fpiidfi. Ia4l od JdiJi U S6
S(290)
-2016
MOT Sii BIEM HAN CH^CiiAPlUP LUAT v i HNH DOANH DU LICH
I ThS. PHUNG TH! THANH HI^N
D
u Hch la nganh kinh t l tdng hpp, co tinh lien nganh, lien vung va xa hOi hda cao. Quan ly nha nude frong ITnh vuc du lich cd lien quan den nhieu ngdnh, nhieu cip, nhilu ITnh vuc khde nhu vdn hda, giao thdng, tdi nguyen mdi frudng, qude phdng, an nmh, nong nghipp, thuang mai... 6 nude ta, hoat dOng du Hch lu hdnh cd tti nhung nam 1960, nhung ddn ndm 1994, cac van bdn quan ly nhd nude ve du Hch 1ft hdnh mdi dupe ban hdnh, tuy nhien, hieu luc va tinh phap ly cua cac van bdn ndy chua cao, ndi dung chua rd rdng, hinh thftc va thdm quyen ban hdnh ehua phii hop. Nhdm myc tieu phdt ttien du lich thdnh nganh kinh te mui nhpn, Nhd nuac da ban hanh Phdp lenh Du Hch nam 1999 va sau do Id Ludt Du ljch ndm 2005, ddnh ddu budc hoan thien he thdng phdp luat frong boat dOng du Hch ndi chung, frong do cfl kinh doanh du Hch 1ft hanh. Sau hon 10 nam thyc thi Luat Du Hch ndm 2005, boat dOng du lich cua Viet Nam da co nhiing thay ddi rdt Idn, cdc co quan qudn ly nha nude d dia phuang thyc hi?n tdt ban vai fro qudn ly nha nude cfta mmh ddi vdi cdc doanh nghipp ldm du lich, tdng cuong quan ly d edc khu dilm du Hch... Tuy nhien, den nay, Luat Du Hch nam 2005 da bOe 10 mOt sd ban che, bat cap vd kinh doanh du Iich lu hdnh cin dupe bd sung, chmh sfta eho phft hpp vdi su phdttrien kinh te - xd hdi d Viet Nam, tao hudng dOt pha cho du Hch Viet Nam phdt trien frong nhiing ndm tdi.
Thu nhdt, vi dieu chinh phdp ludt doi vdi kinh doanh du lieh Iir hdnh
Vide dieu ehinh phdp ludt ddi vdi boat dpng kinh doanh 1ft hdnh can phai lam ro cdc nOi dung:
Kinh doanh Iu hdnh ndi dia, dilu kien kinh doanh, bdo hiem du Hch vd cde doanh nghiep lu hanh ci5 vdn dau tu nude ngoai... Tuy nhidn, cdc quy dinh cua Luat Du Hch ndm 2005 cdn mot sd han che nhu: Quy dinh ehua chat che ddi voi viec thanh lap doanh nghiep, dieu kipn ddi vdi kinh doanh lu hanh ndi dia; chua quy dinh ty Ip vdn gop ddi v6i doanh nghidp Ift hanh cd vdn dau tu nude ngoai...
May ndm gin day, boat dOng kinh doanh IQ hanh, van chuyen va hudng dan du hch dang ehuyen hudng sang phdt frien thi truong ndi dja.
Thuc tien eho thdy, khi xay dyng Ludt Du Hch nam 2005, cdc nha lam luat chua chii y dung mftc den lu hanh nOi dia la mpt nguyen nhdn ldm cho lo?i hinh du lich nay hien nay Ion xOn, khd qudn ly, cgnh franh khdng lanh manh va chit lupng ngay cdng ddng bdo ddng.
Cdc dilu kien kuih doanh lu hdnh nOi dia vd ID hanh qude t l cung bdc 10 nhilu bit c|tp, vudng mdc frong viec cip the tft cho hudng ddn vien du ljch.
