NGHIEN CLfU-TRAO BOI
GIAM SAT COA NHAN DAN O 6 | vdi vile THI^ HlfN Q U Y I N D(il Dl|N CHO sd HOU VE o h DAI COA CHfNH QUYEN 0|A PHUONG
VUNGOCHA*
Tdm tat: Bdi viet nghien cieu vi gidm sdt cHa nhdn ddn ddi vdi vi^c th{cc hi^n phdp lugt vi quyen dgi di^n chu sa hOu ve ddt dai cua chinh quyin dja phirang, kiin nghj mgt sS gidi phdp ndng hi?u qm gidm sdt cHa nhan ddn ddi vdi viec thuc hi0n quyin dgi di^n chit sd hicu vi ddt dai cda chinh quyen dia phuang nhdm ddm bdo quyen lire dugc thycc hi?n trong phgm vi uy quyin, ngdn ngica s\e Igm quyen. gidm thiiu nhiing tdc dgng tieu c^ ddi vai xd hgi.
Tu khod: Chinh quyen dia phuang; chd sa hicu; ddt dai; gidm sdt; nhdn ddn; quyin dgi di^n.
Nhgn bdi: 21/5/2016 Hodn thdnh bien tap: 06/7/2016 Duy$t dang: 22/7/2016 Abstract: The paper is a study of people's supervision over the implementation of the law on the right to represent the land ow,ner of the local government, and offers some recommendations for enhancing the effects of people's supervision over the exercise of the right to represent the land ownerofthe local government in order to guarantee that the powers are exercised within the authorisation, to prevent the abuse of powers and to reduce the negative affects on the society.
Keywords: Local government; owner; land; supervision; people; right to represent.
Received: May 21", 2016 Editing completed: July 6"", 2016 Accepted for publication: July 22"^, 2016
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Vidt Nam, quyen giam sat cua nhan dan ddi vdi hoat ddng cua cac co quan nha nudc dugc khang dinh trong Hien phap nam 2013.^'* Giam sat cua nhSn d3n ddi vdi vide tliuc hi?n quyen dai didn chu sd hiJu ve ddt dai cua chinh quyen dia phuong la giam sat thue thi quydn h&nh phap. Nhan dan vdi tu each la chu thd cua quydn lire nha nudc, chu sd hihi ddt dai, g i ^ sat viec thuc hien quyln dai didn chu sd hihi vd dat dai cua ehinh quyln dia phucmg thdng qua cac co quan nh& nudc, cac td chuc chfnh tri-xa hdi, td chiic xa hdi va bang each true tiep kien nghi, phan anh vdi cac chu the ed tham quydn hoac thdng qua phuong tien thdng tin dai chung. Trong khudn khd bai viet nay, tdc gia dd cap giam sat cua nhdn dan mdt each trirctiep v& thdng qua cac thiet chd phi nha nudc.
1. C c sd phap ll cua giam sat nhSn dSn d l i vdi vi^c thvc hi^n quyen d^i dien chu sd hmi ve dat dai cua diinh quyen ^ phmmg
Dat dai 1& tai nguydn thien nhidn quy gia, thuoc sd huu toan dan do Nha nudc dai didn chu sd hiJu v& thdng nhit quan li.*^* Chinh quydn dia phuong dugc trao quydn dai dien chu sd huu, quan li dat dai d dia phuang. Mdi quan he giiia nhSn dSn v& chi'nh quydn dia phuang la mdi quan he giiia chii sd hftu vdi ngudi dugc uy quyen thue thi quydn sd hiiu.
Nhan dan thdng qua phap luat de xac dinh pham vi uy quydn, quyln han va trdch nhiem
* Thae sT luSt hpc, giang vign chi'nh Hpc vi^n Chfnh tri khu v^c I
TAP CH( LUAT HOC s 6 6/2016
NGHIEN CUU - TRAO DOI
Ciia ngudi duge uy quyen. Nhan d§n cd quyen giam sdt - xem xet, ddnh gia vide thuc hi?n quyen d^ di?n chu sd hihi toan dan doi vdi dit dai ciia chinh quyln dia phuang nhSm ddm bao cho chinh quyln dia phuong thuc hien dung chuc nang, nhidm vu, pham vi, gidi h ^ tham quyen cua minh dugc nhan dan uy quyen thdng qua phdp ludt ve d4t dai, ngdn chdn, giam thilu nhihig tdc dong tieu cue cua qud dinh tha hoa quyln luc nha nudc qua nhiing bilu hien nhu: tuy tien, lam quyen, vugt quyen, sach nhieu, quan lieu, tham nhiing...
nhdm nang cao hieu qua quan li nha nudc.
