Grymuso a Chyfrifoldeb: Pwerau Deddfwriaethol I Gryfhau Cymru

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Grymuso a Chyfrifoldeb: Pwerau Deddfwriaethol I Gryfhau Cymru Grymuso a Chyfrifoldeb: Pwerau deddfwriaethol i gryfhau Cymru Mawrth 2014 Cynnwys Rhagair 1 Pennod 1 – Ein cylch gwaith a’n dull gweithredu 3 Pennod 2 – Y trefniadau datganoli ar hyn o bryd 11 Pennod 3 – Egwyddorion ar gyfer datganoli yng Nghymru 25 Pennod 4 – Model datganoli 30 Pennod 5 – Cysylltiadau rhwng y llywodraethau 45 Pennod 6 – Pwerau economaidd 60 Pennod 7 – Trafnidiaeth 66 Pennod 8 – Adnoddau naturiol 77 Pennod 9 – Darlledu 98 Pennod 10 – Plismona a chyfiawnder 106 Pennod 11 – Iechyd a nawdd cymdeithasol 131 Pennod 12 – Materion pellach 138 Pennod 13 – Cynulliad Cenedlaethol Cymru a Senedd y Deyrnas Unedig 154 Pennod 14 – Cymhwysedd y sector cyhoeddus 170 Pennod 15 – Gweithredu 176 Pennod 16 – Yr effaith gyffredinol ac edrych tua’r dyfodol 181 Rhestr lawn o argymhellion 192 Atodiad A – Bywgraffiadau’r Comisiynwyr 201 Atodiad B – Tystiolaeth a gafwyd 206 Atodiad C - Atodlen 7 o Ddeddf Llywodraeth Cymru 2006 (o 1 Ionawr 2014) 214 Llyfryddiaeth 227 Pwerau deddfwriaethol i gryfhau Cymru | i ii | Grymuso a Chyfrifoldeb Rhagair Cred sylfaenol y Comisiwn y mae’n fraint gennyf ei gadeirio yw bod pŵer yn dod â chyfrifoldeb yn ei sgîl, ac mai er budd y dinesydd yn unig y dylid rhoi’r pŵer hwnnw ar waith. Croesawyd ein Hadroddiad Cyntaf a oedd yn ymdrin â materion ariannol yn y cyd-destun hwnnw. Mae cynfas yr Adroddiad hwn yn ehangach, ond yr un syniadau sy’n britho’r cyfan sef grymuso, cyfrifoldeb a Chymru gryfach. Ar sail egwyddorion clir, rydym wedi cyfleu ein gweledigaeth ar gyfer pwerau newydd i Gymru er mwyn gallu rhoi dewisiadau deddfwriaethol priodol ar waith ar lefel Cymru, er budd pobl Cymru a hefyd er budd y Deyrnas Unedig ehangach. Rydym hefyd wedi argymell sut y dylai sefydliadau llywodraethol a seneddol yng Nghaerdydd ac yn Llundain gydweithio. Mae’r Adroddiad hwn o raid yn ymdrin â phrosesau. Sylweddolwn fod gan bobl fwy o ddiddordeb mewn canlyniadau. Ein bwriad oedd setlo’r cwestiynau ynglŷn â phrosesau gan obeithio y bydd ein hargymhellion yn cyffroi pawb sy’n dymuno gweld, yn hytrach na thrafodaeth sydd yng ngolwg rhai yn drafodaeth hesb braidd am rannu pwerau, drafodaeth am y ffordd orau o roi’r pwerau hyn ar waith. Mae wedi bod yn bleser gweithio gyda’m cyd-Gomisiynwyr. Mae eu profiad, eu doethineb a’u meddwl agored wedi bod yn hanfodol i’n gwaith. Roedd cyfraniad ein staff medrus ac ymroddedig yr un mor hanfodol. Mae sefydliadau ac unigolion ledled Cymru a’r tu hwnt wedi bod yn hael eu cyngor inni. Mae’r Comisiynwyr wedi gwrando, darllen a thrafod dros fisoedd lawer. Yn sgîl yr ystyried hwnnw, gallwn unwaith eto gyflwyno Adroddiad unfrydol, gan haeru felly y caiff ein hargymhellion gefnogaeth eang. Yn y Rhagair i’n Hadroddiad Cyntaf, dywedais ei bod yn fraint ac yn gyfrifoldeb inni gael ein comisiynu gan Lywodraeth y Deyrnas Unedig i gynnig argymhellion a allai effeithio ar fywydau pob un o’n cyd-ddinasyddion yng Nghymru. Mae’r fraint a’r cyfrifoldeb wedi dwysáu yn ystod ail ran ein gwaith a ninnau’n benodol gyfrifol am gynnig argymhellion a fydd yn gwasanaethu pobl Cymru’n well. Ond rydym yn ffyddiog ein bod wedi cyflawni ein comisiwn, ac rwyf unwaith eto’n falch o gymeradwyo ein Hadroddiad i Lywodraeth Ei Mawrhydi i’w roi ar waith. Paul Silk Mawrth 2014 Pwerau deddfwriaethol i gryfhau Cymru | 1 2 | Grymuso a Chyfrifoldeb Pennod 1 – Ein cylch gwaith a’n dull gweithredu 1.1 GOLWG GYFFREDINOL 1.1.1 Mae’r bennod hon yn rhoi braslun o gylch gwaith y Comisiwn, sut yr aethom ati a’n proses casglu tystiolaeth. 