Ddn chfl & Phdn ludt
^P^UM4ioaJUnha 86 5 (290)-2016
Ben eanh dd, ehua cd thdng tu hudng dan vd quy ehe qudn ly, boat dpng eho eac khu du Hch, tuyIn, didm du Hch; viec the chl hda npi dung vd ti^ch nhidm qudn ly nha nude vl du Hch frong cde nghi dinh chua rd. Cdng tdc xftc tiln du Hch chung cfta quoe gia thidu tap tnmg, dan frdi, khdng hidu qua, khdng CO dan vi ddu tau dinh hudng qudng ba qudc gia, tinh, gay ra tinh frang lang phi... Ddi vdi boat dOng Ift hanh qudc tl, hien ed khoang hon 1.000 cflng ty, frong do chi khoang 30% la kinh doanh dua khaeh vdo Viet Nam, khoang 70% la kinh doanh dua ngudi Viet Nam ra nude ngodi. Luat Du Hch nam 2005 vd co ban chi tap trung qudn ly ddi voi lo?i hinh inbound, ehua thd hien sy uu tidn ddi vdi lo^i hinh kinh doanh nay (tuong ty nhu uu tien xuat khau) vd budng long, khdng quan ly loai hmh outbound (nhu nhdp khau) vl bao hilm du Hch, do chi quy dinh mua bao hiem bit buOc ddi vdi khdeh outbound, cho nen, khdeh du Hch nOi dia va inbound khdng kiem soat, khi cd su cd gay khd khdn cho cdc doanh nghiep vd ngudi di du Iieh.
Van de doanh nghidp IG hanh cd vdn dau tu nude ngoai, ehi nhdnh va vdn phdng dai didn cua cdc doanh nghiep du Hch nude ngoai d Viet Nam eung chua ro rang, ban che tinh tich eye cfta loai hinh doanh nghidp nay.
Thuc td cho tiiay, cd mOt sd vdn de sdt sudn vdi kinh doanh du Hch Ift hanh nhu van de ky quy, doanh nghiep lu hdnh npi dia phdi ky quy (ky gfti mpt sd tien nhat dinh vdi ngan hang de phdng trudng hpp doanh nghiep dot ngdt giai the, phd san hay tai nan...). Tuy nhien, Lu^t Du Hch nam 2005 lai khdng quy dinh eac ddi tdc cd lien quan cfta doanh nghiep du Hch nhu cac diem luu ttii, khu du lich, hang v^n chuyin cung cin phdi ky quy. Dilu nay thd bien su long leo cfta Luat do khflng dam bdo quydn loi eua khdeh du Hch va khdng rdng
buOc dupe ttach nhidm cfta cac doanh nghiep lien quan den boat dpng du Hch. Ddi vdi vide mien visa xuat nhap ednh thi phai ed ve vao, ve ra vd bit budc khach phai mua bao hidm du Iieh vd mua luu tni phdng, cdn tour cd thd mua ttirdc hoac mua sau thi chung ta se khdng gap phai tinh tt^ng khdeh vao di lam chui hay di Iam nhiing viec co tinh chit td nan... Didu khodn quy dinh ve quyen vd nghTa vy cfta khdeh du Hch cung nhu dieu kidn cfta cac doanh nghidp kmh doanh IG hanh my da eo nhung con don gidn, chua ro rang, chua that sy chat che va day dft de bdo ve du khach, Dilu 35 Ludt Du Hch ndm 2005 quy dinh khdeh du lich se dupe bdi tiiudng thiet hai do Idi eua td chftc, ca nhan gay ra;
CO quyen khidu nai, td edo, khoi kien hdnh vi vi pham ve phap luat du Hch. Didm nay chua the hidn rd ai se phdi chiu frdch nhiem bdo ve khach du Hch va ai se dai dien eho quydn lpi cfta hp?
Do vdy, cdn phai nhanh chdng bd sung cdc quy dinh frong Lu^t Du lich nhu: Doanh nghipp Ift hdnh npi dia phai cd giay phep, phai ky quy, doanh nghiep phdi cd hudng ddn vien lam vipe lau dai de bdo vd quydn lpi cho khach du Hch ndi dia. Ddi vdi kinh doanh lu hanh qudc te, can cfl quy dinh ve ty Id nhdn sy d cdc vi tri qudn ly frong cde doanh nghidp ed vdn ddu tu nude ngodi hoac lien doanh;
cd quy dinh cy thd vd gidm sdt thye hien mua bao hiem cho khdeh du lich. Ve hudng din vidn du Hch, edn md rdng cap the hudng ddn du lich qudc t l tdi ttinh dO cao ddng chuyen nganh hudng din du Hch (thay cho dieu kien bat buOc phdi cd bdng dai hpc); bd sung mpt so quy dinh cy tiie ve thuyet minh vien; chudn hda chuong ttinh bdi duong nghiep vu va nOi dung cap chftng chi cho ddi tuong nay. Cho phep quy dinh hudng ddn ddi vdi hudng ddn vien mOt sd thi truong cd tinh ddc thii ngoai ngu hiem; cap the dac each dya fren cac yeu td
Ddn chCi & Phdp lu$t I
<phap.UiMoaJLmhi£ 86 5 (290)-2016
kinh nghiem, trinh dp, kiln thuc sau khi qua cdc ky kilm tia vl chuyen mdn nghiep vy va ngoai ngft;
cdn cd tiidm quy dinh chat che ban ddi vdi cdng tde ddi the.
