CHE DO XA THON TlT TRI 6 VIET NAM T H d l PHONG KIEN VA NHtnVG GIA TRJ CAN KE THlTA CHO VIEC
DOI MCfl CHINH QUYEN DIA PHlTONG HIEN NAY
Nguyin Thf Thiin Tri*
Tom tit: Chi do xd thon tte tri & Viet Nam th&i phong kiin dugc xem la thdnh qud lich su chinh tri quy bdu, ddc biit cd y nghTa trong qua trinh nghien cuu ddi m&i to chirc chinh quyin dia phucmg. Bdi viit gi&i thiiu vi chi do xd thdn tu tri cda Vi^t Nam th&i phong kiin vd nhimg gid tri cua no ddi v&i qud trinh ddi m&i chinh quyin dfa phuong &
nu&c ta hiin nay.
Abstract: Autonomy of villages in Vietnamese feudal periods has been considered as a valuable political historical achievement. It is very usefiilfor a study to reform the organisation of current local government Therefore, this article analyses that autonomy and its value for the reform of local government in Vietnam nowadays.
I. Dac diem to chirc chinh quyen dia phuong Vift Nam thdi phong kien
Thd ky X dupc ddnh diu la thl ky ddt nin mdng cho sy nghidp xdy dyng Nha nudc qudn chfi trung uong tap quyln d Viet Nam, bit ddu tfi vide Khue Hao ndm quyln cai qudn dit nudc nam 907. Chinh quyln dja phuong khi dd dupc chpn la khdu frpng tara de tidn hdnh cai each. Cdc tridu dgi sau dd la Ngd, Dinh, Tiln Ld, din Ly, Trdn, Hd ddu xdy dung chinh quydn dia phuong dn djnh, chia chinh quydn dja phuong thanh cdc cip: lp, phfi, chau, (huyen), xa' vd diu xdc djnh chinh quydn dja phuong Id khau dau tidn dupc kidn todn, ttong dd chi'nh quydn cdp co sd it thay dli qua cdc trilu dgi. Tridu Hgu Le la thdi ky phdt triln dinh cao vd hoan thidn cfia chinh thd quan chu ti^mg uong tap quyln. Dudi thdi chinh thl qudn chu trung uong tap quyen va cd xu hudng chuyen sang qudn chu chuydn chd d
ThS., Khoa Lu§t Hanh chinh - Nhd nu6c, Tru6ng D^i hpc Lu§t TP. Ho Chl Minh.
' Vfl Qu6c Thong, Phap chk sir Vi?t Nam, Tii sdch D?i hgc Sdi Gon 1973, tr. 142.
cudi thl ky XV, khdng chi bd mdy nhd nudc d trung uong ma ca hp thing chinh quyln dja phuong ddu dupc hodn thipn sau cuOc cai cdch hdnh chinh cfia Ld Thdnh Tdng. Bk ndm sat tinh hinh ddn cu, Ld Thdnh Tdng da dya ttdn ddc dilm cu tru cua ddn cu dd phan chia thdnh cdc don vi nhd dudi cip chinh quydn co sd nhu huong, thdn, phudng...
Cudc cdi each hdnh chinh thdi Ld Thdnh Tdng da dgt ndn mdng cho vi$c t l chfic vd qudn ly chinh quyen dia phuong d nudc ta cudi thl ky XVIII, d$c bidt hinh thanh dupc chd dp ty qudn lang xd mpt each cd h?
thdng va ttgt ty. Trdn co sd vflng chic cfia thdi Ld Thdnh Tdng, chinh quyln dia phuong va ddc bipt la chinh quyen co sd da dupc kd thfia gin nhu nguydn vpn dudi thdi nhd Nguydn. Mdt dilra ndi bdt ttong to chfic chinh quyln dja phuong thdi nhd Nguyen la cudc cdi cdch thd chl chinh trj eiia vua Minh Mgng, ttdn co sd tidp thu cac gid trj ddn chu cfia chinh quydn phuong Tay, vipc phan chia don vi hdnh chinh dia phuong khoa hpc hon, cd tinh ddn yeu to lanh thd, mat d0 ddn cu vd d^c bipt cd tinh
CHE Dd XA THON TU'TRf...
ddn lpi ich cfia ngudi ddn dja phuong^.
