Nghien cmi - Trao doi Tnp <hi C ^ n g sAn
DOI MOI CAC QUY DjNH PHAP LUAT VE THU HOI DAT DE
P H A TTRIEN KINH TE -
XA HOI Vi LOI ICH QUOC GIA - DAN TOC, LOI ICH CONG CONG
PHAN TRUNG HIEN* - DINH THI MY LINH**
Lugt Ddt dai ndm 2013 da cd nhirng thay doi trong cdc vipc quy ^nh cdc tru&ng hop thu hdi dat vi muc dich phdt triin kinh ti - xd hpL Tuy nhien, th&i gian qua, & nhieu ^aphuong, cdng tdc thu hoi ddt dephdt trien kinh te - xd hpi vdn ggp khdng it bdt egp, vu&ng mac. Mot trong nhihig yeu cdu ddng dgt ra trong cdng tdc thu hdi dat Id phdi nhdn dien du&c nguyen nhdn cua nhung hgn che, bat cap, tren co s& do tiip tuc hodn thien quy ^nh phdp lugt trong viec xdc 0nh cdc tru&ng hpp thu hoi ddt, edi tien cdng tdc quy hogch vd gidi phong mat bdng; bdo ddm hdi hoa Ipi ich cua Nhd mr&c, nhd Mu tu vd ngu&i ddn, gop phdn thuc My phdt trien kinh ti-xd hpi ben viing.
Khai quat ve thu hoi d§t de phat trien kinh te - xa hoi vi loi ich quoc gia, cong cong
Thu hdi dat phuc vu eho "loi ich chung cua xa hdi" la ly do dugc su dung ehu ylu d nhidu qudc gia khi cdn ehuydn dich quydn sir dyng dat. "Ly do nay dugc phan Idn cdc qudc gia sir dung de thu hdi dat eiia nhiing ngudi dang sir dung (hoac cua chu sd hiju trong didu kidn tu hthi ddt dai dugc phep tdn tgi) phuc vu cho muc dich cdng cdng"'". Muc dich phdt triin kinh td - xa hdi vi Igi ich cua qudc gia, cdng cdng ed ndi ham rdng. CJ Viet Nam, Nhd nude chi dugc thu hdi ddt ciia ngudi ddn nham muc dieh phdt tridn kinh td - xa hdi; bdo dam Igi ieh chung ciia qudc gia, cdng cpng. Day la nhiing ydu td tgo thanh didu ki?n cdn thiet nhdm bdo dam cho kinh tl qudc gia ngay cang phat teidn, ddi sdng vat chdt va tinh
than cua ngudi dan ngay cang dugc cai thien va ndng cao. Vide thu hdi ddt la boat ddng anh hudng ddn nhieu chu the, nhieu phuong didn, ed tae ddng khdng chi trudc mat ma dnh hudng lau ddi.
Hien phap nam 2013 ghi nhdn ca sd hien dinh ve thu hdi dat: "Nhd nude thu hdi dat do td ehiie, ea nhan dang sir dung trong trudng hpp that cdn thilt do ludt dinh vi muc dieh qudc phdng, an ninh; phat trien kinh td - xa hpi vi Ipi ieh qudc gia, cdng edng"'^*.
* GVCC, PGS, TS, Pho Truong Khoa Luat, Tmdng Dai hoc Can Tha
** Giang vien Khoa Luat, Trucmg Dai hgic Nam C4n Tha
(1) Luu Quoc Thai: "Che dinh thu h6i ddt va vIn dS dam bao quyen tai san ciia nguoi sur dung dit", Tgp chi Khog hgc phdp ly, Tniong Dai hgc Luat Thanh ph6 H6 Chi Minh, S6 3-2012, tr. 58
(2) Khoan, 3 Digu 54, Hiin phap nam 2013
80 S6 933 (thang 1 nam 2020)
Nghien ciiu - Trao doi Tpp chf C d n g sdin Didu 62 Lugt Dat dai nam 2013 quy dinh
cae trudng hop thu hdi ddt dd phat tridn kinh te - xa hdi vi Igi ich eua qudc gia, cdng cdng.