Ben canh dd, quyIn Ipi ciia du khach cin dupe uu tien vd dupe neu ra mdt each rd rang. Can phai xac djnh viec bao ve du khach din dau, lyc lupng ndo chju ttach nhidm an ninh an toan cho khach du Hch vd ai dai dien cho quyen lpi ciia hp... Dd bdo ve quydn lpi ciia khdeh du Hch, cin bd sung vdo Luat dilu khoan vl co quan chiu frdch nhidm chinh frong viec bdo ve khdeh du Hch. Tai cde khu du Hch, dilm du lich phai ddt tram tiep nhan va giai quylt nhimg vudng mdc, phdn dnh ciia khdeh. Can CO dilu khodn bd sung vl thanh lap cac luc lupng chuyen fraeh frong hfl trp, bdo vd khdeh du Iich. Bo sung dilu khoan bdo ve khach du ljch trong ttirdng hpp cac cdng ty Ift bdnh dot ngOt gidi thi, pha san... Lien quan den van de xudt nhap canh, can phai sua ddi Ludt Du Hch ndm 2005 eho tuong thich vdi Ludt Nhap canh, xudt canh, qud canh, eu tni cua ngudi nude ngodi tai Viet Nam nam 2014 de bao dam tinh ddng bfl frong viec thuc thi...
Ddi vdi nhftng quy djnh ve ITnh vyc luu tni du Hch, ngoai nhftng loai co sd luu tni du Hch da dupe quy dinh xep bang nhu khach san, nha nghi, biet thu, lang du Iich, can hd du lich, tren thyc te da xuat hien loai hinh khach san benh vien, tau hda luu frii du ljch, tau thuy luu trii du Ijeh... nen nhilu y kien kien nghi bfl sung vao Didu 62 ten edc loai hinh CO sd luu tni du ljch ndy vd tren co sd dd bd sung tidu chudn xep hang vao bO Tieu chudn qudc gia vl xip hang ca sd luu ttii du Ijch. Cdn xem xet quy dinh mftc diem hop ly ban gifta cdc yeu cau ve ket ciu xay dyng cd djnh va cdc frang tiiilt bj npi thdt, kha ndng cung ung djch vy theo hudng uu tien cho nhung tieu chi Imh boat, doanh nghiep ed
the thay ddi, bd sung, tao dieu kien de doanh nghiep dat sd diem theo yeu cau. Ddng thdi, ciing can CO quy dinh cy the ve dieu kien dupe cdng nhan la khu, diem du Hch sinh thai, giup cdc nha ddu tu xay dung du dn phii hop vdi chinh sdch iru ddi dau tu theo quy dinh. Thdm quyen phdn loal xep hang ca sd luu tiii du Iich eung dupe kiln nghj theo hudng phan cap cho cap huyen tham dinh, xep hang ddi vdi loai nha nghi, nha d eo phdng cho khach du Hch thud; cap bien hieu dgt tieu chuan phuc vy khdeh du Hch cho ca sd kinh doanh dich vu du Hch trong khu du Hch, diem du lieh, dd thj du Hch thupc dia bdn qudn ly ciia huyen, thi xa, thanh phd.
Khac phuc bat cap tai khoan 3 Dieu 66 Luat Du Hch ndm 2005: "Loai ca sd luu tiii du Hch... duoc cdng nhdn xep hang sao hodc hang cao cip idii kinh doanh hang hfla, djch vy cd dieu kidn khong can phai cd giay phep kinh doanh ddi vdi tiing lo^i hdng hda, djch vy, nhung phdi ddng ky vdi co quan nha nude co tham quyen ttirde khi thyc hi^n". Tuy nhidn, d mpt sd dja phuong, edc co sd luu tni du Hch da dupe cdng nhan xep hang sao hoac hang cao cap khi kinh doanh hang hfla, djch vu co dieu kien nhu massage, vu trudng, karaoke... van phai xin giay phep kinh doanh.
