Nghien caiu
Hoan tWen phap luat ve M u nai, to cao phu hdp each tiep can dila tren quy en con ngifCli
PGS. TS.LS Chu Hong Thanh
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ieu 30 Hien phap nuac CHXHCN Viet Nam quy dmh: "/ Moi ngicai co qureii khiiu ngi. To cdo v&i ca quan. to chirc vd cd nhdn cd thdm qiiven ve nhieng viec lam trdi phdp lugt ciia co quan. to chiec. cd nhdn.2. Co quan. to chiec cd nhdn co thdm quyen phdi tiep nhdn, gidi quvit kineu ngi. td cdo Ngicai bi thiet hgi co quyin dieoc bdi thudng vi vdt chdt, linh thdn vd phuc hoi danh die theo quy dinh ciia phdp ludt 3 Nghiem cdm viec trd thii nguoi khieu nai. to cdo hoac lai dung quven khieu nai, td cdo de vu khong. vu cdo lain hgi ngieoi khdc'\ Luat Khieu nai dupc Quoc hpi klioa XllI thong qua ngay 11/11/2011 dmh nghia: khieu ngi la viec cong dan, co quan, to chiic hoac can bp, cong chiic de nghi CO quan, to chirc, ca nhan c6 tham quyen xem xet lai quyet dinh hanh chinh, hanh vi hanh chinh ciia ca quan hanh chinh nha nuoc, cua nguoi CO tham quyen trong ca quan hanh chinh nha nudc hoac quyet dmh ky luat can bp, cong chiic khi CO can cir cho rang quyet dinh hoac hanh vi do la trai phap luat, xam pham quyen. loi ich hap phap cua minh. Luat To cao dupc Quoc hoi khoa XIII thong qua ngay 11/11/2011, theo do. to cdo la viec cong dan bao cho ca quan, to chirc, ca nlian co tham quyen biei ve hanh vi vi pham phap luat cua bat CU' ca quan, to chuc, ca nhan nao gay thiet hai hoac de dga gay
thiet hai lai ich cua nha nuoc.
quyen, lpi ich bop phap cua cong dan. CO quan, to cbiic
Phii hpp \di each hep can dua hen quyen con ngirdi va cac quy dinh cua Hien phap Viet Nam, viec hoan thien phap luat ve khicu nai, to cao can chu y mot so khia canh phap ly va nhan quyen chu yeu sau day
I. Qu>en khieu nai. quyen to cao la nhiing quyen co ban cua con ngudi va cua cong dan. Hien phap va phap luat ghi nhan va bao dam thuc hien la nhung ca sd phap ly het sue quan trpng giiip cho ngudi dan thuan ticn trong vice thuc hien quyen khieu nai, quyen to cao, dong thdi giiip cho cac ca quan nha nuoc va nhung ngudi co trach nhiem co the tien hanh xu ly cac vu viec theo diing tinh tu, thii Uic,
IhSm quyln ma phap luat quy dinh Phil hpp vdl each tilp can dira tren quyen con ngudi thi can nhan thiic ro: khieu nai. th cao la quyen ciia con ngudi, giai quyet khieu nai to cao la trach nhiem ciia nha nuac
2, Kliilu nai va td cao la 2 khai mem phan biet nhung co quan he gdn bo, gdn gCii va dniac day da duac dieu chinh bdng mot van ban thing nhdt. Qua trinh phat tnen cua phap luat va do nhiing doi hoi cua thuc tien ma khieu nai va to cao ddn ddn c6 su phan biet, nhat la kl hi khi ban hanh Phap lenh vl kliilu nai, to cao ciia cong dan nam 1991 va qua mot thai gian da dan din viec xudt hien hai dao lu^l Luat Khilu nai va Luat To cao rieng viec phan dinh giira khieu nai va to cao la cong viec khong
LUAT SUVIET NAM I SO 81 THANG 8-2016
he don gian doi vdi nhiing ngudi giri tdi ca quan co tham quyln, to bupc phai giii den chu tich UBND tihu6ng xuyen p h ^ xu: ly don thu chiic c6 thdm quyen va ca nhan xa; neu ngudi dan c6 khieu nai ve hay cac vu viec lihan duac. Trong co tham quyen de giai quyet. Tir
Dieu 17 din Dilu 26 Luat Khilu nai xac dinh thdm quyln nhan va gidi quyet khieu nai bao g6m:
tham quyen ciia chu tich UBND xa, phudng, thi trdn va thu trudng
hanh vi hanh chinh ciia mpt can bp tai chinh cap huyen thi bupc phai giri dan khieu nai den trudng phong tai chinh huyen.
