BAN VE CHE DO TRACH NHIEM NGUCJI
D O N GDAU Cd QUAN HANH CHINH NHA NUflC
Ta Ngoc Hii*
*TS.Vien Khoa hocTo chtrc nha nifdc Bo Noi vu.
Thong tin b^i viet;
Tir khoa- nguai dung dau, co quan hanh chinh nha nuac, trach nhiem Lich su bdi viet:
Nhan bai Bien tap Duy^t bai
: 20/09/2018 : 10/10/2018 : 17/10/2018
T6m tat:
Che do trach nhi?m nguoi dimg dau ca quan hanh chinh nha nude dugc hiSu tren ba phuong dien: nhan thuc ly luan, phap ly va thuc tien. Tren phuang di?n ly luan the hien qua viec nhan thiic cac thuat ngu, khai niem, d6i tugng, pham vi 4p dyng. Tren phirong dien phap ly, the hien cac npi dimg nhu hinh thiic trach nhi?m, nguyen tdc xu ly trach nhiem, cac truong hop lo^i trir, mien giam, giam nhe hoac tang nang trach nhiem. Tren phuong dien th\rc tien do la viec xac dinh nhiing kho khan, thach thiic dat ra d6i vai vice thuc hien che do trach nhiem nguoi diing dau ca quan hanh chinli nha nude.
Article Infomation:
Keywords, the head; administrative agency; responsibility
Article History Received Edited Approved
20 Sep, 2018 10 Oct. 2018 17 Oct. 2018
Abstract
Responsibility of the head of the administrative is understood in three aspects: theoretical perception, legal regulations and practical awareness. Theoretical aspect is exposed through the perception of concepts, definitions, objects and scope of application The legal aspect is expressed through the contents such as the responsibilities, principles for handling responsibilities, cases of exclusion, exemption, reduction or aggravation of responsibilities. The practical aspect is the determination of the difficulties and challenges for the response of the responsibility of the head of administrative agencies.
1. Ngiroi dung a^u CO- quan hanh chinh nha niTffc
Tren phuong dien ngon ngii, cum tu nguoi diing dau dugc sir dung ph6 biSn trong xa hgi. Tuy nhien, cho d6n nay, chua CO van ban chinh thiic nao dinh nghia cum tir nay. Trong Tie diin tiing Viet do Hoang
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l NGHIEN CUU JI L A P P H A P ^ S62+3(378+379)T1/2019
Phe chii bien, Nha xu4t ban Khoa hgc xa hoi an hanh nam 1988; Bai tic diin tiing KeMo Nguyin Nhu Y chu bien, Nha xuat ban V^
hoa Thong tin dn hanh nam 1998; Tir dien tieng Viet do Nha xuSt ban Da Ning phfli hgp vai Trung tam Tir diin 4n hanh n^ra 2007 voi 45.850 muc tir, d6u khong co muc tu nguai dung ddu.
Tren phuong dien phap ly, nguoi diing dau dugc sir dung pho bien trong cac van ban quy pham phap luat. Di6u 86 HiSn phap nam 2013 quy dinh: "Chu tich nuoc la nguoi dimg dau Nha nuac, thay mat nuac Cgng hoa XHCN Viet Nam vS d6i ngi va doi ngoai"; Dieu 4 Luat To chiic Chinh phu 2015 quy dinh: "Thii tuong Chinh phu do Quoc hgi bau trong so cac dai bieu Qu6c hgi theo de nghi cua Chu tich nuoc. Thu tuong Chinh phii la nguoi diing dSu Chinh phii va he thong hanh chinh nha nuoc"; Nghi dinh S6157/2007/ND-CP ngay 27/10/2007 cua Chinh phii quy dinh che do trach nhiem d6i vai nguoi diing dau ca quan, td chiic, don vi cua Nha nuac trong thi hanh nhiem vu, cong vu...
