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I I zP I) BO GIAO quo TAUNG TAM KHOA HOC XA HOI VA DAO TAO VA NHAN VAN QUOCGIA VIEN NGHIEN CUU N1IA NUOC VA 1’IlAl’ LIJAT - •» •• - • f « «• - - - ~ * a M a « * M TRAN NIIO TIllN DOI MOI TO CHQC VA HO AI DONG CUA UY BAN NHAN DAN XA Chuyen nganh: Lu at Nil a ntfo'c Ma so : 5.05.05 LUAN AN 1’116 TIEN SY KHOA HOC LUA I’ HOC Ngirfri hiring dan khoa hoc: Pho Giao su, Pho l ien sv I ran Trong IL HA NO J - 1996 T6i xin cam doan day la cong trinh nghien citu cua rieng toi Cac so lieu, ket qua luan an la trung thttc va chita ti£ng dMc cong bo bat ky cong trinh nao khac Tran Nho Thin I HOC LUAT TP.HCM THU V8EN LV MUC LUC Trang Mo dau ChuroTig 1: Co so ly luan ve to chuc va hoat dong cua Uy ban nhan dan xa 11 1.1 Vi tri vai tro va chuc nang cua Uy ban nhan.dan xa 12 1.2 Quan he cua Uy ban nhan dan xa vdi H6i ddng nil an dan xa va vdi co’ quan Nha nude cap tren Chuang 2: Thue trang to £hifc va boat dong cua Uy ban nhan dan ka nude ta hien 2.1 Sir phat triin ve t6 chirc va hoat dong cua Uy ban nhan dan xa tir nam 1945 den 2.2 Nhung van di dat doi hoi phai giai quyet td chirc va hoat dong cua Uy ban nhan dan xa Chuong 3: Phuong hudng doi moi to chuc va hoat dong cua Uy ban nhan dan xa dieu kien cai each va kien toan bo may Nha nude 3.1 Nhung yeu cdu doi nidi td chirc va hoat dong cua Uy ban nhan dan xa 82 3.2 Phuong hudng chu yeu doi mdi to chuc va hoat dong cua Uy ban nhan dan xa 94 • Ket luan 118 • Danh muc tai lieu tham khao 121 m6dau TINH CAP THIET CUA VIEC NGHIEN CUU DE TAI TO cdng cube d6i mod Dang ta khbi xudng va lanh dao dune tien hanh thi va'n dd cai each bd mdy Nha nude, va'n de cai each ndn hanh chinh Nha nude lai dugc dat mbt edeh hd't sue cd'p bach va da thu dugc nhung kd't qua budc ddu rat quan Thd che hoa dudng lb'i doi mdi cua Dang, cdng tac xay dung Hid'n phap, cac dao luat vd td chuc bd may Nha nude da va dang la mbt doi hoi but thid't cua dbi sdng chinh tri dat nude Trong hoat ddng vide tap trung cha'n chinh co cau td chufc, bidn chd', qui, chd' hoat dong cua bd may hanh chinh cac ca'p, lam cho bd mdy tinh gon, d?m su dj’u hanh tap trung, thd'ng nha't, thdng sud't, cd hidu luc tvr trung uong dd'n dia phuong, ddng thbi phat buy tfnh chu dong, nang ddng cua co sd la vdn dd dugc uu tien, la tarn cua vide xay dung, hoan thidn Nha nude nhung nam trade mat Vide Dang, Nha nude tap trung kidn toan bd may chinh quydn cap co sd xuat phat chinh tur tdm quan dac bidt cua cap chinh quydn nhat la d xa, noi true tid'p vdi dan, giai quydt cu thd cac cdng vide cua dan, gan bd vdi dbi sdng cua dan Lich sir xay dung chinh quydn tir nude Vidt Nam dan chu cdng hoa dbi dd'n da churng td rang d dau chinh quydn xa manh, d dd moi chu truong, chinh sdeh cua Dang dd dang di vao cube sb'ng, phap luat cua Nha nude dugc cha'p hanh nghiem chinh; dau chinh quydn xa khbng manh thi d dd phong trao qudn chung kern phAt tridn, dbi sdng kinh