\ \ \ NGHIEN COU-TRAO DOI
QUAN DIEM CUA DANG TAI DAI HOI XII VE VAN DE KIEM SOAT QUYEN L U C NHA NlJOlC
V6 Thi Hoa *
Tom tat: Kiem soat quyen lUc nhd nUdc (QLNN) Id yeu cdu khach quan, cdn thiet trong dieu kien xay dUng nhd niidc phdp quyen nham phong, chong lam dung quyen lUc, dam bdo tinh hieu lUc, hieu qud trong thUc thi quyen lUc cong. Bdi viet lam ro mot s6 vdn de ly luan ve kiem soat QLNN vd quan diem cua Ddng ve kiem scat QLNN trong van kien Dgi hoi XII.
TU khoa: Quyen lUc nhd nUdc, kiem soat, kiem soat quyen lUc nhd nUdc, vdn kien Dgi hoi XII
Abstract: State power control is an objective requirement, which is necessary in the context of building a rule of law to prevent and abate power abuse, to ensure the efficiency and effectiveness of the public power implement. The article clarifies some of the issues of the theory of state power control and the Party's viewpoint on state power control in the documents of the 12th Congress.
Keywords: State power, control, control of state power, Congress document XII Ngdy nhgn bdi: 11/5/2018 Ngdy stia bdi: 30/8/2018 Ngdy duyet dang:15/9/2018
K
iem scat QLNN la van de quan trgng nham bao dam phdng, chong sii lam dung quyen lilc nha niidc va bao dam tinh nang ddng, sang tao, mem deo can phai cd de tien hanh cac cdng viec nha niidc. Kiem soat QLNN cd chu the rat da dang vdi hai phiiang thiic la kiem soat trong ndi bg bd may va kiem soat ngoai bg may nha nildc. Van kien Dai hgi Dang lan thii XII da neu rd nhiem vu hoan thien th^ che kiem soat QLNN, xac dinh rd cd che phan cdng, phoi hgp thtfc thi quyen liic, va cd che phdi hgp trong thiic hien va kiem scat cac quyen d cac cap chinh quyen, ve phiiOng thiic Idem soat tii ben ngoai vao thdng qua sii tham gia cua nhan dan d cac khau cua quy trinh raquyet dinh, giam sat thiic hien, quy dinh va thiic hien giam sat, phan bien xa hdi.
L Nhan thufc chung v6' ki€m scat QLNN
i. Quan niem vekiem soat QLNN O niidc ta, van de kiem soat QLNN dugc gidi nghien ciiu khoa hgc chinh tri phap ly rat quan tam ke' tii khi Dang, Nha niidc ta chu triiOng xay diing Nha nildc phap quyen xa hgi chu nghia. Cac nghien ciiu gSn day da diia ra mgt so quan niem ve kiem soat QLNN. Nhiing cd the khai quat thanh hai hiidng tiep can chinh la hifdng tiep can theo nghia rgng va tiep can theo nghia hep. Cu the:
'*' TS, Hoc vien Bdo chi vd Tuyen truyen
Tap chi Khoa hoc Ngi vu 3
Theo nghia rgng, kiem soat QLNN la mgt he thdng nhiing cd che diidc thiic hien bdi Nha niidc va xa hgi nham giii cho viec thiic thi quyen liic nha niidc diing muc dich, hieu qua [1, tr.36]. Nhii the, ki6'm soat QLNN bao gom ca viec thiet ke, to chiic, van hanh bg may nha nildc va theo ddi, xem xet, danh gia de quyen liic nha niidc van hanh diing muc dich, hieu qua nhat.
Theo nghia hep, ki6'm soat QLNN la toan bg nhiing hoat dgng theo ddi, xem xet, danh gia,... nhiing bien phap ma thdng qua do cd the ngan ngiia, loai bd nhiing nguy co, nhufng viec lam sai trai cua Nha niidc, c^ quan, nhan vien nha nitdc trong viec to chifc va thiJc hien quyen lUc nha nUdc, bao dam cho quyen Igc nha nildc dUdc to chiic va thgc hien diing muc dich mong muon va dat hieu qua cao [2, tr.4].
2. Tinh tdt yeu ciia kiem scat QLNN Kiem soat QLNN la rat quan trgng va can thiet. Khdng quoc gia nao cd the phat trien nhanh, on dinh va ben vGng neu nhil quyen liic nha niidc khdng diidc Idem soat va thUc hien diing dan. Tuy nhien, tr6n thUc te tinh trang lam quyen, tha hda quyen liic van ludn tiem an va thtfdng xuyen xay ra. Mgt so nhan vien nha nUdc, tham chi ca cac ca quan nha niidc thay mat nhan dan nam giii va thiic hien quyen liic nha nUdc nhitng lai Igi dung quyen Igc dugc giao vao muc dich vu Igi hoac vi muc dich cue bd; mgt sd nhan vien nha nUdc do nang lUc, trinh do ban che nen da mac sai lam trong viec diia ra nhUng quy^t dinh lam anh hUdng tdi Igi ich ciia cac to chxic, Cdi nhan.
Xuat phat tU co che to chiic va van hanh quyen lUc nha nUdc, nen kiem soat
QLNN cd pham vi doi tUdng la Idem soat doi vdi toan bg quyen lUc nha nUdc va tiing bg phan cau thanh nen quyen lUc nha nUdc, bao gom sU kiem soat trong viec to chiic, thUc hien cac quyen lap phap, hanh phap, tu phap va sU kiem soat giUa cac cd quan nha nUdc d Trung UOng va chinh quyen dia phUOng. SU gidi h^n quyen lUc nha nUdc - bao gom gidi ban cua quyen lUc bg may nha nUdc trong moi quan be vdi con ngUdi, quyen cdng dan va gidi ban tham quyen cua tilng cd quan, chiic vu trong bg may nha nUdc - la cd sd de hinh thanh cac cd ch^ de kiem soat QLNN.
