thuoc Trung ffdng. Nhff vay, eac ddn vi hanh chinh thanh phd trffc thuoc Trung ffdng la rat da dang.
Trong xac lap ddn vi hanh chinh cua thanh phd' trffc thuoc Trung ffdng c6 mdt so' y kien tan thanh viec md rpng ddn vi hanh chinh nay, nhffng cd y kien khdng ddng y, tham chi phai thu hep vao vung do thi nhff thdi ky dau. Tac gia cho rang phan ngoai thanh mang tinh ndng thdn nen thu hep den mffc tdi thieu. Ddn vi hanh chinh do thi khdng nen bao gdm ca vung rpng ldn thuan tuy ndng nghiep, tham chi ca mien nui. Md rpng vung ngoai thanh se lam cho viec quan ly ddi vdi vung ndng thdn chiem phan ldn cdng viec cua chinh quyen lam giam di tinh "do thi" cua chinh quyen va cung lam cho boat ddng trpng tam la quan ly do thi cua chinh quyen do thi. Do vay, nen giam bdt cac huyen thude ngoai thanh thanh phd trifc thuoc trung ffdng.
Quan diem nay rat dang chu y. Tuy nhien, neu chi hieu thuan tuy viec bao dam tinh do thi, cdng viec do thi trong boat dpng cua chinh quyen thanh phd trffc thude Trung ffdng thi van chffa day du. Day mdi chi la each nhin "tinh" van de, xem thanh phd trffc thuoc Trung ffdng la ddn vi hanh chinh da
"hoan thanh", dn dinh. Can nhin ddn vi hanh chinh do thi ndi chung, thanh phd' trffc thuoc Trung ffdng ndi rieng trong trang thai "dpng", gan hen vdi quy hoach do thi mdi giai thich dffdc hien tffdng md rpng do thi va ca viec hinh thanh ddn vi hanh chinh dd thi mdi tren dia ban ndng thdn cua thanh phd' trifc thuoc Trung ffdng. Nhff da tha'y, gan day nha't la theo Nghi quyet sd 15/2008/QH12 cua Qud'c hoi ve viec dieu chinh dia gidi hanh chinh thanh phd' Ha Ndi va mot so' tinh cd lien quan ngay 29/5/2008, thanh phd Ha Ndi da dffdc md rpng.
Nhff vay, thanh phd Ha Ndi khdng nhttng khdng thu hep vao vung do thi, trai lai cdn md ra rat rpng vung ndng thdn. Hien nay, thanh phd trffc thuoc Trung ffdng nffdc ta cd mot xu hffdng tat yeu la do thi hda ddn vi hanh chinh ndng thdn tren dia ban va eung cd ca xu hffdng thanh lap ddn vi hanh chinh thanh phd trffc thuoc Trung ffdng mdi... Nhin tdng the, do thi Viet Nam dang trong qua tnnh phat trien theo hffdng do thi hien dai, viec md rpng, gitt nguyen hay thu hep, dieu chinh ddn vi hanh chinh la bai toan phffc tap can can nhac than trpng nhieu yeu to' hien hffu. Dd la cac van de ve thffc hien quy hoach tdng the phat trien he thd'ng do thi den nam 2025 va tam nhin den nam 2050, xac dinh tieu chi ve thanh phd trffc thude Trung ffdng, xac dinh vi tri, vai trd cua thanh phd' trffc thude Trung ffdng trong phat trien qudc gia va vung, tdc dp do thi boa, sif phat trien cua khoa hpc va cdng nghe, yeu cau phat trien kinh te xa hdi... Ngoai ra, dd la cac van de lien quan vdi cac yeu to dan tpc, van hda, dia ly, van de can bp, cdng chffc, nang life quan ly... Ben canh do, thffc tien phat trien do thi d cac nffdc cung cho chung ta nhttng bai hpc kinh nghiem rat td't trong phat trien do thi Viet Nam.
