StTA DOI HIEN PHAP:
NHIN Tir CHIEN LlTOC PHAN CAP QUAN LY
NGUYEN CUtf VIET * TRirONG DAC LINH **
B
ao cao chinh tri cua Dai hdi Dang lln thu XI da viet: "Khdn truomg nghien cuu, sua doi, bo sung Hiin phdp ndm 1992 (da duac sua doi, bo sung ndm 2001) phii hcrp vdi tinh hinh m&i" (muc XI. 1). Thuc hien chii tnrong nay, bai viet gop phin ban luan nham doi mdi cac quy dinh vd md hinh to chire dem v} hanh chinh - lanh tho va td chuc chinh quyen dia phuang d nuoc ta nhin tir chien lugc phan cap quan ly. Vi khai niem"phan cap quan ly" lien quan den cac khai niem "tap quyen" "tan quyen", "phan quyen"
va "tu quan dia phucmg", nen chiing tdi se bat dau tu viec diem qua khai quat cac khai niem nay.
1. Cac khai niem lien quan / . / . Khdi niem "tap quyen"
Theo tieng Anh va tieng Phap, tap quyen la "centralization", la nguyen tac td chuc chinh quyen nha nudc c6 noi dung la su tap trung mgi quyen luc vao trung uong. Cac co quan trung uong nam quyen quyet dinh mgi van dd tu trung uong ddn dia phuang. Cac ca quan chinh quyen dia phuang khdng co quydn chu dgng, sang tao, chi tuan thii, phuc tung moi quydt dinh tir cap tren dua xuong.
Tap quydn co cac hinh thiic: tap quydn tuyet ddi; tap quydn co phan chia trach nhiem va tap quydn XHCN (kdt hgp vai nguyen tSc toan quydn X6 Viet).
1.2. Khdi ni$m "tdn quykn"
Tan quydn, theo tidng Phap la
"deconcentration", nguyen nghla la phi tich
* va ** PGS-TS, Truomg DH Luat Tp. H6 Chi Minh.
tu, la "chinh sdch thong qua do cdc cong ehirc nhd nudc trung uang tgi dia phuang, do nhd nudc trung uang cu xuong dia phuang, duac giao nhitng thdm quyen md trudc kia do cdc bo true tiep ndm giir''' '. Ly thuydt vd tan quydn co thd ndi la dugc bat dau tu Hoang d^
Napoleon va sau do dugc khoa hgc luat hanh chinh Phap phat tridn. Theo do, cac dai didn cua trung uong khdng nhung thuc hidn quydn giam sat dia phucmg ma con true tidp thuc hidn quyen lire ngay tai dia phuang. Cac dai didn nay khdng co tu each phap nhan, khdng cd nang luc phap ly dd kidn tung, khdng cd tai san va ngan sach rieng, mgi viec deu chiu trach nhidm trudc chinh quydn trung uong.
Tan quyen ciing la tap trung quyen lire, nhung cac CO quan tan quydn dugc td chuc theo thii bac ca ve van ban va ve nhan su.
1.3. Khdi niem "phdn quyen"
Phan quydn theo tidng Anh va tidng Phap la "decentralization", nguydn nghia la phi tap trung, vi "centralization" la tap trung.
"Decentralization" thudng noi tdi d day la
"administrative decentralization", tiic la phi tap trung hda quan ly hanh chinh theo lanh thd, theo do quydn han dugc chuydn giao ttr chinh phii trung ucmg ddn cac don vi chinh quyen dia phuang dugc hudrng qui chd theo luat dinh. Thuc ra tap quydn cd phan chia trach nhidm, tan quydn hay tu quan dia
' Phat bieu cua ong Philippe Marchand trong Ky yeu Hpi thao "Phdn cdp, phdn quyen giira trung uomg vd dia phucmg vd quy che dac thit ciia cdc thdnh phd /OTI " tai Nha phap lu^t Viet - Phap ngay 1,2 va 3 thang
10 nam 2001.
TAP CHI KHOA HOC PHAP LY SO 3/2011 phucmg ciing deu la cac hinh thiic cua phi tap
trung hda quan ly, nhung khi noi den phan quyen la noi den hinh thiic phi tap trung hda cao, theo do nha nudc trung uang chuyen giao (bang hien phap va luat) cho cac hgi dong dan bieu dia phuang nhiing quyen han dgc lap va toan ven (bao gdm ca phuang tien vat chat, tai chinh, nhan su...), trong pham vi d6 no thuc hien mgt each chii dgng, dgc lap va tu chiu trach nhiem.
1.4. Khdi niem "tie qudn dia phuang"
Khai niem "tu quan dia phucmg" bat ngudn tu khai nidm phan quydn. Nhung phan quyen hidu theo nghTa cua Phap thi khdng ddng nhat vai tu quan dia phuang. Vi theo ong Bayle^, thi "phdn quyen co the hieu Id „ quyen tu qudn " chir nhdt dinh khong co nghia Id tu tri dia phucmg". Cdn theo Lien minh chau Au thi phan quyen la tu quan dia phucmg. Vao nam 1985, Hgi ddng chau Au da thong qua mgt Cong ude bao gdm khoang 20 dieu ve quydn tu chii ciia dia phuang. Day la dieu uac quoc te duy nhat co ngi dung la nhiing nguyen tac chung, cac tieu chuan chung nhat vd tu quan dia phuang ma cac nueDfc mudn tham gia Cgng ddng chau Au phai thuc hien.
