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PHAN DINH T H A M QUYEN GILTA CHINH QUYEN TRUNG U'OnVG VA CHINH QUYEN DIA PHU^ONG: NHUlVG V A N DE
DAT RA VA Hl/dNG H O A N THIEN
Nguyen Van Cirffng Trirang Hong Quang Tom tat: Bdi viet ddnh gid nhimg thudn l^i, vuang mdc trong viec phdn dinh thdm quyin giiia chinh quyin trung uang vd chinh quyin dia phuang tai Viet Nam thai gian qua. tic do dua ra mot so khuyen nghi ve mo hinh chinh quyen dia phuang vdphdn dinh thdm quyen giiia chinh quyin trung uang vai chinh quyen dia phuang trong thai gian tdi.
Abstract: This article evaluates advantages and shortcomings with respect to calibration of authorities of central and local governments in Vietnam recently. On that basis. It makes some proposals on models of local government and calibration of authorities of central and local governments in the future.
1. Vai tro cua viec phan dinh tham quyin giira chinh quyen trung uong va chinh quyen dia phuong
Day chinh la mot trong nhiing van de quan trpng trong t6 chuc quyin luc nha nude. Phan dinh thdm quyin giiia chinh quyin trung uong va chinh quyen dia phuong thi hien quan niem cua m6i qudc gia vi vai tro ciia chinh quyen trung uong, chinh quyin dia phuang trong viec gidi quyit cac vin de chung cua quoc gia va nhung vin di rieng co cua timg cong d6ng dia phuang. Tiiy theo diiu kien Uch sii, kinh ti, chinh tri va ly thuyit td chiic bp may nha nude cua m6i qudc gia ma noi dung, each thuc phan dinh thim quyin giua chinh quyin trung uong va chinh quyen dia phuang la khac nhau. Tai m6i quoc gia, trong timg giai doan lich sii, ndi dung, each thurc phan dinh tham quyen giua chinh quyin trung uong va chinh quyen dia
* TS., Vi§n Khoa hgc phdp ly, BO Tu phdp.
" Vien Khoa hgc phdp ly, Bp Tu phdp.
phuong ciing khdng hoan toan giong nhau.
Thuc tien cho thay, viec phan dinh quyen lire dugc thuc hien tot thi co che van hanh quyen lire ciia quoc gia se hieu qua, siic canh tranh cua qu6c gia dupe nang len.
Tai Vift Nam, viec tim kiim m6 thiic hpp ly de phan dinh tham quyen giiia chinh quyin trung uong va chinh quyen dia phuong ludn dugc dat ra trong cac giai doan lich sii. Trong mpt thdi gian dai, viec phdn dinh thim quyin dupe thi hien dudi hinh thuc "phan cip qudn ly" hoac "phdn cip qudn ly hanh chinh". Viec phdn cap quan ly theo hudng trao cho chinh quySn dia phuong cdc cip (nhat la trao cho Uy ban nhan dan (UBND) cac cip) nhiiu quyin nang ban, da dien ra manh me trong sudt thap nien 1990 va nhirng nam diu eua thi ky XXI. Tuy nhien, viec tim kiim mot co chi phdn dinh thdm quyen giiia chinh quyen trung uong vdi chinh quyen dia phuong phu hpp d Viet Nam vin con chua co Idi giai thoa ddng. Do do, hoan thien mo hinh chinh quyin dia phuang ciing nhu hoan thien noi
27
NHA NUOC VA PHAP LUAT SO 11/2014 dung, CO che phan dinh thdm quyen giiia chinh quyin trung uong vdi chinh quyen dia phuang la vdn de dugc quan tam bdi cac nha hoach dinh chinh sach va gidi nghiSn ciiu hien nay.
2. Ban chit mdi quan he giira chinh quyen trung uong va chinh quyen dia phuong o* Vif t Nam
Theo nhieu nha nghien ciin, khai ni^m phan quyin giiia chinh quyen trung uong vdi chinh quyen dia phuong hoac phi tap trung hoa (decentralization) khdng ph6 bien trong tu duy chinh tri, phap ly ciing nhu trong xa hpi Viet Nam. Thay vdo do, chiing ta thudng dugc nghe den cdc khdi niSm nhu
"phdn cdp" hoac "phan cap quan ly"' Tim hieu ve khai niem "phan cap" nhu mpt each thuc thiet ke m6i quan he giiia chinh quyen trung uong vdi chinh quyen dia phuong tai Viet Nam , can luu y tdi thue te la ca Hien phap va truyen thdng td chiic nhd nude deu theo hudng khang dinh Viet Nam la mpt Nha nude don nhat; quyen lire nha nude Id tap trung, thdng nhat; cac co quan nha nude dupe to chiic theo thii bac chat che va chi dugc hoat dpng trong pham vi, tham quyen HiSn phap va phdp ludt quy dinh. Chinh quyen dia phuang duoc xac dinh la bp phdn cau thanh nen bp may nhd nude thing nhit. Tuy chinh quyin dia
PGS.TS. Nguyen Cuu Viet, PGS.TS. Truong Ddc Linh, Sira doi Hien phdp: Nhin tir chiin luac phdn cdp qudn ly, T^p chi Khoa hgc Phap ly (Dai hoc Lu^t TP. H6 Chi Minh), s6 3/2011, tr. 4.