Nhff vay, khdng the ndi trffde dieu gi ve sff bien dpng cua ddn vi hanh chinh, nhffng tinh dn dinh cua ddn vi hanh chinh bao gid cung can ffu tien hang dau. On dinh ddn vi hanh chinh la dieu kien can thiet cho phat trien kinh te xa hdi, khdng nen tao nen nhffng bien ddng ddn vi hanh chinh tuy tien. Va, dac biet quan trpng la nhttng bidn ddi ve ddn vi hanh chinh thanh phd' trifc thuoc Trung ffdng can phai sff dung quy dinh tai khoan 2 Dieu 110 cua Hien phap 2013 la: "Viec thanh lap, giai the, nhap, chia, dieu chinh dia gidi ddn vi hanh chinh phai lay y kien Nhan dan dia phffdng va theo trinh tff, thu tuc do luat dinh". Trong xa hdi dan chu, nhttng bien ddi ve ddn vi hanh chinh cd the dffdc thffc hien qua trffng cau y dan. Ddi vdi nffdc ta, quy dinh va ke du la y kien cd tinh chat tham khao nhffng can tdn trpng va tinh den mdt each nghiem tuc.
Thd hai la van de td chffc chinh quyen d thanh phd' trffc thuoc Trung ffdng. Theo quy dinh hien nay thi thanh phd thuoc thanh phd trffc thuoc Trung ffdng mdi chi la quy dinh phap luat, chffa dffdc lap ra tren thffc te'. Nen thanh phd trffc thude Trung ffdng hien nay vIn la ddn vi hanh ehinh ndi thanh.
Nd rat cd kha nang se la thanh phd cd tinh cha't
trung tam, phan biet vdi thanh phd trffc thuoc. Cac ddn vi hanh chinh ngoai thanh cua thanh phd trtfc thude Trung ffdng do dd se la huyen, thi xa va thanh phd trifc thude. Thanh phd trffc thude Trung ffdng dffdc chia ra cac ddn vi hanh chinh quan va phffdng. Thanh phd' thude thanh phd' trffc thuoc Trung ffdng, thi xa dffdc chia thanh phffdng, xa;
huyen dffdc chia ra ddn vi hanh chinh la xa, thi tran. Theo phap luat hien hanh, tat ca cac dPn vj hanh chinh ke tren deu td chffc chinh quyen day du tren do.
Sau day xem xet van de td chffc chinh quyen thanh phd trffc thuoc Trung ffdng, xin chi de cap td chffc chinh quyen thanh phd trffc thuoc Trung ffdng khu vffc ndi thanh. Vi day la van de khd khan va la trung tam cua cac ban luan ve td chffc chinh quyen d ddn vi hanh chinh thanh phd trffc thuoc Trung ffdng. Neu giai quyet dn dffdc van de nay thi van de td chffc chinh quyen d cac ddn vi hanh chinh ngoai thanh (thanh phd thude thanh phd tnic thuoc Trung ffdng, thi xa, huyen) se dffdc xem xet tffdng ffng, khdng phai la van de qua ldn.
Nghien cffu cac de xua't td chffc chinh quyen ndi thanh cd the chia ra may phffdng an chu yeu sau day:
1. To chffc chinh quyen nhff hien nay, tat ca cac ddn vi hanh chinh ndi thanh cua thanh phd gdm cap thanh phd, quan, phffdng deu lap chinh quyen day du, cd ca HDND va UBND. Day cung la phffdng an dffdc sff dung de xay difng Luat To chiic chinh quyen dia phffdng nam 2015.
2. Td chffc chinh quyen trong ndi thanh chi co mot cap day du vdi HDND va UBND la cap chinh quyen d thanh phd. Cac ddn vi hanh chinh quan, phffdng chi cd cac dai dien hay van phdng dai dien cua chinh quyen thanh phd.
3. Chinh quyen thanh phd trife thuoc Trung ffdng la chinh quyen day du vdi HDND va UBND.
Dffdi cap chinh quyen nay la chinh quyen quan day du cd HDND va UBND, nhffng dffdi quan chi cd cd quan dai dien hanh chinh hoac la dffdi chinh quyen thanh phd chi cd mot UBND cap cd scl do HDND thanh phd bau ra thay cho ca chinh quyen cac cap quan va phffdng hien nay.
Tren day la ba phffdng an cd ban de xuat to chffc chinh quyen thanh phd' trffc thuoc Trung ffdng. Mdi phffdng an deu dffdc lap luan bao ve.
