I NGHIEN cUU-TRAO DPI
PHAN CAP, PHAN QUY^N GI&A TRUNG UONG VA OJA PHUO
1. Quan ni('m, myc dich, y nghTa cua phan cap, phan quyen gifia trung uong vd dia phu'ong
l.I. Quan niC'in vi phdn cdp, phdn quyin giira trung uong vd dja phuang
Phan cdp la vi?c phan cdng chuc ndng, phan dinh nhi?m vy. quy^n hgn cho iGng cap hdnh chinh de vice qudn li dal nude dugc thuan Ipi vd hieu qud hon. Bdn chat cua phan cdp la viec cdp tren chuyen giao quyen hgn, nhiem vu nhdt dinh cho cap dudi thyc hi$n mdt each thudng xuyen, lien tuc bdng phuong thuc ban hanh van ban quy phgm phap ludt hode bang eac quydt dinh cy the.
Ndi dung cua phan cdp la giao cho cde cdp chinh quyen, edc bd phan trong bg mdy nha nude nhOng nhiem vy, quyen hgn de thyc hi$n, gidi quySt nhGng cdng viec nhat dinh cua nha nude. NhGng nhl^m vy, quyen hgn duge giao eho edc co quan nhd nude moi cap dupe xac dinh sao cho hgp phap vd hop li, cdn cu vdo vi tri, linh chat va chGc ndng cua cac co quan trong bp mdy nhd nude the hien dudi dgng cdc quyen, nghTa vy cGa eo quan nhd nude dd. Cy the Id:
- Quyen, nghTa vy ve cdc edng vi?c quan li bode quyen cung Gng cdc dich vy cdng vdi ITnh vyc vd quy md nhdt dinh, theo nguySn tdc cdc cdng viec dupe trao trpn gdi cho tihig cap qudn li, cd nghTa Id viec eua cap nay s6 khdng thudc viec eua cap khde.
PGS.TS. NGUYiN MINH BOi DC' thyc hl?n quy^n, edng vi^c li Gng thi tGng cap (Jupc trao quyen ve i sdch, Idl chinh dpc Igp vdi cdp khac.
- QuyIn ve td chGc nhdn sy de ddm vice thyc hien cdc nhiem vy, cdng viecj li ho$e eung Gng eae dich vy cdng do r ddm nhi?m.
Phdn cdp thyc chat Id trao cho timg hanh chinh-lanh thd quyen ty quyfit din]
quan li nhGng cdng viec cu the Gen cac vyc khde nhau cua ddi sdng xa hdi. Cac chinh quyen cd trdch nhiem thyc hien nl vy, quyIn hgn dupe trao tuy theo kha i thyc te cua dja phuong. Nhiem vy, qi ban ly quyet dd dupe thyc hien thdng edc phdp nhan cdng quyen nhu co quar di?n, eo quan hdnh chinh... Chang hj nude ta Id hdi ddng nhan dan, uy ban i dan va cde co quan chuyen mdn cua uy nhan dan. Tuy nhien, hogl dpng cua ca quan chinh quyen dia phuang van luon ddl dudi sy kiem tra, gidm sdt can thiet cdc co quan chinh quyen trung uong., , Phan cdp thudng dupe thyc hiei^ci phuong di?n co ban nhu phan cap ve c tri, phSn cap ve hdnh chinh, phan cS|
ngdn sach, phan cap ve kinh te... Tuy^
moi qudc gia va tuy theo iGng giai dogj vi?e phdn cap se dupe tiln hdnh d nl phuang dien ndo vd tien hdnh din ddu.,
* Giang vien chinh Khoa hinh chlnh - nhd nirdc Trudng Dai hpc Lu^t Hi Ngi' ' ' ' ' '
C:HOCS6^
Phan quyen giua trung uang vd dia Eong la phdn chia quyen luc nhd nude giua , cap chinh quyen, moi cap cd nhiem vu, 'en han rieng cua minh, cac cap han che :; can thiSp vdo nhiem vy, quyen hgn cua LU nhung cap tren cd the kiem Ga. thanh tra I dudi theo quy dinh eua phdp lugl. Phdn 'en theo chieu dpc cung ed nghTa la sy in cdng trong mdi logi co quan nha nude eung thyc hifn mpt loai quyen lyc. Chang i, thyc hien quyen hanh phap can cd sy in cdng giGa chinh phu vdi cac co quan ih chinh nhd nude d dia phuong; phan ig giua eac co quan tu phdp trong viec c hien quyen tu phap (giOa cdc co quan r cdng an, vien kiem sat, loa an); sy phan ig giua cde eo quan tod dn vdi nhau ve m quyen xet xG, gidi quyet vu viSc (giGa a an nhan dan tdi cao, toa an nhan dan cap 1 va tod an nhan dan cdp huyen); sy phan ig giua cdc toa trong cung mgi toa an (giua hinh su, tod dan sy, tod kinh te, tod hanh nh...). Nhu vdy, phdn quyen theo chieu dge ig the hien su phan cap giua trung uong vd phuang, giGa co quan nha nude cdp Gen CO quan nha nude cap dudi.