Trong thdi gian qua, ca sd phdp li ciia gidm sat nhan dan ddi vdi viec thuc hidn quyln dai didn chii sd huu ve dat dai cua chinh quyln dia phuong da dugc dugc bl sung, hodn thien ddng kl. Hidn phap ndm 2013 da quy dinh ddy dii hon cdc hinh thiic thuc hien quyln lire nha nudc ciia nhan dan, khdng chi bdng ddn chu dai dien thdng qua Qudc hdi, hdi ddng nhan ddn nhu trudc day ma cdn thdng qua cac ca quan nha nudc khdc va bdng cac hinh thiic ddn chu true tilp/^* Trdn ca sd dd, Luat dat dai nam 2013 quy dinh ro rang nguydn tac, ngi dung, hinh thiic gidm sat cua nhan dan ddi vdi vide thuc hidn phdp lu^t ddt dai cua chfnh quyen dia phuang: "Cdng ddn cd quyen tic minh hoac thdng qua cdc td chiec dgi dien thuc hien quyin gidm sdt vd phdn dnh cdc sai phgm trong qudn li vd su dung ddt dai"; "Mat trdn Td qudc Viet Nam, cdc to chiec thdnh vien cua Mat trgn thuc hiqn quyen gidm sdt vi qudn li vd sic dung ddt dai theo quy dinh cua Hiin phdp, Lugt Mat trdn Td qudc Viet Nam vd quy dinh khdc cua phdp ludt co lien quan".^'^^ Ddc biet, ddi vdi hoat ddng xay
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dung quy ho?ich, kl hoach sii dung dat vil^, phuang dn bii thudng, h5 trg, tdi dinh ctf^
nhihig hogt dgng cd tam quan trpng, ^ hudng ldn din hi$u qua sd dung dit vl quyln, lgi ich cua ngudi ddn, Lu^t dat ^ 2013 da quy dinh c\i thi ndi dung, hinh t h ^ thdi gian l4y ^ kiln nhdn dan ddng thdi qiiy dinh trdch nhi?m trong vide td chdc idy j kiln cua nhdn ddn, tdng hgp, gidi tiinh v^
tilp thu y kiln nhan ddn eua co quan nl^
nude. Thdng qua vide dong gdp y kien vao cdc chi tieu quy hoach, kd hoach sd dirng ddt, cdc du dn cdng trtnh thue hidn trong Id quy hoach, kl hoach sii dung ddt; phuang ^ bdi thudng, ho trg, tdi dinh cu, ngudi dan true tilp gidm sdt ddi vdi vide- thuc hiSn phdp luat vl quyln dai dien chu sd hiiu d2t dai cua chinh quydn dia phuang. Bdn canh dd, su ra ddi ciia Ludt Mat trdn Td quoc Viet Nam ndm 2015, Ludt cdng doan nam 2012 eiing gdp phdn hoan thien cdc quy dinh ve quyln tham gia, giam sat quan li nha nuoc ciia Mat tr^n Td qudc Viet Nam, cdng doan.
Luat tilp cdng dan ndm 2013, Ludt khilu nai nam 2011, Ludt td cdo ndm 2011, Lugt thanh tra ndm 2010, Luat td tung hanh ehinh nam 2010, nam 2015 Id nhung quy dinh bao dam cho ngudi ddn cd quyen phdn dnh, quyen khieu nai, td cdo ve nhihig van de co liSn quan din vide thuc hidn thuc hidn phdp \\S^
ve quydn dai dien ehu sd hihi ddt dai ciia chinh quyln dia phucmg. Ddng kd nhat la viec ban hanh Luat trung cau y ddn nSifi 2015 da ddnh ddu budc phat triln trong viee bdo dam quyln ddn chu cua ngudi dan voi vide quylt dinh nhimg vdn dd trgng dai ci^
ddt nudc, trong dd co vide quan li loai tdi san c6 gia tri ldn, lidn quan den chii quyen dSn
TAP CHl LUAT HOC s 6 6/2016
NGHIEN CUU - TRAO DOI
tpc va thugc quyln sd hiiu toan ddn la ddt dai. Su hoan thien eac quy dinh phdp luat vl giam sdt nhdn ddn la dieu kidn quan trpng, cd y nghia quylt dinh hieu qua th\rc hien phdp ludt vd quydn dai dien chu sd hiiu ddt dai cua ehinh quyln dia phuang.
2. ThiTC tr^ng giam sat cua nhSn dan doi vdi viec thirc hi^n quyen dai di^n chii sd huu ve dat dai cua chinh quyen dja phmn^
Giam sat cua nhan ddn ddi vdi vide thue hien quydn dai dien chu sd hihi vl ddt dai cua chinh quydn dia phuang d nudc ta thdi gian quan da dat dugc nhihig kit qua rdt quan trong. Trong do, ddng chu y la:
Thie nhdt, nhdn ddn true tiep thuc hidn quyen gidm sat thdng qua vide dong gdp y kidn, phdn dnh va gui don kidn nghi ddn cdc CO quan, ed nhan cd tham quydn.
Nhiing quyet dinh trong qudn li dat dai ciia chfnh quydn dia phucmg thdi gian qua da thd hidn phan ndo y chi ngudi ddn dia phuong. Theo kdt qua didu tra PAPI,*^* tir ndm 2011 - 2015, trdn toan qudc moi ndm co khoang tren 23,5% den 25% sd ngudi dugc hdi cho bidt hp da timg dong gdp y kien ddi vdi vide td chuc vd nhat Id cac hoat dpng cua nhd nudc, trong do cd cac hoat ddng thuc hidn phdp luat ddt dai. Ti Id ngudi ddn dugc hdi cho bilt chinh quydn dja phuang da tiep thu y kiln ddng gdp cua hp cho quy hoach, ke hoach su dung dat chiem ti Id trung binh khd cao (trdn 80%) trong suot 5 ndm.^^'
Thdng qua quydn khidu nai, td cdo cua minh, cdng dan yen cau chMi quyen dia phuang xem xet lai cac quyet dinh hanh chinh, hanh vi hanh chinh trong ITnh vuc dat dai de tu dd dilu chinh hoat ddng cua chinh quyln cho phu hgp vdi quy dinh ciia phdp ludt ddt dai.
ddng thdi dam bdo vd khdi phyc quydn vd lgi ich hgp phdp cua nhdn ddn. Ndm 2015, vl khieu nai, ca nudc cd 53.638 dan khieu ngi, trong dd khilu nai vl ve dat dai chiem 69,5%.'^' Nhihig sai pham trong thuc hi^n phdp luat dat dai ciia chinh quyen dia phuang edn dugc ngudi ddn phdn dnh thdng qua dia chi tilp nhdn, xu Ii thdng tin phan dnh ve tinh trang vi pham phdp ludt ddt dai trdn phgm vi cd nudc. Theo bdo cdo cua Tong cue quan li ddt dai, Bd tai nguydn vd mdi trudng phuc vu ki hpp thii 10 Qudc hpi khoa Xm, trong 9 thang ddu nam 2015, Cue kidm soat quan li va su diing dat dai da tiep nhgn, xd If 393 trudng hcrp phan anh cua cdng ddn ve vi pham phdp ludt ddt dai.
