XAY DUNG CHINH QUYEN EX) THj VIET NAM
Nhin tirmd hinh chinh quyen flo thi tir chu or Nhat Ban
X a y dUng chinh quyen do thj - nhOhg t h a c h thffc va t a c dong Thach thue
Quatrinh do thi hna ri ViSt Nam didn ra dong thdi vdi qua trinh chuyen doi nen kinh te, n dai hda ve nhieu mat din den su dieu ehinh khdng yeu cau thuc tien, nhat lit trong boi eanh phat then nhanh. Tdc dp phat triSn iac biet la cac do thi Inn trong vdng 20 nam gua la thach thdc rat Idn chn qua jyen do thi. GDP d khu vUe dd thi tang tU 50% (1980-
udc {2000-2010}; trcng khi ehung dUde tad ra bdi
?n ti'ch qucc gia. MUc do tap trung cae hoat ddng, u cau quan ly eae d do thi Idn ngay eankhae bi#t sc vdi trnh jan ly tnh vUe nong thdn. Khoang each giOa
„. long nhat, thdng su6t,bp may tinh gon va hdp nghiep, giai quyet nhanh gpn cdng viec ciJa ngudi dan"[1]
va liiui, i« iHi cue KIIU vuc dd thi ngay cang Idn hon.
jng chi d trong khu vUc quan ly r
„ u r , _ - ,,=•,. i^j^u ^ ^ ^ ^^^ ^ g ^^,
ch nhiem qiUa eac cai
liem ehua qu khi cap tren chinh quyen au va tinh gi a giai trinh p niu traeh nhie ra ngudi dim
yve.mpt moi. Cap dudi giao viee va traeh nhien cung da nhan thQc dUdc 3i trinh, Tuy nhien van
ai trd thanh nen tang eh m giai trinh eao nhat vdi g dau. The che hien tai c
1 ra nghj qu rang he the
, ddi khi kt van de tap de khdng 0 ca bd ma oan the da Viet Nam
yet nha nghan dng tUc trung t Jdn gia yquan ncUeu :hua ch
ng khong rd rar 1 chinh trd than ng xirng [3], aeh nhiem vao 1 bdi viee chiu y vdi ngudi difn ahp. Mdhinhtc 0 oheo dieu na
gcap heap
ngud traeh gdau ehUc
U^^B ^j ^5
G ^ ' ^ A
ra, nhung tieng ndi cai each da chinh thile de xuat 6 Da NSng tt nam 2008, Cac de xuat nay dUdc lap iai va thao iuan gan day (2010-2014) thudng xuyen va nghiem tiie hdn.
Van de khdng ehi nam trong nhanh hanh ehinh ma edn nam b he thong chfnh tri, Bd may hanh chinh Viet Nam dUde xay dung dan xen vdi he thong chinh trjicho phep mot can bo/cdng chifc cd the dong nhieu vai: iiic thi la giam sat nghi vien/nghj tn/dng, liic iai la ianh dgo eSp Liy ra chO trUdng, liie thi igi true tiep giai quyet edng viee.
S\} chong eheo traeh nhiem trong bo tri nhan sU din d^n ne nang, ho^c xung dot Idi ich, va giSm tinh phe phan khach quan. Dac biet, khi nhieu cap Hdi dong nhan dan mang tieng la cd quan quyen lUe nhung nghi quyet dUa ra khong ed thi/c \\Sc la nguon thu ngan saeh v& thim quyen hanh chinh 6 cap dd di kem thi nhieu Nghi quyet khdng c6 kh& nang thi,Je thi. Hdi dong nhan dan edn le thuoc vao Uy ban nhan dan v^ m^t t6 chifc hanh chinh va tai chinh thikho dam bSo chifc nang giam sat,
VSn de trao quyln rdng rai hdn cho cac dd thj da cd nhieu ehuyen bi^n, xong ehua dong deu Tgi cac dd thj idn, van de tg' chii ve tai chinh ngay cang trd nen rd rang va cap thiet. Sau Phap lenh Thu d6 nam 2000 vk Nghj djnh 93/CP nam 2001, Ha Ndi va TP. HCM dUdc quyen ti/ ehCt rdng rai hdn trong phan cap ngan saeh de chii ddng thUe hifen cac nhiem vu dau tU va phat then [4, 5], Lugt Ngan saeh 2002 (hieu lijc tif 2004) day manh phan e ^ hon cho dja phUdng, d|ic bi$t la cap ttnh trong thu tir dat dai va ehi dau tu phat trien [6], Tuy nhiSn, vi§c phan cap cap tinh vin ehua den vdi cap dd thj true thudc tinh hoae tr^c thudc huyen. Bd may va each thClc quan iy 6 thi tran vin kha giong xa va huyen vin giong thanh pho va thi xa tnJc thudc tinh. Dd thj cap dUdi tinh ehua dUde quyet dmh mife thu phi, le phi, chinh saeh uu dai. Day vin cdn la van de tranh luan va can nhac trong cae van d6 Ccii each sap tdi.