td', van hod cua nhan dan gap khbng it kho khan, phurc tap Cdng cuoc ddi mdi nhung nam qua da Uy ndng th6n la mdt dia ban didm, Uy ndng nghidp lam khau ddt pha Chi thi cua Ban bi thu (khoa IV) va Nghi quyd't 10 cua Bd Chinh tri (khda VI) la hai moc ldn, gop plUn rft't quan trong, tao budc ngoat tren dudng phat trien cua ndng nghidp va ndng thdn Yeu cAu quan ly xa hdi ndng thdn dieu kidn mdi doi hoi phai cd nhung chuyen ddi tuong ting ve mat td chtic va hoat ddng cua co quan hanh chinh Nha nude d xa nham kidn toan chinh quydn xa, giai quydt van dd ng&n sach xa va tting budc chuydn nghiep hoa mdt sd" vi tri cdng tac d xa nhu Nghi quyet Hoi nghi lan thti Tam Ban chAp hanh Trung uong Dang (khoa VII) da khang dinh Trong nhung nam gAn dliy, thuc hidn Nghi quydt cAc Dai hdi VI, VII va VIII cua Dang vd cai each bd may Nha nude noi chung va d xa noi rieng, chting ta da thu dupe nhung kd't qua dang khlch Id Ket qua ldn nhat la, da xfty dung dupe mot he thd'ng cac co quan hanh chinh Nha nude d xa thd'ng nhAt toan quoc, co tac dung to ldn vide dn dinh trcLt tu xa hoi, lam cho sue san xuAt d ndng thdn dupe giai phong mot budc quan Th khoi day dupe nhidu ngudn luc, lam cho san xuAt, kinh doanh ndng nghiep phat tridn nang ddng, ddi sdng ngubi ndng tuc nhidu vAn dd vd ly luAn va thuc tidn cua co quan hanh chinh Nha nude d xa cAn tidp tuc nghidn ctiu thdng qua hang loat cac vAn de cu thd ve chtic nang, nhidm vu, nguydn tAc td chtic va hoat ddng, thAm quydn, mdi quan hd vdi cac co quan Nha nude khac Chon dd tai “Doi mdi td chtic va hoat ddng cua Uy ban nhAn dan xa” dd nghidn ctiu la vide lam thid't thuc, cAp bach nhAm dap ting nhidm vu cai each nen hanh chfnh Nha nude va kidn toan chinh quydn xa dang dat d nude ta hien va tuong lai TINH HINH NGHIEN CUU CUA DE TAI 2.1 Tinh hinh nghien ciru nude: Va'n dd hoan thien bd may Nha nude, cai each ndn hanh chfnh trudc het dupe dd cfip cac Nghi quyd't cua Dang, cac van kidn cua Nha nude Vd ndng thdn va quan ly nong thdn da cd nhieu cong trinh nghidn cun, kd't qua duqc cong bo va ngoai nude Ridng vd chfnh quydn xa, nhung nam gdn day sd luqng cac dd tai khoa hoc, cac sach bao, tap chf chuydn nghien cuu vd linh vuc da tang ldn dang kd nhu cuon “Kinh nghiem td elide quan ly ndng thdn Vidt Nam lich su” cua Giao su Phan Dai Doan va Pho tidn si Nguydn Quang Ngoc (chu bien) Nha xua't ban Chfnh tri Quoc gia xua't ban nam 1994; cudn “Vd cai each bd may quan ly hanh chfnh va xAy dung ddi ngu edng chuc Nha nude” cua Trudng Hanh chfnh Quoc gia Nha xua't ban Su that xuat ban nam 1991; cudn “Tim hieu vd doi mdi to elide va hoat ddng cua bd may Nha nude theo Hidn phap nam 1992” cua Nha xua't ban Chfnh tri Qudc gia xua't ban nam 1994; cudn “Hdi ddng nhan dan hd thdng co quan Nha nude” cua Pho Giao su Nguydn Dang Dung Nha xua't ban Phap ly xua't ban nam 1988 Cac edng trinh nghidn cuu thudc dd tai KX- 05.03 “Lich su va hidn trang he thdng chfnh tri d Vidt