Tu Cdng ude nay va ly luan ciing nhu thuc tidn chd do tu quan dia phuang, c6 the nit ra mgt sd ket luan sau day: (1) Co quan tu quan dia phuang, chii yeu la hgi ddng do dan bau theo phuang thiic phd thdng dau phieu, chi dai didn cho dia phuang; (2) Dia phucmg CO quydn tu xae dinh ca cau td chiic hanh chinh cua minh; (3) Cac ca quan tir quan dia phucmg cd tu each phap nhan (co tai san, co ngan sach, cd dia giai hanh chinh); (4) Khdng ton td thii bac hanh chinh giiia cac chinh quyen phan quyen va tu quan dia phucmg giira cac dan vi hanh chinh - lanh thd nho, Ion nSm trong nhau; (5) Cgng ddng dia phuang dugctrao quydn tu quydt hoae dugc tham van ve van dd thay ddi dia giai hanh chinh ciia minh; (6) Quydn tu chii ciia dia phuang phai
^ Xem phat bieu ciia ong Bayle tren Hpi thao da din.
dugc phap luat quoc gia thua nhan, tot nhat la bang hidn phap; va (7) Chinh quydn trung uong kidm soat chinh quyen phan quyen va tu quan dia phuang duai nhvmg hinh thiic khac nhau theo luat, chu yeu la thong qua co chd tai phan. Tu nam 1998, Lien hgp qude Cling da soan thao Hien chuang quoc te vd Tu quan dja phucmg va dang du dinh dua ra Dai Hgi ddng xem xet. Nhieu khu vuc, trong dd cd ca cac nuac ASEAN da thanh lap cac hidp hgi tu quan dia phuang ...
1.5. Khdi niem "phdn cap qudn ly"
Hai thuat ngir "phan cap" va "phan cap quan ly" thuc ra nhu la mgt, vi mudn quan ly thi thuong phai "phan cap", phan cip la dk tien quan ly."Phan cap quan ly" la "khai nidm Viet Nam", nhung co le nd xuat xii tir rmac ngoai vai nguyen tac phi tap trung hda quan ly, hay phan quyen va "tan quydn".
Quan diem ciia cac hgc gia Viet Nam ve phan d p quan ly rat khac nhau, nhung nhin chung thudng quan nidm do la sir phan cdng hgp ly chiic nang, nhiem vu, quyen ban, trach nhidm giiia cac cap chinh quyen dia phuang cho phu hgp vdi dac diem cua mdi cap nham phat huy tinh tu chu, sang tao ciia cae cap nham thuc thi quyen luc nha nuac dat hieu qua cao nhat. Nhung neu khdng cd dan vj hanh chinh - lanh thd thi phan dinh tham quyen, chiic nang, nhidm vu cho ai, vi td chiic dem vi hanh chinh - lanh tho la ca sd cua phan cap quan ly. Cac cai each hanh chinh ldn trong lich su nudc ta va tren the giai, ddu bat dau bang vide phan chia lai cac dan vi hanh chinh - lanh thd. Lugc su cac tridu dai, trudc hdt la cac tridu dai Viet Nam, khi mdi nim chinh quyen, viec lam diu tien la xem xet lai-vide td chiic ndn hanh chinh, trong do Co vide td chiic - phan chia cac cac dan vi hanh chinh - lanh thd. Minh chiing la Cai each hanh chinh thai vua Le Thanh Tdng va Minh Menh. Cac Hidn phap nudc ta cung ddu quan tim quy dinh vd cac dan vi hanh chinh - lanh thd va theo do mai quy dinh each td chiic chinh quydn dia phuang.
Nhu vay, theo chiing toi, khai niem "phan cap quan ly" d nuac ta cin duac hidu la "su
phan chia cac dan vi hanh chinh - lanh thd, td chiic chinh quydn dia phuang va phan dinh tham quydn hgp ly giiia cac cip chinh quydn tuang ling cho phii hgp vdri chiic nang, nhiem vu va dac didm ciia mdi d p dd nhim thuc thi hidu qua ban quydn luc nha nude".
C6 the bieu thi miic do su phat tridn ydu td dan chu tu thip ddn cao trong td chiic quan ly theo lanh thd cua cac khai nidm da xem xet nhu sau: Tap quydn. Tan quydn, Phan d p quan ly, Phan quydn, Tu quan dia phuang.
Ciing cd the ndi tu quan dia phuang la hinh thiic phan d p quan ly triet dd nhit.
2. Mo hinh td chuc don vi hanh chinh - lanh thd va rao hinh td chuc chfnh quyen dia phuong if nudfc ta qua bdn ban Hien phap
Nhin khdi qudt, suphdn chia dan vi hdnh chinh - lanh tho vd to chdc chinh quyen dia phucmg theo Hien phdp 1946 khd da dgng:
nudc dugc chia thanh bd/ ky, tinh, huydn va xa; chi xa va tinh la td chiic ca Hdi ddng nhan dan (HDND) va Uy ban hanh chinh (UBHC), huydn va ky chi cd UBHC, nghia la huydn va ky dugc coi la cap trung gian, khdng ca ban.
Ky sau do chia thanh cac khu, lien khu va thidt lap UBHC kliang chidn d do. Sau nay, tuy cac khu, lidn khu khdng cdn la don vi chinh thiic, nhung ludn la co sd dd td chiic quan dgi va trong khang chidn chdng My d midn Nam la ca sa de, td chiic Dang (khu iiy, lien khu iiy). Hidn phap 1946 da nhae den dan vi hanh chinh thdnh pho vd thixa (Didu 58) va theo Sic lenh sd 77 nam 1945, thanh phd dugc chia thanh cac khu phd^, nhung d khu phd liic nay chi cd UBHC.