Tren phuang dien nghien ciiu, "nguai diing dau co quan HCNN dugc hieu la nhiing nguai diing dau Nha nuac, Chinh phii, cac Bg, CO quan ngang bg va Uy ban nhan dan cac cap"'. Cach hieu nay dong nhat nguai diing dau Nha nuac voi nguoi diing dau co quan HCNN va khong dua ra quan niem th8 nao la nguoi dung dau co quan HCNN. Co quan diem hieu nguai diing dau theo nghTa rgng va nghia hep. "Theo nghia hep nguoi diing dau la ca nhan co quyen luc trong lanh dao, quan ly va diing dau, chi huy mgt dan vi hoac mgt to chirc nhat dinh de thuc hien muc tieu lanh dao, quan ly da de ra. Theo nghia rgng, nguai dimg dau la chi ca nhan hoac tap the co quyen luc nhat dinh tron^
lanh dao, quan ly, ganh vac trach nhiem nhat dinh va diing dau, chi huy mgt to chirc hoac mgt don vi nhat dinh de thuc hien muc tieu lanh dao, quan ly da de ra"^. Theo quan diem nay, trach nhiem nguai dimg dau ca quan, to chirc HCNN khong chi la trach iihiem ca nhan ma con la trach nhiem tap the vi a nghia hep, nguoi diing dau la ca nhan nhung a nghia rgng, nguoi dimg dau la ca nhan
hoac tap the.
Chung toi cho rang, khi ban ve khai niem nguai diing dau co quan HCNN, can luu y mgt so diem sau day:
Thir nhdt, nhan thiic ve nguai diing dau CO quan HCNN khong don thuan chi la cau chii, tu ngii ma phai xem do la che dinh phap luat nhu cac che dinh tuyen dung, danh gia, khen thuong, ky luat... trong cac quy dinh phap luat. Hoac cao hon, dat che dinh phap luat ve nguoi dimg dau trong thiet che chinh tri - phap ly trach nhiem nguoi dimg dau CO quan nha nuoc theo do can va phai dugc quy dinh trong van ban ciia Dang, Hien phap, luat, cac van ban duoi luat.
Thu hai, nguoi diing dau la ca nhan dugc bau cir, bo nhiem, phe chuan hoac giao quyen vol cac ten chiic vu, chiic danh khac nhau nhung co vi tri cao nhat trong co quan HCNN.
Thu ba, thuc hien quan ly toan dien, co quyen quy6t dinh cao nhat doi voi to chiic, hoat dgng cua ca quan do minh diing dau va chiu trach nhiem ca nhan theo quy dinh cua phap luat doi voi nguoi diing dau.
Ngoai ra, khi de cSp den nguoi diing dau CO quan HCNN can phai xem xet them mgt so yeu to sau: vi tri ciia nguai dimg dau CO quan HCNN dugc Hien phap, luat va cac van ban quy pham phap luat duoi luat quy dinh (dac di§m nay giup phan biet voi nguoi dimg dau to chiic Dang, doan the, doanh nghiep); nguai diing dau co quan HCNN hoat dgng nhan danh ca quan do minh diing dau va nhan danh Nha nuoc; dia vi phap ly ciia nguoi dimg dau co quan HCNN chiu sir chi phoi theo thir bac ciia he th6ng hanh chinh; nguoi diing dau ca quan HCNN thuc hien vai tro lanh dao, quan ly d6i voi ca quan do minh dimg dSu.
PGS.TS. Nguyen Huu D6ng, TS. Pham The Luc, Hoat dgng lanh dao, quan ly ciia ngucri diing Ahu co quan HCNN a nucrc ta", Tap chi Ly luan chinh m online, ngay 24/7/2013,
PGS.TS Trmh Diirc Thao, Bao cao dl tai khoa hgc cap bo. Ho^n thien phap lugt vk trach nhi?m ciia nguoi diing dSu co quan HCNN hien nay - Vin dl va giai phap", Ha Ngi, 2010, tr. 23.
