\ \ \ NGHliN COU-TRAO 001
M O T SO VAN DE LY LUAN CO BAN VE
QUAN TRI DIA PHU'ONG
Phan Thi Thu*
Nguyen Thi Quynh Trang**
Tom tdt: Chuyen doi td qudn ly dia phddng sang qudn tri dia phUdng (QTDP) Id mot xu hudng tdt yeu vd Id diem dong quy chung trong xdy ddng nhd nddc phuc vu ciia hdu hit cdc quoc gia dddng dgi tren the gidi Tuy nhiin, viic chuyen ddi ndy khdng ddn gidn vi xudt hiin nhieu ldc cdn khdc nhau, dgc biit d cdc quoc gia cd nen cdng vu chgm ddi mdi.
Bdi viet ndy phdn tich ldm ro mgt sd vdn de ly lugn cd hdn ve QTDP dddi gdc do hdnh chinh hoc vd lugt hgc, nham gdp phan ldm phong phu hdn vdn de mang tinh thdi sd d nddc ta hien nay.
Tiikhda: qudn tri, dia phddng, ly ludn, the che
Abstract: Transition from local management to local governance is an indispensable trend and a common convergence point in the state building for most contemporary countries in the world. However, this transition is not simple because there are many different obstacles, especially in countries with civil service slow innovation. The following article clarifies some of the most basic theoretical issues of the local governance in the perspective of Administration and Law and at the same time enriches the content of the research problem.
Keywords: administration, locality, reasoning, institution
Ngdynhdnbdi: 29/9/2019 Ngdy sdabdi: 15/10/2019 Ngdy duyet ddng:25/11/2019 1. Khai niem va dac diem QTDP "Quan trf dflp e hieu d mdt nghia eao
hdn. Cu the, ea quan ly va quan tri diu LL Khdi niem QTDP j , j ^ ^ ^ ^ ^.^^ ^, ^ ^^^ ^j^. ^.^ ^^^^ 15„ ^^
QTDP la mot cum tfl ghep bdi hai tfl d™ tiiang bSng nhflng phuang phap va dgc lap, nghia la hai thanh phan cua cum each thflc nhat dinh de dat dflgc cac muc tfl nay khi tach rieng ra deu co nghia dgc tieu cu the. Tuy nhien, neu d6i tflong cua lap cila no. Cu the: "Quan tri" vdi nghia quan ly bao ham ca con ngfldi va sfl vat thi dpng tfl chi mgt hoat ddng tac dgng cd quan tri hfldng tdi phat huy gia tri cua con chu d ich cua chu the len cac ddi tfldng ngfldi, tfl dd sfl dtmg cac sfl vat mdt each nham dem den sfl hieu qua "Dia phfldng" hieu qua nhat. Quan ly dfldc sfl dung trong vdi y nghia chi mgt cap trong to chfle nha nhflng mdi trfldng ldn, nhieu tai nguyen, nfldc. Trong mdi quan he vdi tfl Quan ly, quan tri ap dung trong mdi trfldng nhd,
<•' ThS, Phdn hiu TrUdng Dai hoc N6i vu Hd Ngi tai Qudng Nam
T?pchiKhoahgcNoivu| 13
I NGHliN COU - TRAO D6I
it tai nguyen. Viee dat dflpc hieu qua cua quan tri chfl yeu dfla vao boat ddng quan tri eon ngfldi.
O khia canh khac, "Dia phflpng" dfldc hieu vdi tfl each la danh tfl chi mot cap trong nha nfldc da cap, trong dd, mac dfl tin gpi va each thflc to chfle tuy thude vao thi ehe va lieh sfl cua tflng qudc gia cd sfl khac nhau, song ten gpi eua hai cap vl cd ban la: Nha nfldc trung fldng va Nhd nfldc dia phflpng. Nha nfldc trung fldng hay cap trung fldng dflng de chi cae ed quan nha nfldc cao nhat (eua ca ba nhanh quyin).
Nha nfldc dia phfldng hay cap dia phflong la edp thap hon nha nfldc trung fldng, ed the dflpc ehia thanh nhilu cap vdi ten gpi khac nhau.
Nhfl vay, trong gidi ban eua nghien cflu nay, QTDP dflpc hieu la boat dpng hoach dinh, td chfle, dilu khien, kiem soat edng vile va nhflng nd Iflc eua chinh quyen dia phflpng (CQDP), ngudi ddn va xa hdi, ddng thdi van dung mdt each cd hieu qua mpi tai nguyen de hoan thanh cae muc tieu cdng edng da dinh trflde, nham thfle day phat triln mpi mat dd i sdng tai dia phflong.
1.2. Ddc diem cita QTDP
Sfl khac biet gifla QTDP va Quan ly dia phfldng den tfl cae dac diem cua nd.
Trong khudn khd nghien cflu cd the ehi ra nhflng dac diera ay bao gdra:
Thd nhdt, QTDP gdn lien vdi phi tap trung hod.
Phi tap trung hoa la khai niem dflng dl 14 j Tap chl Khoa hoc Ndi vu
chi viee td chfle quyin life gifla nha nfldc trung fldng va CQDP. Theo dd, quyen Iflc se dflpc chinh quyin trung fldng (CQTU") chuyen giao cho CQDP nham tao lap eO ehl tfl chu trong quan ly nha nfldc dfla tren nhflng da e trflng cua dia phfldng dd. Trong khoa hpe Hanh chinh, phi tap trung hoa cd y nghia gan gui vdi tfl quan dia phfldng hay tfl tri (theo nghia tieh cfle). Trong each sfl dung ngdn ngfl, nhieu nghien cflu sfl dung tfl phdn quyin, phdn cap quan ly... dl cbi trang thai nay, song theo nhdra nghien cflu, phi tap trung boa la khai nilm mang ndi ham sang rd hdn ca.