Trong tdng sd quydt dinh hanh chfnh vd ddt dai bi khidu ngi, td cao giai dogn td ndm 2004 - 2012, ti Id khilu nai, to cdo diing hodc diing mdt phan chidm 47,8%, cd biet cd dia phuang ldn tdi 70%, trong sd cdc vy dugc dua ra xet xu tgi toa dn thi ti Id khdi kidn diing vd dting mdt phdn chilm 19,5%.*^' Ridng ndm 2015 CO 29,7 % khieu nai diing vd dung mot phan, 36,6% td cdo diing va diing mdt phdn va 81% eac khieu ngi, td cdo da dugc giai quydt.*^' Cac khidu ngi, td cdo diing va da dugc gidi quydt thd hidn nhiing gid tri giam sat eua ngudi ddn trong vide tac ddng din vide thuc hidn phap ludt ddt dai cua chi'nh quyen dia phuang, chdng su long quyen, lam quydn hoac thieu trdch nhiem, xam pham quydn va lgi ich hgp phap cua cdc ehii sd hihi ve ddt dai. Tuy cdn d muc dd khiem tin nhung su gidm sdt ndy da gdp phdn quan trpng vao viec tang cudng trdch nhidm giai trinh cua chinh quyen dia phuang vdi nhijng vdn dl md nhdn ddn doi hdi. Cting tu do.
TAP CHi LUAT HOC s 6 6/2016
NGHIEN CUU-TRAO BOI
nhan ddn kien nghi cdc ca quan huru quan hodn thidn phdp ludt ho^c cd cdc bien phap ndng cao hon hifu qua tl chiie th\re hidn phap lugt ddt dai theo hudng sdt vdi thuc tien nhdm giai quylt nhung ddi hdi cua thye tien.
Thie hai, nhan dan gidm sat thdng qua cdc tl chiic chfnh tri - xa hdi, td ehiic xa hdi.
Hien Viet Nam co hang ch\ie ngdn td chtic xa hgi ciia ngudi ddn vdi tren mdt phdn ba dan s6 tham gia vdo mpt trong so eac tl chiic chfnh tri-xa hpi.*'°^ Cdc tl chiic chfnh tri-xa hdi, td chdc xa hgi dd ddng vai trd quan trpng trong gidm sat chinh quyln dia phuang trong vide thuc hidn quyen dai dien chii sd hftu vd ddt dai; td dd, dOng vien nhdn dan tham gia vdo cde hoat ddng cua nha nudc vd qua do ndng cao kha ndng lam chii cua ngudi dan. Mdt trdn Td qudc cdc cap va cdc doan thi nhan ddn dd ddi mdi hinh thirc hogt ddng dl ndm bdt tam tu, nguydn vpng vd y kiln ciia eac tdng ldp nhdn dan vd tinh hinh thuc hien phap luat ndi chung va phdp ludt ddt dai tai dia phuang dl phan anh vdi cde ca quan nha nudc cd thdm quyln. Nhieu kidn nghi da dugc cac ca quan nhd nudc, trong dd cd chfnh quyln dia phuang nghien ciiu va giai quydt.
Mat trdn Td qudc d nhieu dia phuang da thudng xuyen chi dgo ban thanh tra nhdn dan, ban gidm sat ddu tu cpng ddng tidn hdnh kiem tra, giam sdt viec thuc hidn phdp lugt ddt dai.
Thdng qua giam sdt hogt ddng quan li ddt dai eiia chinh quyln dia phuang, cde td chdc chinh tri - xa hdi vd doan the qudn chiing da gop phdn bao ve quydn va lgi ich hop phdp ciia cac thdnh vidn, dac biet la nhiing nhdm ddn cu dugc coi Id d "vj thi ydu".
Thic ba, nhdn ddn gidm sat thdng qua cdc phuang tidn thdng tin, dai chiing.
Cdng ddn gidm sdt vide thuc hien qu;
dgi didn chu sd hihi vl ddt dai cua cl quyln dja phuang thdng qua vi^c tv vilt cdc tdc phim bdo chf hodc cimg thdng tin cho bdo ehi, phan h6i thdng tm bdo chf, gdp y Idin, phd binh, kiln n^
khilu ngi, tl cdo trdn bdo chi. Cac ca qi bdo chf cung tiiudng xuydn dua tin phdn vl hogt ddng cua chmh quyen dia brong hoat dgng quan If dat dai Bdo drfS^
khdng chi thdng tin vl cdc quy dmh ve ph%
lugt ddt dai dk ngudi dan tilp can md ck?
cung cdp thdng tin cho nhdn dan tien WaOi gidm sat viec thuc hien phdp ludt ddt dai ciia chfnh quyln dia phuang vdi tu cdch la cdng cu h5 trg. Nhihig thdng tin trdn bdo chi nhik khi trd thanh "sdc dp" ddi vdi boat dpng cik chfnh quyln dia phuang. Dudi tdc ddng cfia du ludn bdo chf, bupc cdc ca quan nhd nticfc, ca nhdn cd tham quyen phdi chap nhdn tranh luan, dli thogi vdi nhdn dan, tii dd ren luy&i Id nang chfnh tri hidn dai, khac phuc finh trang ne ti*dnh cdng ludn. Theo nghidn ciiu eua Chucmg trtnh phat tridn Lien hgp qudc t#^
Vi$t Nam vl bdo chf va tham nhung, trong 27 nhom ITnh vuc dugc phdn dnh, tin, bai lien quan din nhihig vi phgm phdp lugt thd hifn su long quyln, Igm quyln trong qudn K dat;
dai vugt xa cac ITnh vuc khdc, chidm tdi.