Tinh da dgng gidm ddn tir Hien phdp 1959, cdn Hien phdp 1980 Id dinh cao cua tu duy hdnh chinh cimg nhdc, mdy moc, cdo bdng moi logi, khong co su phdn biet lanh tho tu nhien vd nhdn tgo, dan vi hdnh chinh - lanh tho ca bdn vd khong ca bdn, thdnh thi vd
^ DiSu 1 S5c l?nh so 77 ngay 21/12/1946 quy dinh:
"cac tinh ly vd nhirng nai do hgi md lau nay ve mat hdnh chinh duo'c bi?t lap vd true tiep v&i tinh, tir nay se ggi Id thi xd"
nong thon, mien niii, mien xudi vd hdi ddo...
Rieng Hien phdp 1992 khong quy dinh viec thdnh lap chinh quyen dia phucmg md gidnh cho lugt (Dieu 118). Tu Hien phap 1959 nuac dugc chia thanh 3 loai dan vi hanh chinh:
tinh, huyen, xa va d mgi dem vi hanh chinh ddu td chiic HDND va UBHC (tii Hidn phap 1980 la Uy ban nhan dan (UBND)), kd ca khu phd/quan, phuomg - nhimg dom vi hanh chinh nam trong don vi hanh chinh ca ban.
Hien phap 1980 dua ra khai niem "dom vi hanh chinh tuomg duang" (Didu 113) va sau dd Didu 4 Luat Td chiic HDND va UBND nam 1994 va 2003 quy dinh: tinh, thanh phd true thudc trung uomg dugc "goi chung Id cdp tinh"; Huydn, quan, thi xa, thanh phd thudc tinh dugc ,goi chung Id cdp huyen" v.v.
Dang luu y la Hien phap 1992 cd xu hudng tang cudng vai trd ciia Chu tich UBND (cving nhu ciia Thii tudng). Tu nam 2009 bat dau thi didm khdng td chiic HDND quan, huydn, phudng va hidn nay van dang dugc tidp tue thuc hidn. Nhu vay, liic nay da bat dau cd su nhan thiic phai da dang hom td chiic cac cap chinh quydn dia phuomg.
Tinh ludn la dan vi hanh chinh - lanh thd CO ban mgi thdi ky. Thdi ky Hidn phap 1959 quy dinh them loai khu tir tri (ngang cap tinh), nhung ddn nam 1975 hai khu tu tri Viet Bac va Tay Bac bi bai bd. Tu nam 1974 cae khu phd ciia thanh phd Ha Ndi va Hai Phdng dugc chia thanh tieu khu, a dd chi cd Ban dai dien la td chiic mang tinh tu quan ciia nhan dan tidu khu. Thdi ky Hidn phap 1980 thdm dac khu Viing tau - Cdn Dao (ngang cap tinh), nhung ddn Hidn phap 1992 lai bj bai bd. Tu Hidn phap 1959 dat ra loai "thdnh pho trifc thuoc trung uang", va chia thanh
khu phd: Tu day, khu phd (tu Hien phap 1980 ddi thanh quan) cd ca HDND va UBHC (sau la UBND).
Huyen la loai dom vi hanh chinh cd sd phan thang tram. Thi xa va thanh phd thugc tinh thi ludn la dan vi hanh chinh ca ban, cd ca HDND va UBND. Quan la cap dom vi
TAP CHI KHOA HOC PHAP LY SO 3/2011 hanh chinh thudc thanh pho thanh phd true
thudc trung uomg, ciing nhu phudng la cap dan vi hanh chinh thudc quan, thi xa va thanh phd thudc tinh, xuat hidn tu Hidn phap 1980.
Xd, thi tran ludn la dom vi hanh chinh ca ban mgi thdi ky, cd ca HDND va UBND.
3. Khai quat mo hinh td chuc don vi hanh chinh - lanh thd va mo hinh td chuc chfnh quyin dia phuong tren thg gidi
3.1. Ca sd khoa hoc ciia viec phdn chia dan vi hdnh chinh - lanh tho tren the gidi
Thuc tidn phan chia cac dom vi hanh chinh - lanh thd d cac nudc tidn tidn trdn thd giai, nhin khai quat, dua trdn khai nidm
"lanh tho nhdn tgo " vd "lanh tho tu nhien "
dugc dua ra bdi khoa hgc luat hanh chinh.
Khai niem nay can cii vao cdc tieu chi dinh tinh.
Dan vi lanh tho tu nhien nhu ten ggi ciia nd la cac dom vi hinh thanh mdt each tu nhien, lau dai trong lich sii, dan cu quy tu lai thanh cdng ddng, cd quan he chat che lau ddi, cd tinh cd kdt cao, thudng la theo dau hieu huyet thdng, nghe nghiep, dan tgc, tdn giao, ldi sdng, cac dac didm chung vd dia ly tu nhien, thd ngir v.v. Cac dan vi lanh thd tu nhien khdng phai la mdt khudn mau chung ma rat da dang vd sd lugng ciing nhu mat do dan cu, didn tich lanh thd va khdng phan bidt dac diem dia ly, cd the la do thi hay ndng thdn, mien mii hoae midn xudi, dat lidn hoae hai dao v.v.
Dan vi lanh tho nhdn tgo la cac dom vi hinh thanh mdt each nhan tao, co hgc thuan tiiy theo quydt dinh hanh chinh, do, tien cho vide quan ly vd hanh chinh, vi du, cac viing d Phap, Y, hay ky/bd, khu, tinh, huyen, xa a Viet Nam ciing thudc loai nay. Tu khai nidm nay thi dom vi lanh thd nhan tao cdn bao gdm ca nhiing dd thi, huydn, quan, xa, phudng da va dang dugc hinh thanh mdt each nhan tao, CO hgc thuan tiiy theo quydt dinh hanh chinh nhu d Viet Nam, ca nhirng do thi trong do bao gdm ca nhirng viing ndng thdn thuan tiiy va hai dao.