^ PGS.TS, V5 Kim Son (Hgc vien Hdnh chinh qu6c gia) rat c6 ly khi cho rang, nghien cuu "phdn cdp hoat dgng qudn ly hanh chinh nhd nuoc thuc chit Id nghifin ciiu moi quan he giita Chinh phu trung uong voi chinh quyen dja phuong cac cdp trong viec thuc thi cac hoat dSng qudn ly hdnh chinh nhd nu6c"
(Xem: PGS.TS. V3 Kim Son, Phdn cdp qudn ly nhd nuac: Ly luan vd thuc lien, Ha Noi, Nxb. Chinh trj qu6c gia, 2004, Ir. 45).
phuong do nhdn ddn dia phuong lap ra nhung eac ca quan cua chinh quyen dia phuang dugc xem la eac co quan cap dudi ciia chinh quyin cip tren ma cao nhat la chinh quyin trung uong. Cac co quan ciia chinh quyin cip dudi khdng chi chiu trach nhiem trudc nhdn ddn dia phuang ma con phai chiu trdch nhiem trudc co quan cip tren, trudc chinh quyen trung uong. Them vao dd, moi quan he giiia chinh quyen trung uong va chinh quyen dia phuang bi chi phii bdi nguyen tdc nen tang ciia to chiic bp may nha nude dd la nguyen tac tap trung ddn chu. Nguyen tie nay ddi hdi phdi ket hpp duoc hai khia canh: tap trung hoa quyen luc nha nude de bao dam chu quyen quoc gia, va phat huy dan chu. Nguyen tac nay ciing doi hoi chinh quyen dia phuong cap dudi phai phuc timg chinh quySn dia phuong cip tren va chinh quyen dia phuang phai phuc tung chinh quyen trung uong.
Phan cap khdng chi dupfc hieu la phan cong hop ly chiic nang, nhiem vu, quyen ban, trach nhiem giiia cac cap chinh quyen dia phuong , ma cdn la su chuyen giao quyen quyit dinh trong hoat dpng quan ly hanh chinh nha nude tir Chinh phii trung uong, chinh quyen cip tren xudng cho cdc CO quan cap dudi trong hS thing hanh chinh nha nude . Tuy vay, ban chdt ciia phdn cap d Viet Nam la "cac cap cung thuc hien mgt cdng viec vdi nhiing mire do, pham vi, noi dung khac nhau"^ hay "cimg mgt cdng viec
^ Vi^n NghiSn ciiu hdnh chfnh - Hgc vi0n Hdnh chinh quoc gia, Thugt ngii Hdnh chinh. Hd N^i, Nxb.
Chinh tri quoe gia, 2002.
'' PGS.TS. va Kim Son, Phdn cdp qudn ly nhd nude:
Ly luan vd thuc tiin. Hd N^i, Nxb. Chinh tri qu6c gia, 2004, tr. 36.
^ GS.TS. Trdn Nggc Dufrng (chu bifin). Mot s6vdn di vi phdn cong,. phoi hop va kiim sodt quyin life trong xdy dung Nhd nuac phdp quyin Vift Nam xa
dugc chia cho cdc cip khac nhau thue hien" . Vdi tu duy phan cap nay, chinh quyen trung uong chiu trdch nhi?m tdi ciing v6 cdng vu ngay ca khi da dupe phan cap.
Nhieu nha nghien ciiu cho rdng, vi phan cap theo each hieu dd nen mo hinh chinh quyen dia phuong Viet Nam hien nay nhu mgt bien the eua m6 hinh X6 Viet trudc day. Do la md hinh mang tinh chit t6ng h6a, tong hpp mpi yeu to cua tap quyin, tan quyen, phi tdp trung hoa va ed uy quyin.
Trong do eac yiu td tdp quyin la chu dao, tan quyen la pho bien, phi tap trung hoa rit yeu dt, liy quyen ddt dudi du lanh d^o true tiip, todn diSn vd tuyet ddi cua Ddng'.
Chinh vi v^y, khi nghien ciiu vi phan cip quan ly d nude ta khong the kh6ng chii y d6n quan niem chfnh thong v6 su thSng nhit cua quyen lire nh^ nude va dat trong moi quan he vdi nguyen tac tap trung ddn ehii^.
Cling chinh vi quan nipm nhu tren, khi ddnh gia thuc tiln phdn dinh tham quyen giiia chinh quyen trung uong va chinh quySn dia phuong ciia Viet Nam thue chat la ddnh gia hoat dpng "phan cap".