Trong dd, "dat sir dyng vao muc dieh cdng cpng gdm ddt giao thdng; thuy Igi; dat cd di tich lich su - van hda, danh lam thdng canh;
dat sinh hogt cdng ddng, khu vui choi, gidi tri cdng cdng; ddt cdng trinh nang lupng; ddt cdng trinh bmi chinh, vidn thdng; ddt chg;
dat bai thai, xir ly chdt thai va ddt cdng teinh cdng cpng khae"^^'.
Didu nay dgt ra ydu cdu trong thu hdi ddt la phdi bao dam hogt ddng kinh td gdn vdi myc tidu xa hdi, vi Igi ieh qudc gia, cdng cdng; bao dam vide thu hdi dat phai dupe ludt hda, ddt dudi sy giam sat eiia Qudc hdi, Thu tudng Chinh phii hoac hdi ddng nhdn dan cap tinh. Nhung ydu cdu ndy tgo ndn mdt CO che hiJu hieu dd hgn che nguy co Igm quyen va tiiy tien eua eac ea quan quan ly teong viec thu hdi ddt, bdo ve Ipi ich qudc gia, Igi ich cdng cdng vd Ipi ich cua ngudi ddn khi xet duyet cae dy an edn thu hdi ddt.
Bdi le, "Quan tri dat dai la thd chd du}^ nhdt de bdo dam qua trinh chuyen dieh dat dai hudng tdi dupe ca ba muc tieu kinh td, xa hdi vd mdi trudng"*'**.
Thyc trang^phap iuat ve thu hoi dat d l phat trien kinh te - xa hoi vi Iffi ich qudc gia, cdng cong
Dilu 62 Luat Ddt dai- nam 2013 qu^ dinh rd ba nhdm trudng hgp thu hdi dat dd phdt tridn kinh td - xa hpi vi Igi ich qudc gia, cdng cpng, Cu thd la: 1- Thuc hidn cdc dy an quan tepng qudc gia do Qudc hdi quydt dinh chu truang ddu tu md phai thu hdi ddt; 2- Thyc hien cdc du an do Thii tudng Chinh phii chip thudn, quydt dinh ddu tu ma phdi thu hdi ddt; 3- Thuc hien cdc dy an do hpi ddng nhan ddn cdp tinh chdp thugn ma phdi thu hoi ddt. Day la quy dinh mdi vd thu hdi ddt bdi da tdeh rieng mdt didu ludt thu hdi dat cho muc dieh phat tridn kinh te - xa hdi vi Igi ieh qudc gia, cdng cdng, ma khdng gdp
ehung vdi quy dinh thu hdi ddt vi myc dieh qudc phdng, an ninh; ddng thdi, phdn ra ba nhdm tiirdng hgp thu hdi dat tiiy theo quy md, tinh chdt du an, nhdm kidm soat chat che cdc trudng hpp thu hdi ddt.
Hidn nay, dy an quan tepng qudc gia do Qudc hdi quyet dinh chu truang ddu tu dugc quy dinh tgi Ludt Ddu tu cdng nam 2014, Luat Ddu tu nam 2014 (sira ddi, bd sung ndm 2016), Lugt Xdy dung nam 2014, Nghi dinh sdl31/20i5/ND-(:P,nga>; 25-12-2015, eua Chinh phu, hudng ddn ve du dn quan trpng qudc gia. Tuy nhidn, Lugt Dat dai hidn hanh va cac van ban hudng dan vdn chua dan giai dy an quan trpng qudc gia do Qudc hdi quyet dinh ehu truang ddu tu cdn thu hdi ddt la dy an nhu thd ndo. Trong khi dd trudng hgp dy dn quan trgng qudc gia do Qudc hdi xem xet, trudng hgp du dn do Thii tudng Chinh phii chdp thudn, quydt dinh ddu tu va hdi ddng nhdn ddn cdp tinh chdp thuan dupe liet ke chi tidt ban bdng each chi rd cac ddi tupng can ddu tu. Tuy nhidn, mdt sd du an dupe liet ke trong danh sdch cd phgm vi thu hdi ddt cdn rpng hoac chua rd rang, gay khd bidu, khd ap dung hay dd bi Igi dyng, Igm dung, dnh hudng ddn su an todn ve quydn sii dung dat ciia ngudi ddn.