Viec phan quyen nhd nude mdt each rd g se Gdnh dugc tinh trgng dun day khdng dn thuc hien hoac thyc hien mdt each ing cheo ddi vdi mpt sd cdng viec nhat dinh i nhd nude. Sy phan cdng khdng rd rdng,
! dinh nhiSm vy, quyen hgn cua edc ea quan I.nude khdng chat chg thudng ddn den hien ng khdng quy kit dupe Gaeh nhi$m cho cdc
quan hoac ggp khd khan trong viec phdi ) cdng vi6c giiia cac ca quan. Sy phdn edng ) li ve nhiem vu, quyen hgn cua cdc ca ui nha, nude theo quy dinh cGa phdp lugt se iey.chi de danh gia tinh hgp,phdp, trach
nhiem, hieu qua trong hogl dgng cua mdi ca quan nhd nude Gen thyc te.
1.2. Nhu cdu phdn cap, phdn quyin giUa trung uang vd dia phuang
Phdn cap, phan quyen giGa trung uong vd dia phuong thudng dien ra vdi hai li do CO bdn: MQI Id khd nang hgn che eua ehinh quyen trung uong trong viec qudn li, dieu hanh cdng viec cua dat nude d cac dia phuang, nhat la d nhGng vung sau, vung xa, d tam vi md,' Hai la mOt sd dia phuang nhd cd nhGng uu the nhat dinh (ve tdi nguyen khodng sdn, ve ngudn nhan l y c . ) nen phdt Gien khd mgnh vd thudng dan den xu hudng khdng mudn le thudc hoan loan vdo chinh quyen trung uong, hg ddu tranh de dugc quyen ty chu trong mgi sd ITnh vyc hoae van de nhat dinh. Cd the noi, phan cap, phdn quySn vua la nhu cdu khdch quan cua viee quan li dat nude rdng ldn, phGc tap vua la nhu edu phdt trien Igi ich cua moi dia phuang, nhat Id nhiing dia phuang cd dieu kien phdt trien manh, mong mudn phdi cd nhGng quyen, Ipi ich nhat dinh trong qua Ginh phat trien cua minh. Nhu vgy, viec phan cdp, phan quyen ludn phan anh moi quan he giGa trung uong vd dia phuang, giGa chinh quyen cap tren vd chinh quyen cap dudi.
Viec phan cdp, phan quyen cho mdi cap moi dia phuang vd d mdi thdi ki ddi hdi phai kbdc nhau. Thdng thudng, dia phuong ndo cd dilu ki6n phdt trien tdt thi mong mudn dupe phdn cap, phan quy^n nhilu hon nhung trong Irudng hpp ndy tnmg uong Igi khdng mudn phan cdp, phdn quyen vi vi?e dd se dnh hudng den quyen lyc, Ipi ich, thu nhdp hpp phdp cua chinh quyen trung uong va cae CO quan chu quan... Do vay, trong thyc te tdn tgi tinh trgng eac co quan truyg uong, co
= CHl LUAT HOC 305/20,12
NGHIEN cuu-TRAO OOI
quan cap Iren nhieu khi khdng cd khd ndng giai quylt t6t cdng vi§c nhung Igi cd quyin gidi quylt. cdn cdc co quan dja phuang, co quan edp dual ed khd ndng gidi quyet tot edng vi?e nhung Igi khdng ed quyin gidl quylt... Dieu ndy dSn den hl?n tugng quan lieu, bao c4p, vice gidi quyet cdc cdng vi?c nha nude kem hode khdng hi^u qud.
Ngugc igi, vi^c phdn c4p, phdn quyin cho dia phuang cd the dan den tinh Ggng dja phuong hode Id khdng du ndng lyc, trinh dO dl thyc hi|n nhGng nliiem vy, quyen hgn duge giao ho$c Id dugc giao qua nhieu cdng vl?c vupt qud khd ndng gidi quyet cua chinh quyen dia phuong. Phan cap, phan quyin cung cd thl dan den sy nay li?n su dyng nhiem vy, quyen hgn dupe phan cap de lam ipi eye bg eho dia phuang, bat chap hode khdng tinh den Igi ieh cua cdc dia phuong kbdc, Ipi ich cua qudc gia. Chdng hgn, vi?e phan cap qudn li vd cap phep sG dyng quy ddt d Viet Nam thdi gian qua dd dan din linh trang nhieu dia phuang cdp phep su dyng dat khdng hpp li ho^c khai thdc khodng san khdng dung lam anh hudng den Ipi ich quoc gia vd sy phat trien can ddi, ben vihig ciia d^t nude. Do vgy, vi?c phdn edp, phdn quyin cdn gdp phin gidi quyet mdi quan h? giOa trung uong vd dia phuong m0t cdch phu hpp nhdl.
