TRUNG TAM KHOA HQC XA HOl
VA NHAN VAN QUOC GIA

BQ GIAO DUC VA DAO TAO

VIIJN NGHIEN Ctfu NHA NU6C VA PHAP LUAT

TRUONG dAc LINH

CHlNH QUYEN DIA PHUONG
Z,

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AZ

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VCl VIEC BAO DAM THI HANH HIEN PHAP
VA PHAP LUAT 6 DIA PHUONG
•

THU V’EN

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LUATTF HCM

NgzySO.thang J

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LUAN An TIEN SI LUAT HQC

HA NQI - 2002


TRUNG TAM KHOA HQC XA HOI
VA NHAN VAN QUOC GIA

BO GIAO DQC VA DAO TAO

VIEN NGHIEN CtfU NHA NtQC VA PHAP LUAT

KppVJ OtrUONG DAC LINH

chinh quyEn dia phVOng
VC*I VIEC BAO DAM THI HANH

HIE'n PHAP

vA phAp luA
PHUONG
• t () DIA

•
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CHUYEN NGANH : LUAT NHA NU6C
: 50505

mA sO

AZ

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LUAN AN TIEN SI LUAT HQC

Ngitifi hitting d&n khoa hoc- GS-TS. HOANG VAN hAo

HA NQI - 2002


LCfl CAM DOAN

T6i xin cam doan day Id cong trinh nghidn ctfu cua rieng toi. Cdc so
lieu neu trong lu^n dn Id trung thtfc vd chinh xdc. Cdc ket qua nghien ctfu
neu trong luan dn chtfa ttfng dtfdc ai cong bo trong bat ky cong trinh ndo
khdc.


Trtfdng Ddc Linh


nhUng chU VIET tAt

VIET TAT

VIET DAY DU

HDND

Hoi dong nhan dan

UBND

Uy ban nhan dan

UBHC

Uy ban hanh chinh

tand

Tod dn nhan dan

VKSND

Vien kiem sat nhan dan

QPPL


Quy pham phap luat

XHCN

Xa hoi chU nghia

TBCN

Ttfban chU nghia

MTTQ

Mat tran To’ quoc


MUCLUC
•

•

Trang
Md DAU....................................................................................
CHUONG1.

1

CO sO lY LUAN VE VAI TRO CUA CHINH QUYEN DIA

PHUONG TRONG VI£C BAO DAM THI HANH HIEN PHAP

VA PHAP LUAT 0 DIA PHUONG................................................

9

Vi tri, tinh chat phap ly va vai tro cua chinh quy£n dia

1.1.

phifdng trong vi$c bio dim thi hinh Hien phip va

phip luat.................................................................................

9

1.1.1. Vi tri, tinh chat phap ly cua cac cd quan chinh quyen dia
phtfclng..................................................................................... 9

1.1.2. Vai tro cUa chinh quyen dia phtfUng trong viec bao dam thi
hanh Hien phap va phap luat.................................................. 12
1.2.

Nhiem vu, quy£n han cua chinh quyGn dia phuTdng

trong vi$c bio dam thi hinh Hien phip vi phap lu$t...

21

1.2.1. Nhiem vu, quyen han cua chinh quyen dia phuCclng to chfc

thUc hien va kie’m tra, giam sat viec thi hanh Hien phap va


phap luat...........................................................................

23

1.2.2. Nhiem vu, quyen han cua chinh quyen dia phu’cfng trong
viec giai quyet cac khieu nai, to cao va kien nghi cua
cong dan..........................................................................

27

1.2.3. Nhiem vu, quyen han ban hanh v2n ban phap luat cua

chinh quyen dia phtfdng...........................................

33

1.2.4. Nhiem v/ui, quyen han ciia chinh quy£n dia phuTcfrig trong
viec pho' bien, giao due phap luat.......................................... 44


Sf khac nhau ve nhi^m vu, quy£n han va trach nhi^m

1.3.

cua chc ccf quan chinh quyen dia phifdng cac cap trong

vi$c bao dam thi hanh Hien phhp va phap luat..............

49


1.3.1. Str khac nhau ve nhiem vu, quyen han va trach nhiem cua

cac cap chinh quyen dia phtfdng trong viec bao dam thi

hanh Hien phap va phdp luat................................................. 49
1.3.2. Sx khac nhau ve nhiem vu, quyen han va trach nhiem cua

cac ccf quan chinh quyen dia phuUng cung cap trong viec
bao dam thi hanh Hien phap v& phap luat............................ 56
1.3.3. SXhVc cnha u ve nhimnuii,uyye nha nv atrcc hnhiemcu a

chinh quyen dia phu^ng d dia ban nong thon vV dia ban do
thi trong viec bho dhm thi nann Hien phap vh phhp luht

58

Chinh quyen dia phtfdng ah van de bao dam th i hanh

1.4.

Hien phap va phap luat 6 m$t so' nutfc tren the'
gidi............................................................................................

61

1.4.1. Ve kiem tra, gihm sat viec thi nVnh Hien phvp vh phhp luht

...61


cdiaphTdng
1.4.2. Ve gihi quye't khieu kien nanh chinh d dia phuong

... 63

1.4.3. Ve hovt dong ban hhnh vhn bhn quy pham cua chinh quyen

...64

dia phXdng

1.4.4. Ve tuyen truyen, pho bien, giho due phhp luht d dia phtTOng... 66
CHUONG 2.

THVC TRANG HOAT DQNG CUA CHINH QUYIiN DIA
PHUONG TRONG ViljC

bAo dAm

THI HANH HIEN PHAP

VA PHAP LUAT 6 DIA PHUONG.............................................

2.1. Shpha ttrino eh vaitrh chaph^hOquyiadiaphitong

trong vi$c bao dam thi hanh Hien phap vV phap luat cf

69



nufdc ta tif sau Cach mang thang Tam nam 1945 den

nay................................................................. •..........................