Thyc td eho thdy, mdt dy an cdn sii dung ddt thudng hudng tdi nhieu muc dich khdc nhau. Ddi khi, ranh gidi xdc dinh eac myc dich ciia dy an hay xdc dinh muc dich chinh ylu cua dy an khdng phdi la van dd don gian. Chdng hgn, dy an khu cdng nghd cao, khu kinh tl, khu dd thi rndi,... hudng tdi Igi ieh cdng, nhung thue te Igi ehii y nhidu hon ddn loi ich kinh tl khi kinh doanh bdt
(3) DiSm e, Khoan 2, Di^u 10 Luat Dat dai nSm 2013
(4) Dang Hiing Vo: "D6i mcri the cha trong quan ly dat dai va th\rc thi quan tri ddt dai tai Viet Nam", trong Phdp lugt vi qudn ly vd su dung ddt dai a Viet Nam, (Phan Tmng Hiln (Chii bien)), Nxb Dai hoc Can Tha, 2016, tr. 26
So 933 (thang I nam 2020) 81
Nghien euu - Trao doi T^p chj C d n g s d n ddng san hay sdn xudt, kinh doanh, thu Igi
nhuan. Trong khi dd, ngudi ddn bi thu hdi ddt vdi gia bdi thudng thudng thap hon gia thi trudng vd it dupe tai dinh cu tgi chd de cd the hudng Igi tir dy an. "Do dd, myc dich thu hdi ddt phai vi va tedn hdt la cho cdng ddng va Nhd nude cdn cdn nhac vide md rdng muc dich thu hdi ddt, nhdt la muc dieh thuang mgi nhu khu dd thi vi khu do thi cd the mang myc dich thuong mgi nhidu hon myc dich cdng epng"*^'. Mat khac, ndu thu hdi ddt ma khdng quan tam ddy du den bao vd tai san teen ddt cua ngudi ddn de ddn den Igm dung teong thu hdi ddt, de xdy ra tieu cyc vi khd dap ung muc tidu vi Ipi ich qudc gia, Ipi ich cdng cdng.
Ben canh dd, viec chua cd giai thich cy thd ve cac khdi nidm, tidu chi ddi vdi danh sach cac trudng hgp thu hdi ddt vi muc dieh phat trien kinh td - xa hdi vi Ipi ich qudc gia, cdng cdng; gidi ban pham vi dupe phep thu hdi dat, ddn den sy tranh cai ve muc dich dy an, dd bi Igm dung dd true Igi... Chdng hgn, van cd nhiing dia phuong coi thu hdi ddt cho "khu dd thi du lich sinh thai" thude trudng hgp thu hdi ddt de phat tridn kinh td - xa hdi vi Igi ich qudc gia, cdng cpng. Thyc chat, xdy dung khu dd thi sinh thdi la mdt dy an ddu tu, kinh doanh ed Igi nhuan, khdn^ the hidn cdng trinh phuc vy cho cdng ddng ddn cu. Hoac, cd nhiing dy an ma dien tich quy hoach danh cho nha d xa hdi va tai dinh cu chiem chua ddn 10% dien rich eua dy dn, cdn Igi hon 90% didn tich quy hogch nha d kinh doanh gdm: nha d chung cu, lidn kd phd, lien kd sdn vudn vd bidt thy... nhung van dugc mdt sd dia phuong cho rang thude trudng hpp Nhd nude thu hdi ddt vi mue dich phat tridn kinh td - xa hdi.
