6Viet Nam, sau khoang mdt thd ki (thd

KINH NGHIEM XAY DUNG VA SlT DUNG D O I NGU QUAN LAI TRONG NEN HANH CHINH

VIET NAM THCJI KI PHONG KIEN

Nguydn Thi Viet Huong*

6

Viet Nam, sau khoang mdt thd ki (thd ki X) dinh hinh bd may nha nudc, chd dp phong kie'n da dupc xlc lap va phit trien vdi sy tdn tai kd tid'p nhau cua d c tridu dai keo dai hang nghin nam: md dau la tridu Ly (the ki XI), tidp dd la tridu Trln, Hd, Le, Tay Son va khep lai vdi tridu Nguydn (gida the' ki XIX). Trong qua trinh dd, mac diu cd mdt sd giai doan d t cd ngln do sy tranh gianh quydn lyc giua d c tap doan phong kid'n, nhung nhin chung thd che nha nudc phong kie'n kha dn dinh vdi md hinh Nha nudc quan chu chuydn chd Trung uong tap quydn vdi mdc dp chuydn chd' khPng cao. The chd' nha nudc dd vda cd ydu td tid'p thu md thdc td chdc Nha nudc phong kie'n Trung Qudc (vdi co cau bd mIy nbl nudc thdi Dudng vl he thd'ng quan che' thdi Td'ng), vda phan Inh sy chu dpng thid't ke' phu hpp vdi nhifng dac diem kinh td - xa hpi cua Viet Nam.

Md hinh bp mIy nha nudc ndi trdn dupc van hanh nhd dpi ngu quan lai. Cung vdi vi tri quydn lyc cua ngdi vua, quan lai la ydu td chfnh ye'u dam bao tfnh ben vimg cua the chd' quan chu nhd vao vide duy tri hieu qua boat dpng cua gudng mIy nha nudc.

Quan tgi la mpt khai niem ghep dupc tao thanh td hai thanh to: quan va Igi.

Quan la ngudi cd chdc, gid mpt trpng trach trong bp mIy chfnh quyen phong kid'n, chiu trich nhiem vd mpt khau nao dd trong boat dpng cua bd mIy nha nudc. Quan cung ddng thdi 11 ngudi cd phdm hdm, cd tu va cd the cd tudc.

Trong xa hpi phong kid'n Viet Nam, quan cd thd xuat than td quy tdc hoac td binh

* TS. Luat hpc. Phd Vien trudng Vien Nha nudc va Phap luat.

dan. Tuy nhien, vide xlc dinh loai quan khdng can cd vao ngudn gd'c xuat than ma dua chu ydu vao vi trf cdng vide dam trach.

Vi vay, nhin chung, quan dupc chia lam hai ngaeh van, vo vl gdm ba loai: quan dgi thdn;

quan trieu dinh (quan trong); quan d cdc dia phuang (quan ngoai).

Lgi (thudc lai) la ngudi gidp vide cho d c quan trong d c co quan nha nudc thdi phong kie'n td d p huydn trd ldn. Thupc lai thudng khdng cd pham ham, nhung phai dap dng mdt sd tieu chuIn nhlt dinh khi tuyen chpn va dupc hudng luong theo vi trf cong vide dam trich. Vd co ban, thupc lai dupc phan lam ba loai: lgi dieh, la ngudi lam nhdng cong vide phyc vy thong thudng trong d c ca quan nbl nudc td d p huydn trd ldn; lgi dien, la ngudi lam d c cdng vide van thu trong d c CO quan nbl nude quan trpng d trieu dinh ( d c Bp, Khoa, Co mat vien ...); lgi muc, la nhan vidn tryc tie'p gidp tri huydn giai quye't d c cdng vide nha nudc va trong sd d c thupc lai thi bp phan nay thudng dupc phong phim him.

Nhu vay, vd co ban cd the bieu quan lgi Id nhifng ngifdi hogt dpng trong bp mdy nhd nude, ddm trdeh nhimg cdng viec nhdt dinh, duac phdn logi theo phdm trgt hodc logi cong viec vd duac huang luang. Theo d c h hieu dd, vd dai the, khai nidm quan lgi trong xa hpi phong kid'n Viet Nam gin tuong ddng vdi khIi nidm cdng chifc nhd nudc a nudc ta hidn nay.

Tren thyc te, sd lupng quan lai trong bp may nha nudc ta thdi phong kid'n khdng that sy ddng due. Vao thdi Ld, tdng so quan la 5370 ngudi, trong dd cd 2755 quan trieu dinh vl 2615 quan tri nhlm d 13 Dao Thda tuydn (tdc la toan bd lanh thd nudc ta vao thdi ki

NHA NUdc VA PHAP LUAT SO 11/2008

nly); vao thdi Nguydn, khi lanh thd nudc ta da trai dai td Myc Nam Quan ddn mui Ca Mau gdm 30 tinh va phu Thda Thien thi so lupng quan cung chi tang len ddn 12.000 ngudi. Mac diu vay, dpi ngu quan lai ludn dupc xem la giuong cdt cua qud'e gia, la chd dya can ban cda nha vua trong vide didu hanh chinb sy, la lyc lupng quye't dinh hieu qua cda vide tri nudc, an dan. Giai d p phong kidn Viet Nam luon quan niem ring: "Minh chiia tien tri lgi, nhi hdu tri ddn" (Vua lo viec tri quan lai trudc, sau mdi dd'n tri dan). Chinh vi vay, Nbl nudc phong kidn luon cd glng trong vide tim kidm d c giai pblp, d c ke' sach de xay dung, nang cao nang lyc va trong sach hoi dpi ngu quan lai. Dac bidt, vin dd nay dupc xem la npi dung quan trpng nhlt cua hai cupc d i d c h hanh chinh quy md ldn da didn ra dudi thdi ki phong kid'n (do vua Ld Thanh Tdng va vua Minh Menh tid'n banh).

