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^ n ^ l ^ ' TAP CHtKHOA HQCPHAPLfSO 5/201$
Ttr THlTC TIEN GIAM SAT GIAI QUYET KHIEU NAI
H A N H
CHINH: KEEN NGHI HOAN THIEN
PHAP LUAT VE GIAM SAT
v o PHAN L £ NGUYEN*
Tdm tdt , X , , Gidm sdt viic thifc hiin phdp luat trong tinh viJtc khiiu ngi Id mot nhimg ca che phdp ly bdo ddm quyin khiiu ngi hdnh chinh cda cong ddn. Phdp lugt nuac ta trao quyen cho rat nhieu chd the gidm sdt hogt dong^di quyit khiiu ngi nhimg nhin chung hogt dgng ndy chua dgt duac kit qud nhu mong mudn. Bdi viet phdn tich thuc tiin hogt dgng gidm sdt viic thtfC hiin phdp ludt trong linh vifc khieu ngi, tic do ly gidi cdc nguyin nhdn hgn che vd de xudt cdc gidi phdp ndng cao hiiu qud cda hogt dgng gidm sdt viic thuc hienphap ludt trong linh vyrc khiiu ngi.
Abstract
Monitoring the implementation of legislation in the field of complaints is a legal mechanism guaranteeing the right to the administrative complaint of citizens. Vietnamese law empowers many monitoring entities to settle complaints but generally this operation has not achieved the desired results. The paper analyzes the practical activities to supervise the implementation of legislation in the field of complaints, which explains the causes and proposes solutions to improve the efficiency of monitoring the implementation ofthe law related to complaints.
/ ^ n u d c ta, khieu ngi la mdt trong nhung v - / q u y e n ca ban ciia cdng dan, dugc ^ nhgn trong Hien phap va cy the hda trong cac van ban phap luat. Ben cgnh vipc ghi nhan quyen khieu nai, Nha nude da khdng ngimg xay dyng va hoEin thien he thdng nhiing dam bao doi vdi quyen khieu nai cua cdng dan, trong dd nhiing dam bao phap ly la mlu chdt de cdng dan thyc hien quyen khilu nai ciia mmh tren thyc tl. Vdi y nghia dd, gi&n sat viec thyc hi^n phap lugt trong lihh vyc khilu nai la mdt trong ba try cot chinh cila ca chi phap ly bao dam thyc hien quyen khieu nai hanh chinh ciia cdng dan'.
Phaj) lugt nude ta trao quyin cho rit nhiiu ehu the giam sat hoat dpng giai quyit khilu ngi. Budc dau hogt ddng giam sat da mang lai
khdng cao, khieu nai, nhat la khieu ngi vl dit dai van nhieu, xu hudng ngay cang gay gat, phirc tgp han? Bai viit di tun cSu tra ldi qua khao sat phap luat thyc djnh, thyc tien ho^t ddng giam sat khieu ngi, tir dd ly giai c^c nguyen nhan hgn ehl va d l xult cdc giai phdp nang cao hieu qua eua hogt dpng giam sat vi?c thye hien phap luat trong ITnh vyc khilu nai.
1. Nh^n dien giam s^t g i ^ quyit khilu n^i hanh chinh cua cdng dan
Theo Tir dien Tilng Viet cua nha xult ban Khoa hpc xa hdi - Trung tam Tir diSn hpc Ha Npi - Viet Nam ttii "p.dm sdt Id theo doi, kiim tra xem co thiec hiin dung nhu nhirng diiu dd quy dinh '\ Dai tir diln Tieng Viet do Nguyen Nhu Y chii bien giai thich "gidm sdt Id theo doi, kiim tra vifc thuc hien nhiim vw"^. Theo nhung kit qua nhit dinh. Tuy nhien, xet mdt Tir diln Luat hgc ttii "gidm sdt la viic theo doi, each tdng th8 thi hogt ddng gjam sat ehua dgt
dugc ket qua nhu mong mudn. Cau hdi dat ra la; Tgi sao phap luat trao quyin giam sat cho nhieu ca quan, td chiic nhung hieu qua van
* Nghien cuu sinh tai trucmg Dai hoc Luat Tp. H6 Chi Minh.
' Nguyen TuSn lOianh, Ca chi phdp ly ddm bdo thtfC hifn quyen khieu ngi hdnh chinh cua cong ddn, Nxb. Chinh tn qu6c gia - Sy that. Ha Noi, 2014, tr. 31.
quan sdt mang tinh chu dgng, thuang xuyen cua ca quan, to chiic hogc nhdn ddn doi vdi cdc hogt dong cua cdc doi tuang chiu su gidm vd su tdc dpng cdc bifn phdp tich cue di bugc vd huong cdc hogt dong do di dung quy ^o,
^ Trung tam Tu dien hpc Ha Ngi, Td dien Tieng Viet, Nxb. Khoa hpc xa h6i, Hd NOi, tr. 374.
^ Nguyen Nhu Y (chii bien), Dai tir diin Tiing Vi4t, Nxb. Van hoa - Thong tin, Hi Npi, 1998, tr. 728.
L U ^ H A N H CHINH
quy che nhdm dgt duac muc dich, hieu qud da duac xdc dinh tic tru&c, dam bdo cho Hien phdp vdphdp lugt duac tudn thu"\
Tu nhung khai niem tren, cd the hieu "gidm sdt gidi quyet khiiu ngi hdnh chinh la xem xit hogt dong cua cdc chii the co tham quyin gidi quyet khiiu ngi hdnh chinh doi v&i todn bq hogt dong gidi quyit khieu ngi hdnh chinh mot cdch chu dong, thuang xuyen, Hen tuc vd tdc dgng thong qua cdc biin phdp tich cue nhdm hu&ng hogt dgng gidi quyet khieu ngi hdnh chinh dgt muc dich, hieu qud duac xdc dinh tic tru&c, ddm bdo cho Hiin phdp vdphdp lugt dieac tudn thu nghiim chinh ".
