TO C H Q C B O M A Y C H I N H Q U Y E N D O TH!
TAI MOT SO QUOC GiA PHAT TRIEN
• ThS. BAO TH! THANH THUY n 1. Mpt so md hlnh t l chdc bp may chfnh
q u y l n dd thi dien hinh
T l chflc hdnh chtnh dd thj dupe thanh lap ta cdc ddn vj hdnh chtnh lanh t h l trong mdt quic gia. Tuy thupe vdo sfl phdn ehia cdc ddn vj hdnh ehfnh lanh t h l cua cac quic gia ma h§ thing t l chflc hanh ehfnh dja phfldng dd thj dflpc t l ChQc theo cdc md hlnh nhfl sau:
- Md hinh tht^ l3ie:t6 chflc hdnh chtnh dja phUdng dd thj dUdc to chQe theo chieu dpc vdi nhilu cap khde nhau. Trong cQng mdt cap thdnh lgp nhilu t l chQc hdnh chtnh dja phUdng ngang cap, dde lap va phot hpp vdi nhau trong hogt ddng qudn ly nhd nudc (tadng ty md hinh chfnh quyln dja phfldng 3 edp d Vidt Nam).
- Md hinh d^i didn: chinh quyln do nhan ddn bdu ra va Id ngudi dai dien hpp phdp cho quyen ldi cua dja phUdng, cd quyen quylt djnh nhQng vdn d l cua dja phUdng nhung khdng trdi vdi quy djnh cda luat phdp nhd nudc. Theo md hlnh ndy, hpi d i n g nhdn ddn dja phUPng cd quyln ty qudn nhung khdng hpp thdnh he thing thQ bdc trong he thing cae eP quan quyln lyc va lap phap, d i l n hinh nhfl d Anh va DQc. Di thfle hidn ChQc ndng qudn ly hdnh ehtnh nha nudc, ede hdi dong dja phuPng bau ra CP quan chdp hdnh nham thfle hidn cae quyet djnh eQa cd quan bau ra nd vd cd quan hdnh ehfnh nha nudc cap trdn. Tuy nhien, cd quan chip hanh dd v i n phdi ehiu sy chi dgo, hydng dSn vd kiem tra eua cd quan hdnh chtnh nhd nyde trung Udng.
C) Khoa Hinh chinh hipc, HQC vi$n Hinh chinh qudc gia
- Md hinh nam ngang: theo cdch to chQc ndy, ede to chac hdnh chtnh dja phUdng khdng t l chac theo trgt ta tha bde. Ttnh thQ bde ch?
t i n tgi trong m l i quan he giQa chtnh phu trung UPng vdi chtnh quyln dja phQdng. Cdc t l chflc hdnh chfnh dja phQpng cd vj tri ngang nhau, khdng cd sy phy thupc cap trdn, cap dudi. Sfl khde nhau eua ede t l chQe hdnh chfnh dia phQdng d quy md, chQe ndng, nhiem vy dUdc phdp ludt quy djnh. Chinh quyln dja phfldng Id eae ehfnh quyen eQng c l p va tryc tilp cua ehtnh quyln bang hay vQng Idnh tho. Md hlnh nay ddi hoi chtnh quyln dja phfldng phdi dflpe phdn cdp tridt de, trao quyln ty ehu de thflc hien nhilu ehQe ndng, nhidm vy khde nhau. Vt dy nhu New Zealand dd thye hidn trao quyln ty ehu hodn toan cho dja phydng'".
- Md hinh hon hgp: la md hlnh to chflc cDa chfnh quyln dia phUdng cd sy k i t hdp gifla mo hlnh thfl bgc vd md hlnh ndm ngang, mdt cdp.
Trong md hlnh ndy, chfnh quyln dja phUdng dfldc t l chflc theo md hlnh thfl bdc, cap trdn cdp dadi. Tuy nhien, phdp luat Igi quy dinh, n l u m5i edng dong trong t?nh, nlu cd du dieu kidn d l thanh lap ehtnh quyln dja phfldng diu dflpe chtnh phu trung ddng xem xet. Khi dupc trao quyln dd, tlnh khdng ed quyen can thidp vao ede van d l cua cdng ding ddc lap trong t?nh. Cdc moi quan hd ch? thilt ldp vdi ehfnh quyln trung fldng. Md hlnh ndy cung dupe ap dyng d nhQng quoe gia cd quy djnh lugt thanh p h i . Mdt khu vye nam trong mdt t?nh, huydn d i u trd thanh mdt loai thdnh pho, eh? hogt ddng theo dQng quy dinh cho thanh pho, khdng phy thupc vao chtnh quyln vung hay t?nh ma thdnh p h i ddng. T?nh, huydn khdng phdi Id cap trdn cQa thdnh p h i dd.