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NHA NirdC VA PHAP LUAT 2. Trach nhiem ngiroi dung dau cff quan hanh chinh nha nirorc
Trong tir di§n tiSng Viet, hach nhiem dugc hilu theo hai nghia: thu nhdt, la phai lam tron ph5n viec dugc giao neu khong phai ganh chiu hau qua; thu hai, su rang bugc d6i voi loi noi hoac hanh vi cua nguoi thuc hien n6u sai trai thi phai chiu hau qua.
Ngoai quan niem nay, con co nhiing quan niem khac vd trach nhiem nhu: trach nhiem la y6u td khong th6 thidu trong quan ly cong, quan tri nha nuac^; trach nhiem la hau qua b4t Igi ma nguai diing dau phai ganh chiu khi khon^ thuc hien hoac thuc hien khong diing quyen, nghTa vu dugc giao''. Cach hieu nay coi tranh nhiem la bien phap ma Nha nuoc ap dung doi voi ngucfi co vi pham (trach nhiem phap ly hanh chinh, dan su, hinh su)...
Nghi dinh s6 157/2007/ND-CP ngay 27/10/2007 cua Chinh phu sir diang thuat ngu "che do trach nhiem' khi de cap den trach nhiem cua nguai dimg dau co quan hanh chinh. Theo do, "Che do trach nhiem doi voi nguai diing dau, cap pho ciia nguoi diing dau CO quan, to chirc, don vi cua Nha nuoc la toan bg cac quy dinh ve chiic nang, nhiem vu, quyen han va tham quyen dugc Nha nuac giao cho nguoi dimg dau, cap pho cua ngucri dung dau; truong hgp vi pham se bi xir ly theo quy dinh" (khoan 2 Dieu 3).
Tir nhung dan lieu neu tren, co the hieu, trach nhiem ciia nguoi dimg dau co quan HCNN la trach nhiem ca nhan nguoi diing dau co quan trong viec thuc hien nhiing viec phai lam, dugc lam, can lam, nen lam va phai chiu hau qua khi khong thuc hien diing, dii trach nhiem tren co so quy dinh phap luat tucmg thich voi quy mo, tinh chit, pham vi ciia co quan trong he th6ng HCNN.
Ngi dung trach nhiem nguai diing
dau CO quan, t6 chiic HCNN the hien tren mgt s6 phuang dien sau:
- Trach nhiem trong viec su dung cac ngu6n luc diu vao. Theo do, trach nhiem cua nguai diing diu co quan, t6 chirc HCNN d6i voi nguon luc dau vao la: quan ly, sir dung doi ngii can bg, cong chirc; quan ly sir dung tai chinh cong; quan ly su dung tai san cong va quan ly, sir dung thong tin.
- Trach nhiem trong viec thuc hien lanh dao, quan ly. Hoat dgng lanh dao, quan ly th8 hien tren cae mat nhu: lap, thuc hien, kiSm tra viec thuc hien ke hoach cong tac eiia CO quan. Theo do tuy theo pham vi, tinh chit eiia co quan HCNN, nguai diing dau chi dao lap, dieu chinh ke hoach, to chiic thuc hien k8 hoach, kiem tra, danh gia viec thuc hien ke hoach.
- Trach nhiem doi voi ket qua thuc hien nhiem vu cua co quan dugc giao lanh dao, quan ly. Moi co quan hanh chinh deu dugc thanh lap va thuc hien nhung nhiem vu theo quy dinh. Ngoai cac nhiem vu thuong xuyen theo quy dinh con co cac nhiem vu dot xuit. Trach nhiem nguoi diing dau co quan HCNN doi vai ket qua thuc hi^n nhiem vu cua ca quan dugc giao lanh dao, quan ly:
dam bao thai gian, tien do, chat lugng, hieu qua cong viec.
Viec xir ly trach nhiem nguoi diing dau CO quan HCNN bao ham nhiing ngi dung sau:
- Nguyen tic xir ly trach nhiem (xac dinh trach nhiem theo hinh thiic nao xii ly trach nhiem theo hinh thiic do; che tai ap dung tuong thich vai miic do vi pham; viec ap dung che tai d6i vai m6i truong hgp cu the phai can cii theo nguyen tac xac dinh trach nhiem; m6i hanh vi vi pham phap luat chi bi xu ly mgt hinh thiic...)