T i ^ can tir khia canh ban chat eiia giam sat vdi vai trd la mpt cdng cy Idem soat quyen lyc, bao dam ca quan hanh chinh nha nude cd thim quyen tuan thu quy dinh ciia Hien phap, phap lugt trong gjai quyet khieu nai hanh chinh, tac gia cho rang cd hai loai giam sat ca ban, dd la: giam sat trong npi tai bd may nha nude va giam sat xa hdi.
1.1. Gidm sdt tmng npi tai bp may nhd nu&c Day la hoat dpng giam sat mang tinh quyen lyc nha nude, bao gdm: giam sat cua cac co quan quyen lye nha nude (Qudc hdi, Hdi ddng nhan dan) ddi vdi cac ca quan hanh chinh nha nude trong hogt ddng giai quyet khieu ngi hanh chinh; giam sat ciia ca quan hanh chinh cap tren ddi vdi ca quan hanh ehinh cap dudi trong hoat ddng giai quyet khieu ngi hanh ehinh ttidng qua hogt ddng thanh tra, kiem tra, chi dgo, dilu hanh, ddn ddc, nhac nhd...
a. Ve ^dm sdt cda ca quan quyin It^ nhd nu&c Theo quy dinh cua Hien phap hien hanh, Qude hdi ed quyen giam sat tdi cao ddi vdi toan bp hoat dpng cua Nha nude,* tit nhien bao gdm ca giam sat tdi cao ddi vdi viec thye Men phap lugt vl khilu ngi hanh chmh. Hmh thiic giam sat ca ban ciia Qudc hdi la xem xet bao cao, chit vin va eir doan giam sat thyc tl. Qudc hdi thye hien quyin giam sat eiia nunh ttidng qua Uy ban Thudng vu Qudc hpi, Hpi ddng dan tdc, cac Uy ban cua Qudc hdi, cae Doan dai bieu
* Bp Tu p h ^ - Vien Khoa hpc phap ly. Tit dien Ludt hgc, Nxb. Tir diSn Bich khoa va Nxb. Tu phap, tr. 292.
' Di£u 83 va khoin 2 Dieu 84 Hien phdp nam 2013.
va dai biiu Qudc hdi. Tai cae ky hpp Qudc hdi hang nam, Qude hpi xem xet bao cao cua Chinh phu ve thi hanh phap lugt khieu ngi. Thdng qua xem xet, thao luan bao eao, Qudc hdi ehat van Chinh phii vd cac thanh vien Chinh phu vl thyc ttii phdp Mt khilu nai. Uy ban Thudng vu Qudc hdi cd quyen ttianh lap cdc doan giam sat viec thyc thi phdp luat khieu nai. Cdc Doan dai bieu Qudc hdi va dgi bieu Qudc hdi khdng nhung cd nhi^m vu giup Qudc hpi gidm sat hogt ddng ciia Chinh phu hong ttiyc hieii phdp lugt ve khieu ngi ma cdn cd quySn true tiep yeu eau eac ca quan, ngudi cd thdm quyen tiep thu y kiln vd dp dyng cdc bien phap khac phyc viec lam vi pham phap lugt, ehu truang, dudng ldi eiia Dang, Nha nude ve tiep nhan va giai quyet khieu nai hdnh chinh cua cdng dan. Ngodi ra, dgi bieu Qudc hpi cdn ed quyen tiep xiic cir tri va tham dy cdc ky hgp cua Hpi ddng nhan ddn cac dp* de lang nghe va xem xet cdc kien nghi, buc xuc ciia ngudi dan ve thyc hi$n quyen khilu ngi cua minh, qua dd, yeu eau, kien n ^ cdc ca quan nha nude, ngudi cd tham quyen thyc hien diing p h ^ luat, bao dam quyen va lgi ich hgp phap cua cdng dan.
6 dia phuang, Hpi dong nhan dan cac cdp thyc hien quyen giam sat ddi vdi hoat dpng ciia Uy ban nhdn dan trong boat dgng giai quyet khieu ngi hanh chinh cua cdng dan^ Ddng thdi, mdt trong nhiing nhiem vu quan trpng ciia Dai bieu Hdi ddng nhan dan dugc quy dinh mang tinh hien dinh la "xem xit, don doc viic gidi quyit khiiu ngi, to cdo ".*
Hoat ddng giam sat eiia Qudc hdi, Hdi ddng nhan dan cdc cdp mang tinh quyen lyc cao, tdc ddng manh den ddi tupng giam sdt, da dem lgi ket qua nhat dinh trong ndng cao chat lugng, hieu qua giai quyet khieu nai hanh ehinh. Vi du, trong nhiem ky Qudc hdi khda XH, TJy ban Thudng vu Qudc hdi da tien hanh giam sdt viee thyc thi phap lugt ve khieu ngi, td eao trong 3
* Dieu 27, 36 Luat To chiic Quoc hpi nam 2014.
Tuong tu, xem them Dieu 51, 55 Lu^t T6 chiic Qu6c h^i nam 2001 (siia d6i, bo sung nam 2007).
'' Dieu 1 Luat To chiic Hpi dong nhan dan v i Uy ban nhan dan nam nam 2003.
* Difiu 15 Hi^n phap nam 2013.
10 TAP CHtKHOA HQCPHAPLfsd 5/201S nam (2005 - 2007) tren pham vi ca nude. Trong
nam 2012, Uy ban Thudng vu Qude hdi khda X n i da thdnh Igp Doan giam sat va tien hanh giam sdt viec thye hien ehinh sdeh phdp lugt trong giai quyet khieu nai, td cdo cua cdng dan ddi vdi eae quyit dinh hanh chinh v l dat dai.
Dodn gidm sat da tiiyc hien viec giam sat mdt each cdng phu, bai ban. Tuy nhien, dieu ddng tiec la nhung Dodn gidm sat quy md vd chuySn sau nhu da neu it dugc thdnh ldp tren thyc te va nhieu ket ludn, kien nghi sau giam sat edn mang tmh chung chung,* chua gidi quyit duge ddi hdi thyc tiin dgt ra la giai quyet cd hieu qua eac khieu nai eua cdng ddn.