L Thue tidn xay dung va su dung dpi ngu quan lai trong xa hpi phong kien Viet Nam

/ . Ddo tgo, tuyen chpn quan Igi Ve tieu chudn tuyen chpn

Vide tuydn chpn quan lai trong xa hdi phong kid'n Viet Nam dupc dya tren hai tidu cbuin nha't quin la ddc va tai.

Difc (dao ddc) la tidu chuIn diu tien hdt sdc quan trpng. Nbl nudc phong kid'n Viet Nam xae dinh dao ddc cua ngudi lam quan thdng qua nhdng bieu hien d nhan d c h va d dao ddc cai tri (thyc banh nhan d c h ) theo quan niem dao ddc nho gilo. Trdn tinh thin do, nhin d c h cda ngudi lam quan phai la nhan d c h cua ngudi quan td ma tyu trung lai la d long trung va long nhan, bao him d c h hieu: trung la trung vdi vua, md rdng ra la trung vdi nudc vi vua ddng nghTa vdi nudc;

nhdn la thuong ngudi, md rdng ra la thuong dan. Ngudi quan td phai la ngudi sin long ginb vie cdng vide qudc gia dai sy de thyc hanh long trung va long nhin cda minh chd khdng coi dd la mdt nghd dd kidm sdng.

Trong qua trinh thyc hanh nhin d c h thi dao ddc cua ngudi lam quan phai dupc the hien tap trung d uy tin trong nhin din, d khdi

lupng nhdng cdng viec da lam cd lpi cho nhan din. Nhu vay, suy cho cung, dao ddc dupc xae dinh nhu mpt tieu chf de tuyen chpn ngudi lam quan chinh la sy hy sinh, la y thdc day dd vd bdn phln, la thai dp chuyen cln trong cdng viec, la thai dp phyc tdng vd dieu kien, dat lpi fch cda vua, cda din len tren lpi fch c l nhan, tham chf khdng quan tam de'n lpi fch c l nhin, chap nhin "lo trudc d i lo cua thien ha, vui sau d i vui cua thien ha".

Tdi cda ngudi lam quan trudc hdt phai the hien d tai hpc, thd hien d sy tinh thdng kinh sIch nho giao, d su thdng thudc Han hpc, sd hpc, van hpc, d sy gidi dd'i dap, binh luan tho phd va d kha nang dd xuat d c kd' sIch tri nudc an din. Tai hpc dupc minh chdng cy the bing hpc vi. Tren thyc te, Nha nudc phong kie'n ludn xem hpc vi la can cd quan trpng dd xem xet tuydn chpn va bd tri quan lai vao nhdng vi trf tuong xdng, dac biet la td khi nho giao thinh dat, khoa cd trd thanh phuong thdc chfnh de tuydn bd quan lai. Chlng ban, d thdi Le, Nha nudc chi lay nhdng ngudi dd tie'n sT de bd vIo d c chdc quan dung dau d c Bp d tridu dinh va ddng diu d c dan vi hinh chfnh ldn, cdn ddi vdi d c quan dimg diu d c phd, huyen cdng liy ngudi dd dat trong d c ki thi Hpi hoac dd td trudng trong d c ki thi Huong (Huong cdng), tham chi thupc lai d d c nha cdng chpn lay td nhdng ngudi dd dat trong d c ki thi Huong hay thi Hdi. De'n thdi vua Minh Menh (nha Nguydn) Nha nudc da quy dinh thanh che dp: quan lai nhlt thie't phai qua dao tao, quan td d p huydn trd len phai cd trinh dp cir nhan, quan tai trieu dinh va quan ddng diu d c tinh, phu phai dd dat tai d c ki thi Dinh.

Trudng hpp khdng cd hpc vi, tieu chuIn vd tai cua ngudi dupc tuyen chpn lam quan phai dupc bdc Ip d mpt kha nang khae nhu:

cd cdng lao dac biet, cd kha nang chi huy quan sy, cd kha nang bay dat kd sach, cd kha nang thuang thuye't, cd kha nang dac bidt ve kT nghe hay la con em cda d c dai thin... Noi each khae, khi khdng cd hpc vi, tieu chuIn vd tai cd thd dupc xae dinh d nang lyc thuc td. Tuy vay, thdng thudng thi Nha nudc phong kie'n khdng bd tri nhdng ngudi nay

i-mMi:

a

^{^#-|'V;-} MINH NGHIEM XAY DUmVA ...

true tie'p chiu trach nhiem ve d c cdng vide hanh chinh (nhu gid vi tri phy trach d c Bd hay ddng diu d c don vi hanh chinh ldn) ma phln ldn chi cho hp gid nhihig chdc quan tu vin cao d p hay dam trach cong vide thanh tra, kiem tra boat dpng cda quan lai.

Ve phuang thifc tuyen chpn quan lgi Trong xa hdi phong kien Viet Nam, dpi ngu quan lai dupc hinh thanh td nhidu ngudn thPng qua vide tuydn chpn bing d c phuang thdc sau:

- Tie'n cif. la d c h ma mdt vidn quan tid'n cd mdt ngudi cd tai ddc hay cd cdng lao de xem xet bd trf vao mdt vi tri thich hpp trong he thd'ng quan trudng. Ngudi dupc tid'n cd thudng khdng qua dao tao, khdng cd hpc vi, nhung cd nang lyc thyc te.

- Bdo cd. la hinh thdc tuyen bd gin gid'ng nhu tidn cd. Ngudi dupc tuyen bd do mdt vien quan de xuat va bao lanh, nhung dd thudng la nhdng ngudi da qua dao tao, cd hpc vi va dupc gidi thieu tren co sd thang chdc hoac bd chdc mdi nhlm bd sung vao nhung chdc quan bidn dang bi khuyet.

- Tap dm (Im sung): la binh thdc tuyen bd mang tfnh chat kd' nhiem dya trdn tudc pham cua cha, dng ma xd'p dat vi trf cho con, chau trong hd thd'ng quan trudng. Tuy nhidn, Nha nudc phong kie'n thudng chi Ip dyng phd bid'n binh thdc nay d giai doan diu cua d c trieu dai khi cln phai tra cdng cho bp phln quy tdc phong kie'n va cung chi cho phep con chau d c quy tpc dupc gid nhung chdc vu va tudc vi thlp ban so vdi cha dng minh, ddng thdi cung cd sy luu y nhlt dinh tdi tii nang va dao ddc cua nhdng ngudi dupc tuyen bd kbi xd'p dat chdc vy.