69

2.1.1. Giai doan t ti sau CCah mang t hang Tam nam 1945 ddn nam

1962................................................................................................70

2.1.2. Giai doan tit nam1922 den nam 1483 ..................................

73

2.1.3. Giai doan tif nam1983 den nam 1944...................................

77

2.1.4. Giai doan tit nam1944 den nay............................................

80

2.2.

Hoat dong cua chinh quyen dia phtfdng trong vi$c to
chufc thifc hi$n va kie’m tra, giam sat vi$c thi hanh

Hien phap va phap luat d dia phtfdng...............................

83


2.2.1. Hoat dong giam sat cua Hoi dong nhan dan doi vdi viec
thi hanh Hien phap va phap luat...........................................

83

2.2.2. Hoat dong to chdc thfc hien va kiem tra cua Uy ban nhan

dan va cac cd quan chuyen mon thuoc Uy ban nhan dan
doi vdi viec thi hanh Hien phap va phap luat.....................
9.3

Hoat d$ng cua chinh quyen dia phtfofng trong vi$c giai
quyet khieu nai, to' cao va kien nghi cua cong dan.......

2.4.

60

97

Hoat dQng ban hanh van ban phap luat cua cac ccf
quan chinh quyen dia phutfng.............................................

104

2.4.1. Hoat dong ban hanh van ban quy pham phap luat cua Hoi

dong nhan dan va Uy ban nhan dan.......................................... 104
2.4.2. Hoat dong ban hanh van ban ca biet cua cac cd quan chinh


quyen dia phtfctng...................................................................
2.5.

114

Hoat d$ng cua chinh quyen dia phtfdng trong vi^c phd

bien, giao due phap luat....................................................... 119


CHUONG 3.

NHUNG PHUONG HUONG TANG CUdNG VAI TRO CUA
CHINH QUYEN DIA PHUONG TRONG VIEC • BAO DAM THI

HANH HIEN PHAP VA PHAP LUAT 6 NUOC TA HIEN NAY

131

3.1.

Stf can thiet phai Ung ctfdng vai tro cua chinh quyen
dia phtfdng trong vi$c bao dam thi hanh Hien phap va
phap lu&t................................................................................. 131

3.2.

Nhffng phtfdng htfdng Ung ctfdng vai tro cua chinh
quyen dia phifdng trong vi$c bao dam thi hanh Hien


phap va phap luat ................................................................

136

3.2.1. Hoan thien cd sd phap luat ve tham quyen va trach nhiem

cua chinh quyen dia phtfdng nham bao dam thi hanh Hien
phap va phap luat...................................................................

136

3.2.2. DO’i mdi cd cau tO chfc va tang ctfdng nang life dOi ngu

can bO, cOng chfc cua chinh quyen dia phtfdng nham bao
dam thi hanh Hien phap va phap luSt..................................

140

3.2.3. Nang caO hieu qua hOat dOng thfc tien cua chinh quyen

dia phtfdng trOng viec baO dam thi h&nh Hien phap va
phap luat..................................................................................

147

3.2.3.1. DOi mdi hOat dOng cua chinh quyen dia phtfdng trOng
viec tO chfc thfc hien va kie’m tra, giam sdt viec thi
hanh Hien phap va phap luat...........................................


147

3.2.3.2. Cac cd quan chinh quyen dia phtfdng can giai quyet kip

thdi va triet de cdc khieu nai, tO cdO va kien nghi cua
cOng dan............................................................................

153

3.2.3.3. DOi mdi hOat dOng ban h&nh van ban phap luat cua cac

cd quan chinh quyen dia phufdng..................................... 158


3.2.3.4. Doi mdi hoat dong cua chinh quyen dia phUdng trong

viec pho bien, giao due phap luat...................................

121

3.2.4. Hoan thien cd che phoi hdp giffa chinh quyen dia phUdng

vdi cac cd quan bao ve phap luat va cac to chfc chinh tri-

xa hoi d dia phUPng trong viec bao dam thi hanh Hien
phap va phap luat....................................................................

122

3.2.5. Tang citdng air lanh dao cua cac cap Uy Dang doi vcfi


chinh quyen dia phifdng trong viec bao dam thi hanh Hien
phap va phap luat....................................................................

175

kEt LUA...........................................................................................................................

181

NHUNG CONG TRINH LIEN QUAN DEN LUAN AN DA DLOC CONG BO

DANH MQC TAI LIEU THAM KHAO ..........................................................................

185


Md DAU
1. Tinh cap

cua de tai

Dai hoi lan thi* IX cUa Dang cong san Viet Nam (thang 4 ndm 2001)
da xac dinh nhiem vu co < nghia chien ltfdc d ntfdc ta trong giai doan hien
nay la: "Tiep tuc doi mdi, day manh cong nghiep hoa, hien dai hoa, xay

dung va bao ve To quoc Viet Nam xd hoi chu nghia". Mot trong nhti’ng
phtfdng htrdng quan trong de’ thtfc hien nhiem vu chien ltfdc ndy Id "Day

manh cai each to chi(c va hoat dong ciia Nha nude, phdt huy dan chu va

tang cudng phap che" [28-tr. 131-137].
Tang ctfdng phdp che" la dieu kien toi can thiet bao dam thtfc hien

thang ldi atf nghiep cong nghiep hoa, hien dai hoa dat ntfdc, dong thdi

cung la doi hoi khach quan cua ddi song xa hoi, Id nguyen tac hien dinh
cua quan ly Nha ntfdc d nude ta. Thtfc hien nhiem vu nay, cac ccf quan

chinh quyen dia phUcfng co vai trd rat quan trong ca trong viec ban hanh
van ban phap ly tren cd sd va nham thi hanh cac quy dinh cua Hien phap,
luat va cdc van ban cua cd quan Nha nude cap tren, ca trong viec trtfc tiep

to chtfc thi hdnh phdp luat tren thtfc te.

Ld nhti’ng cd quan cd quan he gan bd mat thiet vdi nhan dan, thudng

xuyen tric tiep giai quyet nhing van de lien quan den quyen vd nghia vu
cua cong dan, nen chinh quyen dia phtidng la cau noi gitfa Nhd nidc va

cong dan. Nhan dan danh gid ban chat cua Nhd nUdc chu yeu va trtfdc het
thong qua hoat dong cua cdc cd quan chinh quyen dia phUdng, tinh than va
thdi do phuc vu cua edn bo, cong chtic cua cdc cd quan nay.

