TAP c m NGHIEN CBtl PHAI THIEN so 11 (1/2015) ^ HAI YEU T CHINH NHAM XAC DINH MO HlNH CHINH QUYEN DO THI TS VO KIM CUONG' '^y^iin phdp 2013 dd quy dinh ve hinh thitc to chitc cdc cdp chinh quyen dia phuang a ^^^nu&c ta, nhiin ve mo hinh chinh quyin thi (mgi logi chinh quyin dia phuang) dang qud trinh nghien cuu di cu the hod Vi^n Nghiin citu phdt trien Thdnh H6 Chi Minh (HIDS) cUng dd co di tdi: " Nghiin cuu chinh quyen thi ddp ung yeu cdu phdt triin thi - dt thuc tien Thdnh Ho Chi Minh " Di tdi dd tiip cgn thuc tien vd dinh hu&ng quy hogch chung thdnhphd, de xudt dinh hu&ng cdi cdch chinh quyin thi Thdnh Ho Chi Minh Tuy nhien, de co ca sa khoa hgc chgt ehe han xem xet cdc di xudt, rdt cdn tim den cgi re cita vdn de Vdn de dugc dgt bdi viit Id Dau Id cdc yiu to dinh khuon hinh cho mo hinh chinh quyen thi? Theo chiing tdi co hai yeu to goc re nhdt Do Id quan diem qudn ly va ddc diem dd thi Tu khda: Chinh quyin dd thj, md hinh chinh quyin dd thi Thanh phd Hd Chi Minh I Quan diem quan Iy Mac du ciing muc tieu ngudi, nhung quan Quan diim qudn ly la ca sa di tu diem quan l^ dd dgt muc tidu co ehe dfnh mi^c tieu qudn ly vd cdch thitc dgt dinthj trudng va co chd hanh chinh bao cap khdc muc tiiu Muc tieu quan ly Igi Id co sd dl dinh nhau; tir dan den each xay dung md hinh cac giai phdp qudn ly dd c6 md hinh chinh quyen khac td chiie bg may quan ly, tiie la md hinh chinh Nghi quyet Dai Hdi Dang todn quoc lan quyin thi Ro rang, niu quan dilm khdc thii XI da ddt nhidm vu hoan thifn the ehe nhau, md hinh quan ly se khae Muc tieu quan ly dd thi d cdc chd df chinh trj khdc kinh te tin trudng theo djnh hudng Xa hfi chu deu neu la vi ngudi, vi lgi Ich cua nhan nghTa Dd lam dieu trudc het can ddi mdi ddn dd thi Cdc chinh quyin ddu mudn ldm tu ve phuong thfl-c qudn ly tir tu hanh hai long dan, du la theo quan diim vi dan chinh bao cip qua tu thi trudng Su khde thyc sy hay ehi dd tranh thu la philu vl tu hanh chinh bao cip va tu bau cii day khdng ban ddn ddng co chinh thj trudng ddi vdi phuang thiic qudn ly nha trj ma chi bdn din quan dilm vl phuong thuc nudc (ndn hanh chinh cdng) the hifn qudn ly de dat muc tieu quan ly dd thj bang Nguyfin ph6 giim d6c So Quy hoach Kien true Thinh ph6 Wh Chf Minh 18 NHUKG VANDE CHUNG Bdng So sdnh tiTduy hanh chinh bao cap vdi tiTduy thj trifdng Nfi dung so sanh Ttr hanh chinb bao cap Tu- thi tru-omg Phuong thuc ca ban de dgt muc tieu quan 1^ T?yc tiip qu^ ly, diiu hdnh nln kinh tl - Tgo diiu kiin cho cdng dan san xuat xa hfi theo muc tieu cua Nha nudc kinh doanh theo dinh hudng eua Nha nudc Thi cha Phap luat la minh linh bit bugc cdng dan phai thuc hien theo y chi cua chinh quyen P h ^ luat !a hdnh lang phap ly, cdng dan tir hanh dfng hanh lang To chOrc bg may Nha nudc n&ng ve cai tri Xuat phat tir nhu ciu cai tri