Co thd ndi, trudc khi Vidt Nam bi dgt dudi sy dd hp cfia thyc dan Phdp, td chfic chinh quyln dja phuong Viet Nam cd hai ddc didm ndi bat sau:
Mgt la. phuong phdp trung uong tan quydn dd dupc dp dyng d nudc ta tfi rit sdm. Tridu dinh phong kiln sfi dyng phuong phap ndy chfi ydu vi dilu kipn giao thdng gifia kinh dd vdi cdc dia phuong khdng thugn tidn; vide truydn dat thdng tin tfi tnmg uong xuong cac dia phuong hit sfic khd khan ndn ttong nhfing trudng hpp khin cip, nha vua thudng cho phep cdc quan chfic dja phuong dupc tuy nghi xfi Iy, din dan sau dd nhiing vy vide khdc d dja phucmg ciing dupc giai quydt chfi ylu bdi cac quan chfic dia phuong ma khdng cin den sy can thiep cfia nha vua. Nhu vgy, phuong phdp trung uong tdn quydn dupc dp dyng thdi dd chfi ylu nhdm bao dam cho cdng tdc td chfic cai trj cfia nhd vua dupc tdt hon do didu kidn khdch quan vd dan cu, Ianh thd chfi chua vi myc dich dan chu''.
Hai la, quydn lyc nhd vua Id tuy$t ddi,
"tap trung thdng thudc" va mudn phat tridn theo xu hudng chuydn chd bdng nhidu hinh thfic khdc nhau nhung vin bi hgn chd nhat djnh bdi chl dd xa, thdn ty trj. Trong hau hdt cdc trieu dai phong kidn Vidt Nam, du la tridu dgi chuydn chl tdp quyln nhit nhu tridu Nguyin, van thfia nhdn vd tdn ttpng sy tin tgi cfia chd dp ty trj ldng xd,cac tridu dai phong kiln nhin chung khdng chdi bd chd dp xd, thdn ty trj ma cdn khai thac nhflng thl mgnh cfia che dp ndy dd nang cao hidu qud qudn 1^ d ndng thdn, bidt kdt hpp hpp ly, dung din cdc rali quan hd trong hd thing
quan ly: hanh chinh va ty tri, Iuat phap vd tyc le, chinh tri va xa hdi^. Vi thd, ngay trong luc thinh thdi cua chd dp qudn chu thi tuih chuydn chl ciing khdng tuydt dli nhu d mpt sd nudc quan chfi phuong Tdy lfic biy gid. Theo do, ldng xa la don vj hdnh chinh CO ban va chfi ydu cua quic gia, ldng ndo cung cd phong tyc, tap qudn ridng quy dinh each thfic td chfic vd didu hanh cdng vipc ttong ldng xa, vd "phap lugt cfia nha vua chi cd thl cham ddn ria lang"^-
2. Tinh tu- trj trong to chfic Idng xa Vift Nam thdi phong kien
Net d^c sic ttong td chfic chinh quyln dja phuong dan chfi thdi phong kiln Id su thfia nhgn va bdo ddm nhiing ylu td cd truydn cfia chd dp xd, thdn ty trj, dupc thl hidn qua nhftng ddu hidu "ty qudn" cua chinh quyln dja phuong vdi don vj hdnh chinh CO bdn Id ldng xa. Dd la:
- Xd ndo cUng cd mgt Ban qudn tri gdn nhu biit lap ddi v&i quan chiec cdp trin.
gdm hai co quan: co quan quyit nghf vd ca quan chdp hdnh. Co quan quydt nghi cfia xa gpi Id Hdi ddng Ky mue - mOt tdp thl khdng hgn djnh gdm cac thanh phin cd uy tin vd danh tilng trong xa. Hpi ddng Ky rayc khdng phdi do ddn ttong xa bau ra. Nhftng ai cd diy du cac didu kien ghi ttong huong udc cd thd frd thdnh thdnh vidn cfia Hpi ding. Vj tri vd tidu chuin cfia cac ky muc dupc xac dinh khac nhau theo nguydn tie ddc trung d mSi ldng, xa*, ndi cdch khdc.