Nhing nam gan day, hoat dong cua chinh quyen dia phidng trong
viec bao dam thi hdnh Hien phdp va phdp luat dtfdc doi mdi vd tang
ctfdng, cd nhieu tien bo, da gdp phan quan trong vdo viec thtfc hien cdc


2


chu truing, chinh sdch cua Dhng, phdp luht cua Nhd ntTdc, tiTng btfdc nhng

cao hiVu ltfc vd CIVu qud quhn ly Nhd nUdc d div phUdng.

Tuy nhien, vai trd cua cdc cu quvn chinh quyen dia phUdng cdc chp
trong linh vtUc bho dhm thi hann Hien phap vd phhp lurt cung cdn nhUng

hvn chi vh vUdng mdc vV mht ly luhn, phvp ly vd thtUc tien. Chinh nhUng
han che’ vd vUdng mdc ndy lh mot trong nhUng nguyVn nhan cua tinh trang:
y thtUc phhp luht cua mot bo phhn trong cdc thng ldp nhhn dhn cdn hvn

che, cdn cd hiVn tUdng coi thUdng phhp luht; t$i pham vh chc vi pham
phhp luht khdc d cac div phUdng cdn co chiVu hudng gia tdng vd diVn bien
phUc tap; nan quan lieu, tham nhung vd sir suy thodi vV duo dUc, loi song
cua mot bo phhn khong nhd cdn bo, cong chUc chinh quyVn dia phUdng
dang Id mot trong nhUng nguy cd trUc tiVp dv dor stU song cdn cua hi thong
chinh tri, ghy bat binh vV 1am giVm ldng tin cur nhan dhn; tinh trang khieu
nai, to" cdo cua cong dVn d cVc dia phUdng giv thng vV sd lU0ng, phUc tap

vV noi dung, gay ght vV tinh chat chn phVi dUdc gihi quyit kip thdi vd triVt

dV.
De thUc hiVn ^ang ldi nhiem vu cong nghiVp hda, hiVn dvi hda dat

nUdc, xhy diUng Nhd nUdc phdp quyVn XHCN cua dhn, do dhn, vl dhn, Dvi
hoi Dang lan thtf IX ddi hoi phai "Phat huy dan chu di doi vdi gift vftng ky

cfcmg, tdng cttdng phdp che, quan ly xa hoi bang phdp luat, tuyen truyen,
giao due toan dan nang cao y thftc chap hanh phdp ludt..." [28-tr. 135].


Vi vhy, dV tdi "Chinh quyen dia phiicmg vdi viec bao dam thi hanh
Hien phdp va phdp luat cf dia phtlctng” Id van dV cd tinh cap thiet cd trVn

phUdng diVn ly luhn vd thUc tiVn, Id m$t trong nhUng hUdng nghiVn cUu
quvn trong cua khoa hoc phdp ly ViVt Nam, rat cvn dUtUc nghiVn cUu mot

vdvh cd bVn d nUdc ta hiVn nay.


3

2. Tinh hinJh nghien cdu die tai

d ntfdc ta, nhtfng van de ly luan ve baO dam thi hanh Hien phdp vd

phap luat difdc nhieu nha khOa hOc phap ly nghien cdu dddi cac gdc dO vd
mdc dO khdc nhau. Cdc cOng trinh nghien cdu nhd: "Nha ntddc vd phdp luat

cua chung ta trOng sd nghiep dOi mdi" (1997) cua PGS-TSKH DdO Tri Uc;
"Y thdc phap luat XHCN vd giaO due phdp luat chO nhan dan laO dOng-

thdc tien d Viet Nam" (Luan an PTS luat, Mat-xcd-va, 1977, tieng Nga)

cua tac gia Nguydn Dinh LOc...da de cap nhdng van de ly luan chung ve

tang ctddng phap che XHCN; ve tuyen truyen, giaO due phap luat; ve cd

che kiem tra, giam sdt viec tuan theo Hien phap vd phap luat...
Cdc bdi viet cua GS-TS HOdng Van HaO "Van de giai quyet dung


dan mOi quan he gida dan chu va phap chef trOng qud trinh dOi mdi d ntfdc
ta", "To chdc va hOat dOng cua he thong cd quan quyen ldc Nha nddc";

PGS-TS Le Binh Vong "Quyen khieu nai, tOf cao cua cOng dan trong Hien
phap 1946 va cac Hien phap Viet Nam"; TS Le Minh ThOng "Vdi y kien

ve xay ddng va nang cao y thdc phap luat XHCN cua edn bo trong bo mdy
Nha nddc"; TS Bdi Xuan Ddc "Dai hOi lan thd VIII cua Dang va van de

cai edeh nen hdnh chinh Nhd nddc Viet Nam"; TS Pham HOng Thdi “To

chdc va hoat dong cua cdc cd quan chinh quyen dia phLddng”; TS Tran Nho
Thin "Xung quanh viec tO chdc lai bO mdy quan ly Nha nddc d cap xa"; TS

Vu Thd "Bdn ve hodn thien he thong che tdi hdnh chinh trong phdp luat
hien hanh" v.v. Cdc bdi viet nay dddi cdc khia canh vd mdc dO khdc nhau
da phan tich nhieu van de lien quan den viec bao dam thi hanh Hien
va phdp luat ndi chung, d dia phddng nOi rieng.
Lien quan trdc tiep den nhiem vu, quyen han cua cdc cd quan chinh

quyen dia phddng trong Unh vdc thi hanh Hien phdp va phdp luat cd cdc
chuyen khao ve HDND vd UBND cua cdc tdc gia, nhd: "Nghien cdu Luat


4

to chtic Hoi dong nhan dan vd Uy ban hanh chinh cOc cap" (NXB KHXH,

Ha N$i, 1923) cua toc gia Phan Manh Han; "Ve Luat to chtic Hoi dong


nhan dan vd Uy ban nhan dan" (NXB Phdp iy-1484) cua tOc gia Vu Nhti
GiOi; "Hoi dong nhan dan trong he thong cd quan quyen ltic NhO ntidc"