eua Nha nudc Hanh chinh kinh te Ngng vi thii bgc hanh chinh Nha nude n§ng ve phuc vu Xuit phat tir dap ung nhu ciu ciia dan Hanh chinh, Hudng den giao quyen cho nhdn vien Nhan Igrc Chuyen mon hanh chinh - kinh tl Chap hanh quylt dinh giao nhiem vg Chii ylu chju trach nhifm tmdc cap tren Chuyen mdn hanh chinh cdng quyen Chip hanh ban mo ta cdng vifc Chu ylu chju trach nhifm trudc phap lugt Tieu chi danh gia Ket qua cdng tac quan ly Hieu lire, hifu qua quan ly Sau ddy xin didn giai them mgt sd dilm bdng trdn Ll Phirang thwc Cff ban thuc hien Cau hdi dl tu la "Can phdi thyc hifn nhu the nao?" Phdp lugt co chd thi trudng nham tgo didu kifn cho cdng dan ty hanh ddng hanh lang phdp ly ndn cau hdi dd tu la "Dugc lam gi? Cam lam gi?" Do khdng cd ngi dung hudng ddn tryc tiep cdng dan nhu thdi bao cdp ndn he thdng phdp luat Trong nln kinh te thj trudng, Nhd nudc chi cd didu kifn ggn nhe han Didu cflng Iam tgo diiu kiin cho cac thi trudng bdng cdch cung thay ddi md hinh to chiic thyc thi phdp luat ling hg tang, dua cac bifn phdp kich thich san xuat kinh doanh, tgo hanh lang phap ly cho 1.3 Td chiec b^ mdy cdng dan ty lam dn va cung cdp thdng tin Vdi cdc diem khdc can ban giu:a td (bao gom kien thiic vatiidngtin vd cung ciu) chiic chinh quyen thdi bao cap vdi ca chd thj Sy khdc vd phuong thiic quan ly dan trudng neu bang tren day, qua trinh ddn sy khac hf thong nhiem vu chiic tu dd xay dyng td chiic cua chd hanh nang cua bg mdy qudn ly Dilu dan den sy chinh bao cap la tir tren xudng - td nhu cau khdc cua md hinh td chiic chinh quyin cua Nha nudc; cau hdi Id "Nha nudc cdn cd bg may nhu the ndo de qudn ly dugc ndn kinh te 1.2 Thi chi xa hdi?" Trong ca chd thi trudng tu quan Do tryc tidp didu hanh ndn tu phap ly la tir dudi len - td nhu cau cua nhan dan; cau lugt hdnh chinh bao cap chfl ylu dua cdc hdi la "Can td chiic bd may nhu thi nao de dap dilu ludt dd cap phdp va hudng din cdng dan ling nhu eau cua nhan dan?" De dgt muc tidu, nln kinh tl kd hogch hod (hanh chlnh bao cip) la tryc tilp dilu hdnh nln kinh tl xd hdi theo ki hogch cua Nhd nu&c thdng qua cdc chitiduphdp lenh eho cdc xi nghidp va hgp tac xa 19 TAP CHI NGHIEN Ctfa PHAT TRIEN so 11 (1/2015) Nhu ciu ciia nhan dan mft dd thi khdng phu thudc bidn gidi bdnh chinh, vi du ngudi dan cd thi cu tru d qugn A, nhung lao dgng d quan B, mua sam d qugn C, chiia bfnh d qugn D Ngugc lgi, Uy ban nhdn dan qugn A khdng phdi chi lo thoa mdn nhu ciu sdng, lao dgng, ehiia bfnh, v,v., cho ridng sd dan sdng tren dja ban Tir dd, nhifm vu chiic ndng cfla qugn, phudng khdng can phai Io phat triSn kinh ti, phdt triin dd thj hay xod thit nghifp cho ridng nhdn ddn song ranh gidi hanh chinh cua minh gidng nhu mgt dia phuong dge lap ngoai tiii xem xet cac phuang dn md hinh chinh quyin dd thj ndo uu vidt hon Dac