Nam” edng bd trdn tap chf “Khoa hoc” sd 2/1993 cua Trudng Dai hoc Tdng hop Ha Noi Cac edng trinh nghidn cuu vd “Chfnh quydn ca'p co sd” edng bd trdn “Thdng tin edng tac td churc Nha nude” sd thang 2/1991 cua Ban To chufc - can bd Chfnh phu Cac chuydn dd vd “Chfnh quydn dia phuong” vd “Ndn edng vu, edng chuc” edng bd trdn “Thdng tin khoa hoc phdp ly” cua BO Tu phap Ben canh do, cung c£n ndu mdt sd' bai vid't gdn day vd ndng thdn va chinh quydn xa dang tren cdc Tap chi' “Cdng san”, “Nha nude va phap luat”, “Dan chu va phap luat”, “Luat hoc”, “Quan ly Nha nude” Song nhin chung cac cdng trinh cung chi nghidn cuu dudi goc dd xa hdi hay lich str; Mdt sd' l't dd tai nghidn curu dudi goc dd luat hoc lai chi chuydn vd co quan dan cu, co quan chap hanh, hanh chfnh Nha nude d xa cho tdi d nude ta van chua co cdng trinh nao nghien cuu mdt edeh chi tid't, cd he thd'ng 2.2 Tinh hinh nghien curu ngoai nude: cac nude xa hdi chu nghla, dac bidt la d Lien xd trudc day da cd nhung cong trinh nghien cun kha sau vd va'n de nay, cu the nhu cac cud'n “Xd viet dai bidu nhan dan cap lang (xa)” cua tac gia Rdxld'p P.N (1969); “Xd vidt dai bidu nhan dan co sd va co quan quan ly” cua tie gia Phdrichki.O.Ph(1977); “Ban giam sat cua Uy ban chap hanh Xd vidt co sd” cua tac gia Lednxki.V.A (1976); “Ndi dung va phuong phap dao tao can bd quan ly” cua tac gia Caxcd'p E.V (1977); “Dao tao can bd quan ly” cua tac gia Rodenbaum.I.A (1981) va hang loat cac bai vidt dang trdn cac tap chi' cua Lidn xd trudc day va Cdng hoa Lidn bang Nga hidn nhu Tap chi' “Nha nude va phap luat” thudc Vidn Nha nude va phap luat, Vidn Han lam khoa hoc Lidn xd; “Tu phap Xd vidt”thudc Bd Tu phap Lidn xd; “Luat hoc” thudc Truong dai hoc Tdng hop LdmdndxO'p; “Phap chd xa hdi chu nghia” thudc Vidn Kidm sat Lidn xd Mac du Nha nude Lidn xd da sup dd nhung nhung cdng trinh nghidn curu cua ho van giup l'ch cho ban luan an vi nhung gia tri khoa hoc cua no Bdn canh tdc gia luan an cung tham khao mdt sd' tai lidu vd td churc chinh quydn dia phuong, vd cai edeh ndn hanh chinh Nha O node cua cac nude Trung Qudc, Nhat ban, Han Quoc, Cong hoa Phap, Cong hoa lien bang Dtic va mdt s6 nude khu vuc Ddng Nam A Tuy vAy, nghidn cuu hay thuc hanh khdng the chep nguydn ban nhung quan ni£m, nhung quy dinh ve mat phap luat cua nude ngoai vao viec t6 churc xay dung co quan quan ly Nha nude noi chung cung nhu co quan quan ly lang xa d Vidt Nam Bdi l&ng xa Vidt Nam cd nhtrng dac trung ridng bidt, khdng gidng vdi bat ky mdt cap hanh chfnh co sd cua quoc gia nao trdn the gidi Tridn kliai dd tai, chung toi chu tham khao, ke thira cd chon loc nhung cong trinh da nghien cuu d trong, ngoai nude trdn co sd dd tu hinh quan di£m cua minh vd d6i mdi t6 chuc va phuong thuc hoat ddng cua Uy ban nhan dan xa d Vidt Nam MUC DICH NGHIEN CUU VA NHIEM VU CUA LU AN AN De tai duqc thuc hien nhdni muc dich: Xac dinh rd vi tri phdp ly va vai tro cua Uy ban nhan dan xa