Trong Luat To cao quy dinh ve tham quyen giai quyet to cao chi tilt va phiic tap hon nhieu so vdi Luat Khieu nai. Neu to cao hanh vi vi pham phap luat trong viec thuc hien nhiem vu, cong vu cua can bp, cong chiic, vien chiic thi ngudi dimg dau CO quan, to chiic c6 tham quyen quan ly can bO, cong
~~7Z ~ chiic, vien chiic do giai Khiiu nai, to cao dung thi phai dwgv quylt. To cao hanh vi vi xw iy dung, ngw&i bi thiet hai co quyin pham phap luat trong vi6c di«w? boi thwcmg ve vat chat, tinh than va thuc hien nhiem vy, cong phuc hoi danh dw. Tham chi Ithiiu nai, to yu cua ngudi diing ddu, cao diing va phat hien ra nhii'ng vi pham ^^p pho cua ngudi diing tefc t6 va phu hop vdi each tiep
c3n v8 quy§n con ngudi cho thay, CO khong it vu vi8c trong don thu viia \k khilu nai, vita la xk cao;
chang ban m6t don thu khilu nai
vk m6t quylt dinh cuong chi hanh co quan thu6c UBNd huyen, qu|n, chinh, nhung viia t6 cao quylt dinh thi xa, thanh pho thupc tinh; tham do la vi pham phap luat hinh sir, la quyln ciia t M hirdng ca quan lam dung quyln luc, khong dung thuoc so va cap tucmg duong; tham fiidm quyln luat dinh, gay thiet hai quyln cua giani doc so va cdp cho nha nuoc. Phu hop vdi each tuong duong; thdm quyen cua chii tilp can dua tren quyln con tich UBND cdp tmh; thdm quyln ngudi thi can nhan thuc ro
viec phan chia thanh khieu nai va to cao chii yeu la de thuan tien cho xit ly, khong cd nhieu y nghia ddi vdi thuc hien quyln ciia ngudi
dan khi phat Men hanh yi pfj^p /„^^ trim trong rat nguy hiim cho xa trai phap Iuat thi cd quyen fjgi thi can va co thi dwwc l(hen va dirac phan anh. thw&ng vi da gop phan bao ve tinh dung dan, nghiem minh cua phap iuat, bao ve cong iy va cong bang xa hgi. / / 3. Hien phap quy dinh
"Mgi ngu&i cd quyin khieu ngi. td cdo..." cd nghia
dau ca quan, td chitc do ngudi diing dau co quan, to chiic cap tren tnrc tiep cua CO quan, to chirc do giai quylt. To cao hanh vi vi phara phap luat Uong viec
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thuc hien nhiem vu, cong vu ciia ngudi, quyen cua tat ca cac thanh
vien trong xa hoi, cua m6i con co quan thupc Chinh phii; tham ngudi. Luat Khilu nai quy dinh quyen ciia Tong thanh tt-a Chinh chil thl cd quyln khieu nai la
la khilu nai, td cao la quyen con cua thii tmdng co quan thupc bp, , ^ , . ^. . „ . , , . , ' thupc CO quan ngang bp, thupc can bp, cong chuc, vien chuc thupc
tham quyen quan ly ciia nhieu ca quan, to chiic do ngudi diing dau phu; tham quyln cua chanh thanh
tra cac cap; tham quyen ciia Tbu tudng Chinh phu. Tuy bing khieu nai ma don khieu nai duoc gin tdi ca nhan co tham quyen cu the.
Chdng han Dilu 17 cua Luat quy dinh "Chil tich UBND xa, phudng, thi trdn (sau day gpi chung la cap xa); thil trudng co quan thupc UBND huyen, quan, thi xa, thanh
"cdng ddn, ca quan, td chiec hogc cdn bg, cong chiec", Luat To cao quy dinh chii the co quyen to cao la
"cdng ddn", nhu vay chang nhiing giiia cac luat cd su khong dong bp v6 quy dinh chu thl khieu nai, to cao ma cdn chua cd su dong bp vdi Hiln phdp. Phil hop vdi each tiep can v l quyen con ngudi thi Luat
KhiSu nai va Luat T6 cao phai ''^°_^?!tt.!'t^}'Tilt.Sl dupc siia d6i, bd sung cho phii hap
CO quan, to chiic true tiep quan ly can bp, cong chitc, vien chiic bi td cao phoi hop vdi cac co quan, to chitc CO lien quan giai quyet. To cao hanh vi vi pham phap luat trong viec thuc hien nhiem vu, cong vu cua can bp, cong chirc, vien chitc CO dau hieu tpi pham do ca quan tien hanh to tung giai quyet theo quy dinh eua phap luat ve to tung hinh su. Luat To cao con quy dinh Hiln phap 2013, trong do xac dinh
ro chu thl cua quyln khieu nai, to cao, mpi ngudi diu cd quyen khi6u nai, td cao.