diem dd thi Tgi md hinh chinh quyen thj lgi khac md hinh chinh quydn dia phuang chung cua ca Nudc? Ly chinh Id d ddc didm dd thi khac dgc didm khu vyc ndng thdn hay miin nui Dd thi cd may dgc diem ca ban sau: 2.1 Dan cu tdp trung tren mgt khu vyc lanh thd hep, the hifn bdng mat dan cu cao vung ngi thi va can ngi thj (ndu tinh mat dg dan trdn todn difn tich ldnh thd hanh chinh thi ddc didm khdng ndi trdi) Ddc diem 1.4 Nhdn lire ddn cu cung khac ndng thdn vd nghd nghifp, Nhan lyc co ehl hanh chinh bao cap trinh vdn hod, ldi sdng, sy dn djnh ve noi cin chuygn mdn kha todn difn (kinh te, chinh cu tni Dac diem ddi hdi nang luc qudn tri, xd hgi) va do nen khdng sdu; ca 1^ ddn cu phai cao hem ndng thdn chd thi trudng chuyen mdn cua CBCC Id phap ludt va ky ndng hanh chinh Xu hudng giao 2.2 Ha ting ky thugt phdt trien, ddng bd, quyen cho nhan vien, tdng cudng sy chiu trach tao dilu kidn tdt cho phdt tridn kinh td vd ddi nhiem trudc phap luat eua nhan vidn lam thay song; cimg vdi khdng gian h?p (so vdi tinh) doi cdu tnic thii bac ciia nen hanh chinh thi chinh quySn cip thdnh phd thudn tifn Day cung Id xu hudng ndng cao nang suat lao qudn ly va phyc vy nhan dan hem ddng, nang cao thu nhap vd chdng tham nhiing 2.3 Nang suat lao dgng d thj cao Dd bf mdy hdnh chinh thi Id ddng lyc kinh te, ddng lyc phdt trien khoa hgc, ky thugt, la noi tgp trung edc boat 1.5 Dank gid dgng van hoa, chinh tri, xd hfi Nhifm vy ciia Tu ddnh gid phuang thu-c quan ly hay chinh quydn la huy dgng dugc cac nguon lyc ed bd mdy chinh quyen chi df bao cip va hgn chd cdc nguy co sy tdp trung hogt thudng it chii trgng tdi hifu qud, khdng tinh ddng dd thj Dd thj cdn ed trdch todn chi phi siic ngudi siic ciia bd ra, md chi nhifm ddo tgo ngudn nhdn lyc ma chu yeu can xem kdt qua cd dgt dugc muc tieu nhifm phat sinh tir ndng thdn vu de hay khdng Cdch ddnh gid ndy la mdt 2.4 Khdng gian kinh ti - xa hdi khdng cd nguyen nhan ciia bd may qudn ly cdng kinh Vi dy, khd phd biln tinh trang moi chdc vy la ranh gidi dd thi Nhu ciu cfla ngudi dan mgt bidn chd nhan sy ma khdng cin bilt khdi dugc thod mdn khdng phai bdi chinh quyen lugng cdng vifc eiia chdc vu dd ciia mdt phudng, quan hay cdc ca sd dich vu ncri sinh sdng Vifc diu tu kinh doanh khdng Xay dyng bd may chinh quydn kinh bj gidi ban phgm vi sinh sdng Thu nhdp te thj trudng phdi hudng tdi hidu lyc va hifu cua ngudi dan noi cu tni khdng phai tich qua cua bg mdy CJ cdc nudc phat tridn, hidu hay trach nhifm cua chinb quyin phudng hay suit lao dgng dugc tinh bdng GDP/nhan vidn, qugn d Tir d^c didm thu tu ndy cd thd thiy GDP/gid lao ddng' Day phdi la tidu chuin dl bien gidi hanh chinh chi cd tinh chu quan, chi I Danh Diic, "T^i nhi^u nen kinh tfi cii mii li mdi dl phdn cdng, phdn nhifm qudn l^' nhihig vifc cd lien quan tren dia ban; khdng