20,8% (ITnh vuc giao tiidng xip thit hai voi- 11,3%). Nhilu td bdo ddnh dung lugng khi ldn dl phdn dnh eac hidn tugng fliam nhthg trong ITnh vuc ddt dai, diln hinh la Bdo Tuoi tre vdi 21,7%, Bdo Lao ddng ddnh 25,1%.'"*
Nhilu vi phgm phdp ludt diln hinh eua chfnh quyln dia phuang trong ITnh virc dat dai da bi bdo chf phanh phui. Chang hgn, nam 2012, rieng vu viec sai phgm trong thu hdi ddt cda
TAP CHl LUAT HOC s 6 6/20f6i'
hd dng Dodn Vdn Vuon d Hai Phdng, tfnh ddn ngay 14/3/2012, da ed hon 1.200 bdi vilt khdc nhau h-dn cdc phucmg tien thdng tin dai chiing vl vu vifc nay.^^^' Qua hnyln thdng dai chung, vu dng Doan Vdn Vucm khdng cdn la vdn dd cua Hai Phdng ma trd thdnh vdn dQ chung eua ca nudc.
Bdn canh nhung kit qua tfch cue neu tren, gidm sdt ciia nhdn ddn ddi vdi vide thuc hidn quydn dgi didn chu sd hihi vd ddt dai cua chinh quyen dia phuang edn nhung ban chd nhat dinh:
Thic nhdt, cdng ddn thue hien quydn giam sdt thdng qua viee kien nghi, phdn dnh, khidu "ngi, td cdo nhung ca hdi dugc phdt bieu y kien, kha ndng dugc tilp thu y kiln hay khdng phu thude phdn nhieu vdo chinh quydn dia phuong va thdm quydn gidi quyet thude ve chfnh ngudi dd ban hdnh cdc quylt dinh hanh chfnh, thuc hien hanh vi hanh chfnh ma dan cho la trdi phdp ludt. Vide kidn nghi, phan anh true tiep vdi chfnh quyen dia phuong tiong qua trinh qudn li ddt dai it dugc thuc hidn. Chi cd 13% sd ngudi dugc hdi ttdn pham vi loan qudc cho bidt chinh quyen dia phuang da tham van y kien cua hg trong qua trinh xay dung vdn bdn quy pham phap ludt, cd 111/1.008 (10,27%) ngudi dugc hdi trd ldi da gdp y cho Lugt dat dai ndm 2013; ti Id ngudi tta ldi cd co hdi ddng gdp y kiln eua minh trudc khi quy hogch, ke hogeh dugc ban hanh tir nam 2011 den nam 2015 la kha thdp vd ed xu hudng gidm ddn (7% ndm 2013, 5% ndm 2014 vd 3% ndm 2015).''^' Cho din hidn nay, ngudi ddn chua cd quydn khdi kidn dd ydu cdu toa dn huy vdn bdn quy pham phdp luat do ehinh quydn dia phuang ban hanh trdi lugt, lam dnh hudng
den lpi ich cpng ddng vd chua mdt ldn dugc tiiirc hidn quyln quylt dinh OT;C tiep nhiing vdn dl quan trgng Hen quan ddn tdi san qu^
gid bdc nhdt Id ddt dai bdng hinh fliuc tnmg cdu y ddn. Vi vdy, kha ndng phdt hi$n cdc sai phgm trong thye hien phdp lu$t ddt dai la cd nhung khd nang "udn ndn" chfnh quyen thuc hidn dting phgm vi uy quydn la chua cao.
Thic hai, su giam sdt ctia M|t trdn Td qudc Viet Nam va cdc thilt chd mang tfnh xa hdi khdc cdn hinh thtic, chuc nang phdn bien xa hdi ehua dugc phdt huy. Hidn phdp vd Ludt Mat trdn Td qudc Viet Nam diu khdng dinh Mat ttgn Td qude la ea sd chfnh tri cua chfnh quyen nhdn ddn; dgi didn, bdo vd quydn vd lgi fch hgp phdp, chinb ddng cda nhdn dan.
O dia phucmg. Mat trdn cd ttach nhidm gidm sdt hoat dpng ctia hdi ddng nhdn ddn, uy ban nhdn ddn ttong viec chap hanh phap ludt ddt dai. Tuy nhidn. Mat trdn Td qudc vd cdc thanh vien ciing nhu ban thanh tra nhdn dan, ban giam sat dau tu cpng dong cdn gap nhilu thdch ±iic trong viec bao dam tinh Udm chuih ttong giam sdt, khd gift tinh ddc lap, khdch quan ttong vide giam sat, kidm tta hoat ddng didu hdnh, quan If ciia chfnh quyln sd tgi khi md chfnh ca quan ndy Id noi tgo dilu kidn vl ca sd vdt chdt, cdp kinh phf hoat ddng cho cdc.
td chuc doan the. Vdi hoan canh nhu vdy, hp cd khd ndng ho ttg, bao vd cdc ca quan nha nudc hon Id thuc hidn tdt vai ttd giam sat.