3. Nhirng bat c^p trong phan dinh tham quyen giira chinh quyin trung irong
hpi chu nghia, Hd NOi, Nxb. Chfnh trj qu6c gia, 201l,tr.330.
* GS.TS. Trin Ngge Duimg, Phdn cong, phoi hap vd kiem sodt quyen luc vcri vi^c sua doi Hien phdp nam 1992. Hd N^i, Nxb. Chfnh trj qu6e gia, 2012, tr. 284.
' PGS.TS. Nguyen Cihi Vift, PGS.TS. Truong Dae Linh, Sua ddi Hiin phdp: Nhin tir chien luoc phdn cdp qudn ly. Tap chf Khoa hgc Phdp ly (Dai hgc Luat TP. H^ Chi Minh), so 3/2011, tr. 8.
* Xem thfim: Vi?n Khoa hgc phdp ly - Bg Tu phdp, Dk tdi NCKH cap Bg "Phdn cong quyin l\tc giiia chinh quyen irung ucmg vd chinh quyen dia phuang tgi Vift Nam - Ljch sir, l^ lugn vd thuc tiin", Hd Ngl, 2014, Ban Chii nhi^m: TS. Nguyin Vdn Cuong, Truong H6ng Quang.
va chinh quyen dia phu-ong 6* nirdc ta hien nay
Diy manh phan cdp, nang cao hieu luc, hieu qua hoat dpng cua bp may nha nude tijr trung uong den cac cap chinh quyin dia phuong la mpt ndi dung quan trpng trong cai each bp may hdnh chinh nha nude theo hudng xay dung Nha nude phap quyin xa hdi chu nghia da dupe Dang va Nha nude ta khdng dinh va quySt tam thuc hien. Tr^n tinh than do, nhiing nam gan day Chinh phu da CO nhiing giai phap tich cue, cu thi di doi mdi, tang cudng phan cip trong thuc thi quyen luc nha. nude giOa trung uong vdi dia phuong va giiia chinh quyen dia phuong cdc cap. Nhieu noi dung cua Nghi quyit s6 08/2004/NQ-CP eua Chinh phii ngay 30/6/2004 ve "Ti^p tuc diy manh phan cip quan ly nhd nude giiia Chinh phu va UBND tinh, thanh pho true thupc trung uong" da dugc trien khai thuc hien co kit qua. Mpt sd ITnh vuc sau khi dugc phdn cip qudn ly da gop phan thiic diy kinh te (vi du nhu ITnh vuc dau tu, dat dai,...). Tuy nhien, noi dung, each thuc phan dinh thdm quyen giiia chinh quyen trung uong vdi chinh quyen dia phuong hien nay trong quan ly nha nude van con khdng it ton tai, bdt cap . Cu the:
Thic nhdt, hinh thiccphdp ly ghi nhdn su phdn dinh thdm quyin giiia chinh quyen trung uang vd dia phuang duac the hiin a nhieu loai vdn bdn khac nhau (tic ludt din nghi dinh, thong tu...) cho thay, chu the quyet dinh viec phan cap qudn ly d Viet Nam khdng chi bao gdm Qudc hpi (the hien
' Xem them: Vien Khoa hoe phdp ly - B6 Tu phdp, D^ tai NCKH cap B6 "Phdn cong quyen luc giua chinh quyin trung uong vd chinh quyen dfa phuang tai Viet Nam - Lich su, ly ludn vd thifc tien", Hd Noi, 2014, Ban Chii nhilm: TS. Nguyen Vdn Cuong, Truong Hong Quang.
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NHA NUOC VA PHAPLU4TSO11/2014
a viec quy dinh cac van de mang tinh chat khung ve phan cap trong cac dao luat), Chinh phu (ban hanh cac quy dinh eu the ve phan cip quan ly nhd nude ma Nghi quyet s6 08/2004/NQ-CP ngay 30/6/2004 la mpt vi du) ma bao gom ca cdc Bp, co quan ngang Bd'^. Viec phan cap giiia cac cap chinh quyen dia phuong vdi nhau cdn do UBND cac cip quyet dinh". Dieu dang noi la, npi dung phdn dinh tham quyen giira cac CO quan cu the chii yeu trong cac van ban dudi luat, tinh on dinh khong cao; quy trinh xdy dung van ban kho bao dam day du y kien tir cac dia phuang.
Thu hai, viec phdn cdp mang tinh "tic tren xuong ", chua chii y tdi nang luc thuc te ciia chinh quyen cap dudi trong viec dam nhan nhiem vu dupe phan cap. Viec phan cip mdi chi ndng ve chuyen giao cong viec (nhiem vu) tir cap tren xuong cap dudi ma chua tuong xiing vdi tham quyen va ngu6n lire can thiSt (to ehiic, nhdn sir va tai chinh, ngdn sach).