- Khoa cir. la phuong thdc tuyen bd quan lai bing d c h chpn nhung ngudi dd dat vdi d c mdc dp khlc nhau trong d c ki thi nho hpc dd xdp vao nhdng chdc vy tuong dng.

Phuong thdc nay tuy xuat bidn mudn ban d c phuong thdc tren nhung dan din trd thanh phuang thdc chu yd'u dd hinh thanh dpi ngu quan lai thdi phong kid'n d nudc ta.

Vdi phuong thdc khoa cd, quy trinh gia nhip quan trudng la.- hpc tap, thi cif, tham

chinh. Nhu vly, co sd cua khoa cd la dao tao va thi cd. Day la van dd dupc Nha nude phong kidn Viet Nam dac biet quan tam.

Hoat ddng dao tao cua Nha nudc phong kid'n tap trung d hai phuong didn: xay dyng he thd'ng trudng ldp dao tao va xae dinh ndi dung dao tao. He thd'ng trudng ldp dao tao da dupc hinh thinh ngay td dau chd dp phong kie'n.

Nam 1070, nha Ly da cho lap Qud'e td giam d kinh dd danh cho con em trong hoang tdc va vd sau cho phep d con d i nha binh dan theo hpc. Nha Nguydn cdn md them mdt so nha hpc danh rieng cho con chiu hoang tpc. Tai d c dia phuang td d p Ld (Dao, Tinh) dd'n d p Phu, Huyen ddu cd he thd'ng d c trudng cdng, ddng thdi Nha nudc cho phep va khuye'n khfch lap d c trudng tu d d c lang, xa. Tai tat d d c CO sd dao tao, ndi dung hpc tap la kinh sIch nho gilo, gdm Td thu, Ngu kinh. Ngoai ra hpc trd cdn phai hpc sach cua Bach gia chu td, hpc llm toln, hpc vd, hpc thien van, dia ly ddng thdi trang bi d c kid'n thdc Han hpc, sd hpc, dan tpc hpc.

Thi cd la phuang thdc dd Nbl nudc dinh gia trinh dp hpc van qua dd xlc dinh hpc vi.

Vide thi cd dupc Nha nudc phong kidn quy dinh rlt chat che vl dupc thyc hien nghiem tuc. De cd dupc hpc vi, ngudi di hpc phai lan lupt trai qua d c ki thi: sat bach, khao bach, thi Huong, thi Hpi, thi Dinh, trong dd ba ki thi sau la ba ki thi chuih. Ki thi Huong dupc td chdc d Phu, liy dd Huong cdng (Cd nhan) va Tu tai (Sinh dd). Ki thi Hpi dupc td chdc d kinh dp, liy dd Tid'n sT va Phd Bang (khi Nha nudc khdng td chdc tbi Dinh) hoac xlc dinh nhirng ngudi trdng trudng - la dieu kien dd di thi Dinh (khi Nha nudc td chdc ki thi Dmh).

Ki thi Dinh dupe td chdc tai san dien cua nha vua, do vua tryc tid'p ra de va van dip, liy dd Tam khdi, Hoang gilp va d c ddng tidn sT.

Vide td chdc thi cd cung din dupc quy dinh thanh che dp. Nam 1075, nha Ly td elide khoa thi diu tien vl sau dd td chdc 6 khoa thi khdng theo dinh ki. De'n nha Tran da dinh rd Id thi Tidn sT (7 nam mdt khoa) vl td nam 1396 dinh ra le thi Huang, thi Hdi (nam trudc thi Huong, nam sau thi Hdi). Bit diu td nha Le trd di, vide thi cd dupc quy dinh rat quy

NHA NUdc

VATHAPLUATSO

imooms

cu: hang nam ddu td chdc thi Huong, 3 nam mdt lin td chdc thi Hdi va nhdng ngudi dd ki thi Hdi ddu dupc vao thi Dinh. Ngoai d c hinh thdc thi van sIch ndi tren, Nha nudc phong kidn cdn td chdc d c ki thi vie't chd va lam tinh de chpn thupc lai.

Lien quan ddn d c phuong thdc tuyen chpn quan lai trong thdi ki phong kidn, cd mdt van dd dat ra d n dupc lam rd: vide mua quan, bdn tudc cd phai la mdt hien tupng phd bidn trong xa hpi phong kie'n va cd trd thanh mpt trong nhihig phuong thdc dd hinh thanh dpi ngu quan lai phong kie'n hay khdng? Thyc te' cho thay day la hidn tupng cd thyc da dupc sd sach ghi chep lai khi cy the. Chang ban: vao thing tam nam Nham Dan, nien hidu Dai tri (1362) nha vua xud'ng chie'u cho d c nha giau quydn thdc phit chan cho din ngheo rdi ban cho pham tudc cd tang bac khlc nhau; thing tim nam At Mao nien hieu Long Khinh (1375) nbl vua ha chidu cho nhirng nha giau nop thdc vao Nha nudc rdi ban cho phim tudc cd dang ham khlc nhau; thing tam nam Canh Thin nien hieu Quang Thuan (1460) nha vua ha chidu cho quan dan nop thdc se giao cho quan tudc, cu thd: nop 200 hoc dupc ham Chanh that pham va chdc Tan quan, npp 150 hoc dupc ham Tdng that pham va chdc Tan quan, nop 100 hoc dupc ham Tdng bat phim vl chdc Tan quan. Tuy nhien, dly chi la giai pblp tinh the ma Nha nudc thi hanh khi d n tidn de cdu ddi cho dan hoac khlc phyc nhdng khd khan nha't thdi vd mat tai chfnh.