^ NguySn Minh Tu^, T6 chiic chfnh quySn th&i kJ phong kiln d Vi^t Nam, Nxb. Tu phdp. 2006, tr. 135.
*^Va Qu6c Th6ivg, sdd, tr. 124-125.
•* Nguyin Minh TuAn, sdd, tr. 134.
' Nguyin Thi Vi§t Huong, Tu tudng t^c quyin irong xa hoi Vi?l Nam truyin thong vd nhimg Ap luy cua nd. Tap chl Nghien cihi lap phdp, s6 5/2010.
* C6 xd vj trf kS' myc xdc djnh theo nguyfin tic tu6i tdc, ttic "trgng thiSn tudc"; c6 xd theo nguyen tJc chlic tudc, phim hdm, tiic "trpng nhdn tudc", hay c6 xd chi chu trpng nhflng ngudi dd ra ldm quan xh\
khong ciin thiet ngudi dd cd do d?t gi hay khdng, tiirc
81
NHA Nu'dc VA PHAPLUATSd 9/2015 nguydn tdc lya chpn co quan quydt nghi cfia lang xa Viet Nam thdi phong kidn rat linh hogt vd cdn cfi vdo nhidu tidu chi khdc nhau, mang dam diu in cua quydn ty qudn von cd d cac ldng xa Viet cd'.
Hdi ddng Ky muc la noi thdo lugn vd quydt djnh nhiing vide lidn quan ddn xd, quydn cai tri trong ldng hoan todn do Hdi ding Ky myc ddm nhidra, nha vua ciing nhu cdc quan chfic tridu dinh khdng bao gid can tiiidp din cdng vide eua ldng xa, ngogi trfi mpt sl vdn dd lidn quan ddn lpi ich qudc gia, dan tpc nhu vide thu thud, bat Iinh...
Trong thdi ky nay, cdc ky myc dupc coi nhu Id "chfia td" cua xd, mpt '^idu tiidu dinh".
DuTig ddu CO quan chdp hdnh la xd tru&ng. Trudc ndm 1467, co quan chap hanh xa la mpt xa quan do tridu dinh bd nhidm vd didu ddng tryc tiep. Ddn nam 1467, cupc cai each cua Ld Thanh Tdng vdi muc dich md rdng quyen ty fri cho cac lang xa, thi CO quan chip hdnh ldng xa khdng do tridu dinh bd nhidm nfta md do ddn chfing bau ra. Chd dp xd trudng dd thay thd chd dp xd quan; xa trudng la ngudi dai bidu cfia ddn frong xa, cd quydn thay mat ddn frong xa dd giao thidp vdi quan chfic cap frdn.
Tuy khdng dupc tridu dinh lya chpn tryc tiep nhu cdc xa quan, nhung xd trudng cfing dupc trieu dinh thua nhgn. Thdi biy gid, xd trudng Id ngudi dgi didn cho ddn chfing d xd dd lidn lgc vdi cac quan chfic cip ttdn, cd nhidra vy thi hdnh cac mpnh ldnh cfia cip ttdn lidn quan ddn xa, ddng thdi cd nhidm vy ttidn khai tiiyc hidn cdc quydt djnh cua H§i ddng Ky muc. Vipc cho phep ddn
theo nguyfin tdc "trpng h o ^ " . Trdi lai, cung cd xd vi muon khuy£n khich viec hpc trong x3 nen chi uu ddi nhflng ngudi dd do dat du ngudi dd khong ra ldm quan, nhiing xd ndy, dugrc m^nh danh Id nhihig xd
"trpng khoa".