Thic ba. phdn cdp mang tinh dong loat vd dai trd. the hien a cho tinh. huyen, xd diu thuc hiin nhiem vu ludt dinh gdn giong nhau. chi khac nhau ve cdp do vd khu vuc dia ly trong khi nguon luc, ndng luc khdc nhau. Dieu nay lam cho chuc nang, nhiem vu ciia cac cap chinh quyen dia phuang cd su chong cheo, trimg lap. Co quan cap dudi
'" Vi du: Khoan 5c Dieu 23 Nghj dinh so 38/2012/Np-CP ngdy 25/4/2012 eua Chinh phu quy dinh ehi tiet thi hanh mgt so di6u cua Luat An toan thue pham eo quy djnh So Cong Thuong "t6 chiic viec cap Giay xdc nhan noi dung quang cao thirc pham theop/ioM cdp ciJa Bg Cong Thuong".
" GS.TS Tran Ngpe Duong (ehu bien), Mot so vdn de ve phdn cong, phot hap vd hem sodt quyin luc trong xdy dung Nhd nuac phdp quyen Viet Nam xa hoi chu nghia. Hd Noi, Nxb. Chinh trj quoc gia, 2011,tr.330.
chit yeu t i chirc trien khai cong viec cap tren giao xudng. Cd nhung van de mang tinh cu thi ciia dia phuang lai chua dugc giai quyit tri?t di vi khong thugc ke hoach da dupe phe duyet va do vay khdng co kinh phi di thuc hien. M|it khac, trir 5 thanh pho true thudc trung uong, cac tinh con lai hudng chung mpt chinh sach phan cdp mdc dii khac nhau ve quy md, nguon lire, nang luc..., lam ban che hieu qua ciia chinh sdeh phan cap. Ben canh do, each phan cdp kiiu
"dong phuc" nay ciing khong phu hpp vdi cac quy luat kinh te khach quan cua nin kinh tS thi trudng md cira, h6i nhap, khong phdn anh dugc day du cdc ddc thii dja phuong v6 phat triSn kinh tS-xa hgi trong to chiic va boat dgng cua chinh quyen dia phuang.
Thu tu, nguai ddn - chu thi chiu tdc dong cuoi ciing cua chinh sdeh phdn cdp chua thuc su duac tham gia co hi$u qua trong viec hoach dinh chinh sdeh a dfa phuang. Khdng gian tir quyet cua dia phuong dugc md rpng, nhung co che de huge chinh quyen dia phuang hanh d0ng thue su vi loi ich cua ngudi dan dia phuong (qua CO che ve cdng khai, minh bach, trach nhiem giai trinh) chua dugc cai thien mpt each tuong ung. Nhu vay, khong gian tir chil rpng rai hon lai cd thd trd thanh m6i trudng thuan Igi cho cac biiu hien tha hoa quyen luc, tham nhung.
Thic ndm, co xu huong phdn tdn the cM quyen luc tu trung ucmg tai dia phuang. Tir nam 1986 din nay, sd tinh d Viet Nam tang tir 40 thanh 63, s6 huyen tSng tir 522 thanh 697, sdxa tang tir 9.901 thanh 11.138*1 Sir
'= Xem: TS. Duong Trung Y, Tdng cuong su lanh dao cua cdc cdp iiy trong xdy dipig he thdng chinh
chia cat thanh 63 nen kinh te cap tinh dang dat ra nhieu thaeh thiic cho sir quan ly va quy hoach mpt each tap trung cac ngudn Iuc quoc gia. So lupng dau mdi quan ly cua tmng uong doi vdi dia phuong, cua chfnh quySn cap tren doi vdi chinh quyen cap dudi qua Idn, lam giam hieu qua qudn ly, dieu hanh cua nen hanh chinh.
Thu sdu, cong tdc hudng ddn, kiem tra, thanh tra cong vu, gidm sdt cua chinh quyen trung uang doi vdi eac nhiem vu da phan cap cho chinh quyen dia phuang chua dugc quan tam diing miic. Phan cap chua di kem co che kiem tra, giam sat chat che viec tuan thii cac chien luge va quy hoach chung, nen dan den su phat trien lech hudng ciia mgt sd nganh, ITnh vuc (cdng bien, san bay, khu kinh te, khu cong nghiep, khu kinh te cira khau), mit cdn doi giiia cac nganh cong nghiep vdi nang lupng, gdy nhieu he luy tieu cue ve moi trudng. Ben canh do, cd mot thuc te dang dien ra la xu hudng hinh thanh cac co cau kinh te tuong tu nhau d cac tinh eo dieu kien kinh te kh6ng giong nhau.