Nha nudc cung khdng that sy bd dyng nhdng ngudi cd tien mua quan tudc vao nhiing vi tri didu hanh cdng viec nha nudc, khdng giao cho hp nhirng nhiem vy nhlt dinh (chdc Tan quan la chdc vy khdng cd thyc quyen, chi khi nao cd vide thyc sy cln mdi dung ddn).

Do vay, cd thd khlng dinh hien tupng mua quan, ban tudc khdng phai la mdt ngudn de hinh thanh dpi ngu quan lai phong kid'n trong phln ldn thdi gian tdn tai cua chd dp phong kidn Viet Nam. Chi cd mdt giai doan ngln - khi chd dp phong kidn suy ydu reu ra do tinh trang tranh gianh quydn lyc lin nhau gida d c the lyc phong kidn va tinh trang bat tai, d lai

cua nhiing ngudi d m quydn - thi hien tupng nay trd thanh phd bidn va thuc sy trd thanh mdt phuang thdc de hinh thanh dpi ngu quan lai. Theo d c ghi chep trong chinh sd thi: nam Binh Thin nien hieu VTnh Hyu (1736) Trinh Giang ha lenh quan din ai nop tidn se dupc thang chdc va bd lam quan: nop 600 quan tien se dupc thang chdc mdt bac (td Luc phim trd xud'ng dd'i vdi quan trong tridu), nhan dan ai nop 1800 quan tidn se dupc bd thy chdc tri huyen; thing tu nam Canh TThan nien hieu VTnh Huu, Trinh Doanh ha lenh: ngudi nao nop tidn, thdc se dupe trao cho quan chdc.

Cac nhan dinh trong chinh sd cung cho ring:

"Luc a'y Giang choi bdi phdng tdng, cda cai ngay mdt hao mdn, ban quan mua tudc, khdng vide gi bin khdng lam. Vi thd ma sau nay sinh ra dai loan". Qua dd cung cd thd' tha'y ro hon thii dp cda giai d p phong kid'n hoan toan khdng ddng tinh vdi viec qua lam trong vide mua quan ban tudc.

Ve quy trinh tuyen chpn quan lgi

Trong bd mIy nha nudc phong kidn Viet Nam, CO quan chiu trich nhiem chinh trong vide tuyen chpn quan lai la Bd Lai. Vide tuydn chpn de bd khuydt vao nhdng chdc quan cdn dd trd'ng dupc tidn hanh thudng xuydn bang nam. Va theo dinh ki se co nhdng lin tuyen chpn, thuyen chuyen ldn.

Dd dam bao sy trung thyc, chinh xlc va hieu qua trong boat ddng tuyen chpn, Nha nudc phong kie'n quy dinh cy the quy trinh tuyen chpn nhu sau: thing 3, Bp Lai yet bang thong bao vd vide tuydn dung va thu nop don cda nhung nguai xin ra lam quan hoac de xuat cda nhdng ngudi tidn cd. Thing 7, Bp Lai tid'n hinh xet don va trong vdng mot thing phai holn thanh xong thd tyc xet dan.

Thing 8, Bd Lai de trinh danh sIch da xet

ldn nha vua. Sau khi dupe nha vua phe duyet,

danh sIch nhdng ngudi dupc chap nhan dupc

chuyen tra \e Bd Lai va Bd Lai cd trach

nhiem chuydn sang Lai Khoa dd Lai Khoa

solt lai lin cud'i va lam co sd de theo doi,

giim sit d c quan lai sau nay. Sau khi cd y

kid'n cua Lai Khoa, Bd Lai mdi tie'n hanh lam

lenh va chuydn tdi d c duang sy de thi hanh.

KINH NGHIIEMXAY DUNG VA ...

Ta't nhien, d c thu tuc ndi trdn la quy trinh chung. Trong thyc td cua chd dp quan chu, nha vua cd the ty quydn trao chdc vu hay pham tudc cho bit ki ngudi nao ma nha vua xet tha'y cd du kha nang dam trich mdt vi trf nao dd trong he thd'ng quan trudng phong kidn. Ddi khi, viec trao pham tudc chi don thuln la sy ban thudng ma khdng xult phit td nhu clu d n thid't cua cdng vide didu hanh chinb sy.

2. Su dung quan lgi

Vide sd dung quan lai trong thdi ki phong kid'n dupc the hidn tap trung d ba loai boat dpng chinh cda Nha nudc phong kid'n, bao gdm: 1/Bd tri, xd'p dat vi tri cua quan lai;

2/Didu chuyen quan lai va 3/Sat bach, danh gia, dai ngd quan lai. Ca ba mat boat ddng nay deu dupc quy dinh cu the va dupc thyc hien kha nghiem tuc hudng tdi muc tieu dat dupc hidu qua cao trong vide phit huy nang lyc cua dpi ngu quan lai.

Ve viee bd tri chife vu, xep dgt vi tri eiia quan lgi

Nha nude phong kie'n tid'n banh vide bd nhidm, de bat, sip xd'p vi trf cua quan lai dya can ban tren 4 can cd sau:

Mo/ Id, nhu clu cdng vide. Thdng thudng Nbl nudc phong kid'n chu truong dat vide rdi mdi dat chdc. Tren co sd dd, Nha nudc can cd vao so lupng cPng vide de d t cd sd lupng quan lai cho phu hpp vdi ydu clu thyc td. Trudng hpp cln ban chdc tudc de uu dai thi thudng xd'p vIo nhung chdc quan khdng cd thyc quydn.

Hai Id, pham ham. Nhu da ndi d trdn, nhin chung pham bam va chdc vy cua quan lai trong thdi ki phong kid'n thudng tuong xdng vdi nhau. Tuy nhidn, cung cd nhieu trudng hpp kbPng hoan toan nhu vay vi cdn tuy thudc vao nhihig can cd khlc. Ndi d e b khlc, sy tuong xdng gida chdc vu va phim ham cung chi mang tfnh tuong dd'i vi vay din tdi cd hidn tupng 11 d c quan cd pham ham cao, nhung chdc vy khdng ldn va ngupe lai.