2.2. Cdc vi du dien hinh
+ Cdc nudc theo mo hinh tap quyen tren thd gidi cdn rit it. Dd la, vi du: Arap Xeiit;
Brunay; Cd-oet; Kenya,... Mianma la truomg hgp dac biet: trudc 30/3/2011 thuc chit la chd do quan su tuy cd 7 bang va 7 vung, tu 30/3/2011 da chuydn giao cho chinh quydn dan su vdi Id nham chiic ciia Tdng thdng mdi dac cu.
+ Cdc nudc theo mo hinh phdn quyen (tu qudn dia phuang):
My la nudc cd truyen thong tu quan dia phuomg lau ddi: My cd 50 bang cdng vdi quan Columbia nai chinh quyen My ddng dgc lap nhu mdt bang. 50 bang chia thanh gan 3 ngan lanh dia (cdn ggi la hat), gan 17 ngan thi tran, lang xa, gan 14.500 khu trudng bge va gan 33 ngan cac khu dac bidt khac "*.
Tat ca cac loai dom vi hanh chinh tren ddu la dom vi tu quan. Md hinh chinh quydn da dang, khdng theo mdt khudn mau nao, dac biet ddi vdi do thi: thi trudng - hdi ddng, uy ban (deu dugc dan bau) va nha quan ly thanh phd (dugc hdi ddng thud) hay kdt hgp hai hay ba hinh thiic do. O ndng thdn bdn canh chinh quydn tu quan cdn phd bien hinh thiic "cugc hgp thi tran" nhu mgt hinh thiic dan chu trirc tiep cd truyen thdng da hom hai tram nam. So dl cd su da dang do vi td chiic chinh quydn dia phuang theo Tu chinh an sd 10 cua Hidn phap My thudc tham quydn ciia cac bang, ma hem 40 bang an dinh rang Qude hgi bang khdng cd quydn thdng qua luat didu chinh mdt each chi tiet vin dd quan ly dia phuang, nen td chiic va boat ddng ciia cac ca quan cdng quydn d dia phuang do chinh cac dia phuang tu quy dinh.
Rat nhidu nuac theo md hinh phan quydn nhu eac nudc Lidn minh chau Au (EU), Canada, Nga, Nhat v.v.
" Theo con so ciia trang web cua Dai su quan My thi hien nay co khong duoi 84.955 don vi chinh quySn dia phuang tren toan Hop chung qu6c, g6m cac h^it, thi tran, tieu thi tran, cac khu hanh chinh - giao due, va cac dac khu (xem: "Chuong 7: Mot d4t nuac nhiSu chinh quyen" http://vietnamese.vietnam.usembassy.
gov/doc usgovemment vi.htmll
+ Cdc nudc theo mo hinh kit hap tdn quyen vd phdn quyen:
Phap la vi du didn hinh vd Nha nudc dom nhit cd truyen thdng nay lau ddi. 6 Phap, hidn nay chia ra 26 vung (22 vung qude ndi va 4 vung lanh thd hai ngoai), 100 tinh va 36779 cdng xa. Mdt lang nhd, mdt thi trin nhd cd dudi 100 dan ciing la mdt cdng xa, nhung ca Paris nhidu tridu dan cting la mdt cdng xa va cac cdng xa ldm, nhd khac nhau nhung khdng nam trong nhau. Cac cdng xa cd thd nam trong tinh, nhidu tinh hgp lai thanh vung, nhung cd tinh chi la mdt cdng xa nhu Paris. Vd td chiic chinh quydn, ndi chung ca vung, tinh va cdng xa tu nam 1982 deu la dugc coi la cd tu each tu quan (phan quyen).
Ba thanh phd ldn (Paris, Lion, Marseil), dao Corse (tu Dao luat ngay 13/5/1991) va 4 vung lanh thd hai ngoai cd quy che dac biet. Vi du, Paris, Lion, Marseil chia thanh cac quan vdi Hdi ddng quan va Quan trudng, dugc bau cir cung thdi gian vdi cac Hdi ddng cdng xa (theo Luat ngay 31/12/1982). Co quan tan quyen la Tinh tmdng do Chinh phu bd nhidm, chi la dai dien ciia chinh quyen trung uang tai dia phuang, true thudc chinh quydn trung uang va de kidm soat chinh quydn dia phuang. Tinh trudng va cac ca quan tu quan hoan toan dgc lap vdi nhau va hinh thii'c kiem soat va giai quydt tranh chap giiia chiing la bing ca chd tai phan hanh chinh.
Y, Ai Cap... la nudc dan nhat vdi md hinh dac trung kidu Phap. Diic tuy la theo chd do tu quan dia phuang nliung ciing ed yeu td tan quydn d vung - d p dom vi hanh chinh ldn nhat.
+ Mo hinh tap quyen XHCN Trung Quoc:
Cac dem vi hanh chinh - lanh thd vdi ba cap ca ban la tinh, huydn va xa, nhung tdn ggi va quy chd rit da dang, la: tinh (22), vung tu tri (5), thanh phd true thudc trung uang (3); khu tu trj, cac huydn, cac huydn tu tri, cac thanh phd thugc tinh, cac quan trong thanh phd;
cac lang, cac ban dan tgc va cac xa. Ba loai dan vi hanh chinh ca ban ddu thanh lap Hdi
ddng dai bidu nhan dan (Nhan dai) va Chinh phu nhan dan dia phuang do Nhan dai bau ra.
Nhu vay, chd do tu tii dan tdc rat rdng rai, da dang d nhirng viing nhieu dan tdc thidu sd.