Phi tap trung hoa gom ba cap dp: phi tap trung, u;y quyen va trao quyen vdi bdn ndi dung: phi tap trung boa theo lanh thd, phi tap trung boa theo ehflc nang, phi tap trung boa chinh tri va hanh chinh va phi tap trung hoa tai ehinh [I, tr.l76].
O cap dp thfl nhat, phi tap trung ehi vile ehuyen mdt khdi Ifldng edng viec hanh chinh nhat di nh eho CQDP thflc hiln. Ddy thfle ra la boat ddng san se edng vile gifla hai cap chinh quyin ma khdng kem theo die u kiln chuyen giao thara quyen. CQDP dd n gian la mpt "khau gia cdng" eac nhiem vu ma chinh quyin trung uong giao phd. 6 cap dp nay ehfla tao thanh tien dl cho QTDP
O cap dd thfl hai, uy quyen ehi sfl u^
thae mdt sd quyin Ifle nhat di nh eua ehinh quyen trung flo ng eho CQDP Le di nhien, day la cap dp eao hdn phi tap trung. Uy quyin thi hien rd trang thai lue nay CQDP da dflpc uy thac mdt sd quyin
\ \ \ NGHliN C(fU-TRAO DOI Iflc va tfl y sfl dung nd cho cac nhiem vu
ma chinh quyen trung fld ng giao phd.
Hieu mdt each dd n gian, trong trfldng hpp nay chinh quyin trung fldng nam gifl mpi quyen life nha nfldc, \\ khdi Iflpng cdng viec ldn do do da phi tdp trung mdt so eho CQDP va de thuan tien eho boat ddng cua CQDP, kem theo cac nhiem vu nay la nhflng tham quyen nhat dinh, bao gdm ca viee tinh phi dich vu trflc tilp ddi vdi ngfldi sfl dung dieh vu. O cap dp nay, nhflng dau hieu cd ban cbo QTDP bat dau xuat hien.
O cap dp eao nhat, trao quyen chi kha nang ddc lap cua CQDP khi dflpc ehinh quyen trung fld ng trao cho nhflng ndi dung quyen Ifle rpng rai. CQDP luc nay cd tfl each phap nhan. tfl do lfla chpn bd may nhan sfl, cd pham vi lanh thd dflpc xac dinh bdi nhflng ranh gidi dflpe thfla nhan, tfl ehu trong thu - chi tai ehinh va quan he vdi cae thanh phan khac trong he thdng mdt each ddc lap. Trpng tdm cua cap dp nay chinh la kha nang tfl chu cfla CQDP. Day cung chinh la tiln de cdt ldi cua QTDP
Neu nhfl quan ly dia phflong la mdt boat ddng tiep ndi hoat ddng quan ly nha nfldc cua chinh quyen trung fld ng, thi QTDP dflpc duy tri bdi kha nang phi tap trung hdd, nghia la sfl van banh cua QTDP khdng phai ddn thudn la sfl tiep ndi eua quan tri nha nfldc ndi ehung ma theo mdt each nao do, nd cd tinh dpc lap tflOng ddi.
Sfl phi tap trung boa cang ldn, ddng nghia vdi khdng gian QTDP cang rdng. Bdi phi tap trung hoa cho phep CQDP tfl do sfl
dung quyin Iflc dflpc trao phu hdp vdi dac diem cua tflng dia phfldng nham mang lai hieu qua quan tri eao nhat. Thilu phi tdp trung boa se khdng the tdn tai QTDP;
Thd hai, QTDP de cao trdch nhiem ffdi trinh
Traeh nhiem giai trinh eung vdi tinh dfl doan, minh bach va sfl tbam gia eua ngfldi dan la "tfl tru" cua hoat dpng quan tri nha nfldc tdt [1, tr.ll]. Traeh nhilm giai trinh gan liln vdi QTDP bdi xuat phat tfl nguy cd tha boa quyen Ifle eua nd.
Kiem soat quyin Iflc cfla CQDP trong boat ddng quan tri cung giong nhfl kiem soat quyen Iflc nha nfldc ndi ehung vdi hai boat ddng CO ban: Idem soat tfl ben trong (eae nhanh quyen va ban than mdi nhanh quyin tfl kiem soat l&n nhau) va Idem soat tfl ben ngoai (kil'ra soat tfl eae thilt che ngoai nha nfldc) vdi nhieu edng cu khae nhau. Traeh nhiera giai trmh cua CQDP va kha nang yeu eau trach nhiem giai trinh tfl phia ngfldi ddn la cdng cu quan trpng de dam bao CQDP boat ddng mdt each cdng khai, mmh bach, tao dilu kiln eho Idem soat quyen Iflc dflpc hieu qua.