(NXB Phop iy, Hd N$i, 1488) cua tOc gia Nguyen Dang Dung ... Nhting
day 1a nhting chuyen khao nghien ctiu ve to chtic HDND vd UBND, nen
nhting nhiem vu, quyen han cua HDND vd UBND trong linh vic thi hOnh
Hien phdp vd phop luat mOi chi diOc cOc tdc gia de cap 0ti0i dang giOi

thieu cOc quy dinh cua luat.
COc cong trinh nghien ctiu cd ban, cd tinh he thong lien quan trtic

tiep den hoat dpng ban hanh van ban phop luat; pho bien, giao due phdp
luat 0 dia phtiOng cd: "Van ban cua cOc cd quan quan iy Nho ntiOc dia
phiOng 0 ntiOc Cong hod XHCN Viet Nam" cua toc gio Nguyen Ctiu Viet

(Luan an PTS Luat, Mat-xcd-va, 1982 - tieng Nga); "Doi mOi vO nang cao
hieu qua cong toc quan ly van ban 0 H0 Noi", De tai nghien ctiu khoa hoc
cua SO Tti phOp - TP. Hd Noi, thOng 3 nam 1445; Chuyen dC: "Ban ve

tha’m quyen, thu tuc vO trinh tti ban hdnh van ban quy pham phOp luat cua

chinh quyen dia phtiOng" (tap the’ tOc gid), Thong tin khoa hoc phOp iy cua
ViCn NCKH phOp iy - Bq Tti phOp, so 3 nOm 1444; "Thtic trang hieu biCt
phOp luat cua cOn bo, nhan Oan tai sOu vting cd Oti On diem ve pho bien,

giao due phop luat" thuoc Dti On VIE-48-001 cua Vien nghien ctiu khoa

hoc phdp ly-Bo Tti phOp (Thong tin khoa hoc phdp iy, so 4 nam
2000)...v.v. Nhting cong trinh nghien ctiu ndi tren phan tich nhieu van de
vC


ly luan vO thtic tien hoat dong ban hdnh vOn bon phdp luat cua chinh

quyen dia phtiOng, vc thtic trang hie’u biet phdp luat cua cOn b$, nhan dOn
0 dia phtiOng, dong thOi cOc tOc gia cung dtia ra nhting kiCn nghi liCn quan

0Cn noi dung nghiCn ctiu cua 0C tdi.


5

Tuy nhiVn, cho den nvy d ViVt Nam chUv co mot cong trinh khoa hoc
nho nghiVn cUu mot vhch tohn diVn, bao qudt vV vai trd cua chinh quyVn

dia phUdng trong viVc bho dhm thi hhnh Hien phhp vd phdp luht d dia

phUdng. Vi vhy, Luhn Vn lh cong trinh khoa hoc dhu tiVn dvt van di nghiVn
cUu todn diVn, khdi qudt cd sd ly luhn vd thUc tiVn vV "Chinh quyen dia
phtfetng vdi viec bao dam thi hanh Hien phdp vd phdp luat d dia phucng"
dUdi gdc dQ vd phUdng phdp nghiVn cUu cuv luht Nhd nUdc.

3. Muc dich nghien ctfu vh nhi^m vu cua luan hn
Luhn dn hUdng tdi muc dich 1dm shng to cd sd ly luVn vd thUc tivn

vV vai trd cua chinh quyVn dia phUdng trong cd che thtUc hiVn phdp luht,
trVn cd sd dd kien nghi nhUng phUdng hUdng thng cUdng vai trd vd trdch

nhiVm cua chinh quyVn dia phUdng trong viVc bho dVm thi hdnh Hien phdp
vd phdp luVt d nUdc tv hiVn nay.
DV’ dvt dUdc muc dich noi trVn, LuVn dn cd nhiVm vu:


- PhVn tich cd sd ly luhn vV vai trd cuv chinh quyVn dia phUdng trong

viVc bho dhm thi hdnn HiVn phdp vd phdp luht, quv dd 1dm ro nhUng dvc
diVm vd nQi dung thh’m quyVn vd trdch nhiVm cua cdc chp cninn quyVn div

phUdng trong linh vUc ndy.

- Phhn tich sU phdt triVn vV vai trd cua cninn quyVn dia phUdng trong
viVc bho dam thi hdnn Hien phdp vd phdp luVt d nUdc tv tU svu Chch

mang thdng Tdm nvm 1945 den nay.

- Phhn tich cdc quy dinh cua phdp luht hiVn hdnh vd thUc tiVn hoat

dong cua chinh quyVn div phUdng trong viVc bho dam thi hdnh Hien phdp

vd phdp luht.


6

- Phan tich nhdng nhu cau khach quan vd de xuat nhdng phddng
hddng tang ctTdng vai trd cua chinh quyen dia phddng trong viec bao dam

thi hdnh Hien phdp vd phdp luat d nddc ta hien nay.

4. Gidi han cua Luan an
DC tdi Luan an Id van de cd nOi dung rOng vd phdc tap. Trong khudn
kho chuyen ngdnh luat Nhd nddc, Luan dn chi tap trung phan tich nQi dung


cd ban vC vai trd cua chinh quyen dia phddng trong viec bao dam thi hdnh
Hiezn phdp vd phdp luat, trcn cd sd do dC xua’t nhdng phddng hddng nang

cao vai trd cua chinh quyen dia phddng trong viec bao dam thi hdnh Hien
phdp vd phdp luat d nddc ta hien nay.
5. Cd sd ly luan va phddng phap nghien cdu

Cd sd ly luan cua Luan dn la nhdng quan diem cua chu nghia Mac-

LC-nin vd td tddng HO Chi Minh vC phdp che XHCN; cdc quan diC’m chi
dao cua Dang cOng san Viet Nam vC dddng lOi doi mdi dat nddc, vC xay
ddng Nhd nddc phdp quyCn XHCN cua nhan dan, do nhan dan vd vl nhan

dan the hiCn trong cdc Nghi quyet Dai hoi Ddng vd cdc Nghi quyet HOi
nghi Ban chap hdnh Trung tddng Ddng, cung nhd Hien phdp vd cdc vdn ban

phdp luat cua Nhd nddc.