T a c dong
Dii mifc do tac dpng eua nhOng bat cap trong md hinh quan ly dd thj hien hanh tdi si/ phat trien ben vCfng cdn thieu can ci^ tuy nhien, ed the nhSn dien rd rang hdn van de nay trong giai doan nen kinh te dang khd khan hien nay. Sy thieu hut tram trpng ve dat danh cho phat tnen hg tang khd ed the bidn minh khi dat dai vin nim trong tay Nha Nudc. S)/ dU thifa ve nguon cung nha d, hang t r ^ dy an bo khong, chung cU trung cao cap can den 7 nam de ban het tai Ha Ndi la minh chifng eho viec thanh pho vin khang dinh cac dy an tuan thu quy hogeh dmh hUdngp]. Quy hoach Ha Ndi nam 2011 Ve" cae du an vUdt xa nhu eau thye te. Quy hoaeh nhin 15-30 nam dUdng nhu
"hd trd" hdp thife hda cae dy an bao ehiem dat roi bo hoang tran lan nhUng lgi khdng cd cd sd de "phanh" eac dy an ehUa can thiet. Day cd the khdng chi la l6i he thd'ng quy hoach ma cdn la ca bd may quin ly phat tnen, dy bao, va ra quyet dinh. Cac dy an phat then khi phe duyet cd du hg tang xa hpi nhung den khi thyc hien khong cd vin khdng co cd quan nha nude diing ra chju traeh nhiem cd the phan anh hieu lye thyc thi cilia bd may hanh chinh.
Trong boi eInh dd, van eo nhCfng diem sang va do la ndi de cao traeh nhiem giai trinh. Neu nhin neng vao bo may quan ly, Da N&ng ehya ed nhieu khac biet; nhung lai di dau trong thuc hien cd eh^ dan chil trye tiep, quyd't tam ehinh trj cao de doi mdi toan dien trong eac
eong viec thu6c traeh nhiem eua dja phUdng. Tuy nhifen, bai hpc Da Ning khong phai dia phydng nao cung hpc dUijc hay muon tam bdi thanh cdng trong giai quyet bit cap ve xa hpi, an nmh trSt ty, moi trudng khong ddn gian xult phat tiJ quyln ty chil ma cdn di kem vdi traeh nhi^m giai trinh cua bp may lanh dgo. Sy ro r^ng ve hinh thanh quyen lye va danh gia edng vi&c nhin tif he thong vin chua day dD nen nhifng de xuat ciia Da Ning ein dUOc cac dja phUdng khac vk tif Trung Udng iing hdde nhan rpng
Trong mdt xu the eii each chung, vin de cli each ehinh quyln dd thj da va dang dUpc nhin nhan tieh cyc vdi ehii trUOng tif trung Udng cho den sy dong thugn b nhilu dja phUong.Trong eac y kien gdp y cho dU thio Hien phap 2013, nhieu van de ed tinh c6t lot nhu hinh thanh quyen lUc; cd s6 cua traeh nhidm va bat tin nhigm; each thife giam sat doi vdi bd may hanh phap b dia phydng va Trung Udng da dUpc ban thao. NhCfng de xuat hdp nhat chye danh Bf thy va Chi!i tjch, b6 d p Hdi dong nhan dSn trung gian, biu trye tiep chiic danh ehii tich UBND a cap xa va thj tran b H i Ndi; bd HDND elp qu&n va phudng, doi ten UBND thanh UBHC va trao quyln b6 phieu bat tin nhigm cho HDND ciing cap; HDND giam s^t bing dgi bieu b cie d p trung gian 6 Da Ning dii ehUa dUpc chap thuan toan bd nhUng xu hydng thay doi da rd [8]. Tyu trung lai, eac tuong tU tUdng chia sh chung e^c xu hudng eai each la:
• Bd bdt cd quan quyen luc cap trung gian d p dia phUdng de Hpi dong nhan dan thyc quylt dUpc vdi thyc quyen 6 dd thi;
• Gilm diu moi giam sat, chi dgo va tap trung quyln Iyc cho chinh quyen dd thj cap ed tham quyln v l ng&n saeh;
• Tap trung quyen iyc cho ngudi difng dau dd thj, dong thdi tang traeh nhiem giai trinh va giam sat;
• Gia tang thUe quyen cho cd quan giam sat la Hdi ding nhan dan.