Thdm chf, ddi khi hg dd "qudn" chuc ndng phdn bi?n cua minh ma diing vd phfa chfnh quydn ngay cd khi chfnh quydn lam trdi ludt,
"Mat trgn To qudc phdi mg hd cao vi^c cudng che thu hdi ddt vi no diing ddn".^^'*^
Thu ba, hau hdt cac phucmg tien thdng tin dgi chung thupc sd hihi nhd nudc, vi vdy,
TAP CHl LUAT HOC s 6 6/2016
I NGHIEN CUU-TRAO DPI |
ttong phan dnh cdc thdng tin lien quan den chirih quyen nhd nudc, d muc dd nhat dinh van edn han che ve tinh dgc lap, khdch quan va chfnh xdc, chua th\re sir Id phuang tien ho ttg dl nhdn ddn gidm sdt vipe tiauc hien cdc quy dinh vl quyln dai dipn chti sd dat dai eua chfnh quyln dia phuang. Tdng kit 15 nam thi hdnh Lugt bdo chf, Bp thdng tin va tiuyin flidng khdng dinh: "Nhiiu vi sd lugng ca quan bdo chi nhtmg chdt luang chua tuang ximg, con chdng chdo ve tdn chi muc dich, ngi dung, ^i tumig phyc vy; cd xu huang "thuang mgi hod" trong hogt ddng bdo chf \^
Nhung han chi ndu ttdn xuat phat td nhilu nguyen nhdn khac nhau trong do phai kl din cdc nguyen nhdn ca ban sau:
Mgt Id nhdn thiic eua cdn bg, cdng chuc va cdng ddn vl vai ttd ctia giam sdt nhan ddn dli vdi vide thuc hidn quyln dai didn chu sd hftu vd ddt dai cua chfnh quyln dia phucmg chua ddy du. Ludt dat dai ndm 2013 quy dinh ngudi dan cd quyen tham gia gidm sdt vipe lap, dilu chinh, cdng bo thuc hidn quy hogch, kl hoach sti dung dat, giao dat, cho thud ddt, cho phep chuyin doi muc dfch su d\mg ddt, fliu hoi, bdi thudng vd tdi dinh
~eu... Tuy nhidn, nhidu ngudi ddn chua t\r y thdc dugc vl quyln chu sd hihi ddi vdi dat dai cua nhdn ddn, chua nhdn thiic dugc vai ttd chii thi quyln luc dd tham gia gidm sdt hogt ddng chfnh quyln dja phucmg trong viec thuc hidn phap Ludt dat dai. Thdi dp thd a vdi nhftng vdn dl chung cda xd hdi tdn tai da khd Idu ttong bp phdn ddn chting, bdi vdy, ttong mOt si trudng hgp, hg cdn thu dgng, khdng muon tham gia tich c\rc vdo cdng tdc quan If d dja phuang. Nhgn thuc vd gidm sat cua nhdn ddn ddi vdi vi?c tiiuc hien phdp
lugt dat dai eiia chfnh cdn bo, c6ng d i M
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chua fligt s\r d4y du, chfnh xdc, vi v^y, l # | chua coi ddy Id hoat ddng khdng thi t h i ^ ttong qud trtnh qudn K. M0t sd co quan, t^
chiic, cd nhan khi nhfn dugc ^ kien t ^ ; chilu cd tinh phan bien hay y kiln chdt vil^T cdn td ^ khd chju, bit hgp tdc, tir chii cm^
cdp thdng tin hodc cd phdn iing tidu eye md chua thdy dugc ddy Id hoat dpng mang t&fli xdy dung nhdm th\rc hidn quyln 1 ^ nhdn ddn, gjiip cho chfnh quyen dia phuong &%
dugc nhftng hgn che ttong thuc hidn phdp lugt ddt dai dd tim each khdc phuc, lam dio chinh quydn ngay cdng hoan thien hon, thuc hipn tdt hon nhidm vv eua minh.
Hai Id co sd phap If cho gidm sat ciia nhan ddn ddi vdi vide tiiuc hidn quyln dai dien chu sd huu vd ddt dai cua chmh quyen dia phuong cdn nhieu bat cap. Su bdt c ^ ndy dugc thi hidn trudc het d phdp ludt vd ddt dai. Do Ludt ddt dai vua mdi dirge sua doi vd dua vao thuc hien nen nhidu quy djnh eua Lugt ehua dugc hudng din cu the hoac hudng dan vd c&ng mdt vdn dd ciia cdc co quan khdc nhau khdng thdng nhdt, dan den nhilu each hidu khdc nhau. Tii dd, eac chi thi thilu eo sd dd theo doi, ddnh gia Men qud ctia phdp luat trong th^c te, kdt lu|s nhihig trudng hgp vi pham. Ciing vdi d4 nhung quy dinh eiia phdp luat vl gidm s&
eua nhdn ddn ddi vdi vide th\ic Men quyfe dgi didn chu sd hiiu vl dat dai cua clunh quyln dia phuong ciing thd hidn nhieu bat cap ca vl ndi dung lan hinh thiie, chira tao dugc CO ehl gidm sdt hieu qua. Mgt so quy dinh thilu tfnh kha thi nhu ve cdng khai, minh bach, tiep cgn thdng tin, ttdch nhiem gidi trtnh; chu thi gidm sdt thilu tfnh d^
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lap; tiiiiu chd tdi xii li doi vdi vide khdng chap hanh cae kdt ludn, kiln nghi sau giam sdt. Theo khdo sat eua Ngdn hdng thd gidi, 45% sd ngudi dugc hdi cho rdng cdc boat dgng gidm sat trong thu hli ddt dai, bii thudng vdtdi dinh cu chi mang tfnh hinh thiic do thidu luat.^'^* Vd hinh thiic, cdc quy dinh vd giam sdt cua nhdn ddn doi vdi viec thuc hidn quydn dai didn chu sd hftu vl ddt dai cua chfnh quydn dia phuong edn tdn man, thilu tdp trung, thilu ddng bd, thing nhdt, chua eu thd, rd rdng.
Ba Id hogt ddng qudn If ddt dai cua chfnh quydn dia phucmg chua thuc su cdng khai, minh bgch. Kdt qud khdo sat nam 2015 ctia PAPI cho thay muc dp cdng khai, minh bgch kd hoach sd dung ddt cd ehieu hudng gidm xudng sau 5 nam, ttong do ti le ngudi tra ldi cho bidt hg bidt kd hogch sd dung ddt tgi dia phucmg nam 2015 ehi !a 11,8%. Chi sd cdng khai minh bgch ke hogeh sii dung ddt va khung gid ddn bii ctia chfnh quydn dia phuong gidm tu 1.71 ndm 2014 xudng cdn 1.67 ndm 2015.*"* Viec xdy dung co sd dft lieu ddt dai tgi mdt sd tinh thuc hidn cdn chdm. Vide cdng khai cdc td chiic sti dung ddt dang cd vi phgm phap ludt ddt dai ttdn cdng thdng tin dien td ctia u^ ban nhdn dan tinh theo quy djnh cua Ludt ddt dai nam 2013 cdn nhilu dia phuong chua thuc hidn ddng thdi chua tdng hgp, gui bdo cao vd Bd tai nguyen vd mdi trudng va Tdng cue quan If dit dai dd cdng khai.*'^' Ben canh do, din nay van chua thilt lap dugc co ehl phdi hgp gifta chfnh quyen dia phuong vdi cde ea quan trong he thong ca quan nha nudc khac, cde td chuc doan thd ttong vide cung cap cac ngudn thdng tin lidn quan den tinh hinh thuc
hipn phdp lugt ddt dai.