' Vu Quoc Thdng, sdd, tr. 124-125.
chfing biu ra co quan chip hdnh xd the hipn rit rd gia trj dan chu d dia phuong; ngodi ra, vide ngudi dfing diu co quan chdp hanh xa khdng thudc bd mdy quan lgi da cho thay su tien bd vupt bdc trong trilu dgi qudn chfi chuydn chl ttong nhin nh|in, danh gia vd vj tti cfia xa vd ngudi dfing diu xa.
- Xd ndo cGng co tdi sdn riing, chu yeu la rudng ddt. c6 quyin tu do su dung vd dinh dogt tdi sdn dd mgt cdch ddc lap.
Rudng dat cua xa la do xa mua hoac dupc cdc cd nhdn tgng cho, xd cd quydn cho thud liy hoa lgi hode cam cd, chuydn nhupng...
Ngodi rudng dit, xd cdn rapt sd tai sdn khdc nhu tidn bgc hay dd vdt, ttong dd mpt nguon tai san quan ttpng la tien thud dan dinh frong xa phdi ndp hay tidn "nop cheo",
"phgt vg" theo quy djnh cua Huong udc.
Trong vide sfi dyng va djnh dogt cdc tdi san cfia rainh, xa khdng phdi tuan theo bit k^' raOt quy djnh hay thfi tyc nao djnh sdn ngodi Huong udc, va cung khdng chiu bit ky sy kidm soat nao cfia chinh quydn cap frdn.
Thdi dd, cdc lang xa khdng cd khdi nidm ndo ve ngan sach xd vd cfing khdng cd cdc bdn ghi chep mdt cdch rd rdng, chi tilt; vipc thu chi cfia xd hodn todn do Hdi dong Ky myc quydt djnh frdn co sd ngudn thu thyc tl cfia xa hay tfi cdc tdi sdn hidn ed cfia xa*.
Vi$c cd tdi san ridng se giup xa Unh hogt ttong vipc chfi dpng giai quydt cac vin dl phdt sinh d dia phuong; ddi sdng cfia cu dan dja phuong dupc ddm bao hon.
- Xd ndo cUng cd mdt phdp dinh rieng di gidi quyit nhirng tranh chdp ddn si^ hay nhdng vu hinh su nhd do nguoi cd uy tin trong xd phu trdch, cd thi Id xd truong hay Vf Tiin chi (d$ nhdt ky mtfc). Khi xfi ly, vj Tidn chi cd quyln khdng cdn cfi vdo phdp
' Vu Qu6c Thdng, sdd, t r . l 7 1 .
CHE DQ XA THdN Ttf TRI..
lugt ma chi cin can cfi vdo Id ldng hay le cdng bing. Trilu dinh cung nhu nhd vua luc dd nhdn thiy nhftng lpi ich cfia phdp dinh lang xd la duy tri frdt ty vd bao vd an ninh cdc Iang xd ndn da dd co quan tai phdn ldng xd hogt ddng theo quy djnh vd thd thfic cfia dja phuong md khdng ngdn cdn hay rdng bupc bdi mpt quy dinh chung nao. Sfi dyng Id ldng hay Id edng bang thay cho phap lugt cua vua ttong trudng hpp nay ed vai frd quan frpng trong vide tdn ttpng quyln ty quyet ciia cu ddn lang xa; phap Iugt ttong chfing myc nhat djnh da tam thdi nhudng quy tac xa thdn. Giai quydt ttanh chip d ldng xa dupc coi Id vide ridng vd ddn chfi dupc thd hidn nhidu tfi sy lya chpn dd.
- Xd ndo cUng cd mgt co quan tudn phdng rieng phu trdch cdng viic bdo v$ an ninh trong xd. Nhd ban tudn phdng, tridu dinh it vide di rat nhieu, khdng phdi phdi binh Iinh vd moi xa dd gift gin an ninh; cdc xd cung dupc ty do lya chpn ngudi vdo dpi tuin phdng theo cdch ridng. Cd xd dp dyng nguyen tdc luan phidn, ciing cd xd dp dyng nguydn tdc tinh nguyen, ttilu dinh hay cac quan chfic cdp trdn khdng can thiep.