Ve xay dung co chd, chinh sdch uu ddi dau tu, ngudn vdn, thud de xdy dyng vd phat trien co scr luu tni du Hch, dd nghi theo hudng cu the hoa co che chinh sach uu dai ddu tu: Td chuc, ca nhan dupe hudng tiiul suit uu dai khi ddu tu xdy dyng ca sd luu ttii du Hch hang 3 sao, 4 sao, 5 sao v^
hang cao cap; dupe huong thud sudt uu dai khi nhap khiu frang thilt bi chuydn dung hien dai cho CO sd luu tni du Hch frong tit ca cac ldn nhdp khau khi diu tu xdy dyng mdi hoac nang cdp co sd luu ttii du Hch hang 3 sao, 4 sao, 5 sao va hang cao cip
m Ddn chd & Phdn niAf
l>^Ui4toa3Cinha 86 5 (290)-2016
(hien da cd chinh sach im dai vl thue khi nhdp khau lan dau); dupe hudng uu ddi ve thue ddi voi khudn vien khong xdy dyng gdm: Khu vyc san, vuon cay xanh, khu vuc cfl cac tidn ich bdo ve mdi trudng.
Thir hai, khdc phuc bdt cap trong quy dmh ve bien phdp khdc phyc hdu qud
Nghj dinh sd 158/2013/ND-CP ngdy 12/11/2013 cfta Chinh phii quy dinh xu phat vi pham hanh chinh frong ITnh vyc van hoa, thi thao, du lich va quang cao (Nghj djnh sd 158/2013/ND- CP) da khdng tong hpp hdt nhftng npi dung cin thilt tft Nghi dinh sd 16/2012/ND-CP ngay 12/3/2012 cfta Chinh phft quy djnh vl xu phgt vi pham hdnh chinh frong ITnh vyc du lich (Nghj dinh sfl 16/2012/ND-CP). Dd dang dl nhan thiy dupe nhftng khoang frdng trong vdn bdn phdp ludt mdi ve bien phap khae phye hdu qud. Cy the, Dieu 2 Nghl dinh sd 158/2013/ND-CP quy dinh: "Ngoai cac bien phap khde phuc hau qua quy dinh tai cdc diem a, b, d, e, h va i khoan I Dieu 28 Ludt Xft ly vi pham hdnh chinh ndm 2012, hdnh vi vi pham hdnh chinh trong ITnh vuc vdn hoa, the thao, du Hch vd quang edo edn eo the bi ap dung mdt ho|c cdc bien phdp khdc phye hau qua sau ddy:
(i) BuOc hfty bo kit qua ttiyen chpn van ddng vidn, kit qua phong ddng cap van dOng vidn, huan luyen vidn, frpng tdi thd thao thanh tich cao;
(ii) Budc hfty bd thanh tich thi ddu the thao;
(iii) Budc thdo dd trien lam, bien hidu;
(iv) Bupc frd lai dat da lan chiem hogc chdm dftt vide sft dung frdi phep di tich lieh su - van hda, danh lam thing ednh, cdng tiinh vdn hda, nghe tiiudt;
(v) Bupc frd lai tdi lieu thu vien da ddnh trdo hoac chiim dyng;
(vi) Budc thdo ga, thdo dd hoac xoa quang cdo;
(vii) Budc xin Idi td chftc, cd nhan...' - Trong khi tiudc dd, Nghi dinh sd 16/2012/ND- CP (van ban bi thay the) Het ke rat ro 12 bien phdp khdc phuc hau qua tai khodn 3 Dieu 3:
(a) Bupc bd sung du nOi that, tidn nghi, phuang tien, frang thiet bi bao dam sftc khde, an toan tinh mang, tai sdn cua khdeh du lich;
(b) Budc thuc hien dftng che dp lgp, luu trft hd so, tai lieu theo quy dinh ciia phap luat;
(e) BuOc hodn fra khach du Hch hodc sung quy nha nude nhiing tdi sdn da thu bit chinh cfta khach du lich;
(d) Budc nop dft sd tien ky quy theo quy dinh;
(d) Budc thyc hien dftng ehe dO bao cao theo quy dinh ciia phdp luat;
(e) BuOc gan bien hieu xe d to dat tieu chuan phyc vu khach du ljch theo quy dinh ciia phap lugt;
(g) Budc bd sung du trang thiet bi, ca sd vat chat, djeh vu, trinh dp chuyen mdn, ngogi ngft cua ngudi qudn ly, nbdn vien phuc vu tuong ftng voi tieu chuan tiing loai, hang ca sd luu tni djeh vu theo quy dinh cua phdp ludt;
(h) BuOc gdn bidn hang ca sd luu tiii du Hch dung vdi quyet djnh xep hang cfta ca quan nhd nude ed tham quydn;
(i) Bupc dd bo hiiy bd an pham, bien quang cdo, biln hieu, dfl dimg, frang thiet bi vi pham quy djnh cua phdp ludt;
(k) Budc thdo dd, tieu buy cac vat pham tuyen truydn, quang ba du Hch, chdm dut cdc chuong trinh quang bd ddi vdi mdt so hanh vi vi pham quy dinh vd hogt ddng xiic tien du Hch;
(1) Budc thuc hien cac bien phdp khac phyc tinh trgng d nhiem mdi trudng do hanh vi vi phgm quy dinh vd bdo ve mfli trudng gay ra;
(m) Budc thi hdnh quydt djnh ciia ca quan, ngudi CO tham quyen doi vdi hanh vi vi pham can
Ddn ch£i & Phdp ludt I
fpttdfilaModJOMkli sa 5 (290) - 2016
trd hoat dong thanh tra, k i t o tra va xii phat vi pham hanh chinh.