dieu kidn xay dung Nha nude phap quydn, chuyen d6i co chd' quan ly Tu dd xac dinh phuong hudng, ndi dung va nhung giai phap doi mdi t6 churc va phuong thuc hoat ddng cua Uy ban nhan dan xa dieu kidn cai each ndn hanh chfnh Qud'c gia Thuc hidn muc dich trdn, nhiem vu cua luan an la: - Khdi qudt nhung vdn dd chung nhat vd vi trf, vai trd, chute nang, nhiem vu cua Uy ban nhan dan xa he thdng cdc co quan Nha nude cung nhung dac thu, kho khan, thuan lqi t8 churc va hoat ddng cua Uy ban nhan dan xa - Ph£n tich, so sanh dia vi phap ly cua Uy ban nhan dan xa theo phap luat hien hanh dd tim hudng didu chinh cua phap luat Neu y kien hoan thidn su didu chinh cua phap luat, phuong hudng doi mdi co cau t6 chdc cua Uy ban nhan dan xa - Phan tich cac yd'u td' xa hdi, phong tuc tap qudn va kinh nghiem td chdc co quan quan ly lang xa lich su dd lam co so dd xual cac giai phap doi mdi td chuc va hoat ddng cua Uy ban nhan dan xa thdi gian tdi - Phan tich dac diem cua ddi ngu can bd xa, vdn de doi mdi cdng tac tuydn chon, dao tao, b6i duong ddi ngu can bd xa - mdt nhidm vu quan va buc thiet tien trinh thuc hien cai each ndn hanh chinh quoc gia Gldl HAN CUA LUAN AN Ndng thdn va quan ly ndng thdn la va'n dd ldn, phuc tap Trong pham vi luan an Pho tien si luat hoc, tac gia chi tap trung nghidn cuu td chdc va hoat ddng cua Uy ban nhan dan xa- Mot mat xieh he thd'ng cac co quan hanh chinh Nha nude nham phuc vu cho cdng cudc cai each ndn hanh chinh Dang va Nha nude dang dat Do pham vi cua luan an chi nghidn cuu vd co quan hanh chinh Nha nude d xa ndn cac co quan, doan th£ khac d ndng thdn k£ ca co quan quy6n luc d xa, tac gia cung chi dd cap nhung ndi dupg co ban, cd lidn quan lam co sd ly luan cho vide nghien cdu tarn PHUONG PHAP NGHIEN CUU Luan dn duqc thuc hien trdn co sd nguydn ly co ban cua chu nghia Mac - Ldnin, tu tudng H6 Chi Minh va cdc quan didm cua Dang cdng r”"''J-' 'L'-UU’-a'1! san Vidt Nam vd nguydn tac td chuc va hoat ddng cua bd indy Nha nude; vd xay dung va ddi moi td chuc, hoat dong cua chinh quydn dia phuong DJ giai quydt nhung van de co ban nay, luan an da sir dung phuong phap vat bidn chung, vat lich su de nghien cuu cai ridng cua Uy ban nhan dan xa cai chung cua bd mdy Nha nude Ngoai cac phuong phap co ban dd, luan an van dung cac phuong phap khoa hoc vd quan ly Nha nude, vd xa hdi hoc va dan tdc hoc dd nghidn cuu td chuc va hoat dong cua Uy ban nhan dan xa didu kien ddi mdi Dae bidt chu y tdi phuong phap he thd'ng, phuong phap so sanh, phan tfch, tong hop Ket hop chat che cac nguydn ly kinh didn, quan didm dudng lo'i cua Dang vdi kinh nghiem lich su, vdi kien thuc va kinh nghiem tien tid'n cua nude ngoai Thuc hidn dd tai trdn, tdc gia luan an sir dung rdng rai cac tac phdm cua C.Mac, Ph.Anghen, V.I Lenin, cua Chu tich Ho Chi Minh cung cac van kien cua Dang, phap luat cua Nha nude lam co sd ly luan de giai quyet cdc luan cu dua Ngoai su dung cac cdng trinh nghidn cuu