- Xd ndo cUng cd riing mgt din th&
thdn thdnh hodng, cho thdy tinh tie tri cua xd thdn th&i phong kien cdn biiu lg cd vi phuong dien ti tu. Vd phuong dipn tin ngudng, cac xa thdi bay gid dupc hudng quyln ty do khd rpng rai, nhd vua ciing khdng budc ddn phdi thd phyng, cung bai theo y mudn cua minh.
- Xd ndo cdng cd phong tuc tap qudn rieng. Cdc tyc lp hay cdc lp Iang Id nhfing phong tyc, tap qudn cfia raoi ldng xa dd cd tfi rit lau ddi, nhiing phong tyc nay dupc ghi rd ttong nhflng Khodn udc hay Huong udc, nhung dupc truydn khau Id chfi ylu. Ld ldng cd thl lidn quan ddn nhidu van dd thupc
ddi sdng cua dan ttong xa nhu tin ngudng, gido due, cfiu td, tuong trp, hdnh chinh, tai chinh, xa hpi, each tinh thu Iao eho eac ly trudng, xa trudng hay quy dinh cdch thfic thd phung, cfing td tiian Thanh Hodng, each thfic phat va... Mdi xa lfic do dudng nhu la mpt qudc gia, tyc Ip Iang xd ddi khi di ngupc lai vdi phap luat cfia nhd vua. Hiu nhu khdng cdn ddn phap luat cua nha vua, ddn chfing d cdc lang xa van sdng cd ttgt ty, vdi each sdng quay quan da tgo ra nd ndp, ldi sdng tmh cara, dfira bpc, bao vd nhau, ddi sdng cu dan dja phuong d nhilu xa, thdn ty tri dupc dam bdo vd vat chat lin tinh than. Vi the, chd dp tu qudn, ty trj cfia xa thdn Viet Nam thdi bay gid dupc nhdc din nhu radt giai dogn cyc thinh ciia chd dO ty quan vi nhfing gid trj ty do ddn chfi cfia nd .
- Mdi xd cd mgt phuang thdc dgc biit trong mdi quan h$ v&i cdc quan chuc cdp trin. Tinh each xa thdn ty trj cdn bidu Id rd net ttong mdi quan he gifla xd vdi trieu dinh hay quan chfic cip ttdn: lang x3 dupc ty quylt dinh nhftng cdng vide thudc ldng xd minh, tiilu dinh vd quan chfic cip ttdn khdng dupc can thiep. Tuy nhidn, cd nhiing vide lidn quan tryc tidp den quoc gia nhu bit linh hay thu thul thi ldng xd phdi thyc hipn theo sy uy quydn cua tridu dinh. Khi dd, mpi vide hodn toan do Idng xd chfi tri va phdi ddm bdo du chi tidu trilu dinh giao cho. Ngudc lgi, vdi nhihig vin dl ldn xa thdn khdng thl gidi quylt dupe thi chinh quydn trung uong cd trach nhidm gdnh vac, nhu bdo vd an ninh, ehdng ngoai xdm, trj thuy, dip dd, cfiu ddi, mdt raiia...'"
' Vu Qu6c Thdng, sdd, tr.l71.
'° Luu van An, Thi chi chinh trj Vift Nam tru&c Cdch mgng thdng Tdm duoi goc nhin hi0n dgi, Nxb.
Chinh trj qudc gia, 2008, tr. 241.