tgo dilu ki^n eho sy phdt Giln cGa ddl nude cung nhu moi dia phuong. Vi^c phan cap, phan quyin cho cde dia phuang Id vdn dl tat ylu cua nha nude, nd phy thupc vdo khd ndng cua chinh quyin dia phuang trong m6i giai dogn phdt Giln. Nlu phan cdp, giao nhieu quyin qud cd thl dan din chinh quyin dia phuong sg qua tdi, khdng thl thyc hifn hit dupe, neu phdn cap, giao it quyin qua thi hieu qud hogt dpng cua chinh quyin dia phuong sS
khdng eao. Xu hudng chung trong eac nude ddn chG hi^n nay Id khi xd hgi ph^t t cao thi vi?c phan cdp, phan quyen d\h nhilu hon, ehinh quyin cdc dia phuong^f trao cho nhilu nhi^m vy, quyen hgn honj
1.3. Myc dich, y nghTa cua phdn c^^
quyin giita trung uang vd dja phuang^
Vi^c phan cdp, phdn quyen giGa tn uong vd dja phuang mpt mdt nhdm phdt!
tinh ndng dpng, sdng tao, quyen lu chu, chju trdch nhi^m cua chinh quyin dja phut tren eo sd phdn dinh rS, cy the nhi^m"
quyin hgn, trach nhi^m cua moi dp troi^
mdy chinh quyin nha nude; mdt khac, 1 ddm su qudn li tdp trung, thdng nhdt vd the sudt cua chinh quyen trung uang, tdng CUD ki ludt, ki cuong de ndng cao hi^u luc, hi qua quan li nha nude, phuc vy lot honn cau va Ipi ich cua nhan dan, thuc day Id le-xd hpi d lung dia phuang phdt trien, i CO sd phdt huy the mgnh cua moi dia phiKl Gong mpt nha nude thdng nhat. Do vgy, Vl phdn cap, phdn quyen hpp li. chinh xacs^
nhGng tac dyng lich eye nhu sau: -^
- Thuc day sy phdt Gien dan chu thoi^q vi?c cung cap nhOng ca hpi de ngudi dan fli gia tich eye vd true tiep hon vdo qua trir|
quyet dinh cua co quan nha nude cae cap; I - Tdng cudng hi^u qud eua viec cung c cdc dich vy cdng cho nhdn dan thdng (p*
quyin cho chfnh quyen dia phuang thyc chGc ndng cung cap dich vy cdng, iG do h chi sy quan lieu vd tri tre cua cdc co qu nhd nude cdp tren, co quan trung uong;
- Tao dilu kien dk ndng cao chdt dich vy cdng dupe cung elp cho ngu(
dya Gen trdch nhigm gidi G-inh vd sy nil ben trong viec ndm bdt va ddp Gng nhu t cGa ddn chGng vd chinh iquyin dia phGong;
J^Ar^Hpc S6 5i|
GHIEN CUU - TRAO DOI
- Tang cudng sy phdt triln vl kinh tl, xa i dya tren sy am hieu ehinh xdc dilu kidn ih te-xa hdi vd cdc ddc diem ve dia li, dan ... cua chinh quyen dia phuang, tren co sd dl ra nhGng ke hoach va chinh sdch dung n cho viec phdt trien, phdt huy dupe the mh cua mdi dia phuang;
- Tang cudng su chu dgng, minh bgch, ch nhiem gidi trinh va ndng lyc giai quyet c edng viec cua cac co quan chinh quy6n I phuong;
- Cho phep ed dai dien da dang ban ve inh In vd sy tham gia cua edc nhdm Ipi ieh ae nhau nhu: vdn hod, chinh tri, tdn giao, sac
;... vao qua trinh ra quyet dinh eua eo quan nhd :dc Uen quan den ede vdn de cua dia phuang;
- Tang cudng su on dinh chinh tri vd sy 5ng nhat cua qude gia thdng qua viec cho
;udi dan quydn gidm sat true tilp cac ehuong nh, ke hogch vd hogt dpng eua chinh quyen id nude d dia phuong thudc cdc cap khac lau; tgo dieu kien cho nhung y tudng kinh , chuih tri, xd hdi... mdi nay sinh, tG dd cd liing chuong trinh, boat ddng qudn li nhd rde sang tgo ban ddi vdi mdi dia phuong.