Trach nhilm giai trinh trong QTDP la ngbia vu phai thdng tin, bao cao vl hoat ddng td chfle, sfl dung va hiiu qua sfl dung quyin Ifle cflng nhfl traeh nhiem khi dexay ra hau qua cfla CQDP vdi cac ehu the cfla Idem soat quyen Iflc CQDP Traeh nhiem giai trinh la mdt thudc tinh cP ban eua cdng tac quan tri va hanh ehinh cdng, ed y nghia dac biet quan trpng ddi vdi edng tac chdng tham nhflng va ndng cao hieu qua cung flng hang boa cdng cdng. Ban thdn Tap chi Khoa hpc Ndi vu I 15
f NGHliN CCfU - TRAO DOI
khai niem traeh nhiem giai trinh la mdt khai niem khd giai thich vi nd ed nhflng each dien giai va dich thuat khae nhau va rat khd dl khang dinh xem cd dflpc thflc thi nhfl the nao. Ndi mdt each ngan gpn, khai niem traeh nhiera giai trinh cd ban la dam bao cho ngfldi ddn, nha nfldc va cac td ehflc ngoai nha nfldc cd ca khung phap ly lan kha nang budc cac cd quan va can bp nha nfldc phai giai trinh vl nhflng gi hp lam hoac khdng lam khi thflc thi chfle nang, nhilm vu cua minh. Trach nhiem giai trinh bao gdm viec giam sat hoat ddng va hieu qua boat ddng cua cP quan chinh phfl va can bd nha nfldc. Ndi each khae, traeh nhiem giai trinh la co sd de duy tri sfl ddc lap tflong ddi eua boat dpng QTDP.
Neu nhfl phi tap trung boa la dieu kien can thilt cho sfl ra ddi cfla QTDP thi traeh nhiem giai trinh la can thiet cho sfl tdn tai va boat ddng eua nd;
Thd ba, QTDP phdi cd sd tham gia ciia ngUdi ddn.
Vai trd tham gia cua ngfldi dan vao boat ddng quan ly nha nfldc da dflpc de cap va kilm chflng trong khoa hpc hanh chinh va trd thanh mdt yeu td then chdt trong md hinh quan ly hanh chinh edng mdi. Trong QTDP, sfl tham gia cua ngfldi ddn cdn trd nen quan trpng hdn va la dac dilm khdng the bd qua cua boat ddng nay.
Nhfl d a de cap d phan di nh nghia, QTDP bao gdra ca boat ddng chinh thflc va phi chinh thfle. Hoat ddng ehinh thflc la nhflng thi ehe, phflong phap va cac boat ddng khac thudc vl ehinh quyin. Trong khi dd, hoat dpng phi ehinh thfle cung la
16 I Tap chi Khoa hpc Noi vu
nhflng gia tri trin nhflng thudc vl quyin ngfldi ddn. Hoat ddng QTDP d i u phai can sfl van ddng cfla ca hai thanh phan dd.
Neu nhfl nhflng gia tri chinh thflc ddng vai trd la dinh hfldng thi nhflng gia tri phi chinh thflc se gdp phan van hanh va kiem nghiem nhflng hieu qua cho boat dpng QTDP. Sfl tham gia cfla ngfldi ddn trong boat ddng QTDP la quan trpng va tdt yeu;
Thd tu, QTDP chiu sUgidi hgn vd gidm sdt ciia CQDP
Dac diem nay cd the gay ra mau thuan vdi dac diem thfl nhat neu nhfl hieu sai ban chat eua phi tap trung boa. Trang thai phi tap trung hoa hfldng den vile xae dinh quyen ddc lap tflpng ddi cfla CQDP thdng qua ed cbe trao quyen. Dieu nay ddng nghia vdi viec khdng phai quyen Iflc dflpc trao "trpn gdi" cho CQDP ma it nbat CQTU" vdn gifl lai cho minh mdt mdt kha nang nao dd de luc can thiet ed thi ehi phdi len boat dpng QTDP nham tranh nguy CO tha hoa. Dd chinh la quyin gidi ban va giam sat.
CQTU se gidi han boat ddng quan tri cfla CQDP thdng qua cae chinh sach va van ban phap luat. Sfl gidi ban nay la can thilt dl CQDP khdng ed co hdi tfl biln minh thanh rapt qude gia trong long mdt qudc gia nhd sfl ldng leo trong quy dinb tham quyen, song cflng phai tranh dfldc nguy CO trd thanh Ifle can ddi vdi sfl tfl do can thiet cua boat ddng QTDP Tflong tfl, quyin giam sat tfl CQTU eung bien dieii tbudng xuyln ddi vdi boat ddng QTDP de tranh nguy eo dia phflpng do di lech dinb hfldng lpi ieh ehung eua ca quoc gia.
\ \ V NGHliN cifu - TRAO D6I Nhfl vay, mdt each hinh tfldng hoa
QTDP kbdng phai la mdt "qua bong bdng bay tfl do" ma nd la mpt "canh dieu" cd ddy neo. Sfl ddc lap trong boat dpng cua nd cung ed thi vi nhfl kha nang lfla chpn hfldng bay, each bay va tam bay cfla "canh dilu", song phai can den sdi ddy de dam bao rang canh dieu d d khdng bay mat khdi tam Idem soat mong mudn. Den Iflpt minh, "'sdi ddy neo" khdng dflpe qua ngan de trd thanh thfl can trd canh "dieu bay" eao bOn, eung kbdng dflp c qua dai de "canh dilu" rOi vao trang thai but gid, sdi ddy ay phai vfla du dai de canh dieu dflpe bay eao nhat trong kha nang cd thi cua nd;
Thd ndm, QTDP chii trgng ket qud ddu ra hdn Id quy trinh.