Phffdng an thff nha't ham y ve td chffc chinh quyen dan chu, chinh quyen dffdc lap ra cd HDND cl ca
QUAN TR! - QUAN LY
ba ddn vi hanh chinh. Han che ldn cua nd la boat ddng cua chinh quyen ndi thanh tren thffc te tao sff cat khue quan ly, chffa dffng kha nang lam cham lai viec trien khai cac chu trffdng, menh lenh cua chinh quyen thanh phd. Viec xac lap ddn vi hanh chinh vdi chinh quyen day du thffc hien quan ly va cung ffng dich vu cdng theo ddn vi hanh chinh chffa dffng trong nd sff bat tien, bat binh dang cho ngffdi dan trong viec thu hffdng dich vu cdng bdi tinh ddc lap nhat dinh cua tffng ddn vi hanh chinh. Phffdng an thff hai the hien sff quan ly tap trung thdng nha't cao, bao dam viec cung ffng dich vu cdng cung cd tinh thdng nhat, khdng phan biet, tffc la khac phuc dffdc ban che cua md hinh thff nha't. Nhffng vdi md hinh nay, dffdng nhff tinh dan chu cua chinh quyen it hdn, bdi chi cd HDND d cap chinh quyen thanh phd. Phffdng an thff ba dffdng nhff la md hinh trung dung gitta hai md hinh tren vdi ham y lam cho chinh quyen gan vdi ngffdi dan nham tang tinh dan chu, ddng thdi tang cffdng bao dam tinh tap trung thd'ng nha't, trong quan ly nha nffdc va cung ffng dich vu cdng. Tuy nhien, vdi hai cap chinh quyen cd ca HDND va UBND cung tao can trd cho quan ly va cung ffng dich vu cdng.
Trong cac de an thi diem td chffc chinh quyen do thi nam 2013 cua Bp Ndi vu, thanh phd Hd Chi Minh va Da Nang cd diem thd'ng nha't trong viec lffa chpn md hinh td chffc chinh quyen thanh phd trffc thude Trung ffdng thff hai ke tren. Theo dd, chinh quyen day du HDND va UBND chi cd d cap thanh phd', cdn d quan, phffdng chi cd cd quan dai dien hanh chinh cua thanh phd. Hien thanh phd Ha Ndi la thanh phd dang xuc tien manh viec xay dffng de an chinh quyen do thi cung se phai dffa ra phffdng an cua minh.
Vay, chpn phffdng an td chffc chinh quyen thanh phd' trffc thuoc Trung ffdng nao la phu hdp? Td chffc chinh quyen do thi nhff the nao la van de khdng ddn gian, phu thuoc vao nhieu mat khac nhau: dac diem cua quan ly nha nffdc va cung ffng dich vu cdng d do thi; tdc dp sd'ng d do thi; quy md cua thanh phd' trtfc thude Trung ffdng; tinh hinh phan quyen, phan cap gitta trung ffdng va dia phffdng; nang lffc cua can bp, cdng chffc; dd'i chieu vdi md hinh td chffc chinh quyen do thi cac nffdc trong bdi canh toan cau hda... Song van de cd ban cd tinh phd quat cung nhff tinh quy luat khi xem xet viec td chffc chinh quyen thanh phd trffc thude Trung ffdng la can cff vao dac diem quan ly nha
nffdc va cung ffng dich vu cdng tai thanh phd.
Trong do, ddi tffdng quan ly se la yeu to' cd tinh quyet dinh dd'i vdi quan ly, chu the quan ly. Tat ca cac cdng trinh nghien cffu ve td chffc chinh quyen do thi ke tren d nffdc ta deu tinh den dieu nay de dd xuat md hinh chinh quyen dd thi ndi chung, chinh quyen thanh phd' trffc thuoc Trung ffdng ndi rieng. Cu the la thanh phd trffc thuoc Trung ffdng tuy theo dac diem ludn la trung tam chinh tri, trung tam kinh te, van hda, giao due, khoa hpc ky thuat... tao dpng life hay ed anh hffdng cho phat trien vung, mien hay ca nffdc. Stf phan chia cae ddn vi hanh chinh trong thanh phd va lap ra bd may quan ly tren dd chi la van de cd tinh nhan tao de quan ly va cung ffng dich vu cdng, dd la dieu khac ban vdi viec xac lap cac ddn vi hanh chinh ndng thdn. Trong khi do, ban than cd sd ha tang ky thuat va cd sd ha tang xa hdi d do thi lai la thd'ng nha't, lien thdng de phuc vu cho ca khd'i dan cff, khdng phan biet. Chinh dieu nay lam cho boat dpng cua chinh quyen d dd thi xet ve ban chat la cd tinh tap trung, thdng nha't trong quan ly nha nffdc va viec cung ffng dich vu cdng, dam bao sif cdng bang, binh dang, khdng chia cat quan ly. Do vay, ngoai chinh quyen thanh phd, viec thanh lap chinh quyen day du d ca hai hoac mot trong hai cap hanh chinh quan va phffdng It nhieu deu khdng tffdng thich vdi thffc te tren. Nd cat khuc hoac khuc xa quan ly, can trd, phan biet hoac lam bat tien viec thu hffdng dich vu cdng cua cdng dan...