Bdn la ndng l\rc gidm sat ctia ngudi ddn cdn hgn ehl. Qua bdo cdo vd phdn tfch tii kit qud gidi quydt khilu nai, to cdo cho thay, cd khoang 70,3% tiudng hgp khieu ngi sai vd 63,4% td eao sai.*'^' Dilu ndy eho thdy nhdn thdc vd hidu bilt phdp lu|lt cua eong ddn edn hgn chd. Ddn nay, ti Id ngudi ddn sd dung Intemet tai nhd tten phgm vi todn quoc mdi dat 25,6%. Khi cdn tim thdng tin vd khung gid ddt, ehi rdt it ngudi (khoang 7%) tta eiiu ttdn Intemet ttong sudt 5 nam qua. Doi vdi ngudi dan d ndng thdn, vung sau, vdng xa, bang tin cdng khai d uy ban nhan ddn xa, td tin hodc loa tmyln thanh d cdp thdn vin la nhiing cdng c\i hihi hi$u dd cdng khai, minh bach thdng tin din ngudi ddn vd kl hoach su dyng ddt vd khung gid din bii.*^*
3. M$t s6 giai phap nang cao hi^u qua giam sat cua nhan dan d6i vdi vifc thirc hifn quyen d^i difn chu sd hihi ve ddt dai cua chinh quyen dia pbiromg.
Dd dam bao tfnh kha thi va hieu qua gidm sdt cua nhdn ddn ddi vdi vide thuc hien quyen dgi dien ehu sd hiiu vd ddt dai ciia chfnh quyen dia phuang, edn thuc hidn ddng bp mdt sd gidi phdp sau:
Mdt la hodn thien co sd phap K eho gidm sdt cua nhdn dan ddi vdi vipc thuc hidn quydn dgi dien chu sd hiiu ve ddt dai cua chinh quyen dia phuang.
Dd nang cao hieu qud giam sdt cua nhan ddn ddi vdi viec thuc hien quydn dai didn chu sd hihi ddt dai ctia chfnh quydn dia phuang, can hoan thien phdp ludt nhdm dam bdo su dgc lap, khdch quan ttong gidm sat.
Theo dd, phdp ludt cdn quy dinh theo hudng td chdc xd hpi tu chu, tu chiu ttdch nhiem vd
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ngu6n luc, co quySn tham gia dam nhiem viec cung ung mpt s6 dich vu cong theo dat hang cua Nhi nuac; khong coi nhihig nguoi 15m viec trong cac t6 chuc xa hpi la can b6, c6ng chiic va huong luong tu ngan sach nha nuoc. T6 chiic xa hpi tu tra tiSn cong cho nguoi lam viec theo nSng luc va ket qua cong viec. Mat khac, cSn siia doi cac quy dinh dam bao quyen chu dpng trong giam sat cua cac t6 chiic chinh tii - xa hpi, to chiic xa hpi.
Mat trSn T6 quoc phai dupc tham gia vao cac doan giam sat cua cac ca quan nha nuac mpt each chu dpng trong timg truang hpp cu thg theo luat dinh chii khong phai ca quan nha nuoc "co the moi" hoac "tao dieu kien".
C3n sam ban hanh vin ban huong dan Luat trung cku y dan va to chiic thuc hien ngay sau khi Luat cd hieu luc. Trong cac van ban hucmg din thi hanh, cin quy dinh ro nhiing vin Sk dac biet quan trpng cd anh huong lon dSn sir phdt trign cua dit nuoc cin Irung ciu y dan va thu tuc, trinh tu cu the ciing nhu ti le nguoi dto d6ng y trong timg truang hop va trdch nhiem cua chinh quyen trong viec thuc hien y dto. Cin trao cho ngucri dta quygn tham gia quygt djnh vg quy hoach su dung dit theo huctng quy hoach chi dupc phe duyft khi dat dupc su d6ng thuan cua cpng d5ng dan cu noi co dit vai ti le d6ng thuto 2/3 y kign cua cpng d6ng. Ti le dong thuan trong thu h6i, b6i thudng, ho trp, tai dinh cu cung cin dupc xac dinh cu thg tuy thupc vao miic dp toh huong dgn cpng dong.
B6 sung cac quy dinh cua phap luat vg trach nhiem phap li khi co htoh vi vupt qua giai ban thim quygn hojc Itoi khong hgt trich nhiem dan dgn thiet hai lpi fch cua nguoi dto. Theo dd, neu chinh quygn dia
phuang ban htoh vto bto quy pham p h ^ li|
ti^ luat, h ^ che mpt each bit hpp li cua nguai dto, nguW dto cd quygn khai kifti^
dg ygu d u toa to huy vto bto dd. Quygt d ^ ' va hanh vi ciia bO may hanh chinh nte nuft gay thiet hai cho nguoi dto mpt c^h tx§
luat thi chinh quygn cip nto co thim q u ] ^ ' thuc hien phai bdi thudng diilt hai (*»
nguai dto, ke ca khi nhi?m vu ffi dupc plA d p hoac uy uygn cho d p dudi thuc hien.
Xay dung cac van ban huong dan tU hanh Luat bao chf nSm 2016 va tigp tuc bum thien thg chg vg bio chi dg tao digu kien tfanSii lpi cho nguoi dto sii dung cac phuang ti6i thong tin dai chung trong gitoi sat, dong Ihdi khic phuc "tinh trgng tu nhdn ddu tu chui, nup bdng tgi nhiiu td bdo dang tSn tgi".
Tigp tuc hoto thien nhimg quy dinh dtoi bao khach quan, trung thuc cua cac phuang lien thong tin dai chung, ngan ngiia cac bigu hieo lpi dung tu do, dto chu dg chdng phi NM nudc. Hoto thien cac quy dinh v6 quyen kign nghi, khigu nai, to cao cua cong dan vi cac quy dinh vg trach nhiem giai trinh, cdng khai, minh bach cua chinh quygn dia phuong trong lihh vuc dit dai, dong thoi sdm ban hanh vto bta hudng din thi hanh Luat ti^
can thong tin nam 2016 dg quy dinh cu 111?
quygn tigp can thong tin va trach nhiem cung d p thong tin vg dit dai cua cac chii the.