4. Mot so khuyen nghj
Hien phap nam 2013 da bo simg nhieu quy dinh mdi co tinh chdt md dudng cho viec thiet ke mo hinh chinh quyen dia phuang it tang nac ban, khong nhat thiet phdi rap khuon m6 hinh chfnh quyen nong thon cho chinh quyen d6 thi, quy dinh ro hon nguyen tac phan dinh tham quyen giira chinh quyen trung uong vdi chinh quyen dia phuong... Day la nhiing tien de phap ly quan trpng de doi mdi to chirc va hoat dpng ciia chinh quyen dia phuong, doi mdi noi dung, eo che phan dinh tham quyen gifia chinh quyin trung uong vdi chinh quyin dia
tri a CO sa hi?n nay. Tap chi C^ng san, s6 chuyen dS CO sd,s6 77, thdng 5/2013, tr. 19.
phuang. Theo chiing toi, co chi phan dinh tham quyen giiia chinh quyen trung uong vdi chinh quyen dia phuong can dugc hoan thien theo nhung dinh hudng sau:
4.1. Ve mo hinh to chiec chinh quyin dia phuang
Vdi tu each la dao luat g6c, Hiin phap nam 2013 chi quy dinh nhung vin di co tinh nguyen tac ve phan chia don vi hanh chfnh va mo hinh to chiie cua chinh quyin dia phuong, nguyen tac boat dpng cua chinh quyen dia phuong. Luat T6 chiic chinh quyen dia phuang phdi chi tiit hoa nhirng van de quy dinh d tam nguyen tac nay.
Thuc tien qua trinh cdng nghiep hoa, hien dai boa, do thi hoa trong boi canh phdt triSn kinh te thi trudng md cira, hgi nhap, xay dung Nha nude phap quyen dan chu xa hgi chii nghia d nude ta thai gian qua cho thay, mo hinh to chiic chinh quyen dia phuong nhieu tang nac, kha cong kenh, van hanh chua thuc su hieu qua nhu hien nay la khong phu hpp, can phai dugc dii mdi. Vi the, chiing toi cho rang, thdi gian trudc mit, Luat Td chiic chinh quyen dia phuang nen thiet ke mo hinh chinh quyen dia phuang theo hudng, d cae do thi thudn tiiy chi nen to chirc mo hinh chinh quyen mot cdp co ca Hpi d6ng nhan dan (HDND) va UBND. Cdc don vi hanh chinh nhu quan, phuong khong can phai thiet lap mot cap chinh quyen co ca HDND va UBND, ma nen tinh den mo hinh ehinh quyen dia phuang gpn nhe, phii hgp vdi hai don vi hanh chinh mang tinh nhan tao nay. Vdi cac don vi hanh chinh d nong thon (tinh, huyen, xa), van nen tiep tuc duy tri mo hinh to chiic chfnh quyen dia phuang 3 cap chfnh quyen tinh - huyen - xa (co ca HDND va UBND) nhu hien nay. Ciing vdi qua trinh cong nghiep hoa, hien dai hoa, do thi hda, dia ban dugc xac dinh la don vi
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NHA NU'dC VA PHAP LUAT SO 11/2014
hanh chinh a nong thon se giam di, din toi dia ban t5 chiic chinh quyin dia phuong 3 cjp tinh - huyen - xa se ngay cang giam, dia ban t6 chiic chinh quyjn dia phuong it tang nic hon se tang len. Day ciing chinh la mpt trong nhiing logic cua qua trinh phat trien cua dit nuac chung ta.
4.2. Vi Sinh hu6ng phan Sinh thim quyin giira chinh quyin trung umg va chinh quyin tiaphirffng
Ngoai viec tiSp tuc thuc hien cac nguyen tic da dugc xac dinh trong Hien phap nam 2013, viec phan dinh thim quySn giiia chinh quyin tnmg uong va chinh quyin dia phuang nen thuc hien theo cac dinh huong sau:
Thir nhat, xac dinh ro nhiing nhiem vu chinh quyin trung ucmg si phan cip hoac Ichongphdn cdp.
Nhiing nhiem vu chinh quyin trung uong se khong phan cap la nhiing cong viec hen quan toi qu6c phong, an ninh (lire lupng vii trang), hoat dpng tu phap (dieu tra, truy ti, xet xir, thi hanh an), cac cong viec lien quan tcfi d6i ngoai (ngoai giao, quan ly xuit nhap canh, xuat nhap khau), tien te, do luong, thing ke, tieu chuan quoc gia, thi truong tm chinh, tin dung, to chiic bp may chinh quyin trung uong, che dp bau cir cua quoc gia va che dp bau cir dia phucmg, ban hanh cac van ban phap luat trong ITnh vuc hinh su, dan su, thuang mai, thue quoc gia.
Nhirng nhiem vu nay chinh quyin trung uong vira giii lai quyen quyet dinh ve chinh sach, ban hanh van ban quy pham phap luat, vira ding thai to chiic bp may quan ly thong nhit theo nganh dpc. Khi thuc hien, niu phat sinh cac cong viec can su phoi hpp ciia chinh quyin dia phuang thi chinh quyin dia phuong CO trach nhiem phoi hop va tuan thu sir huong dan ciia chinh quyin trung ucmg.