TrCn cd sd phddng phdp luan duy vat biCn chdng cua triet hoc MdcLC-nin, Luan dn std dung cdc phddng phdp cu thC nhd: phan tich, tong hdp,

so sdnh, phddng phdp hC thong, ket hdp ly luan vdi thdc tiCn... dC giai
quyet nhtdng van dC ddt ra trong Luan dn.

6. Cai mdi vie mdt khoa hQC cua Luan an

Luan dn Id chuyCn khdo khoa hoc dau tiCn d ViCt Nam nghiCn cdu
mOt cdch cd ban, hC thong vC chinh quyCn dia phddng vdi viCc bao dam thi

hdnh HiCn phdp vd phdp luat dddi gdc dO luat Nhd nddc.



7

Luan an co nhting OiC’m mdi sau:

.

- Luan On phan tich nhting dac die’m va noi dung chu yC'u vc tha’m
quyCn vO trOch nhiCm cua chinh quyCn dia phtiOng trong viCc bao dam thi

hanh Hien phap vd phdp luat. Vai tro cua chinh quyCn Oia phtiOng trong
viCc bao 0am thi hdnh HiCn phOp vd phdp luat la true tiep, cu the, thudng

xuyen vd toan dien nhat so vOi cOc cd quan NhO ntidc khac.
- Luan On phan tich cd

phdp ly vd thtic tien hoat dong cua chinh

quyen dia phtidng trong viec bao 0am thi hdnh Hien phdp vO phdp luat 0

Oia phtidng. Tren cd sd 00, Luan On lam ro vai tro chu yeu v V trudc het, vOi
cOc bien phdp mang tinh tich cue trong hoat dong cua chinh quyen dia
phtidng nham bao dam thi hdnh Hien phdp vd phdp luat tren dia ban quan

ly cua minh.
- Tren cd s0 nghien ctiu ve ly luan vO phan tich thtic tiOn hoat dong
cua chinh quyen dia phtidng, Luan on de xuat nhiing kien nghi vC cdc

phtidng htidng tang ctiOng vai tro cua chinh quyen Oia phtidng trong viec


bao dam thi hdnh Hien phdp vd phdp luat nhdm thtic hien cong nghiep

hda, hien dai hOa Oat ntidc vO xay dting Nhd ntidc phdp quyen XHCN 0
ntidc ta hien nay.

7.Y nghia ly lufin va thiic t5n cua Luan an

Nhting ket qua nghien ctiu cua Luan On I0 nhting bo’ sung quan trong
vdo ly luan vC chinh quyen dia phtidng, ve vai tro cua chinh quyen dia
phtidng trong viCc bao dam thi hdnh Hien phdp vo phdp luat, gOp phan
nang cao nhan thtic ly luan vC vi tri, vai tro cua cdc cd quan chinh quyCn
Oia phtiOng trong viCc bdo 0am thi hdnh HiCn phdp vO phdp luat 0 dia

phtiOng.


8

NhUng ket luhn trong Luhn dn c6 the’ gop phhn tich cUc vdo viVc
nghiVn cUu sUa doi, bo sung mot so diVu cua Hien phdp nVm 1992, Luht to

chUc HDND vd UBND ndm 1994 vd cdc vdn bhn phdp luht hiVn ndnh vV
chinh quyVn dia phUdng.
Luhn dn c6 thv lhm thi liVu thvm khho trong viVc nghiVn cUu vd
gidng day vV Nhd nUdc vd phdp luht, nCat Id vV chinh quyVn dia phUdng,

cung nhU trong thUc tiVn to chUc vd Covt dong cuv chinh quyVn dia phUdng.
8. Ket cau cuv Ludn hn
Luhn dn gom c6: Md dhu, 3 chUdng, ket luhn vd Danh muc tdi liVu


tCvm kCao.
ChUdng 1: Cd sd ly luan ve vai trd cua chinh quyen dia phfdng
trong viec bao dam thi hdnh Hien phdp vd phdp luat d dia phUdng.

ChUdng 2: Thuc trang hoat dong cua chinh quyen dia phtfdng trong
viec bao dam thi hdnh Hien phdp vd phdp luat d dia phu&ng.

ChUdng 3: NhUng phUdng hudng tang cudng vai trd cua chinh quyen

dia phUdng trong viec bao dam thi hdnh Hien phdp vd phdp luat d
nudc ta hien nay.


9

CHUONG 1

CC Sd LY LUAN VE VAI TRO CUA CHINH QUYEN DIA PHUONG
TRONG VIEC BAO DAM THI HANH HIEN PHAP VA PHAP LUAT

d DIA PHUONG

1.1. VI TRI, TINH CHAT PHAP LY VA VAI TRO CUA CHINH QUYEN DIA

A

9

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%

A*

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>

A

PHUONG TRONG VI1£C BAO DAM THI HANH HIEN PHAP VA PHAP LUAT

1.1.1. Vi tri, tinh chat phdp ly cua cdc cd quan chinh quyen dia phddng

Khac vdi chC dO ttf quan dia phddng cua cdc nddc, chinh quyen dia
phddng d nude ta la mot bo phan hdp thanh cua chinh quyen Nha nitdc thong
nhat, bao gom cdc cd quan quyen lite Nhd nddc d dia phddng do nhan dan

dia phddng trite tiep bau ra (HDND) vd cdc cd quan, to chitc khac dddc
thanh lap tren cd sd cdc cd quan quyen lite Nhd nddc nay theo qui dinh cua

phdp luat (UBND, cdc cd quan chuyen mon thuoc UBND, Thddng trite

HDND, cdc ban cua HDND), nhdm quan ly cdc linh vdc cua ddi song xa hoi
d dia phddng, tren cd sd nguyen tdc tap trung dan chu vd ket hdp hdi hda

giita Idi ich cua nhan dan dia phddng vdi Idi ich chung cua cd mcdc.