Tuy nhien, ban than nhiing de xuat nay eung ehiu thach thyc b6i yeu d u doi mdl rlt khd thUc hien neu khdng doi mdi e l phUdng thyc hogt ddng bao gom ca each thifc hinh thanh, eo che hogt ddng va iuSt 1^, he thong khuyen khich, cdng cy quin ly de dim blo chile nang ciia ehinh quyen nham dap img ddi hoi hien tgi va tUdng lai eua khu vye do thi ndi rieng cung nhu eua e l dat nUdc. Dieu nay ddi hli qua trinh cli each phli dien ra dong bd, sau rdng, va can nhiiing bUdc dot pha vao nhiJng khau then ehot nhU tai ehinh, nhan sy, xay dyng ehinh saeh rieng, va quyet dinh neng trong ITnh vUc quy hogch.
Cho den nay, nhilu ndi dung mang tinh then ehot vin dang dupe thao luan va d n can nhle lua ehon nhU:
1. Neu bd bdt d p trung gian thi ap dung cho dd thj co quy md dan s6 nhu the nao de dim blo thyc hidn hifeu qui giam sat va thye hanh dan chil?
2. Nhan sy difng dau chinh quyen dd thi cd nfen theo cd che tranh cif va bau trye tiep khdng''
3 Viec lya ehon nhan su trung gian sif dyng md hinh nao? Thi tuy^n eanh tranh hay gidi thieu va bd nhiSm truyen thd'ng? Ap dgng thi tuyen eho eae vj tri nao va den c^p nao?
4. Nghi quyet eua Hpi d6ng nhan dan co trd thanh hipu Iyc phap lu&t va ludn di vdi ngan saeh tUdng ufng eo tinh ddc ISp hdn so vdi lugt ngan saeh hi^n nay khdng''
5. Dd thi cd dUpc ngSn saeh chu ddng vdi vi$c v^n dyng cic mifc va logi p h i - t h u l rieng theo ch^ti"'^"'^^""" ^^'^ ^^^^ >•"• *"• '-^ - '•-
l i . X D Sd70 .2014
f o u y h o a c h ^ ^ ^ ^ X S S I l ^ ^ n
th! fTii"h quin ly va nhu d u dap yng theo thuc te khdng?
6. Dd thi CO duoc ban hanh chinh saeh rieng de trien khai nhiem vu khdng?
7. I^d'i quan he vdi cap tinh se dUpc tu ehCi nhu the nao dd'i vdi dd thi trye thuoc tinh"?
8. Dd thj logi viing se hen ket vh phoi hdp vdi cae dd thi trong viing nhu the nao? Mdi dd thj trong viing se tu ehu den dau'' NhQng van d l nhU vay cd the dUdc so sanh va tim hieu ty kmh nghiSm md hinh chinh quyen dd thj d Nhat Ban
Mo hinh chinh quyen do thi (tU ch^) d Nhat B ^ H$ thdng dd thj
Nhgt Ban dii da cdng nghiep hoa va day mgnh dd thi hda trude Viet Nam ca tram nam, nhung sU hinh thanh bp may chinh quyen do thi cDa vin ed nhilu net ciia quin ly eong dong xa hdi kieu ndng thdn ty quin. Dii cd nhijng cli each trong phan ehia cap do tu quin de quin ly dd thi tot hdn thi tinh thin nay la dac diem bat bien Irong hang trarr nam qua.