Cac linh vuc khac, nhit la linh vuc li6n quan toi phat triin kinh ti, van hoa, xa hpi, bao dam an sinh xa hpi, cung ling dich vy cong cong, cin co sir phan cap hop ly.
Ngoai nhihig linh virc chinh quyen trung ucmg khong phSn cip cho chinh quyin dia phucmg, cin x^c dinh nhiing ITnh vuc chinh quyen tnmg ucmg phan cap mpt phin quyen ban hanh chinh sach cung voi quyin t i chiic thi hanh chinh sach, phap luat cho chinh quyen dia phuang. Doi voi ITnh vuc lien quan toi viec cung cap cac loai dich vu cong thiit yiu vai dai sing cua nguoi dan nhu cip thoat nuac; duy tu, siia chiia cac cong trinh giao thong cong cong;
thu gom, xii ly rac thai sinh boat, nu6c thai sinh hoat; thu vien cong ding, c6ng trinh van hoa, cong vien, khu vui choi ciia cong ding; phong chay chiia chay; kham chfia benh; giao due mim non va giao due phi thong... cin c6 sir phan cap manh hon cho chinh quyen dia phuang.
Viic phdn dinh thdm quyen nen theo cdch tiip can "tir dudi len" (thay vi thiin vi
"tir tren xuong" nhu hiin nay), theo do nhirng viec nao cdp du&i khong Idm duac hoac lam khong hieu qud cdp tren m&i lam, nhirng viec nao dia phucmg khong Idm dugc hoac lam khdng hieu qud thi trung uang mai Idm vd phdi Idm. Vi nguySn tic, cM giao nhiem vu cho chinh quyen dia phuang khi chinh quyin trung uang biit chic chinh quyin dia phuong co du kha nang, nguon lire va CO sir sin sang tiep nhan nhiem vu, hoac khi giao nhiem vu thi phai giao kem cac dieu kien bao dam.
Chu thi nhan su phan cip cin tSp trung phan cip cho chinh quyen cip tinh va chinh quyin cip ca so (6 do thi la chinh quyin thi trin, thi xa, thanh pho thuoc tinh, va 6 nong thon la chinh quyen cip xa va chinh quyin
cdp tinh). Vide phan cip nhu vSy se tao tien de va phii hgp vdi xu hudng td chiic hgp ly chinh quyen dia phuong, giam bdt ting nac trung gian trong thdi gian tdi.
Doi vdi ITnh vuc cd su phdn cap cho chinh quyen dia phuong, can manh dan phan cap cho chinh quyen cap tinh ban hdnh vdn ban quy pham phdp luat quy dinh mgt s6 loai tieu chuan, quy chuan, chuan muc quan trgng nhu:
- Dinh miic chi tieu tdi ehinh: chinh quyen trung uong quy dinh dinh miic toi thiSu va dinh miic toi da, chinh quyen dia phuong tiiy theo tinh hinh thirc te co the ban hanh dinh miic phii hgp vdi miic song, chi phi nhan cong va cac chi phi khac vdi dieu ki$n gia ca sinh ho^t, miic s6ng vd gid thi trudng d cac dia phuong khac nhau co sir khac nhau. ViSc phdn cap theo hudng nay se giiip cho vi^c quan ly, dieu hanh cua chinh quyin dia phuang phu hgp hon vdi thuc te phdt trien kinh te dia phuong.
- Ti6u chuan can bd, cong chiie: chinh quyin trung uong chi quy dinh miic toi thieu ma can bp, c5ng chirc phai dap ling, ehinh quyin dia phuong dugc dat ra tieu chudn cao hon di chii dpng cai thien chit lugng ddi ngii can bp, cong chirc thupc quyin tuyen dung, quan ly, bo nliiem cua minh.
- Chuin chat lupng ve cac loai dich vu cong ma Nha nude co trach nhiSm cung irng cho xa hpi (vi du, chuin vi dich vu giao due, chuan ve dich vu y te) theo hudng:
chinh quyin trung uong quy dinh chuan toi thieu ap dung chung cho mpi dia phuang, mpi tinh, thanh, chinh quyen dia phuong dugc quyin dat tieu chuan cao hon tiiy theo tinh hinh cii thi cua dia phuong.
- Chuin ve miic dp cong khai, minh bach trong boat dpng cua chinh quyen dia
phuang: chfnh quyen tnmg ucmg chi quy dinh yeu cau cdng khai, minh bach d miic toi thieu, chinh quyen dia phuong co the duoc quy dinh yeu cau d mure cao hon, co loi cho viec thuc hien quyen dan ehu ciia nhan ddn.
- Chuan ve trdch nhiem giai trinh trong boat dpng cua chinh quy§n dia phuong:
chfnh quyen tnmg uang chi quy dinh yeu cau trach nhiem giai trinh d miic toi thieu, chinh quyen dia phuong co the dugc quy dinh yeu cau d miic cao hon, co Igi cho viec thuc hien quyen ddn chu cua nhan ddn.