Ba Id, nang lyc thyc td' cua ngudi lam quan. Ngay td khi dupc tuydn chpn vao he thd'ng quan trudng, nang lyc cua ngudi lam

quan da dupc the hien d hpc vi. Nhung de bd tri vao mdt chdc vy cy the, Nha nudc phong kidn can cd vao nang lyc didu hanh thuc te va qua dd xlc dinh dupc kha nang thich dng vdi cdng vide tai vi trf didu hinh chfnh sy cua mdi vidn quan nhlt dinh. Nang lyc didu hanh thyc td nly thudng dupc xae dinh chu yd'u thdng qua boat ddng khao bach cua Nha nudc hoac qua tidn cd. Vi vay, nhihig quan to trong tridu hay quan ddng dau d c dia phuang quan trpng thudng khdng chi 11 ngudi dd dat cao, khdng chi gidi tho phu, cd kid'n thdc van hpc, sd hpc, HIn hpc ma cdn cd uy tin trong nhin dan, cd tai dng dd'i, tai xay dyng kd sIch. Cung do vay, thudng thay trong xa bdi phong kid'n cd nhdng ngudi cd hpc vi cao nhung chdc quan khong ldn.

Bdn Id, can cd vao d c ydu clu cua chd' dp Hoi ty. Chd dp nay khdi ngudn td nha Dudng (Trung Qudc), dupc tid'p thu, van dung d nudc ta td thdi vua Le Thinh Tdng (Nha Le) va dupc nha Nguydn md rdng ndi dung va pham vi thyc hidn, ddng thdi dupc quy dinh cy the thinh didu luat. Hoi ty, tie'ng HIn cd nghia la trinh di, Ilnh di, vd sau 11 mdt khIi nidm mang y nghTa d m mdt sd trudng hpp nhlt dinh trong bd tri, sip xd'p quan lai khi cd nhdng quan he than thupc hay Id thudc nhat dinh nhlm phdng trinh tinh trang quan lai keo be kd't d n h hay mdc ngoac, ne nang, bao che, tham nhung, sIch nhidu dan chung giy ra d c tidu cyc lam giam sut hidu qua boat dpng cua Nha nudc'.

Ve CO ban, cac trudng hop phai hdi ty gdm:

- Khong bd trf quan tri nham tai que huong ban quan hoac noi cu trii lau dai, hoac que vp, que me, noi hpc tap liic cdn nhd. Cung khdng bd trf cac Lai muc lam viec tai noi que huong ban quan.

- Quan tri nham khdng dupc la'y vp, ket thdng gia tai noi minh cai quan, khong dupc tau da't vudn rupng hay lam nha d noi cai quan.

- Quan tri nham khdng dupc lay ngudi ciing que [km ngudi giiip viec trong cong so. Nhung ngudi cd quan he thay trd, ban be, hp hang, thdng gia khdng dupc Cling lam viec trong mpt cdng sd (thdi nha Nguyen cdn quy dinh: cac Lai muc cac nha thudc cac phii huyen la ngudi ciing lang cung phai ddi di noi khae;

cac Lai dich d cac nha mdn cac Bd d kinh dd va cac tinh la ba con than thich cung phai chuydn tach).

MM NUdc vA

PHAPLUAT

sd imoom

NghTa vu xae dinh d c trudng hpp d n hdi ty nay thudc ve ca quan tuyen chpn va sd dung quan lai. Tuy nhien, ban thin ngudi lam quan va nhdng ngudi tie'n cd phai cd nghTa vy khi thI'y minh roi vao d c trudng hop hdi ty d n phai bao len d p tren de kip thdi thuyen chuydn di noi khae. Neu cd hanh vi gia'u didm, nhdng ngudi nay se phai chiu sy trihig phat nang cua Nha nudc phong kie'n.

Nha nudc phong kidn cung xae dinh rd mdt sd CO quan va mdt so nganh khdng phai ap dung che dp hdi ty. Dd la nhdng co quan ma nhirng quan he thin thudc va le thudc cua nhimg ngudi didu hanh khdng cd kha nang gay anh hudng xlu de'n hieu qua cdng vide va hieu lyc cua bd mIy nha nudc. Vi dy: co quan Thii y vidn, ca quan coi vide Id nghi, xem thien van dia ly...

Ve dieu chuyen quan lgi

Didu chuyen quan lai la boat ddng quan trpng cda Nha nudc phong kid'n, bit diu xult hien td thdi Ly va din trd thanh che' dp thudng xuyen trong sd dyng dpi ngu quan lai phong kidn. Nha nudc phong kidn thyc hien vide didu chuyen nhlm myc dich phit huy td'i da nang lyc cua quan lai thdng qua vide dieu chuyen sang vi tri thich hpp ban, tao sy cdng bang vd quydn lpi va trich nhidm cua quan lai, dam bao thyc hien nghiem d c quy dinh cua chd' dp hdi ty va d mdc dp nhlt dinh cdn nhlm phdng tranh vide quan lai lpi dyng thdi gian tri nhiem lau dai tai mdt dia phuang hay tai mdt vi tri nao dd de gay thanh the ldn cd the trd thanh nguy co de dpa sy an toan cua the chd quan chu.

Tren thyc td, ndi dung cda vide didu chuyen quan lai la chuydn mdt vidn quan td vi tri nay sang mdt vi trf khlc trong he thd'ng quan trudng hay chuyen dia ban tri nhlm cua mdt vidn quan td noi nay sang noi khlc. Dd thyc hidn vide didu chuyen, Nha nudc phong kie'n dya tren d c can cd sau:

- Ke't qua khao cdng quan lai;

- Nhu clu cdng viec;

- Cac trudng hpp hdi ty;

- Cac yeu cau can giai quye't ve chinh sIch, chd dp (thdi Ly, quan lai tri nhlm d

midn ndi 9 nam dupc chuyen ve midn xudi, thdi Ld thi thdi ban dd la 6 nam).