Theo quy dinh, khi lap kd hoach sir dung ddt cdp tinh hoac cdp huyen, mdt trong nhiing ndi dung dugc lap la xac dinh vi tri, didn tich ddt thu hdi tron^ viing phu can dd ddu gia quydn su dung dat thyc hidn du dn
nha d, tiiuang mgi, dich vu, sdn xuat, kinh doanh ddi vdi dy an hg tdng ky thugt, xay dyng, chinh teang khu dd thi, khu ddn eu ndng thdn. Ndi dung nay di kem vdi vide xdc dinh quy md, dia diem cdng trinh, du dn cdp qudc gia, cdp tinh ed sir dung ddt, ha^
xac dinh vi tri, didn tich ddt phdi thu hdi dg thue hidn cdng trinh, dy an sir dung dat vdo cac mye dieh quy dinh tgi Dieu 62 Ludt Dat dai nam 2013 thyc hien trong ky ke hogch sir dung ddt'**. Nhu vay, quy dinh thu hdi ddt vimg phy cdn dd ddu gia quyen sir dyng ddt thue hien dy an la cdn thidt teong bdi canh phat teidn do thi hi?n nay. Thdng qua thu hdi ddt viing phu edn, dat nude cd thdm ngudn vdn dd tdi ddu tu ket cdu hg tang gdp phan phat tridn kinh td - xa hdi, edi thidn ve mj quan dd thi, tgo tidn dd thyc hidn vdn hda ddt dai, tdi da hda Igi nhuan tii ddt ciing nhu didu tilt quy dat, giiip nha ddu tu tiip cdn vdi quy ddt sach dl tridn khai dy an dugc thugn Ipi hon. Tuy nhien, cho den nay, phap ludt vdn thidu eac quy dinh hudng dan chi tilt ve thu hdi dat vimg phu can va xac djnh day Id trudng hpp thu hdi dat nao teong cae trudng hop quy dinh tai Khoan I, Didu 16 Ludt Ddt dai nam 2013.
Ludt Ddt dai nam 2013 tuy ed quy dinh cdc trudng hgp thu hdi ddt nhung chua lam rd dugc gidi ban "that can thidt" da chi ra teong Hidn phap, nham bao dam minh bach, teong khi phgm vi thu hdi dat dd phat triin kinh te - xa hpi vi Igi ich qudc gia, cdng cpng edn rdng vd chua rd rang. Bdn canh do nhiing chinh sdch Idn vd quan ly, sii dung tai san gan lien vdi ddt chua dugc lien ket mpt each he thdng vdi phdp ludt lidn quan, dan ddn tdn tgi nhung khoang tedng hoge chdng
(5) Nguyin Lan Hu'ong "M^t so han che cua phap luat dat dai hien hanh lien quan den su an loan ciia quyin sii dung dat nong nghiep cua nong dan trong thoi k^' dly manh cong nghiep hoa va hien dai hoa o nuoc ta", Phdp ludt ve qudn ly vd sir dung ddt dai & Viet Nam, Sdd, tr. 75 (6) DiSm d, Khoan 4, Bihu 39 va Dilm c, Khoan 4, Dilu 40 Lull D^t dai n5m 2013
82 So 933 (thang 1 nam 2020)
Nghien cihi - Trao ddi T a p <hi C d n g s a n cheo, rat can sdm didu ehinh cho phii hop
vdi thyc tidn.
K^t luan va kien nghi
Tidn teinh ddy manh cdng nghiep hda, hi$n dai hda, phat tridn kinh td - xa hdi, hdi nhap qudc te ngdy cdng sdu rdng, dan den nhu cdu thu hdi dat de thue hidn dy an ngay cang cao. Trong khi dd, quy dinh phap ludt ve van dd nay van edn nhidu ban chd. Cdn nhdn thirc rdng, teong didu kidn kinh td thi trudng hidn nay, thu hdi dat khdng chi la cdng cu hanh ehinh bat budc, ma cdn Id mdt cdng cu kinh td ciia Nha nude, nham xac dinh hgp ly cdc trudng hpp thu hdi dat, giiip ndng cao hieu qud qudn ly vd su dung dat, han che tieu cue. Trdn co sd dd, xin de xudt mdt sd kidn nghi nhu sau:
Thir nhdt, cdn dinh nghia rd khai nidm
"thu hdi dat dd phat tridn kinh td - xd hdi vi Igi ieh qudc gia, cdng cpng", giiip xdc dinh diing cdc trudng hgp dp dung theo co che nay, teong dd can bdo ddm yeu td thu hdi ddt thdt sy cdn thiet vi Igi ich qudc gia, cdng cpng. Khi liet kd danh sach cac trudng hop thu hdi dat theo mye dich dgt ra, cdn giai thich rd cac khai nidm teong danh sach dd, nhdm bdo dam hieu dung va thdng nhat, giiip phan logi chinh xac cdc du an phat tridn kinh te - xd hpi eho myc dich qudc gia, cdng cpng. Ddng thdi, can logi bd cac du an kinh td vi Ipi ich thudn tiiy eua nha dau tu ra khdi phgm vi cac dy an phat tridn kinh td - xa hdi vi Igi ich cdng, nhdt la eac khai nidm du an de bi lam dung, nhu khu cdng nghe cao, khu kinh te, khu dd thi mdi,...