Hai Id ttog cudng cdng kiiai, minh badi trong viec thuc hien quygn dai dien chu so hftu vg dit dai ciia chinh quygn dia phuong.
Cflng khai minh bach trong thuc hien ph^
luat la digu kien quan trpng de nhto dSn gitoi sat viec th\K; hien phap luat cua chlih quygn dia phuong. Cac thflng tin vg vise thuc hien phip luat dit dai cua chfnh quyen
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dia phuong dugc cdng khai minh bgch, giiip nhdn ddn hidu bidt tudng tdn vd vide thuc hien phap ludt cua chiiih quyln dia phuang, tu do dd ddng giam sat. Cdng khai, minh bgch vide thuc hidn phdp lugt ddt dai eiing cd thd ducrc coi la phuang tifn gidm sdt eua nhdn ddn. Chfnh vide cdng khai, minh bach gitip cho cdc can bd, cdng chdc cd thdng tin ddy du dd thuc thi phdp ludt ddt dai mdt each chfnh xac. Sir cdng khai, minh b ^ h ciing tao ra sue dp vdi dpi ngii can bd cdng ehue, bupc hg phai "giii minh" trong khudn khd ctia phdp ludt, xoa bd nhung khodng tdi, nhiing ea hpi dd cdn bp, cdng chiic lgi dung true lgi va gay khd de eho nhdn ddn; ngudi ddn cd thdng tin de chdt vdn, chi trfch nhihig hanh vi vi phgm phdp ludt cua chuih quydn dia phuang. Dd phuc vu cho gidm sdt cua nhan dan ddi vdi vide thuc hidn quydn dgi didn chti sd hdu vd ddt dai cua chmh quydn dia phuang, npi dung can cdng khai, minh bach phdi bao gdm cdc vdn ban quy pham phdp luat vd ddt dai, dac biet la nhiing quy dinh cd hen quan din thdm quydn ciia ehinh quyen dia phucmg va thdng tin vd vide thuc hien phdp ludt ddt dai ctia chfnh quydn dia phuong. Cdn nhanh chong thiet lap he thong thdng tin ddt dai theo quy dinh tgi Chuong DC Luat ddt dai ndm 2013 va bdo ddm tilp cgn eiia cae cd nhdn, td chiic tdi he thdng ndy. Mpi thdng tin cdn phai dugc cdng khai kip thdi vd minh bach, tru nhiing thdng tin ndm trong danh muc "logi trir". Thiet kd, vgn hanh he thing theo doi vd ddnh gia ddi vdi quan If vd sti dimg ddt dai theo quy dinh tai Dieu 200 Lugt ddt dai nam 2013 dua tten he thing thdng tin ddt dai va vide thu t h ^ cdc thdng tin khdc tti qua ttinh thi hanh phap luat
vl ddt dai ttdn phgm vi ca nude.
Ba Id hodn thipn td chtic bg mdy, hoat ddng ctia cdc td chtic chfnh t4-xa hdi, to ehiic xa hdi ddm bdo thye su du cdc ydu to dieu kien, ndng luc dai didn cho nhan ddn trong gidm sdt vide thuc hidn quyen dai di#n chiia sd hihi vd ddt dai ctia chfnh quyln dia phuong.
Lap ban thanh tta nhan dan, ban gjdm sdt ddu tu cpng dong d cdc xa, phudng, thi trdn dd tao didu kien eho nhdn dan th\re tiidn dan chu d CO sd. Nha nudc tao dilu kidn va khuyen khfch eae doanh nghipp, nha hao tdm ho ttg cac td chiic xa hdi ddng thdi tao fidu kidn cho cdc td chiic xa hdi fliam gia ddu thdu cung ting mdt sd dich vu cdng dd tao Igp ngudn kinh phi, ddm bdo ddc lap ttong giam sat.
Bdn la xdy d\mg mdi trudng ddn chti vd phap quyen. Chmh quydn dia phucmg phdi thuc tiidn n ^ e m tuc trach nhidm ctia minh ttong vide Idy y Iden ntian dan ve nhiing ndi dung quan trpng trong qudn If ddt dai ma ^ bidt la vd quy hogeh, kd hoach sii dung ddt phuong dn bdi thudng, ho ttg, tai dinh cu;
xay dung eae md hinh, each thiie thugn tipn cho ngudi ddn bidu dgt -^ chf, nguydn vpng cua minh; tidp thu va giai trinh vide khdng tidp thu y Iden eua ngudi dan. Trong dieu kidn trinh dp phdp ludt cua ngudi ddn chua cao, chfnh quydn dia phuong, cdc td chiie chfnh tri, chfnh tri-xa hgi phdi thd hidn vai trd chi dan, nang cao y thiic phap lugt, ddn trf vd bdn liiih eho ngudi dan trong dau tranh vdi cdc bieu tiidn tidu cue. Cdc phucmg tipn thdng tin dai chiing can phat huy vai ttd cua minh trong tuydn tmydn, giao d\ic p h ^ ludt ddt dai cho ngudi dan, thdng tin khdch quan, tnmg thuc vl viec thuc hidn p h ^ lugt dit dai cua chfnh quyen dia phuang, ddng ±di ptian tfch, dinh hudng mpt cdch diing ddn; ddng vien.
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khoi dgy tilm ndng cda ddn va chuyen tai ;y kiln ciia ngudi ddn tdi td chtic, cd nhdn c6 thdm quyen; ho teg bdo vd ngudi ddn khi cdn thiet.