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To chnc nhft n u ^ s6 10^2015^ 2. To ChLfc chi'nh quyen d6 thj tgl mpt so qu5c gia
2.1 Uc
Ld mdt dat nyde theo t h l c h l lien bang ydt 6 bang vd hai vQng lanh t h l , hign tgi nadc Ue cd 769 ddn vj chtnh quyen dja phfldng, trong dd bang cd nhilu ddn vj ehfnh quyln dja phfldng nhd't Id New South Wales (102 ddn vj). Trong khi dd bang vQng lanh t h l phta Bde (Northern Territory) ed 5 ddn vj ehtnh quyln dia phUdng; vQng thQ dd Canberra khdng phdn chia thdnh eae ddn vj dja phQPng. Trong Hiln phap cQa Uc he thong ehtnh quyen dja phQdng khdng dflpe d l cgp mpt each ehfnh thflc. Tuy thupc vao tQng bang ma vide thdnh lap chfnh quyen dja phfldng cd nhQng quy djnh rieng. Vide phdn logi chtnh quyln dja phfldng dya tren hai tidu ehf: theo khu vyc (ndng thdn vd thdnh thi) va theo quy md ddn s l (nhd, trung binh, Idn, rd't ldn). Khu vye dd thj dflpc chia ra mpt so logi nhfl sau:
Thdnh p h i thu phu eua ede bang vd vung lanh t h l : 7 (khdng k l thu dd Canberra).
- Khu vfle dd thj phat triln chia lam b i n cd'p theo quy md cua ddn s l : dQdi 30.000 dan ed 28 ddn vj; td 30.000-70.000 ddn cd 27 ddn vj; tfl 70.000-120.000 dan c6 21 ddn vj; tren 120.000 ddn cd 18 ddn vj.
- Khu vye thdnh p h i , thj tran cung dflpc ehia Idm b i n nhdm tfldng tfl nhfl trdn.
Cd edu t l chflc chtnh quyen dd thj cQa Oe dflpc t l chflc theo md hlnh hdi ding mgnh vdi sy cd mdt cQa ed ngfldi dflng dau hdnh phdp vd nhd qudn ly. Hdi ding thdnh p h i do cQ tri bdu ra theo nguyen t^c tryc tilp. So lupng dgi bilu hdi d i n g phy thude vao vj tri dja ly, dja d i l m cQa khu vye (tQ 5 dd'n 14 dgi bilu), nhidm ky Id ba hoae b i n nam do bang quy djnh. Hpi d i n g bao gom nhilu Qy ban. so lupng tuy thudc vdo quy md eua ehfnh quyln dd thj ( v l ddn s l va didn tteh). Ngudi dQng dau chtnh quyln dd thj ed t h l do nhdn dan tryc t i l p bdu. Trong trfldng hpp nay, nhidm ky eua thj trudng giong nhQ nhiem ky cQa hdi d i n g . Thj tradng cung cd the do ede dgi bilu h0i d i n g bdu hdng ndm ludn phien. Trong to chdc hogt d0ng qudn ly cua chfnh quyen dd
thj, hdi ddng bau ra ngQdi dQng dau hanh phdp nham thyc hien cde hogt ddng qudn ly cua hdi ding.
Chinh quyln dd thj thfle hidn eung cap nhilu logi djeh vy khde nhau va todn bd cac bd phgn cung cap djch vy dat dddi sy eh? dgo eua ngudi dQng ddu hdnh phdp. Kha nang eung cap djeh vy vd he thong t l chflc Id khac nhau giQa cdc bang va cac chinh quyen dd thj. Hogt ddng eua ehfnh quyln dd thj d Uc dUdc thflc hien thdng qua lugt eua cdc bang va do do cd the dQdc trao quyen nhilu hay ft.
Trdn ITnh vye tdi ehfnh, ehfnh quyln dd thj ft ed quyln va sy khdng can bdng trong phdn chia tai ehinh vd nguin thu nhgp eung Id mdt trong nhQng hgn ehe hogt ddng ciia chtnh quyln do thj.