phai Chinh n6i", Tu6i tre cuoi tuin, ngiy 6/1/2013 20 NHU^G VANDE CHUNG phu cd nhidm vu chiic nang gi thi c i p phudng CO nhifm vy chiic nang i y nhu hien Md hinh chinh quyen dd thi nhir the nao cho TP Ho Chi Minh 3.1 Quy hoach thi khong quyet dinh mo hinh chinh quyin M ^ dil nhifm vy hdng d i u cua chinh quyin phd la qudn ly phat triin phd theo quy hogch, nhung quy hoach khdng phai Id can cu: d l djnh ranh gidi hanh chinh cflng nhu td chiic bd mdy Khi lap quy hoach thi, cac can cii diu vao Id cdc dilu kifn tgo thj (diiu kifn ty nhidn, ddng luc thi trudng, cac chinh sach vT md ) chu khdng phai ranh gidi hanh chinh Chinh quyin sir dyng quy hogch, dd quan ly phdt trien chd khdng phai d i qudn ly mgi v i n d l cfla nin kinh t i xa hdi Trong cdc ydu td tgo thj ndu tren, ylu td ty nhidn va thj trudng la ddng luc, ylu td sau chi cd tinh dinh hudng phat triin NghTa Id vifc hinh cac thdnh phd vf tinh phai nhd vdo dieu kifn ty nhien vd thj trudng, chinh quyin chi tao didu kifn bdng quy hogch va phap lugt Ndi each khdc, quy hoach la hinh anh tuong lai ma quan 1;^ Id thyc tai, chinh quyin diing d thyc tai dd di tdi tuong lai, khdng phdi dung d tucmg lai dd qudn ly thuc tgi Hon niia, yeu ciu cao v l tinh ddng bd phat trien hg tang va khdng gian thi, cung nhu tu dac diem nhu cau ciia dan khdng cd ranh gidi (ddc diem thii neu tren) vifc quan ly pfaat trien phai tap trung cao vao chinh quydn cap phd Cdc dd thj vf tinh cd dugc hinh hay khdng la cd hinh hf thdng hg tang ky thugt ca ban cua nd hay khdng He thdng tang la he thdng cua toan Thanh phd, chi cd the cap phd quan ly phdt trien 3.2 Quy mo dd thi cifc l&n khdng ldm thay doi ba cap chinh quyen dia phuffng Cdc dd thj cyc ldn cd dgc diem rieng ve quan ly quy md dd thi ddi hdi DQ quan xuydn dugc mgi hogt dgng khdng gian thi rdng ldn va cd phiic tap cao, chinh quyen dd thi van can chia ba c i p nhu chinh quydn dia phucmg d tinh Tuy nhiin chuc nang cdc cdp chinh quyen co khdc so v&i tinh Ddc didm quan ly mdt thj xa thudc tinh rat khac mdt qugn thudc TP Hd Chi Minh Chil yeu la tinh dgc lap ve kinh te - xa hgi pham vi lanh thd khdc han Thj xa thugc tinh la mdt dd thi dfc lap, qugn thugc phd khdng dgc lap (cdc hogt dgng khdng bj gidi hgn ranh hanh chinb qudn nhu da de cap d dac diem thii trdn ddy) Do su khac ndy, mdc du van gifl- md hinh ba cap, nhung nhidm vu chdc nang cua chinh quy§n dd thi thudc tinh va chinh quyen quan thudc phd r i t khdc nhu bang sau ddy Bdng So sdnh chiic nang cdc Ccip chinh quy^n dd thj d tinh va dio thj ciTc ldn Cap chinh quyen Chinh quyen if tinh Chinh quyen thi circ Idn (tryc thuoc trung irong) Cap tinh UBND tinh Cdp huyfn UBND dd thi (thi xa, phd) thudc tinh, UBND qudn Chu:c ndng hdnh chinh- kinh tl Chiic ndng hanh chinh Cipxa UBND phudng Chirc ndng hdnh chinh UBND