Thir hai, xdy dyng tieu chi dd xac dinh cae trudng hgp thu hdi dat theo mue dieh dgt ra. Viec xac dinh rd vd that ehgt cac trudng hgp thu hdi ddt vdi cac tieu chi da xdy dung la can cii giiip co quan nha nude cd thdm quydn lua chpn, phe duyet dung cac du an can thu hdi dat, ed co sd xem xet tir giai dogn gidm sat, phd duyet du dn, ddnh gia hieu qua dy an, kiem tra cdc dy an khi hoan
thanh vd dua vdo boat ddng, ciing nhu trong hogt dpng giai quydt khieu ngi, khieu kien, boat dpng thanh tra, kiim ya.
Thu ba, du an quan trpng qudc gia do Qudc bgi c|uyet djnh chii trucmg ddu tu ma phai thu hdi ddt la du dn cdn dugc ddn chieu dSn ludt dp dung la Ludt Ddu tu cdng. Quy dinh nhu vgy se giiip hieu didu luat mdt each rd rang hon va ap dung thdng nhat.
Ddi vdi cdc dy an cd phgm vi thu hdi dat rdng, hoge gdy tranh cai ve muc dich dy an khi ehii y nhidu ve Ipi ich kinh te, can xem xet chat che hon dd phdn dinh cdc dy an bdo dam muc dich ludt dinh, phu hpp vdi cae tidu chi da dat ra. Ndu cdc dy dn dau tu khdng bao dam diing muc dich se chuyen sang CO ehd thda thudn giiia chu dau tu va ngudi dan theo Didu 73 Ludt Ddt dai. Ddi vdi thu hdi ddt viing phu can, nen (^uy dinh ddy la trudng hpp thu hdi ddt nham phat triin kinh tl - xa hpi vi loi ieh qudc gia, cdng cpng do hdi ddng nhdn dan cap tinh chdp thugn.
Thie tu, tiip tyc rd soat, dieu ehinh cdc quy dinh vl thu hoi dat va phap ludt ddt dai cho phii hop vdi Hien phap, Ludt Ddu tu cdng, Ludt Ddu tu va phdp ludt lien quan. BB bdo ddm eac dy an phat tridn kinh td - xd hdi vi Igi ieh qudc gia, loi ich cdng cdng thyc hidn diing muc dieh, cdn td ehirc thdm dinh du an, kidm tra, giam sat eac dy an bdo dam thyc hidn diing mue dich va tiin dp du an sau khi thu hdi dat, neu cham triin khai ndn tim ra nguyen nhdn va cd gidi phap xir ly kip thdi, xir ly nghiem ddi vdi cac trudng hpp vi phgm; nang cao chdt lugng quy hoach, kd hoach sir dung ddt bao dam khoa hpc, khd thi, hieu qua, cd tinh ddn su phat triin bin virng va phii hop vdi Ludt Quy hoach va cac logi quy hogch lien quan; minh bach, dan chii trong xac dinh cdc trudng hgp thu hdi dat, ciing nhu trudng hpp ddu gia quyin su dung ddt, ddu thdu du dn ed sii dung ddt, giao ddt, eho thud ddt sau khi thu hdi. •
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