cua cac nha luat hoc, triet hoc, xa hdi hoc, dan tdc hoc, lich sir va ngoai nude dd lam tai lieu tham khao NHUNG DIEM MCH CUA LUAN AN La mdt cdng trinh chuydn khao, nghidn curu cd hd thd'ng vd td chuc va hoat ddng cua co quan hanh chinh Nha nude o xa didu kidn ddi mdi Luan an cd nhuns diem moi: - Lam sang to vd mat ly luan va thuc tidn, nhung dac thu cua ndng thdn va co quan hanh chinh Nha nude d ndng thdn Ndu mdi quan hd 115 Doi vdi can bo xa, trinh dd dan tri cua ngudi ndng dan nong thon hidn nhin chung tha'p dan chu chua duoc md rdng: hon nua de khac phuc tinh trang huu khuynh tuydn chon can bo nham chon dung ngudi du tai nang, due dd vao co quan quan ly Chung tdi cho rang, can phai co quy dinh mot so tidu chudn, didu kien bat budc ddi vdi nhung ngudi se duoc chon vao Uy ban nha't la ddi vdi cac chuc danh chu chot nhu Chu tich va Phd Chu tich xa Cu the: - Uc rrinh dd van hoa, ddi vdi cac xa ddng bang, ven dd phai tot nghidp phd thdng trung hoc (cap 3); ddi vdi cac xa vung dan tdc ft ngudi, vung cao vung sau, vung xa phai tot nghidp phd thdng co sd (ca'p 2) « Vdi trinh van hoa tdi thidu nay, ngudi can bd xa mdi cd kha nang tiep thu va van dung duoc nhung kien thuc ve chinh sach, chu truong cua Dang: kien thuc ve khoa hoc quan ly vd phap luat cdng tac dieu hanh quan ly cua minh - Ve trinh dd chuven mdn, phai cd bang trung cap chuydn nganh, uu tien ddi vdi da hoc qua ldp vd quan ly Nha nude, ve phap luat Nhu vay quan ly Nha nude se khdng bi dut doan dam bao tinh bn dinh quan ly - Ve chinh tri, ngudi giu chdc danh Chu tich xa nha't thid't phai la Dang vidn, cd nhu vay mdi phdt huy vai tro lanh dao cua Dang dd'i vdi chfnh quydn; cdc chu truong, nghi quyd't cua co sd Dang duoc tri£n khai, thuc hidn vao cudc sd'ng ma khdng can phai qua ca'p trung gian De cd th£ xay dung ddi ngu can bd xa dap ting nhu cdu cua hidn tai, ngoai cdng vide tuy£n chon phai dac bidt chu y tdi vide dao tao, bdi 116 duong cho ho nhung kien thuc co ban ve quan ly kinh te, quan ly Nha nude, ve phap luat, vd pham chat dao due cua ngubi can bd each mang Trudc mat, cac dia phuong phai cd phuong an, kb' hoach, giao cho co quan Nha nude cap tren true tiep cua Uy ban nhan dan xa thudng xuydn sodt phan loai ddi ngu can bd chu chd't theo tvrng churc danh nham sdp xd'p, bd' tri cho phu hop Ddng thbi tung budc xftv dung tidu chuan hoa can bd theo tung chdc danh; tuydn lua dao tao mdt ddi ngu can bo mdi de bd sung cho thd' he can bd xa hien dang cdng tac Nguon dd dao tao can bo cho Uy ban nhan dan xa la cac Dang vidn tre, cac doan vidn nidn; bd ddi phuc vidn lanh dao xa tuyen lua theo su chi dao thdng nhat cua cap huyen, gui di dao tao tai cac trubng Hanh chinh tinh Phan dau tdi nam 2010 ca nude dat 100% Chu tich xa cd bang tot nghidp trubng Hanh chfnh cap tinh Ddi vdi doi ngu can bd xa hien tai can duoc boi dudng nhung kien thurc co ban nha't vd quan ly Nha nude, vd phap luat bang nhidu hinh thuc phu hop