Dfli chiSu cac bien phap khSc phuc hau qua dugc quy dinh trong Nghi dinh s6 158/2013/ND- CP, chiing ta thiy ro la khong thay th6 dugc 12 bien phap da dugc quy dinh trong Nghi dinh so 16/2012/NB-CP truac do. Dat trucmg hgp xu phat hanh vi "khong bao dam du s6 tiSn ky quy doi voi hoat dgng kinh doanh lii hanh qu6c te theo quy dinh". Khoan 4 DiSu 42 Nghi dinh s6 1S8/2013/ND-CP quy dinh phat tiSn hanh vi tren
tir 10.000.000 d6ng den 15.000.000 dong ma khong kem theo bien phap khac phuc hau qui
"bugc nop du so tien ky quy theo quy dinh". Vay chu thi vi pham se the nao? Cii nop phat va tai pham? Con co quan xu phat thi cu di phat va di kiem tra de tai phat?
Hy vgng rang, nhiing y kien trao doi a tren se gop phan hoan thien Luat Du lich nam 2005 sira d6i nham tao hanh lang phap ly thuan lgi cho du lich nuac nha phat trien phii hgp vai thuc tien hien nay •
Quyen ciia ngtfofi lao dong...
(Flip theo trang 21) nhien, phuang dn nay vdn khdng loai trft Id phaisua ddi, bd sung mdt sd diem frong Bd luat Lao dpng lien quan din van de tti do lidn ket cua ngudi lao dOng.
Ngodi van de neu fren, chiing tdi nhan thdy, ben cgnh van de hoan thien phap luat de bao ddm tdt hon quyen cua nguoi lao dOng thi mOt van de ciing vd Cling quan frpng la tang cuong gidm sat, kiem fra van de thyc thi phdp ludt ve quyen cua ngudi lao ddng, chdng ban nbu quydn khdng bj phdn biet ddi xft ve mpi khia cgnh cfta viec lam vd
nghe nghidp, bao ve lao dpng fre em duoi mgi hinh tiiuc bj bdc lot, ngupe ddi... Ddi vdi mOt qudc gia dang phdt frien nhu Viet Nam, hien nay nhilu vi pham phdp ludt frong Iinh vyc lao dOng dd vd dang la vdn d% nhftc nhdi ma bao chi neu nhieu trong tiidi gian qua. Do do, tdng cudng nang lyc thuc thi, giam sdt va xu ly edc vi pham phap luat frong linh vyc nay Id dieu vd cftng quan frpng, day ciiiig la myc dich chung cfta cae dieu udc qudc te ve quyen cfta ngudi lao dOng vdi cdc tinh chdt vd nOi ham nhu dd trinh bay d cdc phan fren •
/, Lien quan den lao ddng cuang bite, khodn 3 Dieu 8 ICCPR bet ke nhOng trucmg hgp logi Irir, bao gdm:
(i) Lao ddng cuang buc theo bdn dn eiia mdt Tda dn co tham quyin;
(ll) Nhiing edng vi^c hodc su phuc vu md thdng thudng ddi hoi mot nguai dang bi giam gift theo quyet dinh hfrp phdp eua Toa dn;
(lli) Nhiing nghta vu quy dinh ddi v&i nhiing nguai tir chdi ldm nghia vu qudn su vi ly do luong idm;
(iv) Nhitng nghia vy duaeyeu cdu trong trucmg hgp khdn cdp hogc thien tai;
(v) Nhiing cdng viec hodc dieh vu id mgt phan cua cde nghia vu ddn su thdng thuang;
(vi) Nhiing quy dinh ve logi trie neu trin phdi duoc dp dung mgi cdch binh ddng, khdng phdn biet doi xu vcri bat ftp chil the ndo. vd phdi phii hgp vdi edc quy dinh khdc co lien quan ciia ICCPR.
2. ICRMW dugc thdng qua theo Nghi quyit A/RES/45/158 ngdy 18/12/1990 cua Dgi hdi dong Lien Hgp qudc.
i 3 Ddn chri A PhAn Ut&t