phd tryc thudc trung uong Chiic nang hdnh chinh -kinh td UBND phudng Chiic ndng hdnh chinh 21 TAP cm NGHIEN ctfu PHAT TRIEN so 11(1/2015) thdng chdc nang trd thdnh ndi dung chinh cua md hinh td chiic (chii khdng phdi la ten ggi) Khdng may khd khdn dd phan hang cdc dja phuang thi, tu cd chi qudn ly vd dai ngg phu hgp Vi du, ddi vdi Thdnh phd Hd Chi Minh se cd logi qugn trung tam, qudn ven, qudn ngoai Qugn trung tam la khu vyc da dd thi hod 100% (vl dit dai) Qugn ven la khu vyc dang dd thi hod, dit dai da dugc quy hoach dd thj boa Qudn ngogi thdnh Id khu vyc cdn cac khu dan cu ndng thdn vd dat dy tru phdt tridn, dat rimg Tat cd cac qudn ngogi diu chju anh hudng rit ldn cfla qua trinh dd thj hod va kinh te dd thi, rit 3.3 Van de Id chirc ndng nhi$m v(f chu can dugc qudn ly nhu dd thj khong phai Id ten ggi 3.4 Mo hinh ndo cho bp mdy chinh Theo lugt ve td chiic chinh quyin dia quyin TP, Hd Chi Minh phuong, tir cdc ten ggi "qugn"," huyfn", Cau hdi hien van la md hinh chinh "phudng", "xd" dan den chd quan ly vd chd ddi ngd khdc Ten ggi ndy khdng cdn quyin dd thj cua TP Hd Chi Minh phdi nhu phfl hgp vdi cdc khu vyc dd tiij vd ndng thdn the nao? Tir nhflng phan tich tren day, xin so dang qud trinh dd thj hod Vi dy xd Binh bg de nghi nhu sau: Hung, huyfn Binh Chdnh hifn bao gdm L Thanh phd Hd Chi Minh la thdnh phd nhilu khu ddn cu dd thj ty phdt (hinh 1) vd cue l&n, tryc thugc Trung uong n§n vin giucdc khu dd thi mdi khd hoan chinh hay dang nguyen hf tiidng ba cip chinh quyin la hinh thanh, hiu nhu khdng cdn kinh ti ndng phd, qugn vd phudng nhu quy djnh Hiln nghifp, dan cu ddng diic nhung bf mdy chinh phdp (trong Thanh phd khdng cd ten ggi huyfn quyin van Id ndng tiidn theo ten ggi Id "xa" va xa) Tuy nhu ciu quan iy cd thi md rfng Do Id xa nen bien ehl 6.h qudn ly dd thj rdt hgn ranh gidi quan, thu hep ranh gidi phudng ehe, dja ban lai qud rfng nen gdp nhidu khd il HDND, UBNDtiidnhphd cd chuc ndng khdn qudn iy hanh chinh - kinh tl, thyc hifn diy du cdc chiic Tgi ehung ta khdng thdng nhit ten ggi nang cua chinh quyen dd thj, cd vifc theo cdch: nlu la dd thj (thanh phd, thj xa, thi lap quy hoach va xay dyng kl hoach kinh td trdn) thi chi cd quan vd phudng, ndu khu vye xa hdi eho todn thi, dua cac chinh sach ndng tiidn tiii chi cd huyfn vd xa? NghTa la vd giai phap quan ly todn Thanh phd, chi dao Thanh Hd Chi Minh hay Ha Ndi chi cd thuc hifn phdt triin he thdng hg ting cua todn qudn vd phudng, dfl khu vyc ndo van cdn Thdnhphd la ndng thdn Nhifm vu chiic ndng cua cac eo iii HDND UBND qudn, phuang cd chirc quan chinh quyin dugc xac dinh cy thi theo ndng hdnh chinh thi Thuc hifn cdc nhifm dgc diem cua timg dia phuang vu kinh t e - x a hdi Thanh phd giao, thyc Khi thdng nhit ten ggi nhu vgy thi ten hifn djch vy hanh chinh dugc phan cdng cac cip md