Ve sdt hgch, ddnh gid, ddi ngp quan lgi (khdo cong)

Trong qua trinh sd dyng quan lai, Nha nudc phong kidn Viet Nam dac biet quan tim va duy tri thanh chd dp thudng ki khao bach (khao cdng), danh gia nhdng uu khuyet diem, nhdng mat da lam dupc cung nhu nhdng mat chua lam dupc de qua dd xlc dinh tai nang va ddc dp cda quan lai, vda de' lam can cd thudng, phat quan lai (thang, giang chdc tudc pham ham hoac d p them bdng ldc) vda dd lam can cd didu chuyen quan lai cho phd hop vdi ning lyc va nhu clu cdng viec, vda dd loai thai quan lai (cho ve huu hoac cho ra khoi bd may nha nudc) trdn CO sd dd nhlm nhlc nhd quan lai phai tan tam hon vdi trach nhiem cua minh, kich thich sy ren luyen thudng xuyen cua quan lai ca vd kha nang va ddc hanh de cd the dap dng vdi ydu clu thyc td, gin bd trach nhiem cua quan lai dd'i vdi boat dpng quan trudng.

Chd dp khao cdng, danh gia quan lai dupc thi hanh td thdi nha Ly. Thdi vua Anh Tong, nha Ly quy dinh "khao xet d c quan van vo... cd 9 nam la mdt ky khao". Nha Tran duy tri Id dd. Nha Le quy dinh cd 3 nam mdt lan khao cdng, trdn co sd dd cd 9 nam mdt lin thang, giang. Nha Nguydn, thdi Ty Ddc cung dinh lai le sat hach d c thupc vidn van, vo, cd 3 nam sat bach mdt lin.

Ndu trong thdi ky phong kie'n, vide thi cii cdn nang nd vd ly thuye't, kinh vien thi viec khao cdng, danh gil quan lai, lai rat nang ddng va thyc tidn. Ngoai cac dpt khao bach dinh ki thi ddi khi cung cd kidm tra, sat bach ddt xult. Dd'i tupng kidm tra khdng chi la nhan vien, thudc lai ma bao gdm d nhdng chdc quan cao d p d tridu dinh. Vide khao hach bao gdm hai ndi dung chinh:

Thif nhdt, khao vd vide hoan thanh nhiem vu. Dd la nhiem vy hoan thanh hai nghTa vy chu ydu cda ngudi lam quan: 1/

NghTa vu dd'i vdi vua: the hien 6 vai trd ta van cho nha vua va vai tro phu ta va thyc thi cd hidu qua quydn lyc cda vua; 2/ trach

KINH NGHIEMXAY DUNG VA ...

nhidm ddi vdi dan: the hien d long thuang din, cy the la d trach nhidm lo cho din khdi ddi khd, tidt kidm tai san va cdng sdc cua dan, giao boa din, day din bidt Id nghTa. Can cd vao d c tidu chi tren, mdi vidn quan ty minh dinh gia mdc dp hoan thanh nhidm vy va bao d o len quan tren. Cac co quan nha nudc cd thlm quyen d timg d p se xem xet cu the va danh gia, phan loai theo d c mdc dp hoan thanh khae nhau.

Thtx hai, khao vd hpc vin (dd'i vdi quan van) va vd nghd (dd'i vdi quan vd).

Dd sd dyng cd hieu qua dpi ngu quan lai cua minh, d c trieu dai phong kidn Viet Nam ddu danh sy chd y thich dang ddn che dp ddi ngp quan lgi. Quan lai trong quan trudng ddu dupc hudng mpt khoan luong cd dinh theo phim ham cua minh va mpt khoan bdng ldc du de dam bao cude sd'ng gia dinh tuy theo mdc chi dung d d c d p dp khlc nhau (dp dp nay duong nhidn tuy thupc vao d c chdc quan to nhd khlc nhau). Che dp bdng ldc nay tuy theo timg giai doan ma cd khlc nhau, d vd mdc dp, ca ve dch thdc d p phit: cd kbi bing tidn, cd khi bing rupng Ipc dien, tham chi cd khi bing dd vat... nhung thudng kha dn dinh va d mdc cao de trinh tinh trang quan lai tham d nhung nhidu dan.

Nha nudc phong kie'n cdn danh cho quan lai mdt khoan tidn (tuy khdng nhieu) gpi la tien Dudng liem de khuyd'n khich quan lai tranh xa nhdng banh vi tidu cyc. Ben canh dd, Nha nudc Ip dyng thudng xuydn chd dp thudng phat dd khuyd'n khich quan lai hdt long phyng sy. Thudng, phat trong xa bdi phong kidn ddi kbi la sy quyd't dinh dpt xuat cua nha vua, song ve ca ban da dupc quy dinh dy lieu td trudc. Day la bidn pblp hdu hidu khuyd'n khich sy cd glng cua quan lai trong cPng vide bdi sy thudng, phat khdng thuln tuy mang y nghia vd gil tri vat chat, ma cao hon nda la d chd nd the hien sy dinh gia long trung va nang lyc cua quan lai - dieu hdt sdc cd y nghTa trong muc dich phan dau cua d c nho gia phong kidn.

3. Gidm sdt quan Igi

Thyc hidn phuong chim "Minh chua tien tri Igi, nhi hdu tri ddn", d c tridu dai phong kie'n Viet Nam cd hai co chd dd giam sit quan lai nhlm kip thdi phat hidn, xd ly d c sai pham cda quan lai vl ran de, phdng ngda d c hanh vi sai trii trong qua trinh quan lai thyc thi d c cdng vide nha nudc.

Mdt 11, ca che gidm sdt tif phia Nhd nudc. Co chd' nay dupc thyc thi bdi ba hinh thdc giim sit chu ydu:

Thif nhdt, giam sat cua d c co quan giim sat chuydn mdn, bao gdm: Ngy sd dii; Lyc khoa; Giim sit ngy su dat d d p chfnh quydn dia phuang cao nhat; Hidn sit sd ty. Day la chd dp giim sat dpc lap va khong cd ngoai Id (ta't nhidn trd nha vua) theo nguydn tic "ldn nhd, trong ngoai cdng rang bupc lin nhau".