Thfle tiln boat ddng cfla quan Iy nha nfldc hien nay eho thay ed nhieu sfl viee dien ra theo d flng quy trinh quan Iy nhflng kit qua lai trai ngfldc vdi mong dpi ban dau. Dieu nay khdng ehi gay ra sfl bat hdp ly trong edng tac quan ly ma cdn gdy can trd trong viee quy traeh nhiera. QTDP vdi tinh chat nang ddng bOn nhd eO ehe phi tap trung bda eua nd cd each dahh gid hfldng tdi kit qua dau ra thay vi quy trinh hay td chfle. DflOng nhien, eae yeu td dd van phai dflp c dara bdo. Song ket luan eudi cflng de danh gia mot banh vi quan tri phai la ket qua nd dat dflpc.
Khi danh gia kit qua dau ra cung ddng ngbia vdi viec da dang hda cac each thfle thfle bien. Cd nhilu each thflc hpp phap de dat dflpc kit qua toi flu cho cdng ddng va tuy thudc vao nhdm hay ca nhdn se
ed nhflng lfla chpn each thflc eua rieng minh, mien each thfle do kbdng trai vdi Hien phap va phdp ludt va dat dfldc kit qua tdt nhat (vdi chi phi thap nhat). Dd la boat dpng cdt ldi eua QTDP thay vi sfl dung mdt ldi mdn quy trinh nhfl quan ly dia phflOng trflde day va ea d hien tai.
Nhieu lo ngai dat ra xoay quanh viee linh boat trong thflc hien cac boat ddng quan tri nay. Tuy nhien, cflng vdi sfl cd mat cua trach nhiem giai trinh va sfl tham gia cua ngfldi ddn se la co che dam bao eho nhflng sfl tuy ngbi nay dflpc dat trong gidi ban cho phep.
2. Ndi dung cua QTDP
Cae nghiin cflu diu cbi ra rang, QTDP va quan ly dia phflpng eung cbung rauc dich va ndi dung, song khac nhau vl each thfle thfle hien. Dfldi gde dp ky thudt quan ly hanh ehinh nhd nfldc, day la mpt nhdn di nh d ung. Tuy nhien, de lam rd bdn sfl khdc bilt vdn tfldng ddi it di trong ndi dung eua QTDP so vdi quan ly dia phfldng, nhdm tac gia ed gang trinh bay mdt sd ndi dung cO ban eua QTDP nhfl sau:
2.1. Ban hdnh the che QTDP
QTDP hoat ddng dfla tren tinh than cua he thdng pbap luat va chinh sach eua nha nfldc trung fldng ben canh he thdng the che cfla rieng minh. Pbap luat va ehinh sdeh cfla nha nfldc trung flong la nhflng dinh hfldng bao quat va cae quy fldc vdi muc dieh tao nen sfl ddng nhdt can ban d mdt sd ndi dung nhat dinh ma nhd nfldc Tap ehi Khoa hpc N6i vu I 17
I NGHliN CLtU - TRAO D6I
trung fldng cho rang can thilt. He thdng eae quy dinh nay rat it ed kha nang dp dung trflc tiep vao qua trinh quan tri eua tat cd cac dia phfldng. Do do, da sd trong so chung la nhflng van ban quy dinb tinh than cfla nbd nfldc trung fldng, CQDP dflpe phep ban hanh nhflng the ehl cu the hoa tinb than dd de phu hdp vdi dac tinh quan tri cua rainh. Dfldng nhien can nhan manh rang sfl cu thi boa nay khdng dflpc phep vflpt qua hoac di ngflpc lai tinh than da dinh.
De tao cd sd phap ly cbo boat ddng QTDP, trflde bet moi dia phflong phai xdy dflng eho minh rapt be thdng thi ehe. He thdng the che bao quat cac van de ma dia phfldng mudn dieu chinh. Dieu nay cung cd the dfldc hieu rang ed nhflng van dl dia phfldng nay the che boa, song dia phUdng kia se de nd d trang thai tfl do. Va hai ludn diera tren se mang den mdt suy ludn rang ndi dung ban hanh thi ehe cfla QTDP phflc tap hdn ndi quan ban hanh the che theo hfldng cu tbi boa van ban pbap luat trong hoat ddng quan ly nha nfldc.
The ehe eua QTDP ed the dfldc thflc hien trflc tilp bang mdt bd phdn chuyen biet hoac gan vdi nhflng co quan chfle nang cfla CQDP hoae cd the theo hfldng mdi hon - thul khoan tfl phia tfl nhan.
Lfla chpn thfl hai nay xuat phat tfl quan diem ngfldi xdy dflng the ehl khdng quan trpng bang ngfldi thdng qua the che. Do dd, tfl nhan hay nha nfldc, ca nhan hay td ehflc soan lap nen mdt the ehe chang phai la dilu dang phai cdn nhac bdi sau cudi sfl thdng qua cua ngfldi dan bay eae ed quan
18 I Tap chi Khoa hpc Ndi vu
ddn efl hoac rapt thiet ehe quyen Iflc nao dd mdi la bflde eudi cung de khoac eho nhflng van ban binh thfldng kia quyin Ifle ehi pbdi xa hpi. CJ cac nfldc phat trien, hoat dpng thue khodn trong QTDP dien ra phd bien, khdng ehi thue khoan trong xay dflng the ehe ma bao gdm ea thue khoan con ngfldi.