HiCn nay, theo qui dinh cua HiCn phap 1992 va Luat to chdc HOi

dOng nhan dan (HDND) va Uy ban nhan dan (UBND) nam 1994, chinh
quyCn dia phtddng dddc to chdc d 3 cap tddng ting vdi cac ddn vi hdnh chinh

sau day:
- Tinh, thanh phO’ trtdc thuOc trung tddng (goi chung la cap tinh);
- HuyCn, quan, thi xa, thdnh pho' thuOc tinh (goi chung Id cap huyCn);
- Xa, phddng, thi trd'n (goi chung Id cap xa).


10

0 moi don vi hanh chinh noi trCn Oeu to chtic HDND vO UBND (DiCu

118 Hien phdp, DiCu 4 Luat to chtic HDND vO UBND nam 1444).
Hoi dong nh£n dan. DiCu 114 HiCn phap va DiCu 1 cua Luat x0c

dinh: Hoi dong nhan dan la co quan quyen ltfc Nhd ntfdc d dia phtfong, dai

dien cho y chi, nguyen vong vd quyen lam chu cua nhan dan, do nhan dan

dia phtfOng bdu ra, chiu trdch nhiem trtfdc nhan dan dia phtfong vd co quan
Nhd ntfdc cap tren..
Hien phap nam 1942 va Luat to chtic HDND va UBND nam 1944

van tiep tuc khang dinh tinh chat quyCn ltic NhO ntidc vO tinh chat dai dien
cua HDND cO y nghia rat quan trong ca vC mat ly luan cung nhti vC mat

thtic tien. HDND, cung nhti Quoc hoi, deu I0 nhting cd quan quyCn ltic NhO

ntidc, tric tiCp nhan vO thtic hiCn quyCn ltic Nhd ntidc Oo nhan 0an trao cho

thong qua che do bau cti theo nguyCn Uc pho’ thong, binh dang, trtic tiCp vO

bo phieu kin. Vi the, Chu tich Ho Chi Minh khang dinh: "Quoc hoi Id Hoi
dong nhan dan toan quc>c" [56-tr.560]. ViCc khang dinh HDND la co quan

quyen ltfc Nhd nt(dc d dia phtfong khong chi xdc dinh vi tri, vai trd cua
HDND trong co cau to chtic chinh quyCn dia phtidng vO trong bo mOy NhO
ntidc, mO edn xdc dinh tham quyCn vO trdch nhiem cua HDND trong viCc

quyet 0mh cdc chu trtidng, biCn phdp quan trong nham xay ding vd phdt
triCn kinh te-xa hoi 0 dia phtiOng, trong 00 co cdc biCn phdp bao dam thi
hdnh HiCn phdp vO phdp luat 0 dia phtidng. Tha’m quyCn quyet 0inh vO

giam sdt cua HDND Ooi vdi viCc thi hdnh HiCn phdp vd phdp luat 0 Oia

phtidng, cung nhti gid tri phdp ly cua cdc nghi quyet Oo HDND thdng qua so
vOi tham quyCn vd gid tri phdp ly coc van ban cua coc co quan chinh quyen

0ia phtidng khde edng cap 0ti0c qui dinh bOi tinh quyCn ltic NhO ntidc cua
HDND. Tuy nhien, HDND 00 0 cap tinh, cap huyCn hay cap xa Oeu chi Id
nhting cd quan quyCn ltic Nhd ntidc trong pham vi ddn vi hdnh chinh-lanh


11

tho ttUdng ting, thUc CiVn chUc nhng, tCam quyVn cua minh cung pChi trVn cd

sd vd nhhm thi ChnC chc quy dinh cua Hien phhp, luat va vVn ban cuv chc

cd quvn Nhh nUdc cap trVn.

Uy ban nhhn dan. Trong cd cau to chUc chinh quyVn dia phUdng,

UBND id mVt xich quvn trong trong viVc phdt Cuy CiVu lUc cua chinh quyVn
dia phUdng, bho dhm Covt dong CdnC chinh Nhh nUdc thong suot tU Trung
Udng den cd sd.

DiVu 123 Hien phhp nhm 1992 vd DiVu 2 LuvI to’ chUc HDND vd
UBND nhm 1994 xdc dinh: UBND do HDND bdu., Id cd quan chap hdnh cua

HDND, cd quan hdnh chinh Nha ntfdc d dia phUdng, chiu trdch nhiem chap
hdnh Hien phdp, luat, cdc van ban cua cdc cd quan Nha rntdc cap tren vd

nghi quyet HDND.
Qui dinh trVn cuv Hien phdp va Luat dh xdc dinh vi tri vh vvi trd cuv

UBND, moi quvn CV chap Cdnh cuv UBND vdi HDND ciing cap, cung nhU

moi quan hV chi dao, diVu hanh cua UBND vdi chc cd quan hdnh chinh Nhd
nUdc cap trVn ma dUng dhu id Chinh phu. Vdi tinh chat phap ly nay, UBND

dUdc xdc dinh id cd quvn quhn ly Cdnh chinh Nhh nUdc cd tCam quyVn
chung d dia phUdng. TrVn cd sd vd nhdm thi hdnh Hien phhp, luVt, vdn ban

cuv cdc cd quan Nhh nUdc cap trVn vd nghi quyet HDND ciing cap, UBND
co trdch nhiVm trUc tiep quhn ly vd to chUc, chi dao cdc cd quvn, ban nganh

quVn ly cu thi, thUdng xuyVn, liVn tuc doi vdi tat ca cdc linh vUc chinh tri,


kinh te, vVn Coa, xh hoi, an ninh, quoc phong... d dia phUdng; trUc tiep gihi
quyet cdc quyVn, cdc nghia vu phdp ly cuv cdc cd quan, to chUc vd cd nCVn;
bao dam viec thi hdnh nghiem chinh Hien phdp, phdp luat d dia phtfdng.
Trong cd cau to chUc chinh quyVn dia phUdng cdn cd chc cd quvn

chuyen mdn thuoe UBND do UBND tCdnC lap thvo qui dinh cuv Chinh


12

phu. DO Id cdc Sd vd cac cd quan ban ngdnh thuoc UBND cap tinh va cdc
Phdng, Ban thuOc UBND cap huyCn. Cdc cd quan chuyCn mOn thuQC UBND

giup UBND thong nhat quan ly Nhd nddc theo phdp luat doi vdi cdc ngdnh,

linh vtdc tddng dng d dia phddng, bao dam nguyCn t£c ket hap quan ly theo
ngduh vd theo lanh tho.
Ngodi ra, trong cd cdu to chdc chinh quyCn dia phddng cdn gOm

Thidng trie HDND va cac Ban cua HDND ttd cap huyCn trd lCn, HDND
cap xa c6 Chu tich vd Phd Chu tich HDND do HDND cting cap bau ra.