Thif hai, giim sit cua ca quan chinh quydn d p trdn dd'i vdi d p dudi: boat ddng giam sat nay do chinh d c vien quan phy trich don vi hanh chinh dia phuong d p trdn dam nhidm nhlm phit hidn d c sai trai cda thudc ha minh d cung d p hoac d d p dudi tryc tid'p.

Thif ba, giim sit dac biet: day la hinh thdc giim sit dpt xuat theo vu vide, do nha vua tryc tid'p lap ra khi thay cln thie't. Doan giim sit thudng bao gdm nhifng quan dai thin cd hanh kidm, kinh nghidm va uy tfn cao. Trong qui trinh giim sit tai dia phuong, doan giam sit dupe trao quydn rdng rai, dupc chu dpng giai quyd't vy vide tren co sd phit hidn d c sai trii cua quan lai.

Hai 11, ca che gidm sdt tif phia nhdn ddn. Co chd nay the hidn d hai binh thdc kiem solt cda nhan dan dupc Nha nudc khuyd'n khich thuc hien:

Thif nhdt, dan dupc quyen yet bang cdng khai dd vidt ra d c didu thidn, Ic cda quan lai tai dia phuong.

Thif hai, din cd quydn dua don td clo ldn d c chinh quydn d p trdn vd d c hanh vi sai trii cda quan lai. Nha nudc phong kidn cho phep ngudi dan dupc td d o dd'n bat ki d p nao, kd d dua don tryc tie'p dd'n nha vua nhan dip vua di tuln thd hoac thdng qua vide

HA NUdc vA PHAP LUAT sd 11/2008

dinh trd'ng keu oan tai tridu dinh. Tit nhidn, ndu vide to d o khdng cd co sd se bi trimg phat thich dang.

Kdt qua giam sat cua nhan dan dd'i vdi boat ddng cua mdt vien quan hay mdt d p chinh quydn cy thd nao dd se dupc Nha nudc phong kidn danh gia chd ydu thdng qua sd lupng d c don khidu nai cua nhin din tai dia phuang va thdng qua thii dp cda nhin din khi Nha nudc thyc hien vide khao hach, didu chuydn quan lai.

n . Bai hpc kinh nghiem cua ljeh sur 1. Uu diem vd hgn che cua che dp ddo tgo, tuyen chpn, sd dung vd gidm sdt quan Igi trong thdi ki phong kie'n

Tim hidu chd dp dao tao, tuyen chpn, sd dyng va giam sat quan lai trong xa hdi phong kidn Viet Nam va so sanh vdi yeu d u xly dyng dpi ngu cln bd, cdng chdc d nudc ta hien nay, cd the nhan didn mdt so uu diem va ban che' sau:

Ve lai diem:

- Vide tuyen chpn quan lai da dya trdn nhdng tidu chuIn nhlt quin vd dao ddc va nang lyc, do vay da tao ra dupc dpi ngu quan lai cd trinh dp tuong dd'i ddng deu, cd y thdc trich nhiem cao vdi cdng vide va bdn phln cua ngudi llm quan.

- Vide dao tao, tuydn chpn dupc thyc hidn chu yd'u thdng qua khoa cu nghiem tdc, do vay xay dyng dupc dpi ngu quan lai gdm phln ldn 11 nhdng ngudi cd thyc tai, bao dam dupc sy cPng bing, binh ding va kha nang tham chinh cua mpi bd phan xa hdi (trd nhung ngudi pham tdi va nhifng ngudi lam nghd hat xudng).

- Vide sip xd'p va dd bat quan lai dya can ban trdn nang lyc va sd trudng cl nhan, do dd phat huy dupc td'i da nang lyc cua dpi ngu quan lai.

- Cd chd dp dai ngd, thudng phat thich dang dya tren sit bach, khao cdng mdt d c h cdng khai, cdng bing vi vay ddng vidn khuyd'n khich dupc dpi ngu quan lai dd'e long thuc hien nhiem vu.

- Cd chd dp kiem tra, giam sat chat che va thudng xuyen, vi vay phdng ngda dupc va sdm khlc phue dupc nhdng tieu cue trong dpi ngu quan lai.

- Cac chinh sach cda Nha nudc phong kidn vd dao tao, tuyen chpn, sd dyng quan lai thudng dupe quy chd hoa. Cac ngudn tai lieu cho bidt: it nhlt la vao thdi Trln da cd mdt luat rieng vd quan chd va thdi nha Le da cd bd Qud'e tridu quan chd (1471). Ngoai ra, trong d c bd luat tdng hpp td bd Hinh thu ddi Ly, Hinh thu ddi Trln, Qud'e tridu Hinh luat thdi Ld dd'n Hoang tridu lult le thdi Nguydn deu cd nhidu didu lult danh rieng quy dinh ve quan chd. Thlm chi, trong mdi quy dinh ve d c tdi danh thdng thudng cung cd nhdng khoan myc quy dinh ridng cho hanh vi xd sy cda quan lai. Tren thyc td, d c quy dinh phap lult tuang dd'i cd hd thd'ng ve quan che ciia d c tridu dai phong kidn da tao ra co sd rlt thuan lpi dd chuan hda dpi ngu quan chdc, dua boat ddng cdng vy vao nd nep, lupng hda tham quydn va nghla vy cua quan lai, cung nhu lupng hda vide dinh gia quan lai, dam bao cho vide thuc thi cdng vy cd hieu qua cao.

Ve hgn che:

- CIch hpc hanh, ndi dung thi cd va tieu chi danh gia nang lyc cua quan lai thidn vd trpng thi nhdng ngudi thdng thudc kinh sach nho giao, gidi dam dao, binh luan... din dd'n vide hinh thanh dpi ngu quan lai tuy cd trinh dp tri thdc cao, gidi thuydt ly, gidi xay dung chu truong nhung thie'u diu dc thyc tidn, ye'u vd kha nang dng phd nhanh nhay vdi d c van dd nay sinh trong ddi sdng kinh td - xa hoi, kem vd kha nang dd xult, nim bit va quan ly d c vin dd cda khoa hpc cdng nghd.