- Chuan ve thu tuc hdnh chinh khi gidi quyet cac cdng viec eua dan (cdc cong viec ve cap phep, cap gidy chung nhdn, lam thu tuc dang ky cho ngudi ddn, doanh nghiep...): chitih quyen tnmg uong quy dinh thdi han giai quyet cdng viec hanh chinh d miic t6i da, chinh quyen dia phuang dugc quy dinh theo hudng nit ngdn thdi gian gidi quyet cong viec cho ngudi ddn, tao thudn Igi cho ngudi dan khi yeu cau cac co quan hanh chinh giai quyet cdng viec cua minh.
- Chuan ve bao ve moi trudng: chinh quyen trung uang chi dat ra chuan bao ve moi trudng d miic tdi thieu, chinh quyen dia phuong dugc quyen dat ra chuan bao ve mdi trudng d miic cao hon.
Nen quy dinh mang tinh nguyen tic tham quyen ciia chinh quyen cap tinh ve td chiic, nhan su, tai chinh, dich vu cdng:
- Vi tham quyen quyet dinh viec t6 chiic bg may: Trong qud trinh hoat dgng, tiiy theo hieu qua va nhu cau, chinh quyen dia phuang dugc quyen tu quyet dinh bg may giiip viec; quy dinh chiic nang, nhiem vu trong npi bp cac bp phan giiip viec hoac phan giao, uy quyen cho chinh quyen cap dudi thuc hien mot s6 nhiem vu, quyen ban
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NHA NU'aC VA PHAPLUATSO 11/2014
thupc thim quyen cua dia phuong va co su gidm sat chat che trong qua trinh thuc thi.
- v i thim quyin quyet dinh nhdn sy:
Tren co sd tieu chuin chung do chinh quyin trung uong quy dinh, chinh quyen dia phuong dugc lira chgn cdc nhan sir thugc thim quyin cua chinh quyen dia phuang quan ly; b6 tri, sip xep, su dung nhan sir ciing nhu dua ra cac quy dinh can thiet ve mat nhan sy lien quan den viec lya chgn va sap xep nhan su. Chii dgng toan bp cac van de ve to chiic thi tuyen, bo nhiem, ndng ngaeh, nang bac; quyet dinh dai ngp, che do khen thudng dii vdi can bp, cong chiic; xay dung cae chinh sach thu hiit nguon nhdn luc din vdi cac vimg sau, viing xa kem phat triin, cua timg chinh quyen dia phuong...
- Van di thu chi: Khuyen khich chinh quyen dia phuong tang cac nguon thu de tang chi dap ling cac yeu cau phat tridn ciia dia phuang minh. Tao co che cho cdc dia phuong tao ngu6n thu, nuoi dudng cac nguon thu mdi dugc tao lap. Ngu6n thu mdi khong phai dieu tiet ve trung ucmg trong mpt thdi gian nhat dinh. Ngoai cac khoan chi thudng xuyen theo quy dinh, chinh quyen dia phuong dupe quyen quyet dinh cac tieu chuan, dinh miic chi cua minh.
- Phan dinh rach rdi ngan sach qudc gia va ngan sach dia phuong: Trong ITnh vuc ngan sach ed hai npi dung; (1) Phdn ngan sach dugc xac dinh la ngudn thu cua dia phuang; (2) Phan ngan sach do trung uong tai trp. Chinh quyen dja phuang dugc tu chii nguon thu dja phuang theo Luat Ngan sach nha nude. Nguon ngan sach nay can dupe on dinh trong khoang 10 nam va do HDND cip tinh quyet dinh. Do dugc ty chil ve ngan sach dia phuong, hang nam cap tinh chi xin trung uong phe duyet phan
ngdn sach do trung uong tai trg, khdng thda thuan chung vi tdng thu, tdng chi cua dia phucmg nhu hien nay. Viec thuc hien chi ngan sdeh cua chinh quySn dia phuong phdi tuan thii cac quy dinh chung ve tai chinh ciia qu6c gia.
- Thdm quyin vay ng ciia chinh quyen dia phuong: cho phep HDND cap-tinh dugc quyet dinh viec vay np de dau tu tren CO sd tu can doi kha ndng trd ng. Chinh phii quy dinh ro dieu kien ve vay ng nhdm ban che riii ro, mdt kha ndng thanh toan eiia ngan sdeh hodc anh hudng d^n viec thuc hiSn cae nhiem vu chi cho quan \^ nhi nude tren dia ban.
- T6 chiic su nghiep va dich vu c6ng:
Chinh quyen dia phuang dugc Chinh phii phan cdp quyet dinh trong viec thanh lap vd quan ly cac to chiic sy nghiSp va dich vu cong dudi hinh thiic phi Igi nhuan phuc vy cho qud trinh phat triSn va ndng cao chat lugng dich vu d6 thi. HDND cdp tinh la ca quan co tham quyen quyet dinh phuang hudng to chiic cac hoat dpng doi vdi ITnh vyc nay.