Nhdng day Id nhdng to chutc noi tai gdn liCn vdi HDND. Nhdng to chdc ndy
khong dddc HiCn phdp vd luat qui dinh cho nhdng tham quyCn mang tinh

quyen ldc Nhd nddc, khong cd quyCn ddn phddng quyet dinh, khong cd
quyCn ban hanh van ban phdp ly cd tinh bat buoc thdc hiCn doi vdi cdc cd

quan, tO’ chtdc vd cd nhan d dia phddng. Nhdng nhdng to chdc ndy cung cO
vai trd quan trong trong cd cau to chdc chinh quyCn dia phddng, Id mot


trong nhdng hinh thdc hoat dOng cua cdc cd quan quyCn ldc Nhd nddc d dia

phddng, bao dam cho HDND thdc hiCn cd hiCu qua cdc chdc ndng, nhiem
vu vd quyCn han cua mlnh theo quy dinh cua phdp luat.
ViCc xdc dinh dung vi tri vd tinh chat phdp iy cua cdc cd quan chinh
quyCn dia phddng sC Id cdn cd, cd sd ly luan vd phdp ly rat quan trong de
quy dinh nhiCm vu vd quyCn han cua cdc cd quan chinh quyCn dia phddng

trong viCc bao dam thi hdnh Hien phdp vd phdp luat.

1.1.2. Vai trd cua chinh quyen dia phdelug trong viec bao dam thi hdnh
Hien phdp vd phdp luat

DiCu 12 HiCn Phdp 1992 qui dinh: “Nhd nddc quan ly xa hQi bang

phdp luat, khOng ngdng tang cddng phdp che xa hoi chu nghia”.


13

Dv quhn ly xh hoi bVng phhp IuVi ddi hoi pChi co Jcv thdng phhp IuvI

Cohn chinh vh phdp luht pCVi dUdc thtUc CiVn ngCiVm minh. Hovt dQng xhy
dUng phVp larl va Covt dong thUc CiVn phap luat la Cai mat liVn quan cCdt
chV vdi nhau, co y nghiv vd tarn quvn trong nhU nhau. Hien phhp vd hV
thong chc van bVn phhp luht dUdc ban hdnC (cd sd phhp luat dV to chUc vd

Hien phap va phap luat di vao cuoc song, trd thanh nhtfng moi quan he


phap ly, the hien qua cdc hanh vi phap luat cua cac cd nhan, to chtfc, ddi
Coi cVc quy dinh cuv Hien pCVp vd phap luat pCVi dUdc thUc CiVn trVn thtUc

te. ThtUc CiVn nhiVm vu ndy la trdch nCiVm cuv tat ch cdc cd quan Nhd
nUdc, cuv cdc cap, cdc nghnh d trung tUdng, cung nhU d dia phUdng. NhUng

do xuat pCat tU vi tri, tinh chat phdp ly, chUc nhng, tham quyVn cua cdc cd
quvn chinh quyVn dia phUdng, nVn chinh quyVn dia phUdng cd vai trd dhc

biVt quvn trong trong viVc bho dVm thi hdnh Hien phdp vd phdp luVt d dia

phUdng. Hien phdp 1992 vd Luht to chUc HDND vd UBND nVm 1994 quy
dinh:

- CVn cU vdo Hien phdp, luVt vd cdc vVn bhn cuv cd quvn Nhd nUdc

cap trvn, "HDND quyet dinh cdc bien phdp bao dam thi hdnh nghiem chinh
Hien phdp vd phdp luat d dia phudng..." (DiVu 120 Hien phdp 1994; Khohn

1 DiVu 17 LuVt nhm 1994);

- UBND "chiu trdch nhiem to chitc, chi dao vd kiem tra viec thi hdnh

Hien phdp, luat, cdc van ban cua cdc cd quan Nhd nude cap tren vd nghi
quyet cua HDND cung cap" (DiVu 123 Hien phdp 1992; DiVu 41 LuVt nVm
1994);

- ThUdng trUc HDND "Don doc, kiem tra UBND cung cap vd cdc cd

quan Nhd nude khde d dia phUdng thuc hien cdc nghi quyet HDND", "tiep



14

nai, to cao cua cong dan..." (Dieu 32 Luat nam 1444);

- Cdc Ban cua HDND "Giup HDND giam sat co quan Nhd nttdc, to
chtfc kinh te, to chtfc xa hoi, dem vi vu trang nhan dan trong viec thi hdnh

Hien phap, luat, cdc van ban cua ccf quan Nhd ntfdc cap tren vd nghi quyet
HDND cung cap" (DiCu 34 Luat nam 1444) v.v.