- Tidu chi tuydn chpn va bd tri quan lai

dya trdn quan diem dao ddc nho giao va cO

chd kiem soat quan lai cda Nha nudc phong

kid'n tuy cd mat tfch cyc la tao ra dpi ngii

quan lai trung thanh vdi chd dp, cd trach

nhidm vdi cdng vide, nhung mat khae cung

tao ra thdi y lai, thy dpng, trdng chd vao

menh lenh d p trdn, ngai cd chinh kid'n, sO

sai llm vi vay khdng phat huy dupc tinh sang

tao, chd ddng cda quan lai va tat ye'u se dan

TNH NGHIEM XAY DUNG VA...

tdi ban che hidu qua boat ddng cua bd mIy nha nudc.

- Che dp tuyen chpn, sd dyng quan lai vdi d c phuong thdc khae ngoai khoa cd nhu:

tid'n cd, bao cd, tap I'm khdng the khdng din de'n be dnh, phe phai, hdi Id hoac kem nang lyc. Dac biet khi tridu dinh phong kie'n khdng cd dieu kien va kha nang kiem solt dupc tinh hinh thi tinh trang nay se trd thinh phd bid'n, gay lung doan quan trudng, giam hidu lyc thyc te cua bp may nha nudc.

2. Ke thda mgt sd kinh nghiem xdy dung dpi ngU cdn bg, cong chdc thdi ky phong kie'n d nudc ta hien nay

Nhifng trinh bay mang tinh phic thao vd vin dd ndu tren cho thiy, ben canh nhifng yd'u to tid'n bp kha dT cd thd tid'p thu thi chinh quan che' va quan trudng phong kid'n cung mang dly nhdng ban che' va tidu cyc, bidn dang de lai nhiing diu an rd net ddi bdi chung ta phai khlc phyc. Tham chf, ngay chinh trong nhihig yd'u to dupc xem 11 tid'n bd thi cung ham chda ft nhieu nhiing ban che mang tfnh lich sd cua nd. Tuy nhidn, didu d n thid't phai nhin manh la vide khai thIc y nghTa thyc tidn cua van dd xult phit td quan nidm ve mpi sy ddi mdi deu phai mang tfnh ke thda, kd't hpp gida truyen tho'ng va hidn dai, trdn co sd chpn Ipc va nang cao trong nhihig dieu kidn lich sd cy the.

Vdi tinh thin dd, cd the ndu ra mdt vai kinh nghidm cda lich sd de phyc vy cdng cupc ddi mdi, trong sach boa va nang cao chat lupng dpi ngu cln bd, cdng chdc d nudc ta hidn nay nhu sau:

Mpt Id, phai chat che va ap dung nghiem tdc, nha't quan d c tieu chuIn d n bp, cPng chdc ngay td khau tuyen chpn d n bp, cong chdc trdn co sd quy dinh cu the ve d c tidu chf tuyen chpn cho timg chdc danh d n bp, cdng chdc. Trong qui trinh xly dyng quy che tuyen chpn va bd trf d n bd, cdng chdc bidn nay, ndn chang chung ta cung can tham khao va tid'p thu d mdc dp nhlt dinh mdt so quy dinh cua chd dp Hdi ty cua d c trieu dai phong kid'n Viet Nam.

Hai Id, ning cao chit lupng dpi ngu d n bd, cdng chdc ddi hdi phai cd che dp sat hach thudng xuydn dd cd the danh gil dung thyc chat dpi ngu cln bd, cdng chdc. Trdn co sd dd d n thyc bidn thudng xuydn vide phln loai cln bd, cdng chdc, xay dyng chinh sach cln bd, dac biet la chinh sIch dao tao, bdi dudng dd'i vdi timg loai, timg bp phan cln bd cdng chdc mdt d c h hop ly. Trong ITnh vyc nay, ndn chang chung ta cung ndn xem xet tid'p thu nhung yd'u to hpp ly trong d c h lam cua chd dp khao cPng thdi ki phong kid'n.

Ba Id, cln thid't phai md rpng nhidu hinh thdc kiem tra, giam sit dpi ngu d n bp, cPng chdc. Kdt hpp kiem tra, giam sat thudng xuydn theo dinh ki vdi kidm tra dpt xult theo chu dd.

Bdn Id, d n thid't phai quy dinh rd rang, day dd ve tidu chuan tuydn chpn d n bp, cong chdc, vd phuang thdc va quy trinh tuyen chpn, ve quyen ban va trach nhiem cua d n bd, cdng chdc, ve md'i quan be phd'i hpp cong tie giua d c bp phan d n bp, cPng chdc, vd quy trinh sat bach, danh gil cln bp, cdng chdc... Cic quy dinh nay cln thid't phai dupc the hidn dudi hinh thdc Luat.

Ndm Id, nhidm vu xay dyng dpi ngu cln bd, cdng chdc trong cdng cude ddi mdi hidn nay cung ddi bdi phai xlc dinh dupc khau dpt phi. Thyc td' lich sd cho thiy, khi dat vin dd trong sach hoi dpi ngu quan lai, d c trieu dai phong kid'n nudc ta ddu xlc dinh khdu trpng diem Id thdi dp phue vu vd ddi tuang trpng diem Id quan lgi cao cdp. Dieu xlc dinh nay xuat phit td quan nidm cho ring:

quan lai cao d p dd cd didu kidn sai pham

ban, sai pham nhidu kbi lai khd phat hidn,

sai pham du nhd nhung thudng gay hau qua

ldn, dac biet mpi vide lam tdt xlu cua quan

lai cao d p ddu anh hudng rat ldn tdi phep

dng xd cda toan bd dpi ngu quan lai. Lieu

didu nay cd gpi md de chdng ta suy nglm

khi xlc dinh khau dot phi trong vide trien

khai nhiem vu xay dyng dpi ngu d n bd,

cdng chdc d nudc ta bien nay?