Mdt didm dac thu niia la Trung Qude thanh lap rat nhieu dac khu vdi quydn dgc lap d miic do khac nhau, chua kd Hdng Cdng, Ma Cao la lanh thd tu tri ca vd chinh tri. Ngoai ra cdn cd cac "dom vi hanh chinh - lanh thd trung gian": cac khu trong cac tinh, cae viing trong mdt sd huydn (tidu vung) va cac khu phd (tidu quan), d do chi cd cac ca quan hanh chinh dugc bd nhidm bdi chinh phii nhan dan cap trdn. Can luu y rang ngay "md hinh Xd Viet" truydn thdng ciing cdng nhan quydn tu tri rdng rai trdn cac lanh thd tu tri d rat nhidu cap khac nhau: nudc cdng hda tu tri, viing tu tri, khu tu tri, v.v.
4. Cac dac diem chii yeu ciia md hinh td chii'c don vi hanh chfnh - lanh tho va md hinh td chuc chfnh quyen dia phuong 6" nud'c ta hien nay
Theo chiing tdi, qua so sanh khai quat vdi kinh nghiem thd gidi va vdi lich su nudc ta, to chire don vi hdnh chinh - lanh tho vd to chifc chinh quyen dia phuang cita nuac ta Men nay khong chi cimg nhdc vd khudn sdo han nhieu ldn so v&i cdc nuac khac tren the gidi, md cdn cimg nhdc vd khudn sdo han cd
thdi gian trudc ndm 1980 a nuac ta, ciing nhu "mo hinh X6 Viet" truyen thong vd cua nudc XHCN Trung.Quoc hien nay.
Cu thd, theo chiing tdi, md hinh nay cd cac dac didm chu ydu sau:
1) Md hinh to chiic dom vi hanh chinh - lanh thd cua nudc ta rat may mdc theo ba cap khdng phan bidt dd thi va ndng thdn, midn mii, midn xudi va hai dao; nudc chia thanh 63 tinh, thanh phd true thudc trung uomg la qua nhieu dau mdi. Ciing phai thay rang, thdi ky Hidn phap 1946 cd td chiic da dang ban, va nhirng thap nidn sau cd tim tdi, nhung la su tim tdi theo tu duy chu quan thd hidn nhu sau:
Giai doan tu 1960 cho ddn hidn nay da cd cac cudc didu chinh ldm eac dom vi hanh
8 TAP CHI KHOA HQCPHAPLfSO 3/2011 chinh - lanh thd. Tu nhiing nam 1960 -1970,
nhat la tu nam 1976, da tien hanh hop nhdt ca hoc cd ba cdp tinh, huyen, xd, chii trgng tdng cudng cdp huyen ca ve lanh thd, xay dung thanh "phao dai" ca vd td chiic, ngan sach, quoc phdng. Ket qua la ca nuac cdn 36 tinh, 3 thanh phd true thugc trung uomg va mgt dac khu Viing Tau - Cdn Dao. Tu cudi nhiing nam 1980, do "su phinh to ca hgc" cac dom vi hanh chinh da cho thay khdng hieu qua, tham chi gay nhidu bat dn, nen sau dd cac tinh, quan, huydn, phudng, xa lai dugc chia tach dd trd lai hidn trang nhu trudc khi sap nhap. Bdn canh dd lai tdn tai song song qua trinh thanh lap, chia tach mgt each ca hgc cac quan, huydn, xa, phudng, thi tran mdi,
"nang cap" tinh len thanh phd true thudc trung uomg, "nang cap" cac thanh phd thugc tinh ma thudng xuydn dugc the hidn bang cac Nghi dinh cua Chinh phu dugc thdng bao trdn he thdng van ban quy pham phap luat qude gia, chua kd vide ldn he trgng tim qude gia la sap nhap tinh Ha Tay va mgt sd huyen thanh Thii dd Ha Ndi mdi. Theo sd lieu thdng ke cac dom vi hanh chinh cua nudc ta (tinh ddn ngay ddn 31/12/2009), ca nuac cd 63 dom vi hanh chinh cap tinh (trong dd cd 5 thanh phd true thudc tmng uomg); 692 dom vi d p huydn (trong dd cd: 556 huydn, 47 quan, 48 thanh phd thudc tinh, 46 thi xa); 11.112 dem vi d p xa (trong do cd: 9.121 xa, 1366 phudng va 625 thi trln)^
2) Md hinh chinh quyen dia phucmg ndi chung la "mo hinh Xd viet" - mang tinh chit
"tdng hda", "tdng hgp", tiic la tap hgp mgi yeu td ciia tap quydn, tan quyen va phan quydn ket hgp uy quydn dudi quan didm chinh tri XHCN. Trong do cdc yeu to tap quyen la chu dgo, tdn quyen Id pho bien, phdn quyen rdt yeu dt vd cd le, iiy quyen dien rapho bien dgt
dudi su lanh dgo true tiep, todn dien vd tuyet doi cua Ddng.
Ydu to tap quydn la chii dao vi do ehinh la ban chat cua nguyen tic tap quydn XHCN, the hien trong mgi ngdc ngach cua td chiic va
' Ngu6n: website T6ng cue thSng ke: http://www.
gso.gov.vn
hoat ddng ciia bd may nha nudc ndi chung, chinh quydn dia phuang ndi rieng; v.v.. Bg may nha nuac ddu td chiic thanh he thong true thugc theo thii bac chat che, ca trong quan he giua trung uomg - dia phuang, cap dudi - cap trdn, giua UBND cac d p , ke ca giira HDND cac cap, mac du ve mat ban chat phap ly Quoc hgi va HDND cac d p khdng true thugc nhau, vi deu do dan bau, deu nhan su uy quyen true tiep cua dan. Vi vay, cd ngudi vi md hinh nay nhu cay thdng quay ngugc, hay vdi con lat dat cua dan tgc Nga.