Cac cci quan chinh quyCn dia phttcing cO quan hC gdn bo mat thiet vdi
nhan dan, thtidng xuyCn vd trite tiep quon ly coc linh vic kinh tC-xa hoi d

dia phiiCing, tao diCu kiCn bao dam cho cdc cci quan, to chtic vd cong dan
thtic hiCn trCn thtic te cdc quyen vO cdc nghia vu phop ly cua minh theo quy

dinh HiCn phap vd phdp luat. Vi vay, chinh quy£n dia phttcing cO vai trO chu
yeu vd trtfdc het trong viCc bao dam thi honh Hien phdp vo phdp luat d Oia
phttcing. DiCu nay la Oo:

Trttdc het, HiCn phop vd phdp luat dttCie thitc hiCn thong qua 4 hinh

thtic chu yCu sau:

- Tuan thu phdp luat, trong dd cdc chu thC’ kiCm che, giti minh khong
ldm nhting gl md phdp luat cam hodc khong cho phdp;

- Chap hdnh phdp luat, trong 00 cdc chu the thitc hiCn cdc nghia vu


phdp ly theo quy dinh cua phdp luat;
- St dung phdp luat (hay con goi la van dung phdp luat), trong 00 cdc

chu the ltia chon kha nang thitc hiCn cdc quyCn cua chu the’ duCie phdp luat
quy dinh;

- Ap dung phdp luat Id hinh thtic thitc hiCn phop luat, trong 00 cdc cci
quan Nhd nitdc, hodc ngtidi dai 0iCn cd tha’m quyen cua cci quan Nhd ntidc


15

chtfc cu the nham giai quyet cac quyCn, nghia vu hay teach nhiCm phdp ly

doi vdi cd nhan, to chute dd.
Bon hinh thdc thdc hiCn phdp luat nOi trCn, trong khoa hoc phdp ly d
ViCt Nam, cung nhd d cdc nddc dCu c6 std thOng nhat thtda nhan [79-tr.449-

tr.451]; [86-tr.636-664]; [112-tr.204]; [126-tr.312-tr.313] ...v.v.

Xuat phat ttT vi tri, tinh chat, chdc nang va tha’m quyCn cua cdc cd
quan chinh quyCn dia phitdng, nCn chinh quyCn dia phitdng bang toan bo

hoat dOng cua minh bao dam cho cdc cd quan, tO’ chdc va cd nhan d dia
phttdng thtte hiCn cdc quy dinh cua Hien phdp va phdp luat thOng qua tat ca
cdc hinh thdc ndi trCn.

Mat khac, bao dam thi hdnh Hien phdp va phdp luat dddc hiC’u la
toau bo nhdng bien phdp, phlecrug thdc, phtlng tien ddOc cdc cd quan Nhd

nudc co tham quyen sd dung thong qua cdc hinh thdc hoat dong Wong dng

vdi chdc nang, nhiem vu, quyen han (tham quyen) cua minh nhdm bien cdc
quy dinh cua Hie'n phdp vd phdp luat thanh hien thdc trong cuoc song. Do co
the’ Id bien phdp thuyet phuc (nhtf: tuyCn truyCn, van dong, gido due...),
hodc bien phdp cddng che (nhtt: bit buOc thtte hiCn quyet dinh phdp luat, dp

dung cdc che tdi, cdc biCn phdp cddng che hdnh chinh, cdc biCn phdp ttd
phdp khde...).

Phddng thtdc bao dam thi hdnh Hien phdp vd phdp luat co thC’ thong
qua hoat dong mang y nghia tich cite cua cdc cd quan Nhd nddc (hoat dOng
chap hanh-dieu hdnh) nham tao diCu kiCn vd bao dam cho cdc cd quan, to
chdc vd cdc cd nhan (chu the quan hC phdp luat) thdc hiCn cdc hdnh vi hdp

phdp, phu hdp vdi yCu cau, ddi hoi cua phdp luat. D6 Id viCc cdc chu the

phdp luat thdc hiCn trCn thdc te cdc quyCn, cdc nghia vu phdp ly cua minh,
hodc khong thdc hiCn hdnh vi phdp luat cam, khOng cho phdp.


12

Bao dam thi hanh phap luat con thong qua hoaLOong bao ve phap

luat cua cd quan Nha ntiOc co tham quyCn, ma hau qua hoat dong ndy Id
mang tinh tieu cue doi vdi mot so chu thC’ quan he phap luat cd lien quan,
nhti dp dung cac che tai co tinh trting phat doi vdi cd nhan, to chtic 0a thtic

hiCn hanh vi vi pham phap luat nham bao ve va khdi phuc cdc quyCn, ldi


ich hop phdp bi xam pham...
Can nhan manh rang, trong cdc biCn phdp va tinh chCt hoat dong bao

dam thi hdnh HiCn phop vd phdp luat ndi trCn, biCn phdp thuyet phuc vd
hoat dong mang y nghia tich cite do cdc cd quan Nhd ntidc tiCn hdnh phai

dtidc coi Id chu yeu vd trudc het.

Tat ca cdc cd quan Nhd ntidc d trung tidng, cung nhti d dia phtidng
dCu co vai tro quan trong trong viCc thtic hiCn cdc biCn phdp bao dam thi
honh Hien phdp vd phop luat d dia phtidng, phd hdp vdi tinh chat, chtic
nang, tha’m quyCn vd hinh thtic hoat dong ttidng ting. Nhting khac vdi cdc cd

quan Nhd ntidc d trung tidng vd cdc cd quan bao vC phdp luat d dia phtidng
(Tod On vd ViCn kiC’m sdt), hoat dong cua cdc cd quan chinh quyCn dia

phtidng trong viCc bao dam thi hdnh Hien phdp vd phop luat la true tiep, cu
the, thudng xuyen vd toan dien nhat. DiCu ndy the hiCn d nhting OiC’m chu
yeu sau day:
Mot la, Hoat dong bao dam thi hdnh Hien phdp vd phdp luat cua

chinh quyCn dia phtidng gan liCn vdi chtic nang trtic tiCp to chtic vd quan ly

cdc linh vtic chinh tri, kinh te, van hod-xa hoi, an ninh-quoc phong, trat ti­
an toan xa hoi... d dia phtidng. NguyCn tac hien dinh cua quan ly Nhd ntidc
Id bang phdp luat. Thtic hiCn nguyCn tOc ndy, trtidc het chinh cdc cd quan

chinh quyCn dia phtiOng phai chap hdnh nghiCm chinh cdc quy dinh cua
HiCn phdp, luat vd van ban cua cdc cd quan Nhd ntidc cap trCn trong to

chtic vd hoat dong cua minh.