1.2 Y CEFNDIR A SEFYDLU’R COMISIWN 1.2.1 Ers creu Cynulliad Cenedlaethol Cymru yn 1999, mae datganoli yng Nghymru wedi esblygu drwy nifer o gamau. Mae’r arolygon barn yn awgrymu’n gyson bod y Cynulliad Cenedlaethol a Llywodraeth Cymru wedi cael eu derbyn yn awr yn rhan o dirwedd wleidyddol Cymru. Mae’r trefniadau datganoli drwy’r Deyrnas Unedig hefyd wedi newid ac wedi’u hadolygu dros y pymtheng mlynedd diwethaf. Trafodir y newidiadau hyn yn fanylach ym Mhennod 2. 1.2.2 Ar ôl Etholiad Cyffredinol y Deyrnas Unedig ym mis Mai 2010, ffurfiodd y Blaid Geidwadol a phlaid y Democratiaid Rhyddfrydol lywodraeth glymblaid. Un o ymrwymiadau Cytundeb y Glymblaid, a dibynnu ar ganlyniad refferendwm Mawrth 2011 ar bwerau deddfu sylfaenol i’r Cynulliad Cenedlaethol, oedd y byddai proses debyg i Gomisiwn Calman1 yn cael ei sefydlu ar gyfer Cymru. 1.2.3 Ar 3 Mawrth 2011, pleidleisiodd y cyhoedd yng Nghymru o blaid rhoi pwerau deddfu sylfaenol i’r Cynulliad Cenedlaethol. Sefydlwyd ein Comisiwn yn briodol gan Lywodraeth y Deyrnas Unedig ychydig fisoedd wedyn, ar 11 Hydref 2011. Roedd Llywodraeth Cymru a phob un o’r pedair plaid wleidyddol a gynrychiolir yn y Cynulliad Cenedlaethol yn cefnogi sefydlu’r Comisiwn, a’i gylch gorchwyl. 1.3 CYLCH GWAITH 1.3.1 Rhannwyd cylch gwaith y Comisiwn yn ddwy ran. Disgrifir ein Cylch gorchwyl ym Mlwch 1.1 isod. 1 Sefydlwyd y Comisiwn annibynnol ar Ddatganoli yn yr Alban (‘Comisiwn Calman’) yn 2008 i edrych ar ddarpariaethau Deddf yr Alban 1998 ac i argymell newidiadau i’r setliad datganoli yn yr Alban i gryfhau ei lle yn yr Undeb. Fe’i trafodir ymhellach ym mharagraff 2.3.6 o’r dyddiad hwn. Pwerau deddfwriaethol i gryfhau Cymru | 3 Blwch 1.1: Cylch Gorchwyl Sefydlir Comisiwn annibynnol i adolygu’r trefniadau ariannol a chyfansoddiadol presennol yng Nghymru. Bydd yn gwneud ei waith mewn dwy ran: Rhan I: Atebolrwydd Ariannol Adolygu’r achos dros ddatganoli pwerau cyllidol i Gynulliad Cenedlaethol Cymru ac argymell pecyn o bwerau a fyddai’n gwella atebolrwydd ariannol y Cynulliad, sy’n gyson ag amcanion cyllidol y Deyrnas Unedig ac yn debygol o dderbyn cefnogaeth eang. Rhan II: Pwerau Cynulliad Cenedlaethol Cymru Adolygu pwerau Cynulliad Cenedlaethol Cymru yng ngoleuni profiad ac argymell diwygiadau i’r trefniadau cyfansoddiadol presennol a fyddai’n galluogi Senedd y Deyrnas Unedig a Chynulliad Cenedlaethol Cymru i wasanaethau pobl Cymru’n well.2 Rhan I 1.3.2 Ar gyfer Rhan I, gofynnwyd inni ystyried pwerau ariannol y Cynulliad Cenedlaethol i gryfhau ei atebolrwydd. Ar 19 Tachwedd 2012, cyhoeddwyd ein hadroddiad Grymuso a Chyfrifoldeb: Pwerau ariannol i gryfhau Cymru. Roedd yr adroddiad yn unfrydol. Gwnaeth 33 o argymhellion am bwerau trethu a benthyca i’r Cynulliad Cenedlaethol ac ar faterion ariannol cysylltiedig. 