2.2. To chdc bg mdy nhdn sU CQDP
Td chfle bp may nhdn sfl CQDP la ndi dung quan trpng cfla QTDP Co ehe tfl quan dia phflpng khdng chi mang den eho CQDP quyen tfl quyet trong edng tae quan tri nha nfldc tai dia phfldng ma trflde dd cung cap cho CQDP kha nang tfl do lfla chpn nhdn sfl cho bd may qudn tri cfla minh. Khac vdi quan ly nha nfldc d dia phflong trflde day, nhan sfl trong nin QTDP dflpc tuyen dung dfla tren ehinh nhu eau khac nhau cfla tflng dia phfldng va gan vdi nhflng ehl dp dai ngd chuyen bilt. Trong boat canh dd, mdt sd vi tri cfla bp may QTDP ed tbi se dflpc bdu ra bdi ngudi dan mot each triic tiep hoac gian tiep, ben canh mpt sd chfle danh se dflpc thue mudn theo dang hpp ddng. Co chl linh hoat nay eho phep cde dia phfldng tfl lfla chpn cac each thflc td chfle bd may nhan sfl phfl hpp vdi dae trflng va nhu cdu quan tri cua minh.
2.3. Phdt trien kinh ti', vdn hod vd xd hgi diaphUdng
Day la npi dung cdt ylu eua boat dpng QTDP Nhin ehung, phat triln kinh tl, van hoa, xd hdi dia phflong cflng chinh la nhflng ndi dung trpng ylu cua hoat ddng
\ V \ NGHliN CCfU - TRAO D6I quan ly nhd nfldc ddia phfldng. Tuy nhien,
dfldi lang kinh quan tri, QTDP thflc hien npi dung ndy vdi muc tieu hfldng d ^ hang ddu la bieu qua (ket qua eao nhat tren ehi phi thap nhat), thay vi phai xem xet gifla tinh hieu qua va ylu td cdng bang vd ddi khi lfla chpn cdng bang thay vi hieu qua.
Trong phat trien kinh t l dia phflong, QTDP phai giai quyet mdt ndi dung rat quan trpng, cd tac ddng rat ldn den nhflng van de cdn lai. Dd la bao ve va khai thac hieu qua ngudn tai nguyen thien nhien.
Mdi dia phflOng se cd sfl khac nhau vl ngudn Ifle tai nguyen thien nhien. Mot dia phfldng sd bflu nhieu ngudn Ifle nay se ed flu the vfldt trpi hdn dia phfldng khac trong viee phat trien kinh tl-xa hdi eua minh. Tuy nhien, neu khdng cd ke hoach bao ve va khai thac hieu qua dan den le thupc vao ngudn Iflc nay cflng se la mot nguy ed vd cflng tai hai ma ehinh quyen va nhan dan dia phfldng do phai ddi mat.
Phat trien van hoa trong QTDP eung la ndi dung gan lien vdi nhflng dac trflng cfla tflng dia phfldng. Tren cO sd nhflng gia tri cfla ddi sdng van boa cd dflpe, QTDP thflc hien cdng tae bao tdn cdc gia tri tdt dep, bai trfl nhflng gia tri lac hau, di ngflpc lai vdi xu hfldng phat trien eua dia phflong, ddng thdi gan kit phat triln van hod vdi kinh t l va xa hpi, tao lap sfl tfldng hd nbau gifla ba thanh phan quan trpng ndy.
O khia canh khae, trong linh vfle xa hdi ddi hdi QTDP phai xay dflng dflde mpt xa hdi hai hod, dam bao edng bang va duy tri he thdng phuc ldi tot. Cae van dl xd hdi cau thanh nen mdt nhan ouan trone eua
mdi trfldng sdng, QTDP tdt dflp e bil'u hien rd net qua kit qua cfla mdi trfldng sdng ma nd tao lap. Den Iflpt minh, mdi trfldng sdng se trd thanh tieu chi danh gia va la ylu td thu hflt dan efl chat Iflpng eao cfla mdi dia phflong.
2.4. Cung cdp cdc djch vu cdng chdt lUdng
Ngoai ndi dung phat triln kinh te, van hod, xa hdi eua dia phflong, boat dpng QTDP cdn ganh vac traeh nhiem cung cap eac dieh vu edng chat Iflpng, gia re (bao hdm cd mien phi) cho efl dan eua rainh.
Dieh vu edng dflpe ganh vac bdi CQDP la nhflng dich vu tfl nhdn khdng mudn lam, khdng the ldm hoac khdng dflpc lam. Chi nhflng dich vu can thilt can den sfl eung cap eua nha nfldc mdi trd thanh ndi dung cfla QTDP. Thfl c hien die u nay de dam bao rang, CQDP hien diln de ddp flng cac thilu hut ve dieh vu cbo ngfldi ddn, song ddng thdi cflng eho thay rang CQDP ehi can thiep vao nhflng dieh vu ma ngfldi dan khdng the ganh vdc dflpc.
Dieh vu edng dflpc thfle hien bdi hoat ddng QTDP phai hfldng din sfl mien phi va chat Iflpng. Quan ly dia phflpng trong thflc bien nhiem vu cung cap dieh vu cdng thfldng sa vdo hai hfldng: thfl nhat bao cap vl ngudn von dau tfl ddn din quy dinh mfle phi hay le phi cao; thfl hai dieh vu edng thieu sfl tfldng tac hai chilu nen dflpc thfle hien kieu ban phat (thflc chat ed thu phi bu dap va duy tri) va chat Ifldng thap. QTDP giai quyet bai van de nay bang each xa hdi boa ngudn vdn dau tfl hoac bfl dap hodn toan bang eae khoan thue hoac ddng gdp khac tfldng tfl thul va Tap chi Khoa hpc N6i vu I 19
I NGHIEN CCfU - TRAO D6I
tieh cfle tflOng tde vdi ngfldi thu hfldng de ed nhflng dilu chinh phu hpp vdi nhu cau eua hp, tflng bflde ndng eao ehdt Ifldng dieh vu edng.