2.2 My
Chtnh quyen dd thj 6 My do eac t i l u bang ty quyet djnh vd ddng vai trd quan trpng trong he thing chfnh trj vl nd thflc hien nhflng nhiem vy thid't y l u trong vide qudn ly vd eung cdp cdc djeh vu xa hpi. Do mfle dp dd thj hda eao, ndn ehfnh quyln dd thj dflpc coi Id hinh thflc chtnh quyen dja phfldng quan trpng nhat.
Chfnh quyln dd thj cd 3 hinh thflc chtnh:
- Thj trfldng- hdi dong: day la hinh thflc ed tfl ldu ddi vd p h i biln d My cho den dau the ky 20. Cau true cua ehQng tQdng tfl nhU ehfnh quyln lidn bang vd tieu bang. Thj trfldng dflpc bau trflc tiep vd dflng dau hanh phdp, trong khi hdi dong dupe bau nhu la cd quan ldp phdp. Thj trudng cd quyen b l nhidm cdc vien chflc thudc v l ede cd quan hdnh phdp (cdc phdng, ban, sd); hpi dong chQ y l u Idm cdng vide lap phap: thdng qua cde quy djnh, phap lenh, ngdn sach, t h u l suat cQa dja phUdng.
- Oy ban: hlnh thflc nay k i t hdp ea hanh phap va lap phap vdo mdt nhdm ngfldi, tfle Id Qy ban, dupc bdu trflc tiep. Mdi uy vidn dong thdi chju trdch nhidm mdt ddn vj hanh phap (sd hay ban, phdng). Ngfldi dflng dau uy ban dupe gpi la thj tradng nhang khdng cd thflc quyen Idn hPn so vdi cae uy vien khdc. vi vdy khdc han cae thj trudng trong md hlnh thi trudng - hdi dong.
- Thud gidm doe: vdi hinh thde ndy, ngadi dan bau ra hdi dong thanh p h i . Hdi dong eh?
T^ chiirc nhA nuoc so 1(V2015
thye hidn hogt ddng lap phdp va hogch djnh ehinh saeh. Vide qudn ly va thi hdnh ehfnh sdch ddde giao cho mdt nha quan ly chuydn nghidp, tddng ty nhu md hinh cua eac cdng ty. Thdng thudng, nha quan ly nay khdng ed nhidm ky (vi ddde thud) vd phai the hidn dfldc khd nang qudn ly thl mdi ed the dupe tilp tyc thue. Tgi My cd nhilu thi tran vd thanh pho dflpc dieu hanh nhfl mdt doanh nghidp, thdm cht cd t h l phd sdn n l u khdng du chi trong nhilu nam. Mae dQ hlnh thQc nay mdi xudt hidn gan day nhflng dang cd triln vpng va phat triln nhanh tgi My bdi nd the hidn dfldc tfnh ehuyen nghiep trong quan ly, dong thdi cung ddm bdo thoa man cdc yeu cdu cua ngudi dan ma hdi ding thanh p h i Id dgi didn.
Trong hinh thflc nay, nhd qudn ly (dUdc hpi dong thue) ed nhflng quyen dieu hanh dpe ldp khd Idn dupe xde dinh rd trong luat phdp quy djnh eiia dja phUPng; hdi ding dan efl trong md hinh nay cd khi chi gom 3 ngUdi, chu y l u theo ddi vide thye hien chtnh sach ma ban than chtnh sdch ndy da tUdng doi on djnh trong nhilu nam. Md hinh nay dUdc ngydi dan My ddnh gid cao v l tinh hidu qud trong dilu hdnh nhd nude d dia phypng.
2.3 Vddng qudc Anh
VUPng quic Anh bao gIm 4 vung ldnh t h l (Anh, Scotland, Wales va Bac Ireland). Chfnh quyln dja phUdng bao gIm 3 cdp: tinh, qudn (huygn) va xa. He thing to chflc dfldc djnh hinh tfldng d l i nhdt qudn ngay tfl giQa the k^
19, mac du cung ed mdt s l thay doi quan trpng nhu chfnh quyen Thatcher da giai tan chtnh quyln cdp thanh pho, chuyin giao eho ehtnh quyln cdp qudn. Hien nay d Anh cd 39 tinh, 296 huyen va gdn 1.000 xa. Ridng khu vflc dd thj CO khoang 66 qudn, trong dd khu vye Ludn Ddn chiem 32 qudn - ehi cd cap qugn khdng bao gom cap xa nhu cae khu vflc khdc. Tgi mdi cap ndy d i u cd hdi ding ddn cQ dQdc bau 4 nam mdt lan bang phUdng phap bdu trpn gdi vao ngay thd nam dau tidn cua thang 5. Cdc iiy vien hdi dong khdng dQpe nhdn lddng, tuy ed nhdn trp cap cho cae hogt ddng cua minh (nhu hpp, cdng tac...).