quyet dinh hanh chinh, hanh vi hanh chinh cua minh, cua ngudi co trach nhiem do minh quan ly true tilp". Nhu vay, nlu ngudi dan c6 4. Hiln phap quy dinh khilu khieu nai vk hanh vi hanh chinh nai, td cao ciia ngudi din dupc cua can bp xa thi don khieu nai
chung la cdp huyen) co thdm quyln chi tiet ve tham quyen giai quyet to giai quylt khilu nai ldn ddu d6i vdi cao hanh vi vi pham phap luat ciia can bp, cong chiic trong viec thuc hien nhiem vu, cong vu Q-ong co quan hanh chinh nha nudc; tham quyen giai quylt to eao hanh vi vi pham phap luat trong viec thuc hien nhiem vu, cong vu cua can bp.
L U A T SUVIET NAM I s 6 81 THANG 8-2016
p
c6ng chirc ttong co quan khac cua nha nudc; thdm quyen giai quyet t6 cao hanh vi vi pham phap luat trong viec thuc hien nhiem vu cua vien chitc trong don vi sir nghiep cong lap; thdm quyen giai quyet t l cao hanh vi vi pham phap luat trong viec thuc hien nhiem vu cua can bp, cong chiic, vien chiic ciia t6 chitc chinh tri, to chiic chinh trj - xa hpi; thdm quyln giai quyet to cao hanh vi vi pham phap luat ciia ngudi duoc giao thuc hien nhiem VII, c6ng vii ma khong phai la can bp, cong chiic, vien chiic. Cac quy dinh nay dua tdi be luy la don to cao phai din diing dia chi thi mdi dupc xem xet, giai quyet, chang ban muon to cao mpt nhan vien UBND xa thi don t6 cao phai dupc giti din chu tich UBND xa.
Vdi nhiing quy dinh phitc tap tren day da xuat hien mpt rao can cua khilu nai, to cao la ngudi dan khong dupc Idiieu nai, to cao vupt cap, don khieu nai, to cao phai dupc giti tdi dimg dia chi thi mdi dupc xem xet, giai quyet. Thuc su nhiing quy dinh nay chi thuan tien cho quan ly ma han che quyen khieu nai, to cao ciia ngudi dan.
Phu hpp vdi each tilp can vl quyen con ngudi thi ngudi dan phai co quyen gui dan khieu nai, to cao tdi bat cit CO quan, to chiic va ca nhan CO tham quyen nao. Mpt haiih vi vi pham ciia can bp xa thi ngudi dan CO quyen phan anh tdi lanh dao UBND cac cap, tdi hpi dong nhan dan, tdi Quoc hpi, tdi Thii tudng Chinh phu neu thay can. Tham chi, vdi quyln tu do thong tin, tu do ngon luan, ngudi dan c6 quyen giri don khieu nai, to cao tdi cac phuang tien thong tin dai chiing.
Viec phan cong tham quyen xem xet cu the ttmg vu viec khieu nai la cong viec cua nha nudc. Ban than viec quy dinh khong dupe khilu nai, to cao "vugt cdp" hoac "dong
ngudi" da la sir vi pham nghiem trong quyen con ngudi. Phii hop vdi each tiep can cua vipc xay dung nha nudc phap quyen cua dan, do dan va vi dan thi Chu tich nudc hay Thu tudng Chinh phu Cling can nghe y kien true tiSp ciia ngudi dan.
5. Hiln phap quy dinh npi dung khilu nai, to cao la "vi nhimg viic ldm trdi phdp lugt cua ca quan, to chuc, cd nhdn". D6 co the la t5 chitc, ca quan vi pham phap luat, CO thl la ca nhan vi pham phap luat, quy dinh ciia Hien phap khong true tiep va ngay lap titc gan npi dung khieu nai, td cao vol yeu t6 tham quyen va hau qua tac hai.