Yeu td phan quyen the hien d chd HDND do dan bau la "ca quan quyen luc nha nudc" d dia phuang. Nhung tan quyen va phan quydn hoan quydn vdi nhau vi HDND va UBND ddu cd tmh hai mat, "song triing", tao thanh he thdng true thudc thii bac trdn - dudi. Trong do, tan quyen la phd bien the hidn d chd ca UBND va cac ca quan chuyen mdn thudc UBND ddu td chiic va boat dgng theo nguydn tac true thudc hai chidu. Ben canh dd, rat nhidu ca quan, bg phan true thugc Chinh phu va cac bd, nganh ddng d dia phuang. Thdm vao dd la su uy quydn phd bidn nhung tam thdi, khdng dn dinh. Chinh quyen cd "tinh hai mat", ciing nhu "con ngudi hai mat", se khdng bao gid hoat ddng tdt, vi chinh quydn la gdm nhiing con ngudi. Trong vide phan cap, do do, cang nhidu lan ldn.
3) Nguyen tdc to chuc dom vi hdnh chinh - lanh tho vd to chire chinh quyen dia phuang khong ro rdng. Tap trung ddn chd dugc quy dinh la nguyen tac td chiic va hoat ddng chung cua ca he thdng chinh tri, ciia ca bd may nha nuac, ciia tiing ca quan, td chiic nha nudc va xa hgi, nhimg bdi chinh su rgng ldn, phiic tap va khdng cu the, ro rang cua nd, ndn nguyen tic nay dugc giai thich va van dung tiiy tien, la mgt trong nhirng can nguyen din den vi pham dan chu trong mgi ca quan, td chiic, bdn canh dd lai md ldi cho cho su tu do, vd chinh phu.
4) Tinh trgng bao bien cua cdc ca quan cua Ddng doi vdi cong viec cua chinh quyen Id cdn benh kho chira do nhirng co gdng doi mdi su lanh dgo cua Ddng dd tien hdnh da
han nhieu thdp nien md vdn chua dieu tri duac. Vi thd, khdng cd ca quan nao la dgc lap va cd thuc quydn, vi quydn lanh dao tdi cao, true tidp, toan dien va tuyet doi thugc vd Dang. Didu nay ciing khdng gay ngae nhien, vi chiing ta chua thoat khdi md hinh cue quydn.
Nhirng dac diem va cung la nhirng ban chd trdn chiing td md hinh chinh quydn dia phuang nuac ta da qua ldi thdi, kim ham rit ldm, rit nghidm trgng den tinh chii ddng, sang tao phu hgp vdi dac didm ciia cac dia phuomg ndi rieng, va do dd anh hudng ban chd su phat tridn vd mgi mat cua dit nudc. Hau qua chung la hidu luc, hidu qua ciia chinh quyen dia phuang thap, dan chu trdn giay td va dan chii trdn thuc td each nhau rat xa, dja phucmg cham phat tridn, dit nude cham phat tridn.
Nhirng didu nay ciing ndi ldn sir can thidt phai thay ddi vd md hinh td chiic dom vi hanh chinh - lanh thd va md hinh td chiic chinh quydn dia phuomg ciia nudc ta.
5. Phuong hudng, giai phap ddi mdi mo hinh to chuc dan vi hanh chfnh - lanh tho va mo hinh to chuc chfnh quyen dia phuong o" nud'c ta
5.1. Nhu cau cap bdch ciia thuc tien Nhu d u dd thd hidn rd qua cac sir kidn didn hinh trong thuc tidn hom mdt thap nidn vua qua. DIU tidn phai ke ddn hidn tugng ban hanh "Quy chd dan chii co sd" cd nggn ngudn ddu la do tinh trang mit dan chu d co sd: xa, thdn d mgt sd dja phuang. Rdi ddn hidn tugng "xe rao" cua rat nhidu tinh, thanh trong vi?c ban hanh cac quy dinh ve khuydn khich diu tu, thuc hidn chinh sach thud, tham chf ca vd xii ly vi pham hanh chinh, v.v.
Thdi gian sau la su kidn thanh phd Hd Chi Minh trinh Chinh phii xin quy chd ridng, nhung cudi cung chi la Nghi dinh sd 93/2001 vd phan d p mgt sd cho th^nh phd, khdng hom cac tinh thanh khac la bao nhieu. Tiep ddn la
|[vi$c thanh phd ndy trinh Chinh phu, Bd chinh
tri md hinh ehinh quydn do thi va xin td chiic thi didm, ngi dung chu ydu ciia md hinh dd ciing gan vdi tu tudng vd phan quydn - trao nhidu quydn chu ddng cho chinh quydn do thi va thuc hidn chd do thii tmdng ddi vdi ca quan hanh chinh.
Sau dd la Thanh iiy Da Nang dd ra chii truomg xin td chiic thi didm dan bau true tidp Chu tich UBND thanh phd; Chu tich UBND thanh phd bd nhidm Chu tich UBND quan, huydn; Chii tich UBND quan, huydn bd nhidm Chu tieh UBND cap xa.
Cling thdi gian dd da thuc hidn vide Mat tran td qude cap xa td chiic bd phidu tin nhidm cac thanh vidn UBND cap xa, nhung qua thuc hidn thay nhidu tinh hinh thiic (vi vdn Mat tran la hinh thiic), ndn cd noi da manh dan td chiic dd nhan dan cap xa true tidp bd phidu tin nhidm, nhu d Quang Ninh.