Nhiing ton tai, hgn che ehung nhit ciia md hinh giam sat ciia cac ca quan quySn lyc nha nude ddi vdi gidi quyet khieu nai hanh ehinh la: hogt dpng giam sdt cdn dan trai, thiiu tap frung, ket lugn, kien nghi, nghi quyit sau hoat dpng giam sdt chua dupe quan tam diing miic, hieu qua thap; ea che rang bupc trdch nhiem ddi vdi ddi tugng chiu giam sat chua chat che nen hieu qud thyc hien cac kiln nghj, kit luan sau giam sat cdn hgn che. Ngoai ra, cdc cupc giam sdt ttiudng td chiic ttieo hmh ttiiic Doan gian sat ciia Dodn dgi biiu Qudc hdi, it dai bieu Qudc hdi thuc hien chuang hinh giam sdt rieng ttieo quy dmh cua lugt. Do dd, hoat ddng giam sdt ddc lap cua tung dai biiu Quoc hdi nhm ehung chua duge thyc hipn thudng xuyen hogc ehii yeu do dgi biiu Qude hdi ehuyen trdch thyc hipn.'° Nhiing ban ehl hen xult phat tii nhieu nguyen nhan, nhung nhm chung cd cac nguyen nhdn chinh sau:
- Thu nhdt, phdp ludt ve gidm sdt con nhieu bdt cap, hgn chi
Quyin gidm sat giai quyit khilu ngi, td eao duge trao cho hiu hit eac co quan ciia Qudc hgi, cac Doan dai biiu Qudc hpi va dai biiu Qudc hdi nhung chua hieu qua vd la khau yiu ' Bdo cao s6 832/BC-UBTVQH ngay 28/2/2015 ciia Uy ban Thucmg vu Quoc h^i v6 t6ng kk hogt d9ng giam sat ciia Quoc h6i qua 10 ndm thirc hien Lugt hogt dpng giam sal ciia Quoc hgi va hogt dpng giam sat ciia Hpi d6ng nhan dan.
"> Bao cao s6 832/BC-UBTVQH ngay 28/2/2015 cua Uy ban Thudng vu Quoc hpi v€ t6ng kk hoat dpng giam sat ciia Quoc hpi qua 10 nSm thuc hien Luat hogt dpng giam sat cua Quoc hoi va hogt dpng gidm sat ciia Hpi dong nhan dan.
nhdt cua vi?e thyc hien chiic nang g i a n sat ciia Qudc hdi." Hien nay, phap ludt vin chua giao eho mpt ca quan ndo ciia Qudc hdi phy trach viec gidm sat dan thu khieu nai, td eao ciia cdng dan mdt each ddc Igp, cd hieu qua. Vi^c giam sdt eua CJude hdi hien cdn dugc quy dinh ttong nhieu van ban khac nhau nhung lgi khong duge quy dinh trong Luat Khilu ngi nam 2011 - dao lugt quan trpng nhdt lien quan din vi?c khieu nai. Mpt sd quy dinh v l ngi dung, dii tugng, hinh thiic giam sat Qude hdi, Hpi ding nhan dan cdn tning lap, chua ro rang, trong khi dd thieu mpt he thdng quy dmh ciia phap luat ve trinh ty, thu tyc giam sat, ca ehl phdi hm gidm sat, phgm vi traeh nhipm va ehl tai doi vdi cdc ca quan, td chiic trong viee tiip thu, tra ldi kien nghi gidm sdt. Dilu ndy dan din tmh trang liing tiing, chdng cheo trong giam sat, tinh trgng "quen" xir ly cdc kiln nghi sau giam sat ttiudng xuyen xay ra. Thyc tiin hi?n nay viec giam sdt giai quyit khilu ngi, t l cdo eua Qudc hdi mdi chi dimg lai d viec chuyin don thu den cae ea quan cd thdm quyen giai quyet va nhgn bdo eao ve viee gidi quyit ciia cdc ea quan dd trong vdng 7 ngay, ke tir ngay hp ra quyit dmh. Song hiu nhu chi eo 20%
den 3 0% cdc ca quan thdng bao lai vdi ca quan ddn nguyen ve nhung quyit dinh ma hp dua ra va Ban Dan nguyen eung khdng ttidng bdo voi ngudi khieu ngi ve viee cac khieu nai ciia hp dupe gidi quyet nhu thi nao.'^
Luat Td chijc Hdi ddng nhan dan vd Uy ban nhan ddn hien hanh chua xdc lap diy dii quyin lyc cua Hdi ddng nhdn dan trong hoat dpng giam sat nen Iam gidm di hieu qua gidm sat n6i chung vd hipu qud gidm sat giai quyit khilu nai, to cao ndi rieng cua Hdi ddng nhdn dan.
Cy ttie, tai Chuang III ndi v l hoat ddng gidm sat cd 24 dieu quy dinh v l chiic nang, nhiem
" Mac du tii nam 2003, Qu6c h^i da thanh lap Ban dan nguyen giiip Uy ban Thudng vu Qudc hpi giam sat viec thi hanh phap lugt khilu nai, t6 cao va tong hgrp bao c ^ cong tic dan nguySn. Tuy nhign, Ban Dan nguyan chi \h ccr quan tham muu, giup cho Uy ban Thuong vy Qu6c hfli ve c8ng tic dan nguyen, khdng co vai tro giam sit dpc lap
" Tniong Th] Hong Ha, "Tang cuong hoat dgng giam sit giai quyet khieu nai ciia cong dan voi vi?c xay dung m6 hinh Uy ban dan nguyen Qu6c h§i hien nay", Tgp chi Nghien dm l^p phdp, s6 I nSm 2010
LUAT HANH CHINH
vy, quyen ban, hinh thiic va each ttiiic td chirc boat ddng giam sat eiia Hdi ddng nhdn dan, Thudng tryc Hdi ddng nhan dan, eac ban cua Hdi ddng nhdn dan vd Dgi bieu Hdi ddng nhan nhung thdm quyen duge xae dinh trong lugt chi dimg lgi d muc Hdi ddng nhan dan dugc
"xem xet", "xet thay", eao nhat la "bd phieu tin nhiem" ddi vdi ngudi giu ehiic vy do Hdi ddng nhan dan bau. Lugt eiing ehua quy dinh rang bude thdi gian tdi thieu ddi vdi dai biSu kiem nhiem, nen nhieu dgi bieu ehua ehu ddng tiiam gia giam sat, eo che hogt ddng giam sat thieu rd rang lam eho dgi bieu thieu ty tin".