Hogt dpng phan cap, phdn quyen, neu uc hien khdng tdt cung cd the dan den lung anh hudng tieu eye. Dd la cac bieu en nhu: viee trao eho ngudi cam quyen d a phuang qud nhilu quyin lyc, tham chi rpt ra ngodi sy kiem sodt cua chinh quyen mg uong cd the ldm ldn hai den nen dan u xa hdi; lam gidm hi|u qua cua viSc cung p dieh vu cdng cho edc td chGc vd ca nhan I thieu sy kiem tra vd gidm sdt IG phia cdc
• quan cap tren, co quan trung uong. Chdt gng eua dich vy cdng dupe eung cdp cho :udi dan bi dnh hudng vi ehinh quyen dia uong thiSu nang lyc thyc hien hoac thieu
nhGng nguon lyc can thiet de dam bao cho vi?c cung cap nhung dich vy dd. Nguy eo tham nhiing trong bg may nha nude d cae dia phuang va khd nang phdt trien bdt binh dang giGa cdc vung mien, khu vyc kbdc nhau cua dal nude tdng len vd cd the gay ra mau thuan giGa cdc dia phuang hode giOa dia phuong vdi trung uong. Dieu dd dan den nguy co khiln cdc eo quan chinh quyen dia phuong qud tdi vi phdi thyc hien qua nhieu cdng viec khi ngudn nhan lyc khdng ddp Gng dugc hode ldm cho dgi ngu can bp, edng chGc cua bg mdy chinh quyen dia phuang tdng len qua nhieu dan den lang phi ngudn nhan lyc, tgo ra nhGng kinh dich, canh tranh mdi bode kich thich sy kinh dich, cgnh tranh tiem tang giOa cdc dia phuong ve cdc vdn dB khde nhau cua ddi sdng xa hdi. Thgm chi, viee phdn cdp, phdn quyen khdng tdt cdn cd nguy CO lam suy ylu quoc gia vi su bat binh dang giua eac khu vyc hoac chu nghTa li khai hoac Idm suy yeu hogt ddng quan li tai ehinh cGa qudc gia; ldm gidm tinh sang tgo trong qudn Ii nha nude do viec Gao quyen eho ngudi cdm quyin bdo thu d mot sd dia phuang.
Trong Hch sG phat trien eua nhan logi cd ril nhilu md hinh phan cap, phdn quyen giGa Gung uang vdi dia phuong dupe mdi qudc gia, moi thdi ki phat trien sdng tao ra, khien eho cdch thuc Id chGc va hogt dgng eua chinh quyin dia phuong d cac qudc gia rdt da dgng, phong phu. Theo cac nhd khoa hgc, hien nay tren the gidi ed 4 md hinh phan cap, phan quy6n giua trung uong vd dia phucmg CO ban Id: Md hinh Anh - phan cap cho ehinh quyin dia phuang theo chGc ndng (functional regulation); md hinh Phap - song trGng gidm sdt (dual supervision); md hinh DGc - phy ttp lanh thd (areal subsidiarization);
,P r.Hi 11 I A T i-inn CiS ^lonAo
NGHIEN c u u - T R A O 0 0 1
md hinh xd vilt - song trGng tryc thuge (dual subordination). Cd thl ndi, moi quoc gia cd cdch thuc phan cdp, phan quyin giGa trung uong vd dia phuang khde nhau vd m3i cdch thGc deu cd nhiGig uu diem vd hgn chi nhat djnh.
2. Phan cap, phSn quyen giit-a trung u'ong vd dia phvong & Vift Nam
2.1. Khdi qudt ve tinh hinh phdn cdp, phdn quyin giua irung uang vd dja phuang a Viel Nam
Van de phdn cap, phan quyin giGa trung uong vd dia phuong d Vict Nam dupe quy dinh kha eh^t dig trong cdc ban hien phdp ndm 1946, 1959, 1980, 1992 va edc ludt id chGc bp mdy nhd nude. Tren ep sd cdc quy dinh cua phdp luat, hogl ddng phdn cdp, phdn quyin d Viet Nam dd dugc tiln hanh kha thanh cdng ddp Gng dugc nhu eau, ddi hdi cua ddl nude d moi thdi ki phdt trien nhat dinh. Xet ve md hinh, van de td chuc chinh quyin dia phuong d Viet Nam dugc lien hdnh theo md hinh cua nhd nude xd viet la md hinh song trimg tryc thupc (dual subordination).
Dat nude dupe phdn chia thdnh nhieu cap, cae cap chinh quyen deu la bp phan c4u thdnh cua nhd nude Viet Nam thdng nhat, d moi cap chinh quyen deu cd co quan dgi dl$n la hpi ddng nhan ddn vd co quan hdnh chinh Id uy ban nhdn dan. Uy ban nhan ddn vGa tryc thupc CO quan hdnh chinh nhd nude cap Gen vGa tryc thupc hgi ddng nhan ddn cilmg cdp. Tuy nhien, ben canh nhOng thdnh tyu dgt dugc tbi vdn de phan cap, phan quyen d nude ta ciing cdn nhung hgn che nhat dinh. Cy thl Id:
Quyen lyc nha nude tap trung vdo cac co quan trung uong qua nhieu, nhilu cap, nhieu bd phan ed bieu hien quan liSu, khdng bdm sat thyc te, thyc hien cdc cdng vi|c kem hi?u qud. Qud trinh thyc hi^n phan cap, phdn quyen
cdn chdm vd Ihilu kiSn quylt, nhieu bg, ng^
cdn do dy, chua thyc sy manh dgn phdn ca ho0c khdng mudn phan cdp, phdn quyin ch dja phuong vi sp mdl quyin lyc vd Ipi ich. i-
H^ thong chinh sdch, phdp luat, quy hoac!
kl hogch phdi triln kinh tl-xd hpi qudc gia v md hinh to chGc ehinh quyin dia phuong co thilu dong bp vd chua rd rdng. Md hinh t chGc ehinh quyin dia phuang d edc cdp, ca dia phuong gin gidng nhau nen rdt khd hoi dpng, chua phat huy dugc thl manh cua mt dia phuong. Tuong ty nhu vgy, mdi quan h gIGa qudn li nganh vd quan li ldnh tho cim chua dupe quy dinh ranh mgch, cy the.