vdi hoan canh cu thd cua mdi dia phuong Tuy nhidn, dac thu quv thbi gian cua can bd xa bi chi phd'i bdi tfnh mua vu cua cdng viec san xua't ndng nghidp, khac hoan toan vdi nhung ngubi don thudn lam vide tai cdng sb d phd', thi xa Cung tfnh mua vu ndn ho kho cd thd chu ddng tham gia vao cac chuong trinh dao tao, bdi dudng dai han ndu khdng cd su t6 churc cac ldp hoc phu hop Mat khac , cung didu kidn sinh hoat, di lai each trd ndn cac xa d vung xa, vung sau, hai dao, midn nui ra't khd cd dieu kien theo hoc cac ldp bdi dudng tap chung Do vay, edn t6 chdc cac ldp hoc ngan han chi danh ridng cho can bd xa hoac md cac ldp bdi dudng chuydn dd tai xa hoac cum hai, ba xa 117 Vd phuong phap, khoa hoc hanh chinh co tinh thuc tidn cao nen noi dung, chuong trinh dao tao cho can bo xa phai cu thd Can xac dinh can bo xa la loai can bo tac nghiep, thuc hanh ma khdng phai la can bo hoach dinh chfnh sach, vay, noi dung, chtrong trinh hoc phai ngan gon, cu the; ro rang mang tinh "thuc dung" cao Cdn phai trang bi ra't ky cho can bo xa nhung gi ho dupe lam, phai lam khdng dupe lam va lam nhu the nao Thdi gian hoc cua can bo xa thudng ngan nen edn han che tdi da hoc ve ly luan gianh thdi gian thoa dang cho cong tac thuc tfip nham trang bi cho ho ky nang ap dung, xu' ly tinh hudng giup ho co thd bat tay vao giai quvet nhung cdng viec cu thd d dia phuong theo phap luat va khoa hoc Nhu vav de co mdt dpi ngu can bp xa gioi ve nghiep vu co pham chat dao due chung tdi cho rang can chuydn hudng sang dao tao la chu can tang cudng tinh thuc dung, tang noi dung cac khoa hoc phap ly, giam hd’t ly luan chung Giao trinh day va hoc cua can bo xa phai thdng nhat, giao trinh chuan, quoc gia 118 KET LUAN dao cua Dang Viec doi mdi td chuc va boat dong cua Uy ban nhan dan xa phu hop vdi co’ chd' quan ly nen kinh td' thi trudng nhidu ph£n cd su quan ly cua Nha nude la mdt qua trinh lien tuc, ludn thich dng vdi*su van ddng cua kinh te - xt hdi va nhung dac thu rieng bi st cua dia ban ndng thdn Doi mdi td chuc va kidn toan (chinh don) doi ngu can bd phai tien hanh dong bd, gan vdi ddi mdi phuong thde hoat ddng trdn co sd chdc nang, nhidm vu dupe phan cdng, phan cap Ngoai nhung kien giai cu the vd to chdc va hoat dong cua Uy ban nh£n dan xa, xua't phat ttr thuc tidn ddi mdi nhung nam qua, luan an cd mot sd' kidn nghi nham doi mdi td chdc va phuong thde hoat ddng cua Uy ban nhan dan xa dd xay dung va hoan thidn bd m£y Nha nude, ddng gop vao cdng cudc cai each ndn hanh chfnh Nba nude dat kd't qua Cu thd: 1- Xa la cap co so, cap td chdc thuc hidn ndn chfnh quydn xa c£n thid't phai cd Hoi ddng nhan dan va Hdi ddng nhan dan bdu Uy ban nhan dan Cach td chdc vtra dam bao thay mat Nha nude dd hoat 119 ddng quan ly, dieu hanh a co so vua phat huy tfnh tu chu, tu quan cua dia phuong 2- De nang cao hieu luc, hieu qua hoat ddng quan ly Nha nude cua Uy ban thi edn thid't phai giam sd lupng vien Uy ban nhan dan xa chi c