Thw hai, cdn thi chi hoa nguyen tdc
"tu chil, tu chiu trdch nhiem cua chinh quyin dia phuang trong viic thuc hien cdc nhiem vu, quyen han cua minh trong pham vi duac phdn cdp " theo diing tinh thdn Vdn kien Nghi quyet Dai hoi XI cua Bang.
Phil hgp vdi viec the chS boa nguyen tic nay, ban than nguyen tac tap trung dan chu trong mdi quan h$ giiia chinh quyen trung uong va chinh quyin dia phuong kh6ng chi ciing nhac theo hudng cip dudi phuc timg vd dieu kien cdp tren, dia phuang phuc timg vd dieu kipn trung uong ma cin CO CO chi phap ly phii hgp di chinh quyin dia phuong, trong pham vi thim quyin lu^t
dinh, dugc bao ddm su ty chu, tu cluu trach nhiem thue sy cua minh. Day cung chinh la su cu the hda nguyen tie quyen Iuc nha nude la thong nhit nhung co su phan c6ng, ph6i hgp va kiem soat giira cac co quan nha nude trong viec thuc hien cac quyen lap phap, hdnh phdp vd tu phdp.
ThO- ba, tdng cuong kiim tra, thanh tra cong vu, gidm sdt cua chinh quyin trung uang doi vai viec thuc hien nhiem vu, quyin han cua chinh quyen dia phuang. bdo ddm quyin l\cc nhd nuac Id thdng nhdt, viec thuc thi quyin luc nhd nuac co tinh thong suot, lien tuc.
Cdn bao ddm sy quan ly thong nhit ciia cac CO quan nha nude trung uong vi thi che, chinh sach, chien luge, quy hoach, thanh tra, kiem tra trong viec phan dinh tham quyen. Triet de tuan thu yeu cau cdp nao lam tot nhat va hieu qua nhdt viec nao thi giao cap do thuc hien, vdi tinh thdn cdp tren chi lam nhieng viec md cdp dudi khong the Idm du(rc hodc neu lam thi se khong hieu qud. Ddng thai, khi phdn cong c6ng viec can xac dinh ro tham quyen va trach nhiem trong cong tac qudn ly phdi gan vdi tdng cudng kiem tra, giam sat thyc hien cong vu ciia chinh quyen dia phuong, co sd. Co bien phap che tai cy the ddi vdi cdc chinh quyen dia phuang thuc hien khong diing, khdng du tham quyen, nhiem vu dugc phdn cdp. Dac biet, ndng cao trach nhiem va hieu qud thyc hien cong tac kiem tra, thanh tra eiia co quan hanh chinh, chuyen trach; tdng cudng hoat dpng giam sat cua cdc ca quan ddn cii, ciing nhu cae t6 chiic giam sat va kiem todn dpc lap;
khuyin khich ngudi dan tham gia quan ly, su dung cdng nghe mdi di xac lap mot he
thdng giam sat - danh gid dpc lap cua co quan hanh chinh cap tren ddi vdi viec thyc hien cua cac co quan true thupc. Trong qud trinh nay, can cd co che bao ve vd su giam sat thudng xuyen cua trung uong d6i vdi cac quyet dinh cua chinh quyen dia phuang trong cac ITiih vyc ed lien quan tdi su todn ven lanh thd, bao ve chii quyen va an ninh quoc gia.
Thu tu, khong cdo bang, co dinh chinh sdeh phdn dinh thdm quyin, tdng tinh chu dong va linh hoat cua dia phuang, ca sa.
Viec phan dinh tham quyen giiia cac cip chfnh quyen phai phu hpp vdi trinh dp phat trien kinh te - xa hpi trong tirng giai doan, dac thu cua nganh, ITnh vyc, diiu kien va kha nang phat trien cua tirng khu vyc, vimg lanh thd, vdi tdng loai hinh don vi hdnh chfnh (do thi, nong thon), vdi xu thi hpi nhap khu vuc va qudc te; dam bao sy dong bp, thong nhdt tir he thong the che, vdn ban quy pham phap ludt, bao dam quyen va thyc hien day du trach nhiem eiia HDND, UBND va Chii tich UBND cip tinh trong viec quyet dinh, thuc hien cdc nhiSm vu dugc phdn cong; chdp hanh ky luat, ky cuong hanh chinh; ddng thdi, phdt huy ddn chu rpng rai, quyen ty chu, ty chiu trdch nhiem ciia cac dcm vi co sd trong quan ly nha nude.
Thu- ndm. viec phdn dinh thdm quyen giica chinh quyen trung uang vd chinh quyen dia phuang cdn duac quy djnh dual hinh thuc vdn bdn "Ludt" de bdo ddm tinh on dinh ve pham vi thdm quyin ciia chinh quyen dia phucmg, phdt huy tinh chii dong, sdng tao, tinh tu chit, tu chju trdch nhiem cua chinh quyen dia phuang.
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