5.2. Van de doi mdi mo hinh tong the ve phan cap qudn ly: td chicc dan v/ hdnh chinh - lanh thd vd chinh quyen dia phuang cf nudc ta
5.2.1. Quan diem dinh hudng
Can ddi mdi dd phat huy va da dang hda cac hinh thiic dan chu, bao dam quydn tham gia true tidp ciia nhan dan trong cdng vide nha nudc. Ben canh dd, can kd thua cd can nhae kinh nghidm lich su nudc ta, cac ly thuydt kinh didn va trao luu mang tinh quy luat cua cdng ddng qude td de ap dung mdt each sang tao. Dd ciing la dap iing nhu cau cap bach cua thuc tidn ndu trdn. Trdn ca sd dd, theo chiing tdi, "Thuc hien phdn cdp hap ly cho chinh quyen dia phuang di doi vdi ndng cao chdt lugmg quy hogch vd tdng cudng thanh tra, kiem tra, gidm sdt cua trung uang, gdn quyen hgn vai trdch nhiem duac giao... Tiep tue doi mdi to chire hogt dong cua chinh quyen dia phuang. Ndng cao chdt luang hogt dong cua HDND vd UBND cdc cdp, bdo ddm quyen tu chu vd tu chiu trdch nhiem trong viec quyet dinh vd to chuc thuc hien nhirng chinh sdch
10 TAP CHI KHOA HOC PHAP LY SO 3/2011 trong phgm vi duac phdn cdp. Nghien cuu to
chire, thdm quyen cua chinh quyen a nong thon, do thi, hdi ddo" (muc XI.2 Bao cao chinh tri trdn Dai hdi Dang thii XI) khdng gi khac hom la da dang hda cac loai hmh dan vi hanh chinh - lanh thd theo dac didm ridng tung loai va da dang hda md hinh td chiic chinh quydn dia phuang. Khdng chi ndng thdn, dd thi, hai dao, midn niii khac nhau, ma ngay mdi dia phucmg cung loai ciing khac nhau. Vi thd, chi cd mdt con dudng tdi uu:
thuc hidn chd do phan quydn, tidn dan tdi chd do tu quan dia phucmg. Vd nguydn tac td chiic, can cu thd hda nguydn tac mang tinh chinh tri chung chung la tap tnmg dan chii thanh nguydn tac tan quydn, kdt hgp phan quyen, bd nguydn tac song tning true thudc.
Tan quydn ket hgp phan quydn chinh la cu the hda ciia tap tmng dan chii.
5.2.2. Mo hinh tong the cu the
Can lira chgn quy dinh trong Hidn phap cac ndi dung sau day, vdi phuang cham quy dinh cang rd cang tdt, vi quy dinh Hien phap cd tinh phap ly cao va dn dinh:
Mot Id, can quy diiili ve dia gidi hanh chinh nudc chia thanh khu (hay vung), tinh, huyen va xa, cac loai dd thi.
Xae dinh khu la dom vi hanh chinh - lanh thd tmng gian, kd rd tdn tung khu trong Hidn phap. Khu chi cd ca quan hanh chinh nha nudc ggn nhe kidu "ca quan tan quydn", do Chinh phu bd nhidm, chi dai didn cho Chinh phii. Cd thd lay ca quan hanh chinh cac tinli, thanh phd ldn hat nhan ciia khu kiem ludn chiic nang ciia ca quan hanh chinh khu nhu mdt sd nudc dang lam. Loai ca quan hanh chinh nhu vay da cd d cap ky nudc ta thdi 1946-1960. Nudc ta hidn nay ciing cd
"nhiing ca quan dai didn" cua Chinh phii, cac bg d vung, midn, nhung chua la thidt chd chinh thiic. Ca quan tan quyen cd ba chiic nang chinh: quan ly mdt sd ITnh vuc va van dd can quan ly tap tmng cao, nhung rat ban
hiru; quan ly nhirng vin dh tdng thd ciia lanh thd khu, didu hda, phdi hgp cac tinh; va giam sat cac d p chinh quydn dia phuomg. Chiic nang quan ly tdng thd rit quan trgng, vi thidu phdi hgp giira bg nganh trung uomg va dia phuomg, giira cac tinh lien kd la diem nhiic nhdi hidn nay (nhu chuyen chdng d nhiem Kdnh Ba Bd giira hai dia phuang la Tp. Hd Chi Minh va tinh Binh Duang tu nhidu nam nay vin khdng giai quyet dugc).
Hai Id, tinh (true thudc tmng uomg cii) van nen la d p chinh quydn hoan chinh nhu hidn nay, nghia la cd Hdi ddng do dan bau true tidp va Tinh trudng do dan bau hoae hdi ddng biu tuy theo tung dia phuomg, dugc quydn tu quan, nhung khdng nhidu.
Ba Id, d n nghien ciiu trao nhidu quyen tu quan cho chinh quydn cac dd thi "cd" cd tmydn thdng, to ldn nhu Ha Ndi, cho den nlid nhu thi tran, vi do thi "cu" nao ciing la mdt dan vi lanh thd tu nhien, mdt chinh the thdng nhit vd mgi mat. Bd HDND d p quan va phudng, chi cdn ca quan hanh chinh ggn nhe nhu dang thi diem. Rieng Thii dd Ha Ndi va thanh pho Hd Chi Minh la cac "sidu dd thi", d n td chiic dac thu nhu ti-dn thd gidi: cd thd van cd HDND d cac quan dgc lap vd dia ly hoae thi xa, thi tran true thudc, nhung chiic nang can cai each khac trudc theo hudng chi dai didn cho nhan dan quan, thi tran trong mgt sd ITnh vuc, van dd chii khdng dgc lap vdi thanh phd. 6 tinh va do thi ldm (thanh phd true thudc tmng uomg cii) cd thd dat cac co quan tan quydn, nhung chi la nliirng co quan tan quyen tham quydn chuydn mdn can thidt.