- Thic hai, hogt dgng gidm sdt con thiiu tinh chuyin nghiep, hiiu qud hogt dgng gidm sdt chua cao, chua xung tdm gidm sdt cda ca quan quyin luc nhd nu&c
Tmh chuyen nghiep hong hogt ddng gidm sat gidi quyet khieu ngi hanh chinh thS hien d bi8n phdp thyc hi^n quy trinh nghiep vy giam sdt va tinh chuyen mdn hda theo nganh, theo lmh vye, chdt lugng cae ket lugn, Jden nghi sau kit qud gidm sat va hieu qua thyc hiSn cac ket ludn, kiln nghi gidm sdt. Nhu da trinh bdy, d nude ta, npi dung gidm sat hogt ddng gidi quyet khieu nai hdnh chinh hien nay do hdu het eac eg qumi cda Qude hdi, Hdi ddng nhan dan vd cdc dai biiu dan eii thyc hien. Tuy nhien, chua ed ca quan dugc giao nhiem vy giam sdt mdt each ddc ldp va ehuyen nghiep ddi vdi hogt ddng giai quyit khi6u ngi, td cao. Vi vgy, viec giam sat hoat ddng gidi quyet khieu ngi hanh chinh khdng tgp trung, gid tri cdc kien nghi cd dugc tir kit qua hoat ddng gidm sat khdng eao.
Ben cgnh dd, phdp luat hien hanh vdn chua cd bien phdp nao dl yeu cdu ngudi dupe kiSn nghi gidi trinh viec khdng tiiyc hi$n cdc kiln n ^ cua ca quan gidm sdt. Dieu nay dan den viee giam sat cdng tdc gidi quyet khieu nai dugc tiin hanh rit nhiiu, nhung trSn thyc tl, sau khi cd kit qua giam sdt, it ed ea quan, td chiic nao bi xir ly, dan din tinh ttang "nhdn ttiudc".'''
" Bao cio s6 832/BC-UBTVQH ngay 28/2/2015 ciia Uy ban Thudng vy Qu6c hpi vk t6ng kk hogt dpng giim sat ciia Qu6c hgi qua 10 nam thyc hi?n Lugt hoat dong giam sat cua Quoc hoi v i ho^t dpng giim sat ciia HOi dong nhSn dan.
'* Nguyen TuSn Khanh, sdd, tr. 108,109.
Nang lyc gidm sat cua dai biiu Qudc hdi, dai biiu Hpi ddng nhan ddn cdn han che, nhat la giam sat ddi vdi nhiing vy viee khieu nai hanh ehinh cu till, do phin ldn dgi biiu Id kiem nhiem, khdng du dieu kien ve thdi gian, vat chit va thiiu thdng tm, han che vl ky nang dl thyc hien giam sdt. Mdt ttiyc tiin khac lam han chi nang lye gidm sat ciia Dgi bi6u dan cir (nhat la dgi biiu kiem nhiem) la tam ly ngai va ehgm.
Hieu qua hogt ddng gidm sdt ndi chung va giam sat giai quyit khieu nai, td cdo ndi rieng eiia eac ca quan quyen lyc nhd nude chua dgt hieu qud cao ciing xult phdt tir nguy§n nhan khdng kem phin quan trgng la eac dieu kien dam bao eho hogt ddng giam sdt nhu: ca sd, vat chit, trang thiit bi, bd mdy giup viec chua ddp ling yeu eau hoat ddng giam sdt."
b. Ve gidm sdt ciia ca quan hdnh chinh cdp trin doi v&i ca quan hdnh chinh cdp du&i
Viec td ehiie cdc hoat ddng thanh tra, kiem tra, theo ddi, ddn ddc giai quyet khieu ngi hdnh chmh cua cac eo quan hdnh ehinh nha nude cdp tren ddi vdi co quan nhd nude cap dudi ciing Id mpt hinh thirc gidm sat ndi tgi trong ea quan nha nude mang tinh quyen lyc. Day Id mpt hoat dpng dugc thyc hipn ttiudng xuyen, dem lgi hieu qud cao. Tuy nhien, nhupe diem eua hmh thiie ndy Id di hda vi quy, bao che nhau va kit qud thudng mang tinh ran de, nhac nhd han la quy kit trdch nhiem'*.
1.2. Gidm sdt xa hoi cua Mqt tr^n To quoc doi v&i hogt dpng gidi quyit khieu nai
Giam sdt xa hdi ddi vdi gidi quyit khieu nai hanh chinh dugc hiiu Id hinh thiic gidm sat ciia cac chu thi ngodi nha nude, bao gdm Mat tran Td qudc Viet Nam, cdc doan the Nhan ddn, td chiic xa hdi, hdi nghe nghiep, bdo chi va Nhdn
'^ Bao cio danh gia tic dgng Du in Lugt hoat dpng giam satcuaQuSchgiva Hpi dong nhan dan ngay 28/2/2015 ciia Ban soan thio Du an Lu^t hoat dpng giam sit ciia Qu6c hpi va Hgi dfing nhan dan.
'* Hi?n nay, v i ^ giim sit ciia ca quan hanh chinh cap trgn ddi vdi co quan hinh chinh cap dudi dang bgc lg qui nhilu hix c^p nhu su dung duong, bao che, mat dan chu. Ben cgnh do, su giim sit niy mang tinh ngi bg, li "chuydn trong nhi" ciia cic ca quan hinh chinh, cdn cdng dan chi la ngudi thii ba trong co che d6.