2.5. Ddm bdo vd tgo dieu kien cho sd tham gia ciia ngddi ddn
Sfl tham gia cua ngfldi ddn va ndi dung dflpc lam rd ngay phia sau ndi dung nay.
Thflc hien trach nhiem giai trinh la hai ndi dung mdi cfla QTDP so vdi quan ly nha nfldc d dia phfldng. QTDP gan liln vdi viee xa bdi boa manh me boat ddng quan ly nhd nfldc, the hien rapt chinh quyin gay - xa hdi beo va quan trpng hdn la tao lap mdi trfldng ddn ehu thflc chat.
Sfl tham gia cfla ngfldi dan von la mdt thuat ngfl chinh tri, hanh ehinh the hien vai trd can thiep va trflc tiep tham gia vao qua trinh QTDP eua ngfldi dan. CQDP phai tao lap mdi trfldng the che de dam bao sfl tham gia nay cflng nhfl sau do phai ed nhflng hdnh ddng cu tbi nhara tao dieu kien cho sfl thara gia ay cd hieu qua va thflc chat. Trong boat ddng quan ly nhd nfldc, boat ddng thara gia cua ngfldi ddn ehu ylu d trang thai "phan anh", dflpc eu thi hoa qua cac quyin gian tiep (bau efl) va cdc quyen phap ly (khdi kien, khiiu nai, td eao). Cach thfle thfle hien nay thflc chat khdng dat ngfldi ddn vao boat ddng eua bd raay chinh quyen ma thfle chat chi xem la ddi tflpng tflpng tde cua chinh quyen.
Trang thai nay dan dl n viec trien kbai boat dpng bi dfla ve trang thai hinh thfle, nang ve phong trao. QTDP phai dat ngfldi dan va cac td ehflc thupc xa hdi trong boat ddng quan tri eua CQDP thdng qua eae eo
che can thiep trflc tiep bang quyen cdng dan cfla ngfldi dan hay kha nang gidm sat, phan bien eua eac td chfle xa hdi, hoac d trang thdi rd net hon - thue khoan.
2.6. Thdc hien trdch nhiem gidi trinh
Ngoai dam bdo eho ndi dung sfl tham gia cua ngfldi dan dflp e thfle hien mdt cdch thfle chat va hieu qua, QTDP yeu eau chinh quyen phai lien tue thfle bien trach nhiem giai trinh. Trach nhiem giai trinh vfla tbi hien eho nguyen tae quyin Iflc tbudc ve nhan dan vfla the hien tinb chuyen nghiep trong boat ddng cfla CQDP.
Hoat ddng QTDP dien ra thfldng xuyen, do d d boat ddng giai trinh cflng can dflp c tien banh mdt each lien tuc.
Sfl lien tuc d an xen gifla giai trinh di nb ky lan gidi trinh dot xuat, day dfl ca giai trinh theo ehieu dpc lan theo chieu ngang va bao phfl tat ca cac van de thudc ve quan tri nha nfldc ma khdng nam trong ranh gidi cua bi mat qude gia.
Ndi dung hoat ddng giai trinh cfla QTDP la rat ldn, khd cd the liet ke mot cdch chi tilt va day du. Song cd ban, phai bao trflm cac ndi dung: boat ddng bd nhiera va thue khoan nhan sfl (bao gdm khau tuyen dung, sfl dung va cac hoat ddng ky luat); tdi san cua nhan viln nha nfldc va eae ehl dp Ifldng bdng eua tflng vi tri viec lam; bieu qua boat ddng eua eae dau tfl tai chinh va cdng tae dau thau; cae tranh chap gifla ehinh quyin va tu nhdn...
Ngoai ra, vdi nhflng thdng tin da lam rd vl traeh nhiem giai trinh, trong boat ddng QTDP, thflc hien traeh nhiem giai trinh 20 I Tap chi Khoa hpc Ndi vu
\ \ \ NGHIEN COfU-TRAO D6I cung ddng nghia vdi ed ehe chiu trach
nhiem khi de xay ra hau qua.
Viee dl xay ra hau qua du do rfli ro hoac do sfl tae traeh dl u can ed cd cbe ganh ehiu trach nhiem. Co chl nay kbdng phdn bilt nhdn vien nha nfldc dien bau efl bang phd thdng dau phieu hay thdng qua thi tuyen. Thfl e hiln tdt dflp e dilu nay radi dam bao trpn ven npi dung traeh nhiem giai trinh.
3. Cac yeu td tac dong din QTDP 3.1. Dgc diem td nhiin, kinh te vdxdhgi cua diaphUdng
QTDP gan liln vdi qua trinh phi tap trung boa de tfl ehu, do dd viec quan tri dflde tien hanh thuan lpi bay gap nhilu khd khan, hieu qua hay ket qua ban ehe phu tbudc nhieu vao cdc dil u kiln tfl nhien, ldnh t l va xa hpi eua tflng dia phfldng.