Luat Khilu nai dua ylu to "xdm phgm quyen, lgi ich hgp phdp cua minh" thi mdi duoc khilu nai la CO phdn ban che quyln khieu nai, Luat To cao dua yeu to "gay thiet hai hogc de dga gdy thiit hgi..."
thi mdi dupc to cao la c6 phan ban che quyen to cao. Phu hop vdi each tiep can ve quyen con ngudi va phu hpp vdi Hien phap thi ngudi dan phai CO quyen khieu nai, to cao doi vdi bat cu hanh vi, hoat dpng nao lam trai phap luat hoac vi pham phap luat cua bat cii to chirc, co quan va ca nhan nao, du c6 tham quyen cao hay thdp bay khong co tham quyen, du da gay ra hau qua tac hai hay chua gay ra hau qua, yeu to bat bupc trong npi dung to cao chi co the la hanh vi hoac boat dpng trai phap luat, hanh vi vi pham phap luat.
6. Hien phap quy dinh "Ca quan, td chiec, ca nhan co tham quyen phai tilp nhan, giai quyet khieu nai, to cao" nhu mpt nghia vu phai lam, nhu mpt trach nhiem phai thuc hien, khong the thoai thac. Mpt don thu khieu nai, td cao cd the diing, co the sai, co the ditng mpt phan, tuy nhien do la quyen
cua ngudi d§n d&i" ilmi L*
nhiem ciia cac ca qii iii r nhd nuac phai tig]'< iili u dinh ro ditng, sai, mit*. dC^A Neu ngay ^ p tuc g iii u.'j vdi hEttdi vi td cdo iln^»
quyln td cao ci^ \ hpp vdi each tiSp c^ n^
ngudi ftii ddkhiSun 'i hay sai ciing ldbi&|u i trdch nhiem ddi ve nj do la quyln cua d&i id ii ngudi, trach nhiem n i phai xdc minh lam jii dun'h chii khdng phai la tr.i I phu'H ngudi khieu nai, td *. ' iif hppcddubangchuii • lit hdnh vi do da loi du i- ^i n !• h nai, td cdo de xam hai quyen, n phdm, danh du cua ngum 1 cua to chiic, ca quan Haah vi co ' tinh Icri dimg quyen khieu nai, tt cao mdi b; tray cuu trach nhienii Luat T6 cdo hien hanh quy dmh chung vl trach lihiem cua ngum to cao doi vdi hanh vi t6 cao la mpt s%i han chi doi vdi quyen t6 cao f .
7. Trong giai quylt khieu T^ ^ t6 cao, nlu khieu nai, to cao dung va CO hau qua tac hai xay ra &i
"Ngu&i bi thiet hgi cd quyen dum boi thu&ng ve vdt chdt, tinh than vdphuc hoi danh du theo quy dmh cua phdp ludf\ Trong nha niroc * phap quyln ciia dan, do dan va vi dan thi khong nhung khong nra, j khong thl ban chi khilu nai, to cao ma nguoc lai hoat dong khieu nai, t6 cdo cdn dugc khuyen khich de xay dung xa h6i cong bdi^, dSi chii, van minh. Khilu nai, to cao 1^
quyln con ngudi, ding thm t h o ^ qua khilu nai, t6 cao, nha nuoc phat hi6n ra nhiing sai sot tro^ ^ quan Iy, phdt hien nhihig ^ ^ ° ^ ^ ' « ^ vi pham phap luat, g6p phan n g ^ ^ chan xii ly hdnh vi vi pham tranh dupc nhimg thiet h&i cho lm i c | ^ ciia nha nudc, ciia xa hoi va cac c ^ "
nhan khac. Khieu nai, t6 cao dui '
LUAT SUVIET NAM IS6 81 THANG 8-2016
Hoi Hiao tap huan ky nang g[ai quyet dor thip khieu nai cCia cdng dan
M phai duac xu ly dung, ngudi bi thiet hai cd quyen duac boi thudng ve vat chat, tinh than va phuc hoi danh du. Tham chi khilu nai, to cao dung va phat hien ra lihihig vi pham phap luat tram trpng rat nguy hiem cho xa hpi thi can va co the dupc khen va dupc thudng vi da gop phan bao ve tinh dung dan, nghiem minh ciia phap luat, bao ve cong ly va cdng bdng xa hpi. Chdng ban ddi vdi cd nhdn co nhieu thdnh tich trong viec to cdo hanh vi tham nhiing thi cdn phai dupc xet khen thudng theo quy dinh ciia phdp luat vk phong chdng tham nhiing. Mdt khilu nai doi vdi mot quyet dinh hanh chinh cd y nghia ldn trong viec bao dam phap che va mang lai quyln Ipi chinh dang hop phdp cho s6 dong ngudi thi ciing ximg ddng dugc khen va thudng.