83
NHA Nifdc VA PHAPLUATSd 9/2015 Nhu vdy, ldng xa Viet Nam truoc th&i Phdp thudc da co day du cdc ddc diim cmi mgt phdp nhdn hdnh chinh", khong nhieng moi xd cd mgt nin hdnh chinh rieng biet, co tu cdch tu tri md con co tdi sdn rieng vd su dung, dinh dogt theo y mudn. V&i hai diim do cho thdy khd ndng tu qudn, tu tri rgng lon vd chdc chdn cua xd thdn Viet Nam th&i phong kiin. Cung vi thd, "ngu&i ta cd the noi rdng, voi qudc gia Viet Nam. dan vi xd hgi khong phdi Id cd nhdn md Idxd"
3. Nhihig gia tri cua che dp t v tri lang xd thdi phong kien doi vdi nen h a n h chinh - chinh tri Viet Nam hien nay
Tuy cd nhiing each "ddi xif' khac nhau, nhung trilu dmh phong kidn dfi Id giai dogn trung uong tap quydn cyc thjnh cung khdng thl phu nhgn nhiing gja tri dan chfi thidt thyc cua c h l dd xa thdn ty tri. Dd Id:
Thtr nhdt, chi do xd thon tu tri da hgn che phdn ndo tinh chuyen chi cua che do qudn chd luyit ddi th&i phong kiin. Moi xa Id rapt don vj hanh chinh, nhung nhidu khi phap lugt cfia nhd vua ciing phdi nhudng budc cho nhiing tuc Id ridng cua xa, ndn ttong trudng hpp vua ban hanh quy djnh ttdi vdi long dan se vdp phai sfic can cfia tgp tyc xd thdn. Ngoai ra, cdc quan chuc cip frdn cfing nhu ttidu fflnh khdng dupc lam vide tryc tidp vdi ngudi dan ma phdi thdng qua cde xa trudng, nhd sy can thiep cfia cac xa trudng ma quyen lpi cua ngudi ddn trong xd se dupc bdo ve ttdnh sy xam phgra tu nhung mpnh Idnh cfia nha vua hay quan chuc cap frdn.
" Nhd phap luat Viet - Phdp, Phap ludt hanh chinh cua COng hda Phap, Nxb. Tu phdp, 2007.
" VQ Qudc Thdng, sdd, tr. 173.
Thu hai, chi dg xd thdn tu trf dd giup cdc nhd cdm quyin gidi quyit mdt vdn di quan trgng la thiit lap bd mdy hdnh chinh cdp xd vd ldm cho bg mdy do hogt dgng nhip nhdng. hieu qud. Nha vua khdng phai Io ling v l v i n dd Iuong bdng cho cac vidn chfic frong xa. Tu khi cac xa trudng do ddn b i u thay thd cac xa quan, ngdn kho nha vua da khdng phai tdn kem cho vipc tra luong cho cdc xd quan ma do dan ttong xd ddi thp, cd thd bdng hidn vat nhu "rupng but chi", cd t h l la mdt khodn tiln lay tii ngudn tiiu cfia xa dupe quy djnh ttong Huong udc.
Thdr ba, v&i che do xd thdn tu trf, triiu dinh khong phdi lo ldng ve vdn de an ninh, trgt tte cda xd. mdi xd co thi td chuc mgt cdch tdt nhdt vdn de ndy md khong cdn din ste can thiep cita triiu dinh. trie nhieng tru&ng hgp liin quan din an ninh qudc gia.
Nhu vdy, cd thd ndi, cudc cai each cua Ld Thanh Tdng vdi c h l dp xa thdn ty trj Viet Nam dd dem lai kdt qua khdng nhflng vd chinh trj, hanh chinh rad cdn v l phuong didn xa hpi va tai chinh.
Ngay nay, nghidn cfiu nhiing ddng gdp cfia chd dd xd thdn ty trj thdi phong kidn, chfing ta thyc sy frdn trpng nhiing gid tii dan chfi ma c h l dp ndy mang lai, khi chinh quyen dia phuong Vipt Nam hipn dgi ddt ra nhu cau tim kidm mpt md hinh hpp Iy, vfia phu hpp vdi xu hudng phat trien chung cfia thd gjdi, vfia khdng chpch hudng ydu ciu cfia Nhd oudc xa hdi chu nghia cua ddn, do dan, vi ddn. Cd the ndi, dau i n cfia c h l dp xa thdn ty tri tiidi phong kiln nudc ta ban than nd chfia dyng ljch sfi ddn t^c, cd sfic sdng b i n viing, cd sue lan tda ldn, do do se gdp phin ddc lyc cho vipc ddi mdi td chfic chinh quyln dja phuong d nudc ta hipn nay.