hinh td chu;c chinh quyin HDND cd chiic ndng chu ylu la gidm sat mgi tiij sd khdc chinh quyin tinh Ddngtiidihf hogt ddng ciia hf thdng chinh quyen vd dich Theo bdng trdn day, nhung thi ndo dgc lap (nhu mgt ti bao) thi mdi cd chu:c nang hdnh chinh - kinh td (cd chitiduphdt trien kinh te - xd hdi cua dia phucmg) Chinh quyen d thyc hifn cac chdc nang qudn ly ciia mdt dd thi dgc lap, thuc hifn cdc bidn phdp tgo didu kifn cho nen kinh te xd hdi tren dja ban Cac cap chinh quydn d cac dia phucmg mdt dd thj ddc ldp cbi cd chiic nang hanh chinh, chap hanh cdc quydt dinh quan ly ciia cdp tren, dgi difn lgi ich vd nguyfn vgng cua nhdn dan va la cau ndi giua ehinh quyen dd thj vdi nhan ddn dja phuang 22 NHUNG VANDE CHUNG vy dd thj, djch vu xd hdi tren dia ban, thu thgp vd dd dgt nguyfn vgng cua nhdn dan len Thanh phd iv He thong cdc ca quan chitc ndng ciia Thdnh cd "chdn ret" den qudn, phudng di thyc hifn cac djch vy hdnh chinh; quan Iy phat tridn, quan ly nhd nudc ddi vdi cac td chiic va doanh nghifp dich vu dd thj, dich vy xa hgi (cdp thodt nudc, cip didn, y ti, gido dye, vdn hod TDTT ) hudng xa hdi chu nghTa "v&i muc tiiu ca bdn xdy dung ddt nuac Id ddn gidu, nu&c mgnh, ddn chu, cong bdng, vdn minh, nhdn ddn ldm chu" Tren co sd djnh hudng ndy, rat cdn ddi mdi tu vd bd mdy chinh quyen ca chd thj trudng, tao cdng cy qudn ly thich hgp nham nang sue canh tranh cua phd tren trudng qudc tl Tai lieu tham khao V He thdng toa dn ddn su gidi quydt tranh Nghj quydt Dai hdi Dang toan qudc ldn thu XI (2011) tung vl ddn sy, bg mdy chinh quydn khdng gidi quyet tranh chip ddn sy Chinh quydn Danh Diic: "Tgi nhieu nen kinh te cit chi boat dgng hanh chinh, khdng hogt ddng mdi Id mai ndi" Tudi trd cudi tudn kinh ti, khdng boat dgng phong trao vd theo 6/1/2013 phuang thiic phong trao de giam kh6i lugng Luat td chuc Hdi ddng nhan dan va UBND, cdng vifc cua chinh quyin sdll/2003/QH-ll Kit lu^n, nudc ta dang hdi nhdp vdo nln Lugttd chiic Chinhphu, sd 32/2001/QH-lO kinh tl thi gidi, khdng nghi ngd gi nfl-a, dd Id hdi nhgp vdo nln kinh tl thj trudng tu ban chu Ky ylu Hgi thao "TP.HCM - 40 nam xdy dyng phat trien va hdi nhdp" 17/3/2015 nghTa Dgi hgi Ddng lan thd XI da dd dinh m 23 ... luc thi trudng, cac chinh sach vT md ) chu khdng phai ranh gidi hanh chinh Chinh quyin sir dyng quy hogch, dd quan ly phdt trien chd khdng phai d i qudn ly mgi v i n d l cfla nin kinh t i xa... v,v., cho ridng sd dan sdng tren dja ban Tir dd, nhifm vu chiic ndng cfla qugn, phudng khdng can phai Io phat triSn kinh ti, phdt triin dd thj hay xod thit nghifp cho ridng nhdn ddn song ranh gidi... te, chinh cu tni Dac diem ddi hdi nang luc qudn tri, xd hgi) va do nen khdng sdu; ca 1^ ddn cu phai cao hem ndng thdn chd thi trudng chuyen mdn cua CBCC Id phap ludt va ky ndng hanh chinh Xu hudng