Xa hdi dd thj dii "vd danh tinh" (anonymous) v i n dUdc to chye quin ly nhu mdt epng dong vdi ngUdi dufng dau dai dien cho c l dd thj cd traeh nhi^m cao nhat. Ty the kj* XIX cho den XX, ed ehe Liy nhiem va bo nhiem theo vung (the ky 19) dUde thay the bing xay dyng ehinh quyen do thi biu gian tiep Thj trudng {trudc nam 1945), roi biu trUc tiep Thj trudng va Hdi dong (sau nam 1945) [9].
Chu y la sy trao quyen hay traeh nhiem dyng dau thyc chit khdng phli la trao cho d p chinh quyen ma thUc chit la trao cho ngUdi dan bdi ngudi dan trye tiep bau ra ngUdi diing dau va cac dai dien trong Hdi dong dia phUdng. Viee tdn trpng sU ty quyet eua cae
°do^n thi'va "ngUdi cyan"dja phUdng dUdc the hien thanh tinh than c6t loi trong hien phap [10].
Ndi dung "doan the tU quan" la thiet lap doan the dja phUdng vdi tUcaeh phap nhan dgc lap tU nha nude; lay doan the khu vUc do dua vao hanh chinh dia phUdng; va "ngUdi dan tU quan" la xda bo sy can thiep cDa chinh quyen trung Udng vao hanh ehinh dia phUdng, xi!f ly mot each ty chii dUa tren y cua ngUdi dan thude dia phUdng do Khi tdn trong eac quyen nay thi Nha nudc da tin tUdng va giao cho dii la Thi trUdng hay Trudng thdn nhOng quyen dieu hanh trong phgm vi va gilm thieu can thi&p hanh chinh ty cap tren. NgUpc lai, ngUdi dyng diu chm sU giam sat cua Hpi dong dia phUdng - ed quan quyen lue d dja phUdng mdt each thyc chat.
Ve mat he thong, cac dd thi Nhit Ban cd ngudng xep loai dd thi eao hon Viet Nam mdt bae, Dd thi loai 4 la ngudng cua Nhat Ban duoe coi la do thi, cdn dd thi logi 5 ciia chung ta tUdng dUdng cae lang (Xem bing 1)-
So vdi Viet Nam. so IUdng eac dd thi gin tUpng dUdng, nhung hdn 700 dd thi cua hp deu cd bp may chinh quyln rieng, ed quan ly ehuyen mon (tuy d p ) , va deu cd tinh tu chiJ nhat djnh 2.2 Phan cap va trao quyin trong h$ thing
Ve mat t^ Chile, mdi dd th; chi cd mdt cap chinh quyen (try Tokyo) va cac cap logi chinh quyen dupc xep thU hgng va phan loai to
Ddtluloai
Loai Dgoai le - dac biet - vimg dd d u l o s Dd thi vung - tren 50 vm din 1 b u u dan (VN U do fl); loai 1 do tiu
tiuc thuoc tmng inmg hoac tinh.
Nhat Banla liao qi^en tu chii toan dien
£ » thi VN lo?i m a tbupc tmh tinmg duong Ioai 2 d£n 4, Nhat Ban
U dd tbi binh Ihifcmg, dan so >5
0.4van <d6 thi nho <5 van (Nhat Ban khong cdng nhan do thi nho ban S van - nho hon la lang) Don VI do thi CO tmh tu chu c6 bd
may quan ly chuyen mon ( V i ^ Nam l i quan va cac thanh pho - thi
xa -v tftinng tmti thi tfin) Tdngsd
He thdng dd Iht Viet Nam (6
Ioai)
2
10
90
653
146
755
He thong dd du Nbat Ban (tiDb ca don vi q u ^ trong do thi k m - 5 loai v a i ca (M dac bi^t trong vung dd
tht Ion) 3
19
785
0
785
785 Bang 1, so sanh he thfi'ng do thj Viet Nam va Nhai Ban Nguon: tac gia tdng hgip lii thdng ke Bd XSy dyng [11 ]va Vien nghign cilu so sanh qudcte ve chinh quyln dia phuong Nhat Ban 1121.