Thdm quyen, trach nhiSm cua cac ca ehinh quyen dia phuang dugc phan diii khdng rd, quyen lyc khdng du manh, ca dilu kien vl Id chGc can bg, tdi chinh, ng^
sdch, CO sd vat chat de thyc hien eac nhien vy, quyen han dupe phan cap cua chini quyin dia phuang chua bao ddm. Hpi dfin nhdn ddn mpt sd cap hogt dpng hi^u qu thdp. Nhigu CO quan chinh quyen dia phuon thilu ndng dpng, thieu chu ddng ttong con vi?c. Nhieu cdng vi$c ca quan chinh quye dia phuang cd khd ndng gidi quyet nhun khdng cd quyen gidi quyet, cdc co quan ca Iren khdng cd khd ndng giai quyet hi?u qu nhung Igi cd quyen giai quyet, dan den nhifi cdng viSc Gn tdc, chgm tre, k^m biSu qud...
Vide kiem sodt cGa chinh quyen trun uong d6i vdi hogl ddng cua ehinh quyen di phuang Gong qua Ginh phan cip khdng ft dSn din nhilu dia phuong Ipi dung viec pha cdp dB dua ra cdc quylt sach vi Igi ich c\
bd. Nhieu co quan chinh iquyin dia phucra dugc giao quyin nhung ehua chuSn bi i nhdn lyc vd nang lyc dl hodn thanh c6i vi$c dugc giao. Sy phan cdp mdi chu ylu
TAP CHl LUAT HOC s 6 5/201
X chuyen giao quy8n hgn tG cdc co quan ung uong cho eac co quan nhd nude cap nh. Cd the ndi qud trinh phan cdp d Viet lam thdi gian gdn ddy dupe tien hdnh manh le hon song dd chi nhu la nhiing thu ghiSm can dupe nghien cGu de nil ra nhiing di hpc edn thiet cho tuong lai.
2 2. Xu hudng vd gidi phdp phdn cdp, hdn quyen giua trung uang yd dia phuang
• nude ta giai dogn hien nay Ll. Xu hudng
Hogt ddng phan cap, phdn quyen d nude i hien nay cdn diln ra theo nhGng xu hudng a ban sau:
- Tiep tue hoan thien ve mat td chGc cdc a quan chinh quyen dia phuong theo tinh tian ndng cao ndng lyc, hieu lyc, hieu qua lOat ddng cua cdc co quan nay, trdnh tinh linh thGc trong hoat dgng cua ehinh quyen tia phuang, nhat la ddi vdi co quan dgi dien hgi ddng nhan ddn).
Tang quyen tinh ty chu, tu chiu trdch ihiem cho ehinh quyen dia phuang eac cap.
^'go dieu kien cho cac dia phuang phat huy ihGng thl manh cua minh trong phat trien.
- Bdo dam sy ehi dao, dieu hanh thdng ihdt va thdng sudt cua trung uong ddng thdi ihdt huy quyen ty ehu, tinh nang ddng sang ao cua chinh quyin dia phuong cae cap.
•ban edp nhung phai ludn glG cho chinh [uy6n trung uong vung manh, du khd ndng IB giai quyet nhGng van dB quan trpng cua tdt nude. Khic phuc tinh trgng ehinh quyen ning uong khdng hoae khd kiSm soat chinh
|uyen dia phuong.
- ViBc phdn cap phai phu hpp vdi diBu kiBn, ilm nang, khd nang cua m§i dia phuong, moi hu vyc, mdi vung nhung eung ddng thdi hdi tranh tinh trang phat trien mat can ddi
cua cd dat nude do sy tuy tien phat trien qua mGc cua moi dia phuong.
- Bao dam tinh cdng khai, minh bach trong su dung tdi chinh, ngan sach, tdi san cdng vd bd tri ngudn nhdn lyc, trdnh lang phi, sG dyng kem hieu qud hode de xay ra linh trgng tham nhung.
b. Gidi phdp
DB vdn dl phan cap, phdn quyen d nude ta tiln hdnh cd hieu qud can chu y edc gidi phdp cu thl sau:
- Giai phap ve nhdn ihGc
Cdn tiep lye nhdn IhGc dung ddn ve phan edp, phan quyen trong giai doan Men nay nhdm nang eao hieu luc, hieu qua quan li nhd nude trBn cac ITnh vyc, phyc vu tdt hon nhu edu phdt ttien kinh te-xa hpi ciia ddl nude va cGa mdi dia phuong. Nen sua ddi Hien phap ndm 1992 theo hudng phan dinh va xdc dinh rd chinh quyin trung uong va chinh quyen dia phuang. Nhu vay, can ddi Chuong IX cua Hiin phap thanh "Chinh quyen dia phuong", chG khdng nen dung "Hpi ddng nhdn ddn vd uy ban nhdn ddn". Theo xu hudng ehung hien nay, cdn nghien cuu de tiep tuc phdn quyen, phdn cdp nhieu ban eho ehinh quyen dia phuong, nhat Id tang cudng tinh ty qudn cho hpi ddng nhdn ddn de phat huy kha nang sang tao, quyen ty chu, ty chiu ttach nhiem ciia moi cap chinh quyen. Tuy nhien, khdng nen quan niem tap trung Id xdu, phdn cdp Id tdt hay ngupc lai, md vdn de quan trgng Id chd phai lap ttung nhung gi, phan cap nhGng gi, den dau, bao nhieu Id vGa, sao cho phu hpp vdi tinh hinh vd dieu kien hien nay.