Bon Id, can xem xet lai vide khdng td chiic HDND cap huyen. Huydn khac quan (trir quan dac bidt cua "sidu dd thi" nhu da ndi tren), nhidu nai tinh cd kdt rat cao, tham chi cd thd ngir, am sic rieng ciia tidng ndi. Vi vay, huyen van ndn la cap chinh quydn hoan chinh dugc mdt sd quydn tu quan, nhung khdng day du. Can luu y ring, d eac nudc tien tien khdng dan vi hanh chinli ca ban nao
la khdng cd hdi ddng do dan biu.
Ndm la, d n xem xet lai xd va thon, lang.
Nhidu xa hidn tai ehi la dom vi hanh chinh nhan tao, chi ndn la dom vi hanh chinh tmng gian. Ngoai ra, nhidu xa do da tdn tai lau ddi ndn cd tmydn thdng chung cua xa. "Ld lang - phep nude", "phep vua thua Id lang", v.v. tue ngii xua ndi ddn lang ma it ndi ddn xa. Xa nhu vay la dom vi hanh chinh - lanh thd ca sd, vin ndn la mdt cap chinh quydn hoan chinh nhu hidn nay, can cd quydn tu quan nhidu nhat.
Tuomg lai xa cd thd nghidn ciiu didu ehinh cac xa cii thanh cac xa mdi trdn co sd cac thdn/ lang/ ap/ ban/ phum/ sdc ... cd tinh cd kdt lau ddi, tuy nhidn, can dugc nhan dan d xa ung thuan. Khdng phai vd cd ma "Quy chd dan chu ca sd" la ap dung d ca sd thdn/lang/
ap/ban chii khdng d xa. Ciing khdng vi thd ma sg tdn tidn xay tru sd, vi da nhidu quydn tu quan thi xa, nhan dan xa tu quydt chi tu ngan sach xa, tmng uomg chi hd trg.
Sdu Id, cac khu tu tri da bd thi d cdc tinh, huyen, xd co ddn toe thieu so chiem dgi bo phdn ddn cwnen nghidn ciiu trao nhieu quyen
tu qudn han dan vi thudng. Can luu y rang, trong md hinh Xd Vidt d Tmng Qude hidn nay che do tu tri ddn tgc cd g mgi cap lanli thd dia phucmg, d Lien Xd cii hay nudc Nga hidn nay, chd do tu tri dan tdc rat da dang.
Bdy Id, thuc hidn che do thd trudng trong mgi loai ca quan hanh chinh, cd nhu vay mdi klilc phuc dugc tinh trang thidu trach nhidm, nan hgp hanh va bao dam dugc tinh nhanh nhay, kip thdi ciia hoat ddng hanh ehinh nha nudc va hanh chinh tu quan, mdi thuc hidn dugc y kidn chi dao nhu muc XI.2 Bao cao chinh tri trdn Dai hdi Dang lln thii XI da ndu:
"Ndng cao ndng luc du bdo, ung pho vd gidi quyet kip thdi nhirng vdn de mdi phdt sinh ".
Hanh phap phai la ca nhan - day la ly thuydt kinh didn ciia Montesquieu va each lam ciia thd giai. Duomg nhidn trong boat ddng phai kdt hgp ban bac tap thd. Tuy day la ndi vd
Chinh phu, nguydn tac nay ciing dugc ap dung vdi co quan hanh chinh dja phuomg.
Didu nay cung la thuc hidn chii tmomg dan bau true tidp chii tich xa. Cdn Quan tmdng va Tmdng phudng van do bd nhidm nhu dang thuc hidn thi didm hidn nay.
Tdm Id, "caquan tdn quyen chuyen mon"
mdt sd nganh dac bidt can quan ly tap tmng (thud, hai quan,v.v.) cd thd td chiic ddn cap tinh, cap huydn. Ridng canh sat, cdng an cd thd cd hai loai song song dde lap vdi nhau nam d dia phuomg la canh sat, cdng an trang uomg va canh sat, cdng an dia phucmg, trong dd cdng an tinh, huydn, xa va dd thi thudc chinh quydn dia phuomg; cdng an khu thudc Bd Cdng an.
Quan ddi thi chi true thude trung uong. Ridng ddi vdi ngach giao vidn va y bac sT (nganli giao due va y td) tmdc mat Nha nudc can tap tmng quan ly kdt hgp vdi su chii ddng ciia dia phuang va thuc hidn chinh saeh xa hdi hda.
Chin la, thidt lap he thong tdi phdn hdnh chinh doc lap, bd sung thdm tham quydn xet xii cac tranh chap giira cac cap chinh quydn dia phuang vdi nhau va vdi Dai didn Chinh phii va Dai didn cac bd. Duong nhidn, ddng thdi phai cai each he thdng tda an hanli chinh ddng bd vdi cai each tu phap ndi chung sao cho cd thd thuc hidn dugc nhidm vu nay.
Mirdi Id, nhat die hda chuc vu Ddng vd chinh quyen: khdng chi nhat thd hda chiic vu Bi thu Dang iiy cac cap vdi Chii tich UBND (sau nay la Tinh tmdng, Thi tmdng...) nhu dang lam, ma ca chiic vu Tdng Bi thu vdi Chii tieh nude. Day la each duy nhat dd su lanh dao ciia Dang trd thanh chinh dang, vi trach nhidm chinh tri tmdc Dang kdt hgp vdi trach nhidm tmdc nhan dan, tmdc phap luat. Day ciing la each duy nhat de tranh su bao bidn ciia ca quan Dang ddi vdi cdng vide nha nudc. Day ciing la each lam cua thd gidi. Cai each nay md ra tridn vgng rdng ldn vd tinh gian bd may cdng quydn khi sap nhap nhidu ca quan Dang va Nha nudc vdi nhau, trong khi do hidu luc quan ly nha nude lai tang ldn. •