TAP CHtKHOA HQC PHAP LYSO 5/2015 dan ddi vdi cac chu thi cd thdm quyin gidi
quyet khieu nai hanh chinh vd tde ddng thdng qua cac bien phdp tich eye nham hudng boat dpng gidi quyet khieu nai hdnh chinh dat dugc myc dieh, hieu qua xdc dinh tir trude, ddm bao cho Hiln phap, phdp ludt dugc tuan ttiii mdt cdch nghiem ehinh.
Ve mat ly lugn, giam sat xa hdi ciing vdi gidm sat trong ndi tgi ca quan nha nude vd giam sdt cua Ddng tao thanh mdt he thdng gidm sdt chat che, dam bao eho boat ddng giai quyet khieu ngi hanh chinh dat dugc hieu qua de ra. Khac vdi gidm sat trong ndi tai co quan nha nude, giam sdt xa hdi khdng mang tinh quyin lyc nhd nude va dugc thuc hien theo eo che "theo ddi, phdt hien vd kien nghi" eac ca quan nhd nude ed tham quyen xem xet gidi quyet ma khdng cd ca che tryc tiep dp dung che tai dinh ehi, bai bd... Tuy vgy, theo danb gid cua nhieu chuyen gia phdp ly thi gidm sdt xa hdi la mdt bd sung, hoan thien ddi vdi giam sat mang tinh chat nha nude."
Trong cdc chu the giam sdt xa hpi ttii Mat tran Td qudc (bao gom cdc thanh vien cua Mat tran) la ehii the cd vai trd dac biet quan trpng.
QuySn gidm sdt ciia Mat tr&i chinh thiic dupe ghi nhdn trong dao luat cao nhat la Hien phdp'^
Tren ea sd dd, Nha nude thi chi hda quyin gidm sdt cua Mat tran To qudc tren nhieu lmh vyc, hong dd ed giam sdt thi hdnh phap lugt ve khieu nai hanh chinh ciia cdng ddn. Dieu 66 Luat Khieu nai nam 2011 quy dinh: "Mat trdn To quoc, cdc to chiec thdnh viin cua Mat trdn CO trdch nhiim gidm sdt viic thi hdnh phdp ludt ve khiiu ngi; dong viin nhdn ddn nghiim chinh chdp hdnh phdp ludt ve khiiu ngi; to chiic viic tiep cong ddn den khiiu ngi;
khi nhgn duac khiiu ngi thi nghiin dm, hu&ng ddn ngu&i khiiu ngi den ca quan, to chuc co thdm quyin gidi quyit khiiu ngf.
Gidm sdt ciia Mgt tran Td quoc ddi vdi hoat ddng giai quyet khieu nai hdnh chinh niu dugc phat huy mpt cdch day du tren thyc tiin se dem
" Nguyen Thp Anh, Thuc hien chuc ndng gidm sdt vd phdn bien xd hpi cua Mat Iran ToquSc Viet Nam hien nay, Nxb. Chinh tii qu6c gia - Su flial. Ha Npi, 2012, tr. 58.
'* Diiu 9 Hiln phap nam 2013.
lai kit qud to ldn trong hoat dpng giai quySt khilu nai hanh chmh theo hudng cdng khai, minh bach, hieu qua. Ddng thai ddy ciiDg se la mdt nhan td quan ypng bd khuylt vd khic phuc sy han cbl trong co ehl gidi quyit khieu nai hanh chmh ttieo kieu "bd trudng - quan tda" 6 nude ta hipn nay. Bdi le, giam sat ciia Mgt tran Td qude la khdeh quan, mang siie mgnh cpng ddng va quyen luc xa hpi. Mat trgn Td quoc co mpt vi tri, vai trd dgc biet quan trpng cd ve chinh tri - phap ly vd xa hdi bdi tmh ehit "ludng tinh"
cua td chiic nay: mia mang tmh ehinh tri (ttianh vien cua he thdng chmh tri); nua mang tinh xa hdi (Id td ehiic cua quan chiing Nhan dan).
Tinh chit "luang tinh" ndy da dat Mat hgn T6 qude d vai trd "cau ndi" giii Nhd nude vd Nhan dan. Mdt mat, vdi tu each la thdnh vien cua he thdng chinh tri. Mat tran Td qudc cd nhifm vy tham gia xdy dung ehinh quyen trong s?ch vung mgnh, do dd Mat trdn cd dieu kiSn tham gia tryc tiep ciing chinh quyen gidi quyet cac biic xiic, kien nghi eiia Nhan dan mgt each hi?u qua nhdt, ddng vien Nhan dan thyc hi&i diing chinh sdch, phap ludt ndi chung vd chinh sach phdp ludt ve khieu nai, td cao ndi rieng. Mat khde, vdi tu cdch Id td chirc ciia Nhdn ddn, M^t ti-gn dai dien, benh vyc quyen lgi ciia Nhan ddn, de xudt, kien nghi ca quan nha nude c6 thdm quyen tuan thii mdt cdch nghiem chinh quy dinh cua phap lugt ve gidi quyet khieu n^i hanh ehinh, bdo ddm quyin vd lgi ich hpp phap ciia nhdn dan. Vdi vai trd vd vi tri dac biet cua minh, Mat tran Td qude hpi du cac dieu kifin de thyc hien giam sdt gidi quyit khilu ngi hanh ehinh mdt edeh ed hieu qua. Ve dieu kipn phdp ly, chiic nang gidm sat gidi quyit khilu ngi cua Mat trdn Td qudc dugc ghi nhan trong Hien phdp, Ludt Mat trgn Td qudc, Lugt Khieu nai nam 2011, Ludt Thanh tta nam 2010... Vl lire lugng giam sat, cd the ndi, Mat trdn Td quoc la lyc lupng ddng dao, hung hau nhat. Mat tran Td qudc la chu the giam sat bao gdm eac thanh vien Id td ehire chinh tri, td chiic chinh tri - xa hdi, td chiie xa hdi n ^ l nghiep, td chiic xa hdi, cdc cd nhan tieu bieu... Han nira. Id mpt td ehiic qudn chiing nen Mat trdn Td quoc tap hgp dugc tinh cdm va tn tue cua ddi ngy tri
LUAT HANH CHINH 13 ttiiie, ehuyen gia gidi, nhit la cdc td ehire xa
hpi, nghe nghiep hogt ddng tren ITnh vyc phdp ly (nhu Lien doan Luat su, Hdi Lugt gia, bao chi...) va cae lihh vyc ehuyen mdn khde ludn sdn sang tu van cho Mat hran trong qua trinh gidm sat gidi quyet khieu nai hanh chinh. Ngay trong lyc lugng ciia minh, Mat ti:an Td qudc ed h^ ttidng td ehiie d ea 4 cap chmh quyin vd Ban cdng tac Mat ttJin ed mat d tan khu dan cu, nhd dd ma Mat trgn Td quoc cd diy du thdng tm nhdt ve nhung vy viec khilu ngi hanh chinh.