Van de quan trpng nhat trong viec phan cap, phan quygn d nude ta hien nay la phan cdng nhiem vu, quyen hgn gi? cho cap nao?
phdn cdng dgn dau Id phu hpp... tu dd to AP CHlJrflW!"Hll)tJ' H(5'«*»W .
NGHIEN CUU - TRAO OOI
chGc bg mdy ehinh quyin mSi cap, m6i dan vi de thyc hi?n nhGng nhl?m vy, quyen hgn dd. Vl nguydn tde, trung uong phdi nfim cdc vdn dl quan trgng, cd dnh hudng din Ipi fch qudc gia, ddn lpc, nhGng vdn dl chiln lupc, cdn dia phuang phdi gidl quylt nhGng vdn dl cy the cd y nghTa dia phuong, tryc tiep cung Gng nhGng dich vy cdng cho nhan ddn m^t cdch lot nhdt. Do vdy, trung uong ngn t^p trung vdo xdy dyng chlnh sdch vT md, phdp ludt, ddm bdo su ddng bp, thdng nhdt ve m$t ihe ch^, cdn moi dia phuong dupe quyin chu ddng. sang tgo trong vi?e thyc thi nhi?m vy, quyen hgn duge trao.
Viec phdn cap phdi bdo ddm nguyen ldc viee eua cdp nay khdng dugc ttung ldp vdi cap khac, viee cua trung uong khdng trung vdi viec cua dia phuong. Cdn ed quan ni?m diing ve vi tri, vai ttd, chGc nang cua hgi ddng nhan dan - co quan quyet nghi ^^ gidm sat nhung loai vi?c dupe phan cap d dia phuong, giam sat viec thyc hien hien phdp vd phdp ludt d dia phuang dg cd nhGng gidl phdp cung cd thiet che ddn chu d dia phucmg.
Ve nguyen tdc, neu dia phuang hay cap dudi du ndng lyc de lien hdnh hoat dpng quan li nhd nude ndo dd cd hieu qud ban so vdi trung uong, so vdi cap tren thi can mgnh dan phan cap cho dia phuong, eho cap dudi de trung uong, cap tren cd dieu ki?n gidi quyel cdc van dg vT md, mang tinh chat chiln lupe cho ddl nude, khdng mdl nhilu cdng sGc, thdi gian vdo nhGng cdng vi?c md trung uong hoac cdp tren gidi quylt it hi?u qua. Da dang hod viec td chGc chinh quyin dia phuang (phdn bi^t giGa co quan chinh quyen d thdnh thi, ndng thdn, hdi dao, vung nui...).
Bdo dam sy quan h' dong bO tir trung uong tdi ca sd tao ra chinh quyin thong nhat.
hung mgnh, trdnh hi|n tupng khdng|kiii sodt dupe doi vdi sy phdt trien cua dja phAi cua chfnh quyin dia phuang. Qua trinh phi cdp phdi ed sy phoi hpp ch^t chg giOa tnin uong vdi dia phuang theo chieu dgc, giii cdc ngdnh theo chilu ngang. Giiia ttung iron vd dia phuang, giGa cdc ngdnh vd cde c^
chfnh quyin phdi ludn cd sy ph6i hgp, giii]
dd, cung nhu kilm tra, gidm sdt lan nhaud eung phdt ttien vi myc tieu ddn gidu, ttinii mgnh, dan chu, edng bdng, vdn minh.
Vi§c phan cdp giGa trung uong vdi dji phuang, giGa cap tren vdi cap dudi tat ylus dan din ttanh chdp vl thdm quyin, loi idi Chdng hgn, chinh quyen thdnh phd Ha Nf mudn xdy dyng mgt nghTa trang tren diet tfch eua mgt xd thugc thanh phd nhung chinE quyen va nhan dan dja phuang khdng ddng}
va cd nhGng phdn Gng quyet liet, doi hoi chinh quyen thanh phd huge phdi xem xs Igi. Do vgy, can phdi cd co che hi?u quadi gidi quyet nhiing mau thuan, tranh chi[
trong qud Ginh ndi tten.