Hoat dpng xa hdi khdng lUdng cung la mdt truyen thong quan trpng cua Anh, dae bidt d
cap dja phUdng cd sd. Thdng thddng hpi d i n g dja phUdng se thdnh lap eac bd phan chflc nang quan ly nha nude va thud cae vien chflc ehuydn nghiep. Cac bd phdn nay do cac uy vien hdi dong d i l u hanh. Cdc thanh ph6 khde d i u ed eung cd cdu t l chQc nha v§y, rieng Luan Ddn cd nhQng ddc dilm ridng nhfl: ehtnh quyln Luan Ddn dUde hinh thanh tfl hai edp bdc quan ly todn thdnh p h i mang tfnh chiln IUde va cap bae dja phUPng. Chtnh quyln thanh pho do Cd quan quyln lyc Ludn Ddn md rdng thyc hien dieu phoi, trong khi chtnh quyln dja phUdng dUdc qudn ly bdi 33 cd quan nhd hdn. Cd quan quyln lflc Ludn Ddn md rpng bao gom hai thanh phan dupc chpn thdng qua bau cQ: Thj trfldng Ludn Ddn- ngfldi nam quyln hdnh phap va Hpi ding Ludn Ddn - ehiu trdeh nhidm xem xet ky nhflng quyet djnh eQa thi trfldng vd cd quyen chap thudn hoac bdc bo de xuat ngdn sach mdi ndm eiia thj trudng.
Chfnh quyen do thj ndi ridng va ehtnh quyen dja phflpng ndi ehung d Anh dUdc kilm sodt chat che bdi chtnh quyen trung fldng.
Nghi vidn Anh ed t h l bdi bd hoae phan them quyen cho ehinh quyln dd thj. Cdc ehfnh dang d Anh deu nhat trt ve khuynh hfldng kilm sodt nay (md hlnh top down) d l dam bao sy nhat qudn trong cdc chuan mflc v^
cung cap djeh vu xa hdi. Hdn nfla, do sfl phat trien kinh t l - xa hdi, sfl tfldng dong giQa cac dja phfldng (ve cae dge dilm ddi song xa hdi) cae nfldc Idn ngay cang cung co khuynh hfldng phdt triln md hlnh to chflc chtnh quyen dia phUdng ndy.
3. Kinh nghiem cho to chdc bp may chtnh quyen do tht d Viet Nam
Chtnh quyen dd thj dupe to chflc d l qudn ly cae van d l tren dja ban lanh t h l dd thj.
Cach thfle t l ehQe chfnh quyen dd thj khdng giong nhau glQa ede nude. Chtnh quyen dd thj chju anh hudng bdi eae yeu t l nhu: ehtnh tri, kinh t l , phdp ludt, van hda, xa hdi, vj trt, ttnh chat dd thj... khac nhau. Dd thj cd nhflng dac trung khae biet v l kinh te, chfnh trj, xa hdi, vl vdy quan ly nhd nddc d do thj ddng vai tro quan trpng tdc ddng tdi sy phdt triln cua nen kinh t l - x d hdi cQa mdt nude vd cd nhflng dgc Td chuc nha nuoc so 10/2015
trdng ridng so vdi edp chtnh quyln ndng thdn.
TQ nghien edu ede md hlnh t l chQc ehtnh quyln do thj cac nadc trdn the gidi cd the rQt ra mdt so bdi hpe trong t l chQe bd mdy quan ly chlnh quyln dd thj d Vidt Nam:
Thd nhit, quin ly xa h^i do thi phii di/a tren nin ting vi quy ho^ch dd thj ben vdng.
Quy hogeh dd thj Id mdt van d l t i n g hdp, cau trQc ldnh t h l tren cd sd toi Qu hod m l i quan hd gifla cdc yeu to v l dieu kien ta nhidn, tdi nguyen thidn nhien va d i l u kidn phdt trien kinh t l - xa hdi, ldnh t h l eua dd thj vd trong moi quan h$ vdi eac Idnh t h l ben ngodi nhu quy hogch vung, quie gia._ Bdn cgnh dd, quy hogch dd thj phdi quan tam tdl van d l dy bdo cdc khd nang se xdy ra va dfla ra phfldng dn doi phd vdi cae khd ndng dd. O i l u dd ddi hdi cdc chtnh quyln dd thj cdn cd cd ehe dai hgn vd tong t h l trong quy hogch phdt triln nhdn sfl; ndng eao nang lye, trinh dd cho dpi ngu thdng qua ddo tgo, boi dudng. Cdn phdi xay dyng mdt ddi ngu cd kiln thdc v l kiln true dd thj mdt each chuydn nghidp, cd tdm nhin chiln lupc ve quy hogch t i n g t h l dd thj, ed nhflng sdng kiln tgo ra sy dOt phd trong xay dflng dd thj.