8. Hiln phap quy dinh "nghiem cdm viec trd thu ngu&i khieu ngi td cdo". Trong quan he gidi quyet khilu nai, td cao thi ngudi bi khilu nai, t6 cao thudng Id ngudi c6 quyen luc, c6 uu the, la ngudi quan ly, nhan vien cong vu hoac CO thdm quyen quylt dinh hdnh chinh, cdn ngudi khilu nai, to cdo thudng la ngudi bi qudn ly-, chiu su tdc dpng ciia chinh sdch phap luat mpt each bi dpng, nghia Id thudng yiu thi" han. Viee giai quylt
khieu nai co the lam cho ngudi bi khieu nai phai thay doi mot quyet dinh, phai sita chira radt chinh sach hoac bupc phdi chdm diit hanh vi hanh chinh hi khieu nai, td do van CO the co kha nang xay ra viec ngudi bi khieu nai tim each ham hai, ban ch6, kim ham hoac trd thii ngudi di khieu nai. Hdnh vi to cao hudng tdi viec chi ra cac vi pham chinh sdch phap luat, vi the neu ngudi bi to cao thire su da c6 hdnh vi vi pham thi bp se tim mpi each che giau, bung bit thong tin, bit dau moi hoac tra thu ngudi da t6 cdo hp. Ngay ca khi ngudi bi to cdo khong cd hdnh vi vi pham thi trong nhieu trudng hgp hp ciing khong muon rai vao hodn canh hi t6 cao, xuat hien nhung dinh kien hoac thil ban ngudi da to cao hp.
Hp thudng sir dung cbiic vu, quyen ban, vi the xa hoi vd ca bd mdy true thupc va co thl chi phoi dugc dl thuc hien hdnh vi tra thii ngudi da td cao minh. Cho nen, viec bdo ve ngudi khieu nai, to cao la mpt trong nhiing van de can dupc phdp lu^t het siic quan tam, dac biet Id bdo ve ngudi t6 cdo. Phu hgp vdi each tiep can ve quyen con ngudi thi bao ve ngudi khieu nai, to cao bao gom cd viec bao ve thong tin, bdo ve tinh mang, sire khoe, tai san, uy tin, danh du, nhan pham
va cac quyen nhan than, bao ve vi tri cong tde, viec lam...; khong chi bao ve ngudi to cao md cd cac quan he than thich cua ngudi to cdo, d noi cu tni, d noi ldm viec va noi cd tdi san...
9. Hien phap nghiem cdm "lgi dung quyin khiiu ngi, td cdo de vu khdng, vu cdo ldm hgi ngu&i khde". Luat Nhan quyln qu6c te xac dinh cdc quyen con ngudi noi chung khong the bi b^n chi ngoai tni trudng hgp de bao ve lpi ich cdng cdng va tren ca sd ton trpng quyen vd tu do ciia ngudi khde.
Quyln khieu nai, tk cdo la quyen tu nhien cua con ngudi can dupe ton trpng, bdo ve va bdo dam thuc hien, chinh vi the can chong lpi dung quyen khieu nai, to cdo de vu khong, xiic pham danh du nhan phdm va quyen tu do ciia ngudi khac. Phu hpp vdi cdch tiep can ve quyen con ngudi thi Luat Khieu nai, Luat To cao can co nhiing quy pham cu the the hon ve hdnh vi lgi dung quyen khieu nai, to cao va cdc che tdi can thiet de xu ly cac hanh vi ay, bao dam quyen con ngudi, quyen cong dan ve khieu nai, to cdo.
Khieu nai, to cdo la mpt trong nhung quyen co ban cua con ngudi de tir bao ve minh vd bdo ve cdng dong tnrdc nhiing hanh vi VI pham phap luat, gop phdn xay dung vd phat trien Idnh manh xa hpi. Khieu nai, to cao Id quyen con ngudi da dugc phdp luat quoc te bao ve, dugc hien dinh, the blSn ban chat dan chu cua nha nudc xay dung tren nen tdng chu quyen nhan dan. Phu hpp vdi each tiep can ve quyen con ngudi thi quyen khilu nai, to cdo cdn dupc ton trgng, bao ve va bao dam thuc hien tot nhat trong tien trinh xay dung ddt nudc Viet Nam dan giau, nudc manh, dan chu, cong bang, van minh •
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LUAT SUVIET NAM I SO 81 THANG 8-2016