Dae diem tfl nhiln hpi tu cac ylu td quan trpng nhfl vi tri dia ly, pham vi lanh tbd, dieu kiln dia hinh, thd nhfldng, khi hdu va dae biet la tai nguyen thien nhien.
Thdng thfldng cd quan Iy lan QTDP deu phai ddi mat vdi bai thach thfle khi sfl dung tdi chinh gdm: flng phd vdi cac tinb hudng tieu cfle va dau tfl phat trien. Ca bai mang din nhflng kboan tieu tdn nhfl nhau. Mdt dia phfldng cd sfl thudn lpi vl vi tri dia Iy, thd nbfldng mdu md, kbi hdu dn boa se giup dia phflong ay tilt Idem dfldc nhflng kboan chi fl ng phd md mdt dia phflOng khae khdng cd nhflng dieu kien thudn ldi tfldng tfl phai bd ra. Tfl do.
ngudn Ifle tai ehinh eho dau tfl phat trien tang len, kha nang mang den hieu qua cao bdn eho edng tae quan tri.
Tai nguyen thien nhiln, dae biet la tdi nguyen khoang san ed mpt y nghia quan trpng kbde trong boat ddng QTDP Bdi kbai thae hieu qua va bao ve ngudn lpi tai nguyen thiin nhien la mdt trong nhflng nhiem vu ehinh cfla QTDP. Ngudn lpi tai nguyen thien nhien trd thanh dfldng bang chinh eho sfl cat canh dfla nhilu dia phflong, tham chi la nhieu quoe gia den sfl thinh vflpng. Do do, sfl da dang ve ehung loai va giau ed ve trfl Iflpng cae ngudn tai nguyen thien nhien se Id dieu kien ngudn Ifle ly tfldng cbo boat ddng quan tri eua mdt dia phflpng.
Nlu nhfl dilu kiln tfl nhien Id thfl ed san va can kiet theo thdi gian, la Ifle bay eho QTDP thi dilu kien kinh te gan chat vdi boat ddng cua eon ngfldi, liln tuc dflpc phdt triln va song hdnh cung boat ddng QTDP. Xet de n cung, boat ddng QTDP ngoai mong mudn xdy dflng mdt xd hdi ddng thuan, dan chu cung khdng cd muc tieu nao khae la phdt trien nen Idnh te dia phflpng trd nen hflng thinh. Din Iflpt minh, ngudn Iflc kinh te quay trd lai ddng vai trd la ddng Iflc eho boat ddng QTDP dflpe tiln hanh mdt each bieu qua.
That khd de phu nhan rang QTDP d noi ed dieu kiln kinh te ban ehl se It lfla chpn vl each thflc tien hanh va eae quylt dinh dau tfl hon mpt noi ed dilu kien ngflpc Iai. Xuat phat dilm khac nhau ve kinh te eua tflng dia phfldng quylt dinh diln mao khae nhau gifla eac dia phfldng d trung Tap chi Khoa hpc Ndi vu 21
I NGHliN cufu - TRAO DOI
ban. Va sau dd, mpi chuyen ed the se khac phu thude vao sfl b i l u qua quan tri cfla tflng dia phfldng.
Ydi td cudi cflng trong nhdm edc y l u td ehu quan cua dia phfldng la mdi trfldng xa hdi. Quan trpng nhat trong QTDP chinh la tim dflpc sfl ddng thuan xa hdi d l ddra bdo dflpc kha nang thara gia cua ngfldi ddn. Chinh dilu nay khien cho mdi trfldng xa hdi eung tde ddng khdng nbd vdo sfl thanh bai cua hoat ddng ndy.
3.2. Trinh do ddn tri vd mdc do sdn sdng tham gia cua cdc to chdc xd hgi
Sfl tham gia cfla dan chflng cung sfl tham gid tich cfle cfla cac td chfle xa hdi la dieu kiln can thiet eho sfl thdnh edng cua QTDP. Trinh dp dan tri la khai niem ehung d l chi kha nang nhan thflc cua dan chflng trong mdt thdi ky nbat di nh gan liln vdi mdt vung lanh thd nhat dinh. Kha nang nhan thflc ve mat phap ly va y thflc xa hdi ddng vai trd quan trpng trong danh gid rafle dp ddn tri. Kha nang nhan thflc v l mat phap ly la sfl bieu bilt cua dan chung v l phap luat dflPng thdi. Dd la nam rd cde quy dinh cfla phdp ludt, dfl dodn dflpe eae ehe tai va ly giai dflp e eae radi quan he phdp ludt, dan tri v l phap ly cang cao thi kha nang chap hanh ludt trong xa hdi dd cdng ldn, viee ngfldi dan gifl rainh khdng xdm pham cde quan he xa bdi dflpe phap luat bao ve cflng Id mdt gia tri ddng gdp to ldn vao khd nang duy tri sfl dn dinh cua xa bdi - thfl d i l u k i l n can thilt cua QTDP.
Y thflc xa hpi the bien sfl tfl giae eua dan chung trong viec thara gia va bao ve
mdi trfldng xd hdi. Y thfle nay giup ddn chung thay rd dfldc vi tri va vai trd eua minh trong cude sdng cdng ddng. Do la ddng Ifle giflp bp san sang hanh ddng bao v l nhflng ldi ich ehung cua cude sdng dd va d mflc cao h d n la chu ddng, tich cfle ddng gdp vao edng cupc xdy dflng xa hdi tdt dep hdn.