1.3.3 Roeddem yn falch bod yr adroddiad wedi ennyn cefnogaeth gan bob plaid a bod y Cynulliad Cenedlaethol wedi’i gymeradwyo’n unfrydol. Cafodd groeso’n fwy cyffredinol hefyd, gyda chynrychiolwyr o fyd busnes a grwpiau budd eraill yn ymateb yn gynnes iddo. Cafwyd ymateb cychwynnol i’r adroddiad cyntaf gan Brif Weinidog Prydain a’r Dirprwy Brif Weinidog pan ymwelsant â Chaerdydd ar 1 Dachwedd 2013,3 a chyhoeddwyd ymateb ffurfiol ar 18 Tachwedd 2013.4 Roedd 31 o 33 argymhelliad y Comisiwn yn rhai i Lywodraeth y Deyrnas Unedig eu hystyried ac fe dderbyniwyd 30 yn llwyr neu’n rhannol. Mae Llywodraeth Cymru wedi derbyn yr argymhellion i sefydlu Trysorlys yng Nghymru, ac mae’r Cynulliad Cenedlaethol wedi dechrau ar waith i gryfhau gallu’r Aelodau i graffu ar ragor o bwerau ariannol. Edrychwn ymlaen at weld ystyried bil drafft Llywodraeth y Deyrnas Unedig.5 2 Mae’n mynd rhagddo i ddweud: “Wrth ymgymryd â Rhan II, dylai’r Comisiwn: • edrych ar bwerau Cynulliad Cenedlaethol Cymru, ac yn benodol: - y ffin rhwng yr hyn sydd wedi’i ddatganoli a heb ei ddatganoli; - a ddylid diwygio’r ffin ar y pryd hwn; ac - unrhyw oblygiadau trawsffiniol i ddiwygiadau o’r fath; • ymgynghori’n eang ar unrhyw ddiwygiadau arfaethedig i’r ffin bresennol; • gwneud argymhellion ar unrhyw ddiwygiadau i’r setliad sy’n debygol o gael cefnogaeth eang; ac • ystyried a gwneud argymhellion ar sut orau i ddatrys y materion cyfreithiol ac ymarferol yn deillio o’r diwygiadau hynny. Ni fydd y Comisiwn yn ystyried … yn rhan II, strwythur Cynulliad Cenedlaethol Cymru, gan gynnwys materion yn ymwneud ag ethol Aelodau’r Cynulliad”. 3 Gwefan GOV.UK (2013) - Stori newyddion - Powers for Wales in biggest devolution in decades 4 Llywodraeth Ei Mawrhydi: Grymuso a Chyfrifoldeb: Datganoli pwerau ariannol i Gymru, 18 Tachwedd 2013 5 Cyhoeddwyd Bil Cymru (drafft) ar 18 Rhagfyr 2013. 4 | Grymuso a Chyfrifoldeb Rhan II 1.3.4 Ar ôl cyhoeddi ein hadroddiad cyntaf, dechreuasom weithio ar Ran II o’n cylch gwaith yn adolygu pwerau anariannol a phwerau ehangach y Cynulliad Cenedlaethol. 1.3.5 Aethom i’r afael a’n tasg â meddwl agored. Roeddem ni’r Comisiwn yn teimlo mai ein cyfrifoldeb oedd ystyried yn llawn y safbwyntiau a gyflwynwyd inni a bod hyn yn ddyletswydd arnom i’r rheini a oedd wedi rhoi tystiolaeth inni. Roedd y ‘diwygiadau i’r trefniadau cyfansoddiadol presennol’ a argymhellir gennym o dan ein Cylch Gorchwyl yn ceisio adlewyrchu hyn. 1.3.6 Drwy gydol ein gwaith yn Rhan II, rydym wedi pwysleisio, yn hytrach nag asesu sut y mae polisïau’n cael eu gwireddu, mai ein tasg ni oedd ystyried ymhle y dylai’r pwerau fod. Aelodaeth 1.3.7 Penodwyd Paul Silk gan Ysgrifennydd Gwladol Cymru i gadeirio’r Comisiwn. Ymunodd saith Comisiynydd arall ag ef yn Rhan II.6 Penodwyd pedwar Comisiynydd yn annibynnol ar y pleidiau gweinyddol (Trefor Jones CBE CVO, Yr Athro Noel Lloyd CBE, Helen Molyneux a’r Cadeirydd), a phenodwyd pedwar gan y pleidiau gwleidyddol yn y Cynulliad Cenedlaethol (Nick Bourne, a ddaeth wedyn yn Arglwydd Bourne o Aberystwyth, enwebai’r Ceidwadwyr Cymreig; Jane Davidson, enwebai Llafur Cymru; Dr Eurfyl ap Gwilym, enwebai Plaid Cymru; a Rob Humphreys, enwebai Democratiaid Rhyddfrydol Cymru).
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