Tuy nhien, tren thyc tien, ben canh nhiing ket qud dgt duge (edn khd khi§m tdn), thi giam sdt cua Mat trgn Td qude edn rdt nhieu han ehl, bit cap ldm han che hieu qua ciia md hinh gidm sdt quan hgng ndy. Cy the, y tijdng trao quyin cho Mat tran Td qudc va cdc thanh vien eiia Mat trgn gidm sat edng tdc gidi quyit khilu ngi hanh chinh la mdt dudng ldi tdt, the hien mong mudn cua Nha nude trong viee tiiu hiit sy than gia cua xa hdi vdo qua trinh gidi quyet khieu nai hanh chhih. Tuy nhien, tren thyc tl, viec tham gia eua eac td ehiic chinh tri - xa hdi, cdc doan the qudn chiing vdo qua trinh gidi quyet khieu nai chua dgt duge ket qua nhu mong mudn, thgm ehi ed khi cdn mang tinh hinh thiie". Ngoai ra, hoat ddng gidm sdt cua Mat ti^ Td qudc vd cdc td chiie Ihanh vien cung chi mdi diing lgi d viec tiep nhan don ihu va ehuyen dan thu, theo doi, ddn dde, kien nghi giai quyit... Tat cd hogt ddng dd, ke ca ki6n nghi cung ehua duge cac chii the ed tham quyen giai quyet khieu nai hanh ehinh tiep thu, phan hdi diing miic.^" Vi vgy, hieu lyc phap ly va hieu qua gidm sat khdng dat duge yeu cau, mong mudn ma phdp ludt de ra.
Nhiing hgn chi tren, theo tac gid xuat phdt tir cdc nguyen nhdn ea ban sau:
Thic nhdt, phap ludt chua trao ddy dii va ey thi quyin giam sdt cho Mat trdn Td quoc vd
" Hoang Ngpc Giao (chii bien), Ca che gidi quyet khiiu nai thi^c trgng vd gidi phdp, Nxb. Cong an nhan din, tr. 135.
20 Nguyin Thp Anh, Thuc hien chirc ndng gidm sdt vd phdn bien xd hpi cda Mat trdn To quoc Viet Nam hien nay, Nxb. Chinh tri quoc gia - Su that, Ha Npi, 2012, tr. 152.
cac td ehiie thanh vien; ddng thdi ciing chua cd ca che phdp ly ddm bao cho viee gidm sat thye sy cd hieu qud. Don cit, Ludt Khieu nai nam 2011 danh han mdt dieu lugt ghi nhgn quyen gidm sat cua Mat trdn va cac doan the nhung ciing chi dimg lai d mirc chung nhdt la giao "trach nhipm (khdng phai quyen) gidm sat", "ddng vien nhan dan", "tiep cdng ddn",
"nghien cim", "hudng ddn", "theo ddi", cao nhit la "kiln nghi"... ma khdng ed quy dinh rang budc ttach nhiem, chi tdi ddi vdi eac chii the gidi quyit khieu nai hanh ehinh khi eac chu the nay "quen" gidi quyit.
Thic hai, tren thuc te. Mat trdn Td qudc ehua cd sy ddc lap, nhdt la sy dpc lap ve td chirc vd kmh phi hoat ddng Dieu nay da lam gidm di hipu qua gidm sat; han niia ngay trong ndi tai, Mat trdn Td qudc cung chua huy ddng duge sire manh tdng hgp de thyc hien hogt ddng giam sat mdt each cd hieu qud.
2. Kien nghi
Giam sdt Id mdt hogt dgng ludn cdn thiet, quan trgng vd Id cdng cu huu hieu eho vipc kiem soat quyen luc nha nude d bdt ky thiet che ehinh tri ndo. Dang va Nha nude ta tir khi ra ddi din nay ludn xem ttpng vi tti, vai ti-d cua cdng tac giam sat vd timg bude xay dyng hoan thien ca che giam sat de ddm bdo kiem soat quyen lyc nhd nude, hudng cdc hogt dpng cua ca quan nha nude di vao quy dao, ddm bao quyen va lgi ich hgp phdp ciia ngucri dan.