Ci nhflng dia phfldng dan tri thap thfldng sa vao thdi vi ky cd nhan, chay theo nhflng lpi ich trflde mat, chinh quyen la chfl the duy nhat eua QTDP va se phdi vfla xoay sd chdng lai sfl vi ky cua ddn ehung vfla phai tfl than ganh vac h i t cdng viee eua xa hdi. Hoat dpng nhfl vdy thien v l quan ly h d n la QTDP.
3.3. Cdc chinh sdch vd phdp ludt cua trung ddng
Cdc chinh sach va pbap luat eua CQTU"
cd tae dpng rat ldn d e n boat ddng quan tri tai cdc dia pbflong. Bdi xet cbo eung, CQDP khdng phai la mdt t h i l t c h l ddc lap boan todn. Nd khdng the gat bd vi tri la mdt cap chinh quyin trong quoc gia thdng nhat de tfl do tien hdnh eac boat dpng quan tri ma kbdng ehiu bat efl sfl rang budc nao. Nhfl d a trinh bay d phan dae diem, QTDP ehiu sfl Idem soat cfla CQTU. Do d d, cac chinh sach va phap ludt cfla trung flong cd tde ddng len boat ddng QTDP la dieu tat yeu.
Cae chinh sach vd phdp luat eua C Q T U la nhflng dinh hfldng ehiln lupc eho sfl phat trien da dien cfla mdt qude gia, ddng thdi cflng la nhflng quy phara gidi ban cae ngfldng cho phep md luat phap cua Qudc 22 Tap cbi Khoa hoc Ngi vu
\ \ \ NGHliN CCfU-TRAO D6I hdi da an dinh. CQDP dflpc tfl do sfl dung
cae cdng cu, phfldng thflc trong QTDP minh song khdng dflde di lich ra khdi eae dinb hfldng eua chinh sach va trai ngfldc vdi cdc quy dinh cua phap ludt do chinh quyen trung fldng ban banh.
Neu C Q T U ban hanh nhflng ehinh sach va pbap ludt vdi nhflng cd cbe thdng thoang, vdi eac khoang tuy nghi dam bao dl CQDP tfl do dieh ehuyen trong do, thi se tao dflp e hanh lang phap ly thuan lpi cho boat ddng QTDP. Ngflpc lai, neu eae chinh sdch va pbap luat eua CQTU tao ra nhflng ed che ha khae, eae thu tue rfldm rd thi se trd thanb can Ifle eho boat ddng quan tri cua CQDP.
3.4. Chdt Iddng cdn hg, cdng chdc Can bd, edng chfle la chfl tbi chfl ylu cfla boat dpng QTDP. Chat Ifldng cfla dpi ngfl nay anh hfldng dQikhanangvdnhanb va bilu qua cfla boat ddng tai dia phfldng hdn bat ky yeu td nao khac. Bdi le, du cO chl thdng thoang, dan tri cao va dilu kien tfl nhien, kinh te va xa bdi eua dia phfldng thudn ldi nhflng trinh dp chuyin mdn nghiep vu eua can bd, edng ehflc yeu kem, dao dfl e tdi te va tbieu kinh nghiem se khiln eho boat ddng QTDP rdi vad be tae.
Kinh nghiera thflc tien eho thay rang, tao lap dpi ngfl cdn bd, cdng chfle ehdt Ifldng cao la bflde chudn bi dau tiln va tdi quan trpng eho boat ddng QTDP
Ve Cd ban, QTDP va qudn ly dia phflong ed cflng ndi dung va muc d ieh song khae nbau ve tinh ehat va ehu the, trong do QTDP md rpng sfl tbam gia eua
ngfldi ddn va de cao tinh dan ehu thdng qua trach nhiem phai giai trinh ve cac hoat ddng QTDP Khdng nhflng the, QTDP cdn ehu trpng kbai thac ngudn Iflc con ngfldi hPn viec tim kiem sfl thinh vfldng dfla tren kbai thac tai nguyen thien nhien tfl do mang din nhflng kit qua phat trien bin vflng va nhdn van. Hieu dflpc nhflng ndi dung tren, cdc chfl the mdi san sang ve radt tfl duy cbo rapt cude thay ddi ve each thfle quan tri, tdn trpng ddn chfl, pbap quyin va xdy dflng dia pbflong theo xu hfldng qudc tl. DflPng nhien, vile chuyen ddi la mpt qua truib lau dai vdi vd sd cae can Ifle phia trflde. Nhflng viec thdng nhdt tfl duy nay danh ddu bflde khdi dau ed y nghia dl cd qud trinh ay bdt.
TAI LIEU THAM KHAO
1. S. Chiavo Carapo and P.S.A.
Sundaram (2000), Phuc vu vd duy tri: Cdi thien hdnh chinh cdng trong mdt the gidi cgnh tranh, Asian Development Bank
2. Nguyln Thi Hdu (2003), Ndng cao chdt lUdng ddi ngd cdn hd cdng chdc chinh quyen cdp xd d tinh Phu Thg hien nay, Luan van thac si Ludt hpc, Hd Ndi
3. Dinh Tuan Minh va Pham The Anh (2017), Td nhd nUdc dieu hdnh sang nhd nddc kien tgo phdt trien, Nxb Tri Thflc
4 .PAPl (2013), Ket qud khdo sdt vehieu qud qudn tri vd hdnh chinh cdng cdp tinh, tr32.
S.Tran Quyet Thdng (2017), Nhan dien nha nfldc phdp quyin, Nxb Da Nang
Tap cbi Khoa hoc Noi vu I 23