Vdi nhan thffc van de nhff tren, trong cac phffdng an td chffc chinh quyen nhff tren, lffa chpn phffdng an thff hai la cd tinh triet de hdn, theo dd, chi td chffc HDND va UBND d cap thanh phd, cdn d quan va phffdng chi cd cd quan hanh chinh dffdc gpi la van phdng hay dai dien hanh chinh. Can trd chii yeu nha't trong viec tiep can phffdng an nay la van de dan chu. Thffc hien dan chu nhff the nao khi d quan, phffdng chi cd van phdng hanh chinh hoac dai dien hanh chinh? Lam the nao de ngffdi dan do thi the hien dffdc y chi, nguyen vpng va thifc hien dffde quyen giam sat ddi vdi cd quan hanh chinh khi khdng cd HDND? That ra, day khdng phai la life can khdng the vffdt qua. Van de then chdt chi la chung ta cd mud'n thffc hien dan chu thtfc chat hay khdng. Khdng thieu cac phffdng thffc thffc hien dan chu trong xa hdi hien dai de ngffdi dan thtfc hien quyen lam chu cua minh, nha't la trong dieu kien cuoc each mang cdng nghiep 4.0 •
TAI LIEU THAM KHAO:
1. Bui Xudn Ddc, Doi mdi, hodn thien bd mdy nhd nUdc trong giai dogn hien nay, Nxb. TUphdp, Hd Ndi, 2004.
2. Bdo cdo De tdi khoa hoc cap Bd tgi Hoc viin Hdnh chinh qudc gia "Thii't lap md hinh td chdc chinh quyen do thi", Chu nhiem: Pham Hong Thdi, Hd Ndi, 2003.
3. Td trinh ve De dn md hinh to chdc chinh quyen dd thi (du thao) ngdy 23/01/2013 cua Bd Ndi vu.
4. Vd Thu, Doi mdi md hinh to chdc chinh quyen dd thi trong sdch "Nhdng vdn de ly ludn vd thUc tien ve chinli quyen dia phuang d Viet Nam hien nay", chu bien: Li Minh Thdng, Nxb. Chinh tri qud'c gia, Hd Ndi, 2002.
5. Bdo cdo ki't qud nghiin cdu de tdi cdp Bd cua Viin Nghien cdu lap phdp "Xdy dUng md hinh chinh quyen do thi d nudc ta hien nay - Casd ly ludn vd thUc tiin, Chu nhiem: Li Minh Thdng, Hd Ndi, ndm 2014.
6. Li Minh Thdng, Doi mdi, hodn thien bd mdy nhd nUdc phdp quyen xd hdi chu nghia cda nhdn ddn, do nhan ddn, vi nhdn ddn d Viet Nam Men nay, Nxb. Chinh tri qud'c gia - Su that, Hd Ndi, 2011.
Ngay nhSn bai: 6/9/2018
Ngay phan bi§n danh gia va sufa chffa: 16/9/2018 Ngay chap nhan dang bai: 26/9/2018
Thdng tin tdc gid:
1. PGS.TS. VU T H U
Vien Nha ntfdic va Phap luat, Vien Han lam Khoa hoc xa h6i Viet Nam 2. ThS. DINH NGUYEN MANH
Nghien ctfu sinh Hoc vien Khoa hoc xa hoi, Vien Han ISm Khoa hoc xa hoi Viet Nam
SOME CURRENT ISSUES RELATED TO ORGANIZE THE AUTHORITIES OF CENTRALLY CONTROLLED CITIES
IN VIETNAM
• Assoc.Prof, Ph.D. VU THU
Institute of State and Law, Vietnam Academy of Scoclal Sciences
• Master. DINH NGUYEN MANH
Post graduate student. Graduate Academy of Social Sciences Vietnam Academy of Scoclal Sciences
ABSTRACT:
Since the establishement of the provisional government during the August Revolution in 1945, the authorities of centrally controlled cities were also set up with designated important roles and tasks. This article is to identify issues related to organize the authorities of centrally controlled cities and opinions about proposed choices of the authorities structure.
Keywords: Authorities of centrally controlled cities, Vietnam.