v l mat ly thuyet, giam sat d nude ta hien nay dugc td chiic theo mgt he thdng chgt che vdi 2 md hinh ca ban: giam sdt tir ndi tai co quan nha nude, gidm sdt xa hdi cua nhan dan tir ben ngoai thdng qua Mat ttdn Td qudc. Mdi md hinh gidm sat cd dac trung, phuang phdp, the manh rieng va bd khuyet cho nhau, tgo thdnh mdt he thdng gidm sdt ddng bd, hieu qua. Tuy nhien, tiing md hinh giam sat ciing bdc Ip nhimg han che nhdt dinh, lam gidm hipu luc, hieu qud gidm sdt. Vi vay, de gidm sdt thyc su mang lai hieu qua, tdc gia cho rang nen thye hien ddng bd cdc gidi phdp, ttong dd dac biet chii ttpng xdy dyng hodn thien khung phdp ly eho hoat dpng giam sat, vdi cdc kien nghi cy the sau:
14 TAP CHtKHOA HQCPHAPLfSO 5/2015 2.1. Doi v&i gidm sdt cua Quoc hpi vd Hpi
dong nhdn ddn
Theo Dy thao Luat giam sdt cua Qudc hdi va Hdi ddng nhan dan^' thi thdm quyen gidm sat viec thyc thi phap lugt ve khieu ngi, td cdo van dugc ttao hdu hit cho cdc ca quan cua Qudc hpi vd cac dai bieu ddn cii". Viec quy dinh ndi dung, hinh thirc giam sat trong Dy thao ludt chua ed diem mdi mang tinh dot phd so vdi phap lugt hign hanh v l gidm sdt cua ede ca quan quyen lye nha nude. Vi vay, tac gia kien nghi:
Thu nhdt, ben canh ldm ro khdi niem ve giam sat tdi eao ciia Qudc hpi, Dy thdo lugt lan ndy cdn cd sy phdn cdp, phdn dinh thdm quyen giam sat eu ttie han tten timg Jinh vyc cho timg ca quan cy thg cua Qudc hdi, de xac dinh ca quan chinh chiu ttdch nhiem theo doi, gidm sat, tham muu cho Qude hdi thye hien churc nang giam sat mdt each hieu qud nhit, tranh tmh tt^g giam sdt nhieu nhung hieu qud khdng cao nhu hien nay. Rieng ddi vdi gidm sat vi8c thyc thi phap ludt v l khilu ngi, td cao, d Qudc hpi nen ti:ao thdm quyin gidm sat chinh eho Uy ban Thudng vy Qudc hdi va ca quan tham muu giiip viec tryc tiep la Ban dan nguyen. Tgi dia phuang, tham quyin gidm sat khilu nai, td cdo nen giao cho Thudng tryc H^i ddng nhan ddn va ca quan giup viee Id Ban phap chi ciia Hdi ddng nhdn (cap tinh, huyen).
Thic hai, cdn quy dinh hmh thiic chi tdi ro rang han ddi vdi cdc ddi tupng bi giam sdt khdng thyc h i ^ cae yeu cdu, kiln nghi sau gidm sat eua cae chii fhl gidm sdt. Vi du: quy dinh khi ca quan, td chiie, ca nhdn khdng thye hipn cac ket luan, kien nghi giam sat thi co quan giarn sat ed quyen yeu cdu ea quan cd ttilm quyin xem xet, xii ly ky ludt vd thdng bao kit qua xu ly ky luat cho ea quan cd kit ludn, kiln nghj giam sdt biit.
Thic ba, Dilu 2 Hiln phdp nam 2013 quy djnh: "Quyin luc nhd nu&c Id thdng nhdt, co
=' Xem them D^r thao Luat Giam sdt ciia Qu6c hpi v^ H^i a6ng nhan din tren website:
http://duthaoonline.quochoi.vn/DuThao/Lists/DT_
DUTHAO_LUAT/View_Detail.aspx?ItemID=1034&
LanID= 1059&TabIndex=l.
^ Dieu 10,20,29,34,41,44,50, 52,61,69,71,79 Dg thio Luat Giam sdt ciia Qu6c hpi va Hpi ding nhan dan.
syphdn cdng phoi hgp vd kiim sodt giita cdc , ca quan nhd nu&c trong viic thuc hien quyin lap phdp, hdnh phdp vd tuphdp". Mudn kiim sodt tdt viec thyc tiii phap lugt, trong dd c6 phap lugt ve khieu ngi, td eao thi ttong Lugt To chirc Qudc hdi va Luat Td chiic chinh quyin dia phuang phai xem xet tang sd lugng dai biiu chuyen trach ciia (Judc hgi va Hdi ddng nhan dan. Mee ndng sd dai bieu chuyen trach len Id can thiet vi hg se ddnh nhiSu thdi gian han dl tap trung vao cdng viec. Trong cdng viee noi ehung cung nhu trong hoat dgng giam sdt viec thyc thi phdp luat ve giai quyet khieu nai, td cao ndi rieng, cdc dgi bieu ehuyen trach se khdng bj chi phdi, rang bupc bdi bat eir ly do ^ , khi do cac y kien se thang than, khach quan hon.^
2,2. Doi v&i gidm sdt xa hgi cua Mat trgn To qudc
Lugt Mat trgn Td qudc Viet Nam viia dirpc Qudc hdi khda X i n thdng qua vdo ngay 09/6/2015, cd nhieu quy dinh mdi, tiin b6, phii hgp vdi tien trinh dan ehii vd thyc ttin d nude ta. Trong dd, Lugt Mat tran Td qudc Yiet Nam ddnh hdn mpt dieu ludt (Dilu 18) quy dinh viec tham gia gidi quyet khieu nai ciia Mat tran T6 qudc va Chuong V quy dinh v l hoat ddng gidm sdt. Nhung quy dinh thi hien ttong Luat Mat trdn Td qudc Viet Nam Ian ndy da khang dinh vi tri phdp ly ciia Mat tran Td qudc trong boat ddng giai quyet khieu nai vd giam sat gjai quyet khieu nai cua cdng dan, khic phyc nhung han che ve gidm sat gidi quyit khilu nai eua Mat b i n da de cgp d tren. Trong bdi cdnh Luat Mat tran Td qudc \^et Nam sap ed hipu lye p h ^ ludt, eae van bdn hudng ddn thi hanh can cu ttie hda cdc quy dinh ve phuang thiic dgi dien, bao ve quyen, lgi ich hgp phdp ciia edng dan; gia tri phdp ly cua cae kit luan, kiln nghi gidm sat do Mat ttan Td qudc thye hi$n cung nhu ttich nhiem eua ede ddi tugng bi giam sat trong viec thye hien cdc ket ludn, kiln nghi giam sdt cua Mat ttan. Npi dung, hinh ttiiic, trinh ty, thu tyc gidm sdt chua rd rdng, ey thi. Vi vgy, tdc gia kien nghi:
^' Nguyen ST Diing, "Djii biiu QuIc hpi chuySn trdch hay chuyen nghifip", Tgp chi Nghien cuu Lgp
;j/iups6 3 , n a m 2 0 0 3 .