Ndm Id phai dam bdo tfnh lidn kit giiia ca ehl nhdn ddn gidm sat chfnh quydn thiie hien phdp ludt vdi he thing gidm sdt ben ttong giiia cac eo quan nhd nudc td tmng uang xudng dja phuang. Cdc co quan nhd nudc, cdc td chuc chfnh trj - xa hdi, td chtic xa hdi cdn xdy dung quy che phdi hgp va td chiic thuc hidn dd dam bdo phdi hgp mgt cdch binh ddng va tdn ttgng ldn nhau, tgo ndn hd thdng gidm sdt ddng b0, chat che, vdn hdnh cd hifu qua. Sy phdi hgp gitia cdc ehu thd vua la co ehl bd ttg cho nhau ttong gidm sdt, vua ttanh su ching cheo ttong gidm sdt, 1dm anh hudng ddn hogt dgng ctia chfnh quydn dia phugng./.
(l).Xem: Dieu 6 HiSn phip nSm 2013; Dieu 4 LuSt ddt dai nam 2013.
(2).Xem: Dieu 53 Hien phip nSm 2013.
{3).Xem: Dik 6 Hien phip nSm 2013.
(4).Xem: Dieu 199 Luat ddt dai n5m 2013.
(5). PAPI - Chi s6 hi?u qui quin tri vi h&nh chmh cong cap tinh 6 Vi^t Nam li sin phdm cda hogt dOng hgrp tic nghien ciiu gifta Trung tim nghign cihi phit trien-ho trcr c^ng dong (CECODES) thuOc Li6n hi?p c ^ hOi khoa hoc-ki thu§l Vi^t Nam vi Chucmg trinh Phit triln Lien hpp qu6c (UNDP) tai Vi^t Nam. PAPI 1^ khio sit xa hOi hpc 16n nhit t^ Vi^t Nam, t§p trung tim hieu hi^u qui cfing tic dieu hinh, thuc thi chinh sich, cung ling dich vy c6ng dvra trSn dinh gii vi trii nghiem cila nguiri din, vdi dQ li?u dupc thu th^p thuftng nien.
(6). Ngu6n: ht^://papi.org.vn/wp-contenl/uploads/ 2016/
03/Fact_sheet_dimension2-1 .pdf, tiuy cgp n^y 20/4/2016.
(7). Bio cio ciia Chmh phd so 455/BC-CP ngiy 23/9/2015 ve c6ng tic giii quylt khieu nai, ih cio nim 2015.
(8). Bio cio cua UJ ban thu6ng vu Qu6c hOi s6 263/BC- IJBTVQH13 \h ket qui giim sit vi?c thye hi^n chfnh sich phip lu§t trong giii quyet khieu ngi, t6 cio ciia c6ng dan d6i vi5i cic quylt dinh hinh chi'nh ve dat dai
ngiy 05/11/2012.
(9). Bio cio cda Ch&h phil s6 455/BC-CP n^y 23/9/2pl|"
v^ c6ng tic giii quylt khilu n^i, to cio nSm 2015. ^ (10).Xem: NgSn hing the gidi - BO ke hogch vi d^
tu Vi^t Nam, yi4t Nam 2035 hudng tdi think vugng, sdng t^o, cong b&ng vd ddn chu. Bio cio tong quan, tr. 107, ngu6n: https://openknDwledge.WDrldbank.oigif bitstreani/handle/10986/23724/VN2035Vietname8.
pdf, truy cip ngay 20/4/2016.
(11). Xem: Catherine McKinleyft UNDP Vi§tNanii
"Bio chf vi tham nhung". Bio cio nim 2009, tr. 19,20, ngu^n: http://www.vn.undp.org/content/dan)/vietnam/
docs/Publications/1771 l_UNDP_MediaCorruptionJ inal_V.pdf, truy c§p ngiy 20/4/2016.
(12).Xem: Vai trd ciia truyin thdng ddi vdi ngudn (jn:
ddt dai, ngu6n: htQ)://congly.com.vn/thoi-sujfthoi-cuoe/
vai-tro-cua-tniyen-thong-doi-voi-nguon-Iuc-dat-dai- 461.html, tmy c$p ngiy 23/4/2016.
(13). Ngu6n: PAPI 2013. 2014, 2015, http:/^api.org.
vn/ bao-cao-va-du-lieu-papi.
(14).Xem: Cudng chi dam tdm 6ng Vuan de ddm bao cong bdng, ngu6n: http://vnexpress.net/tin-tuc/thoi-sii/
cuong-che-dam-tom-ong-vuon-de-dam-bao-cong- baiig-2216478.html, truy cap ngiy 21/4/2016.
(15). Ngu6n: htQ)://wwvi'.vtc.vn/bo-tttt-tong-ket-15-nani- thi-hanh-luat-bao-chi, truy c§p ngiy 12/11/2014.
(16).Xem: Ngin hing thi gi6i, Dgi sd quin Dan Mgch, Dgi sii quin Thuy Diln. Nhgn di^n vd gidm thieu cdc rdi ro ddn din (ham nhiing trong qudn li Sal dai a Vi?t Nam, Nxb. Chfnh tri quoc gia, Hh, Ngi, 2013, tr. 49.
(17).Ngu6n: PAPI 2015, http://papi.org.vn/bao-caon va-du-lieu-papi, truy c§p ngSy 20/4/2016.
(18).Xem: Bao cio ket qui thanh tra, kiem tra quin % SII dyng dat dai cua Cyc kiem soit quin If vi sii dpg ddt dai, T6ng cyc qudn li Ak dai, B$ tii nguyen vl moi tru6ng nim 2015.
(19).Xem: Bio cio ciia Chfnh pha s6 455/BC-GP ngiy 23/9/2015 vl cong tic giii quylt khilu ngi, to cio nim 2015.
(20). Nguon: PAPI 2015, ht^://p£^i.org.vn/wp-contentf uploads/2016/04/PAPI_2015_REPORT_VN-l.pdf, truy cfip ngiy 20/4/2016.
(21). Nguon: ht5)://www.vtc.vn/bo-tttt-tong-ket-15-nam- thi-hanh-Iuat-bao-chi, truy c^p ngiy 12/11/2014.
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