ehiJc bd may dua vao quy mo va dac diem hoan thien ciia mdi do thi trong he thong, Neu la dd thj Idn hoae khu vye Idi da duoe phat tnen hoan thien thi sy trao quyen eung rdng rai hdn de dd thj ty quyet nhieu van de phat tnen va phye tap nhu quy hoach, ha tang, va dat dai. NgUdc igi, cac dd thi quy md nhi se dUdc giao ty chD eac van de thap hdn. Miic dp eao thap dUdc md t l giong nhu cac thang bae 6 trong md hinh phan logi mUc dp tu quin theo logi hinh vaquy md{Xem hinh 1).
n u s hinh phan dip qnan ly dr cic do dii lou tai Nhat Ban
Hinh 1: phan loai do thi d Nh^t Ban theo LuSt TU quan Dja phuong Nguon: |12)
Q.X
9 hlnh chinh quyen do thi en Viet Nam the gidi, qua D mdt so dieu us status) vdi
6, Can can nhac dieu ehinh lai quy thi loai dac biet, Quy md cua TP, H de chinh quyen mot cap Hdi dong qua, Nhung cap phudng lai qua n hien. Cap quan la trung gian lai dan ban chat trao quyen cho i h j dan I
nhung tUdng dong), TP, HCM eung co Car
Nha Be; Da Ning cung ed huyen Hda Vang ru.. ,.__
vdi phin dd thj cdn !gi can ed nhSng tuy chinh cho phii hpp.
, • xuat la mpt he thong dd thj vdi h.
ip va trao quyen ty ehii mdi nhu sau: (Bang 2) T.=- ^=., „ i : ,i -u:-,, u:a -„, u«„ J£,, J^g ^j^^ (jgp
' dung thanh cdng can trien
^"tassBS
quan hegiua chinh quyen Nha r
Loai chinh qnven Phirang tai cic do thi loai 1 fiTJC thaoc tiTiog nwng tro" len Quan lai do Ihi loai dac biel Quan lai do thi loai 1 t i m thuoc tmng iramg Do thi loai 2 - 3 - 4
Do thi loai 5
Do thi loai 1 tiirc thnoc tinh
Do thi loai 1 ti-irc thnoc tiTing utmg
Ha Ngi
TP. HCM
Hien tai
Co HDND
Co dli HDND
Co dli HDND
Co hai c ^ phucmg va ttianh pho Mpi cap
Co hai c ^ phirong va thanh phO
Co ba cap phudng, quan, v l thJTih pho
Co ba cap phucmg, quan, va thJTiti pho
Co ba cip phudng.
D e x n a t
Bo HDND va sap nhsp lai thanh phudng ldn
Ifinh thanh chinh quyen co sa mdri vdi diy du HDND v i UBHC
3 6 HDND cap quan ma hinh ihanh duoh quy6i do thi tfiong nhit mpt cap 0 do thi loi v i ttao quyen gan nhu cap tinh.
B6 cap phuong v i hinh thanh mpt cap chinh quyen d6 thi la cip ccr so nhung tiao quyen rong hdn hien tai
Cho bau thi tniong gidng xa tnidng, vin le thopc vao huyen ve chuyen mon nhung ve mat x i hoi ting thib t u d n i
Bo cip phudng va hinh thanh do tin toi qoin ty rieng thinh mot cap, trao quyen rdng iai cho chinh quyen do thi loi, ben ngoai d^ tinh quin ly va ton tai cac do thi ngoai vi quan ty tu d u Bo HDND cip phudng va quin, hinh thinh mot chinh quyen do thi loi quin ly neng diinh mpt cap. tiao quyen long rii cho chinh quyen do thi loi, ben ngoai de tinh qoin ly v i ton tai cic do thi ngoai vi quan ly ta cfaii toin dien.
Hai cip. Hinh tbaoh chinh quyen CO scr m6i tuong ^ l o n g cap quan vdi diy dii HDND v i UBHC. Tren do l i cap thanh phd. Cap naytrong vimg loi do thi c u i ^ l i mpt cip chinh quyen nhitng njt gpn hon, phin chia tiich nhiem cho
<piin, quin ly it hon so vm tinh. H u y ^ quin ly khic so vdi quan mdL
Hai cip. Hinh ttianh chinh quyen co so mdi tuong ^fong cap quan vm d i y du HDND v i UBHC d bon do thi ve tinh v i dd ttii loi, huyen B.ing 2. de xuA't thay d6\ mo hinh chinh quyln do thj d Vigt Nam
Nguon: lac gia