Xem tiip trang 22...
22 TAP CHtKHOA HQCPHAPLfsd 5/2015 trpng eua dieu le cd the ddi hdi mdt ty le bieu
quyet cao ban so vdi viec siia ddi ndi dung it quan trgng ban ttong dilu le dd.
- Ve ttdch nhigm bdi thudng tiiiet hgi giua cdng ty me va cdng ty con quy dinh tgi khodn 3 Dieu 190 Lugt Doanh nghiep khi edng ty me ean thiep ngodi thdm quyen vdo edng ty con la khdng khd thi. Cd hai ly do de dua ra nhgn xet nay. Dd la:
(i) Viec bdi thudng theo quy dinh ndy chi dien ra neu dap iing cd hai dieu kien: cdng ty mp can thiep ngodi tham quyen eua ehii sd hiiu, thanh vien hoac cd ddng va budc cdng ty eon phdi thye hipn hien hogt dpng kinh doanh ttai vdi thdng le kinh doanh bmh thudng hoge thyc hien hogt ddng khdng sinh lgi md khdng den bu hop ly gdy thiet hgi eho edng ty con.
Quy dinh can va dii nay kbiln cho viec phdi dap ling ea hai di6u kien ndy mdi dugc yeu cau bdi thudng. Chua ndi den sy khd khan trong viec ehiing minh tbl ndo la hogt ddng kinh doanh trai vdi thdng Ip kinh doanh thdng thudng, viee chiing minh thi ndo la can thiep ngodi tham quySn ciing la mpt dieu khdng dan gidn vi nhdn sy qudn ly cua edng ty con phdn ldn la nhiing ngudi do cdng ty me bd nhiem, dac biet Id ddi vdi cdc cdng ty con md cdng ty me sd huu 100% vdn dilu le. Vipc cdc nhan sy ndy phdi hanh ddng vi lgi ich ciia ngudi bd nhiem minh la dilu khd ttanh khdi.
(ii) Ben duge bdi ttiudng Id cdng ty con. Nhu da phan tich d tten, viec cdng ty con cd ehii ddng ygu cdu cdng ty me bdi ttiudng hay khdng phy thudc vdo ngudi qudn ly edng ty eon md nhiing ngudi quan ly nay phin ldn lgi do cdng ty mp bl nhiem. (^hinh dilu nay eiing lam cho quy dinh nay cd rat it y nghia thyc tiin.
Tir eac ly do neu tten, chung tdi cho rdng quy dinh ve yeu cdu bdi thudng thiet hai nay nen duge chinh sua dl till hien rang bit k^
ben thii ba nao (bao gdm cd ed ddng nhd eua edng ty eon, chii ng cua edng ty con, ddi tac thuang mai cda cdng ty con, hay bit ky ben thii ba nao khac) bi tiiiet hai bdi eac hdnh vi can thi$p ttai phdp ludt eiia cdng ty me vdo boat dpng cua cdng ty eon diu cd quyin yeu eau bdi thudng thipt hai. •
Tiip theo trang 15...
TlT THV*C TIEN GIAM SAT GIAI QUYET KHIEU N ^ HANH CHfNH:
KIEN NGHI HOAN THIEN PHAP LU^T VE GIAM SAT
Thic nhdt, cdn cu the hda cdc quy dinh ttong Lugt Mat trdn Td quoc Yi^t Nam theo hudng xae dinh "trach nhiem" va "quyin ban" cua Mat trgn Td qudc trong hogt dpng gidm sat giai quyet khieu nai. Theo do. Mat trdn Td qude ed "trdch nhiem" tuyen tinyln, van ddng nhan ddn thyc hien phdp ludt vl khieu nai, td cdo; td chiie tiep edng dan theo quy dinh cua phdp lugt; bdo ve quy^n vd lgi ich cua nhdn ddn khi tham gia hogt ddng giai quyet khieu ngi, td cao.' Ddng thdi quy djnh gidm sdt la "quyen nang" cua Mat ttdn To qude ehii khdng phdi trach nhiem. Khi thuc hien quyen nang nay, Mat trdn Td qudc phai dugc quyen dua ra nhiing ket lugn, kien nghi cd gia tri phdp ly d& bao ve quyin, lpi ich hgp phdp cua "ke yeu the" vd bude "nguoi nhan danh quyen lyc nha nude" phdi tudn ttiii mgt cdc nghiem chinh quy dinh eua phap luat trong qud trinh thye thi cdng vy.
Thic hai, cy the hda eac hinh thiic gidm sat cua Mat ttdn Td qudc mgt each rd rdng, chi tiet han. Tii dd. Mat trgn Td qudc se can cii vdo chuong trinh gidm sat da xdc dinh vd theo yeu cau thue tien dgt ra, td chiic doan giam sdt ddc lap; tham gia hogt ddng gidm sdt cua cae CO quan, td chirc cd tham quyen va giam sat eila Ddng vdi tu cdch la mdt thanh vien dai dien eho tieng ndi eua ittidn ddn; tham gia eae cupc hpp dinh ky hoge dot xudt eua cdc CO quan Ddng, Nhd nude lien quan din ngi dung giam sdt de nghe bao cdo vd cd y kifin phan ditti, kien nghi ca quan cd tham quyen gidi quyet nhiing vdn dl biie xiic, kiln nghi cua Nhan ddn. •
' Mat tran To quoc co trach nhiem diing v^ phia c6ng dan, benh v\rc cho quyen, led hgp phap cua cdng dan, tranh tinh trang hien nay, khi tham gia giAi quyet khiSu njii, t6 c4o. Mat trgn T 6 qu6c hoac lung chirng hoac nghieng vk phia co quan hanh chfah nha nu6c.