- Giai phap ve xay dyng phdp lugt ^ Can nhanh chdng sGa ddi Hiin phdp niu 1992 va cdc lugt td chuc bp may nha p^
tren ca sd ra sodt, tdng kel ddnh gid nhitn!
quy dinh phdp lugl cd lien quan den van dl phan cap, phan quyen, din mdi quan he gliU Gung uong vd dia phuang thdi gian qua. "Qj!
ca sd do thl che hoa quan dilm cua Dangvl xdy dyng nhd nude phdp quyin md truoc iB]
Hiin phdp ndm 1992 chi mdi neu d Bik'i md chua dupe thS hien d cac dilu khae#
Hien phdp khi dupe sGa ddi ndm 2001 ciin!
nhu d cdc lugt Id chGc bO mdy nha nGdc. ^ B6 sung them quy dinh phdp lugt B quan din vi§c bdo dam dilu kiBn vl chuy^
IQC S6 5/20li
ldn nghiep vu, vdt chat ki thudt va eac dilu ien khac dg ehinh quyen dia phuang cde Ip ed thg hodn thanh tdt nhi?m vy, quyen an dugc ttao theo linh thdn Ddng egng san 'i$l Nam da de ra: "... xdy d^rng. bo sung dc the che vd ca che van hdnh cu the de bdo dm nguyen lac tdt cd quyin luc nhd nude 'moc ve nhdn ddn vd nguyin tac quyen l{rc ha nude Id thdng nhdt, co su phdn cong, hoi hgp vd kiem sodl giira cdc ea quan 'ong viee thuc hi$n cdc quyen lap phdp, dnh phdp vd tuphdp".^'
Cdn ed nhung quy dinh day du ve thill hg, ve nguyen tdc, ttinh ty, thu tye de gidi uyet nhiing tranh chap giGa trung uong vdi ia phuang hoac giGa cdc dia phuong vdi ihau trong qua trinh phdn cdp, phdn quygn.
- Giai phap ve doi mdi td chuc, xdc dinh 0 chGc nang, nhiem vu cua chinh quyen eae ap, nhat la chinh quyen dia phuang cac edp
+ Ddi mdi td chGc cua bp may nhd nude Cdn nhdn ihGc day du vd hien thyc hoa Iguyen tac quyen lyc nha nude !d thdng ihdt, cd su phdn cdng, phdi hpp vd kiem soat
;iQa cdc co quan nha nude trong vigc thuc lien quyen lyc nhd nude d tdt cd cdc cap cua td may nha nude.
Hien nay d Viet Nam cdc don vi hdnh hinh cap tinh, huyen vd xd dupe tach ra, lupc thdnh Igp them qua nhieu dan din s6 irpng cac don vi hdnh chinh ede cap, nhdt Id ap tinh qud nhilu, gay khd khdn cho trung rong, cho Chinh phu trong quan li, dieu hdnh 1 tdm qudc gia. Ciing vdi ehu truang chia ach nBn sd lugng cdc bp vd co quan ngang bd rong bp may nhd nude ta kha nhieu nlu so anh lucmg quan vdi eac nha nude khac cd uy md vd dan sd tuong duong. Thyc ttgng
nay cdng ldm cho vigc qudn li hdnh chinh nhd nude cua Chinh phu, cua Thu tudng Chinh phu g^p nhieu khd khdn. Tinh trgng khdng qudn li dupe ho^c qudn li Idng Igo tren cae linh vyc dign ra khd phd bien d nude la thdi gian qua. Do vgy, can phdi "cc cdu Igi bg mdy Chlnh phu theo hudng gidm cdc ddu moi, phii hgp vdi yeu cdu doi mdi chirc ndng, nhi^m vy. Ca cdu lai cdc ca quan irong hi thdng hdnh chinh nhd nude cdc cdp...". ' Cu thl la can gidm bdt eae bp va co quan ngang bd theo tinh than "td chGc bd qudn ii da ngdnh, da ITnh vue, bao dam linh gpn vd hpp li" ma Nghi quySt Dgi hOi dai bigu todn qude ldn tiiG XI cua Dang da de ra. TG dd "xdc dinh ro chuc ndng, nhi^m vu, quyin hgn, trdch nhiem, to chuc cua cdc bo, ca quan ngang bo; khde phuc tinh trgng bo trong hoac Iriing lap vi chuc ndng, nhiem vu giira ede bo, ngdnh"-}^^ gidm bdt cdc don vi hanh chinh cdp tinh bdng viec phan dinh lai cdc don vi hanh chinh cdp tinh theo hudng sap nhgp mpt sd linh nhd cd sy gan kgt chat che vdi nhau mgt each hpp li, ttgn tinh than dd dieu chinh co cdu chinh quyen dia phuong cho phu hpp vdi nhGng thay ddi chuc nang, nhiem vy. Vigc sap nhgp cdc tinh thdnh nhGng don vi hdnh chinh cap tinh ldn hon can dupe nghien cGu ki cdng, Gong dd khdng chi chu ttpng din van de qudn If hdnh chinh nhd nude md cdn phai chu y den ca cau dan cu vd sy phdt Giln kinh tl-xd hgi phu hpp. Dilu ki$n dan tri, ca sd ha tdng giao thdng, thong tin, lien lac hi$n nay d nude ta du dl cho phep thdnh ldp cac don vi hanh chfnh cap linh vdi quy md ldn ban md van dam bdo hi^u qua quan li hdnh chinh tren cac ITnh vyc. Hoac Id van giG nguydn cdc don vi hdnh chinh cdp
AP CHi I II^TiJjnr^ s r t f,/0M7
NGHIEN CUU-TRAO DOI
tinh nhu hien nay dl trdnh sy xdo tr^n vl nhan sy vd dia gidi hdnh chfnh dong thdi thanh Igp them m^t s6 don vi hdnh chfnh trung gian cd tinh chdt vGng (khu vyc) dl chf dgo tryc tilp ede tinh "khde phyc tinh trgng chia cdt, kh^p kfn theo dia gidi hdnh chlnh"*""
tinh. khi dd Chinli phu, Thu tudng Chfnh phG chi dgo cdc dia phuang thdng qua cdc co quan hanh chinh vung (khu vyc). Chdng hgn, cd thl chia ddt nude thdnh 6 khu vyc vd thdnh ldp cde CO quan hdnh chfnh khu vyc (khdng thdnh lap hpi ddng nhan dan) dl ti?n cho cd dia phuang vd trung uong trong qudn If hdnh chinh. Thyc te hien nay nganh tod dn thi Tod dn nlidn dan tdi cao van phai d$t try sd tgi cdc khu vyc khde nhau de gidi quyet eac edng viec mdt cdch kip thdi va hieu qua.