- Cac hinh thiic trach nhiem cu the:
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Nguyen Thi Hong Hai, Moi so van de efci quan lam nhim nang cao Irach nhiem cua can bo, cong chiic trong congv*
Noi san Khoa hoc 16 chitc va Quan ly nhan su s6 14 thang 7/2017, tr. 4-8.
TS. Nguyin Minh Phu, Trach nhiem ciia nguoi diing diu co quan HCNN - Tap chi T6 chic Nha nuoc thang 6/2011.
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^ H A N U U I - V A r t l A I ' L U A l
trach nhiem chinh tri (bat tin nhiem, tir chiic); trach nhiem phap ly (hanh chinh, dan su, vat chat, hinh sir).
- Cac truong hgp dugc loai trir, mien giam, giam nhe hoac tang nang hinh thirc xir ly trach nhiem (vi du: khi phat hien cac sai pham da kip thoi ap dung cac bien phap ngan chan, khac phuc hau qua...).
Co the mo hinh hoa trach nhiem cua nguoi diing dau ca quan HCNN qua so d6 sau day:
3.2 Trenphir&ng dien phdp luat Cac quy dinh ve che do trach nhiem doi vai nguai dirng dau va nguoi diing dau CO quan HCNN con khong thong nhat, thieu dong bg, hieu luc phap ly ciia van ban quy dinh ve che do trach nhiem ciia nguoi diing dau CO quan HCNN khong cao.
3.3 Tren phiro'ng dien thirc tien Nhung truong hgp vi pham da bi xii ly trong thai gian qua cho thay, dien bien thuc te kha phiic tap. Cac vi pham co of nhieu ca
TRACH NHIEM NGl/OI D L T N G D A U CO QUAN H A N H C H I ' N H NHA NU'O'C
N H O ' N G V A N D I CHUNG
X l / L Y TRACH NHIEM
NGUYEN TAC XU" LY
H I N H THiiC TRACH NHIEM Chmh tr| - Ogo dire - Phap ly
NOIDUNGTRACHNHIIM
CAC TRyfifNG HOP
NGUON QUY DINH
Van ban cua Dang - Van San QPPL - Van ban cua ca quan, to chiJc
3. Nhirng kh6 khan, thach thirc doi vol viec thvc hien trach nhiem ngyoi dirng dau eg quan hanh chinh nha nu'O'c 3.1 Tren phirffng dien nhan thirc
Hien nay, tren phuang dien nhan thiic chua CO sir thong nhat ve quan niem, pham vi, chi tai va each thiic ap dung che do trach nhiem nguai diing dau va nguai dimg dau CO quan, t6 chiic HCNN. Nhan thiic chua diy du, thilu d6ng thuan se khong tao dugc sir thdng nhat trong hanh dgng de dat dugc kk qua t6t nhat, hieu qua cao. Day la kho khan, thach thirc dau tien can tinh den.
quan HCNN a trung uong va dia phuang voi quy mo, tinh chat khac nhau, doi tugng vi pham dam nhiem cac vi tri lanh dap, quan ly khac nhau. Diem dang chii y la so lugng vu viec nguoi dirng dau co quan HCNN bi xir ly ky luat nam sau nhieu hon nam truoc.
Nhiing han che, bat cap neu tren doi hoi chung ta can phai tiep tuc day manh thuc hien tot ban nua Nghi quylt s6 04-NQ/TW ciia Ban Chap hanh Trung uong Dang khoa XII ngay 30/10/2016 ve tang cuong xay dung, chinh don Dang; ngan chan, day liii sy suy thoai ve tu tuong chinh tri, dao diic, loi song, nhiing bieu hien "tu diin bien", "tu chuyen hoa" trong ngi bg>
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