Trong dd, edn ddm bdo vda tilp thu kinh nghiem qudn ly dd thj eQa cde thdnh p h i phdt trien trdn the gidi, vfla gin giQ dapc bdn sdc ddn tdc trong Idng dd thj hidn dgi.
Thd hai, cin tht/c hi$n hgp tic lidn vung.
Day Id xu hfldng phdt triln dd thj ndi ehung trdn cd sd kd't hop y l u to vQng kinh t l va vQng dja 1]^. Khi quy md cQa cdc hogt ddng kinh t l gia tdng d i n mdt mfle dp nha't djnh se ddn d i n sQ phdt triln eQa cdc dilm ddn ca ndi vung dd thj vd giOa cdc dd thj. Dieu nay ddi hdi phdi ed chtnh sdch va cd c h l hqp tdc lien vQng. Thyc t l cho thd'y cde vung dd thj phdt triln Id nhQng vung xdy dyng dfldc cd c h l hpp tae hi^u qud.
Thd ba, cin thdc hi$n phin cip quin ly dd thj. Cdc kilu vd mflc dd ty qudn cQa nhd nude trao cho ehfnh quyln dd thj ed sy khae nhau d tflng nfldc, ed sy phdn edp qudn ly giQa trung ydng. cdc cdp dja phfldng vd chfnh quyln dd thi (diln hlnh Id md hlnh t l chflc bd may ty qudn). Xu hydng phi tdp trung hda
dang diln ra d nhilu nude, phan cdng trdch nhigm rd rang dang Id dieu kidn de gia tang ttnh hieu qud eua cdng tac quan ly bp may.
Thd tu, chfnh quyin dd thj phii ttJ chO vi nguon tii chfnh. Tdi chtnh mgnh va minh bgch la yeu to can bdn eho sy phat triln eua dd thj.
Sy tdp trung v l eP c h l qudn ly tdi ehtnh va chi tidu khiln ede nguon thu, ehi eua dd thi bi Id thude va thieu ttnh tfl ehu. Do dd, nguin tdi chtnh phai xuat phdt tQ ehtnh y l u t l ndi tgi mdi ddm bao cho phdt trien b i n vQng do khdng bj Id thudc vao he thing cap phdt va moi quan tam ehtnh trj bdn ngodi. Khi trien khai ehfnh quyln dd thj, tQ ehu ve tai chtnh la van d l thilt yeu quylt djnh sy ty qudn cua dja phUPng dd thj nham thyc hidn dddc cdc ChQc nang do chlnh quyln trung Udng trao cho. Nguin tdi chfnh nay ed t h l khai thdc trdn dja ban dd thj trdn ed sd edn d l i nguon thu vdi nhu cdu chi hoae ho trd td ngan sdch nhd nadc. Trong dd, cdn tdng cadng kiem sodt tai chtnh, cdn dot ngan saeh gifla cac khu vflc dan eu vd thflc hidn nudi dfldng nguin thu d cdc khu vflc a
(1) Xem: Public Management - New Zealand Model. Nxb Oxfort1996.
Tai li$u tham khdo:
1. Nguyen Ky, Nguyen Hflu €>flc, Dinh Xudn Ha: °Ddi mdi ndi dung hoat ddng cija cic cap chfnh quyin dia phUdng trong kmh ti thi trudng vi hdi nhip kinh ti quic ti", Nxb CTQG, H.2006.
2. To TQ Hg, NguySn Hflu Trj, Nguyin Hflu Dflc: "Cii cich chfnh quyen dja phUdng, ly iu$n va thUc tien", Nxb CTQG, H.1998.
3. Nguyin HQu Hai: Nghidn cUu md hinh chfnh quyen dd thi mdt dp d Viet Nam, Be tdi khoa hoc cdp cd sd, Hpc vien Hanh chtnh, H.2011.
4. Richard Batley and Gerry Stoker, Local Government in Europe: Trends and Development, GBC - Macmillan Press Ltdm, 1991.
5. The UNDP role in Decentralization and local governance. 28/February 2000.
T 6 chlic nhih nuoc so 10^015