Khi cdc dau mdi tryc thuge Chinh phu, Thu tudng Chinh phu giam di thi dgi ngu nhiing ngudi giup vigc eho Thu ludng se gidm di ddng ke, do dd ThG tudng cd dilu kien dieu hanh, chi dgo mgt each true tilp vd tdt hon. Can chu y Id viec qudn li cua cdc bd ddi vdi dia phuang chi la qudn If theo nganh, theo ITnh vyc, cdn viec digu hdnh, quan li, chi dgo cua chinh phu, ThG tudng Chfnh phu ddi vdi cde linh, thdnh phd tryc thuge trung uong, vdi Chu tich cdc don vi hdnh chfnh ndi tten Id theo don vf hdnh chfnh ldnh thd.
+ Phdn dinh rd nhi?m vy, quyin hgn, chGc ndng eua cdc co quan nhd nGdc moi edp
Phan dfnh rd nhdm cdc cdng vi?c thu0c tham quyen eua moi cap de ttdnh trimg l|p.
Cy the la: Nhdm cdng vi?c thugc tham quyen cua cdc CO quan trung uang, nhdt Id li€n quan den ITnh vyc lap phdp; nhdm cdng viec thudc tham quyfin cua cdc co quan d dja phuang, trong dd cung phan cdng theo timg
cap cho phu hpp vdi khd ndng thyC' nhdm cdng vi$c cd sy phdi hpp thyc giGa trung uong vd dia phuong, nghu thuOc thdm quyin cua trung uong nhui dupe thyc hl?n thdng qua cdc dja phuof^
Do vdy, cdn md rgng ngi dung phan ci qudn Ii cho cdc cdp chfnh quyin dia phftoi trong nhCing ITnh vyc ed the; nang cao lA lyc cua d$i ngG cdn bO, cdng chGc a d phuang, nhdt Id chinh quyen cap co s6 ( dOi ngu cdn bp, cdng chGc ndy du khd nSoj ndng lye hodn thdnh cd hi^u qud nhfli nhi§m vy, quyin hgn dupe trao.
Tdm lai, phan cap, phan quyin gifla tm uong vd dfa phuang la van de phGc Igp ^ ed tde d^ng tfch cue vGa cd ldc ddng tiSil]
din sy phdt triln ddt nude. Chi khi ndo thGc dung, hogch dinh diing vd td chitc thu hi^n hi^u qud thi van de phdn cap, '^
quyen giiia trung uong va dja phuang mi cd tdc dyng tfch eye, thuc day sy phat M nhanh, bgn viing cua dat nude vd cua mi dia phuong. Ngugc Igi, neu lien hanh vi vang, thieu nghien cGu, can nhde ddy d giGa Ipi vdi hgi thi vi^c phdn cap, pha quyin cd the gay ra nhiing lac dpng tiSu ca thgm chf cd the nguy hiem cho sy phdt tri«
dn djnh vd bin vihig cua ddt nude./.
(l).Xem; Dftng c^ng sdn Vi^t Nam, Kfin ki?n D?U dgi biiu todn quSc iSn thu XI cua Dang, Nxb. Chii tri qu6c gia, Hd N^i, 2011, tr. 247.
(2).Xem: Dang c^ng sdn Vi^t Nam, VSn Icien 0?'*
dgi biiu loan quoc ldn ihu X cua Ddng, Nxb. CM tri qu6c gia, Hd N^i, 2006, tr. 254.
(3).Xem: Dang cOng san Vi^t Nam, Vdn liien Dm dgi biiu todn quSc ldn thv XI cm Ddng, Sdd. tr. 2*^
(4).Xem: Dang c^ng san Vi^t Nam, Vdn ki?n DS dgi biiu loan qudc ldn thir X cua Bdng, Sdd. tr. 2M
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