3. Cdc loai hinh kiem scat QLNN Theo each tiep can phd bien hi6n nay, cd the chia cac boat ddng Idem scat QLNN thanh kiem soat tit ben trong nha nUdc va kiem soat tit ben ngoai nha nUdc.
Cu the:
Mgt Id, kiem scat tii ben trong nha niidc.
Theo Hien phap nam 2013, to chiic thUc hien quyen lUc nha nUdc d nUdc ta dUdc the hien thong qua bg may cua Nha nUdc tao nen bdi he thong cac co quan nha nUdc gdm: Cac c(3 quan quyen lUc nha nUdc (Quoc hdi va Hgi dong Nhan dan), cac cd quan quan ly nha nUdc (Chinh phu, cac bg, cac cd quan ngang bd va Uy ban nhan dan cac cap), cac co quan xet xii (Toa an nhan dan toi cao va cac tda an khac do luat dinh), cac cO quan kilm sat (Vien Kiem sat Nhan dan tdi cao, cac vien kiem sat khac do luat dinh), Chu tich nUdc (nguyen thu qudc gia), Hgi ddng bau cii qudc gia va Kiem toan nha nUdc.
Ve CO ban, kiem soat QLNN ben trong bg may nha nUdc dUa tren nguyen tac "quyen lUc nha nUdc la thdng nhat, cd 4 I Tap chi Khoa hgc Ndi vu
\ \ \ NGHIEN COU-TRAO DOI sU phan cdng, phoi hdp va Idem soat giUa
cac CO quan nha nUdc trong viec thUc hien cac quyen lap phap, hanh phap, tU phap".
Nguyen tac nay da bao ham sU Idem soat theo chieu ngang d cap trung Udng va nhiing mdi quan he cd tinh chat kiem soat ISn nhau theo chieu dgc giUa cac co quan nha nUdc d trung Uong vdi chinh quyen dia phuong, giUa cac co quan chinh quyen dia phuong cap tren vdi chinh quyen dia phuong cap dUdi; va giiia cac co quan trong ciing cap chinh quyen dia phUdng vdi nhau.
Trong cac chieu c^nh ciia kiem soat QLNN trong bd may nha nUdc thi kiem soat theo chi^u ngang d cap Trung Udng la ngi dung dac trUng can quan tam nhat, bdi vi chi cd d cap Trung Udng, nhat la doi vdi md hinh ddn nhat nhU Viet Nam, thi quyen lUc nha nUdc mdi cd bieu hien tap trung dSy dii ba bg phan lap phap, hanh phap, tu phap. Tuy nhien, kiem soat giiia cac CO quan nha nUdc cap tren doi vdi ca quan nha nUdc cap dUdi va kiem soat giita cd quan quyen lUc nha nUdc vdi cO quan hanh chinh nha nUdc d dia phUdng la nhiing yen to khdng the thieu tao nen tdng the kilm soat QLNN d nUdc ta.
Hai Id, kiem soat tit hen ngoai nhci nUdc.
O nUdc ta, vdi vai trd cua chu the' dac biet. Dang Cdng san Viet Nam - Dang duy nhat lanh dao Nha nUdc va xa hgi.
Ve nguyen tac, vdi vai trd lanh dao. Dang cd tham quyen va trach nhiem phai kie'm soat QLNN. Trong thUc tien, Dang cd to chiic bd may cua minh la nhiing cO quan thiet lap gan nhU song song vdi co quan nha nUdc, moi ban cua Dang cd the Idem tra, giam sat mot so cd quan cua bd may nha nUdc. Hon niia, Dang da cd mgt phan
"hda than vao Nha nUdc" thdng qua cac to chiic cd sd dang dugc thiet lap trong cac ca quan nha nUdc, qua sU lanh dao cua ban can sU dang, dang doan, qua nguyen tac bao cao va chiu sU kiem tra, giam sat theo Dieu le Dang, qua vai trd cua nhflng dang vien giii vi tri lanh dao chu chot trong cac cd quan nha nUdc, qua sU lanh dao tuyet doi va toan dien cua Dang doi vdi cac lUc lugng vii trang.
Nhan dan, vdi nghia tap hop ngUdi gom toan the cdng dan cua nUdc Viet Nam, la chu the toi cao cua quyen lUc nha nUdc, cd quyen kie'm soat quyen lUc ma minh da giao quyen, uy quyen cho cac cd quan nha nUdc thUc hien. Kie'm soat cua toan the Nhan dan ddi vdi quyen lUc nha nUdc the hien trong mgt so trUdng hop, vi du; khi Nhan dan tham gia gdp y Hien phap, tham gia bau cii, hoac tham gia cugc trUng cau y dan ve mgt so van de nao do.
Nhan dan cung cd the thdng qua Mat tran To quoc Viet Nam va cac to chifc chinh tri - xa hgi do Nhan dan lap ra, dai dien cho Nhan dan de' kie'm soat QLNN. Hien phap va phap luat Viet Nam quy dinh rd vai trd cua Mat tran To quoc Viet Nam va cac to chiic chinh tri - xa hgi gdm: Cdng doan Viet Nam, Hdi Ndng dan Viet Nam, Hdi CUu chien binh Viet Nam, Doan Thanh nien Cdng san Hd Chi Minh, coi day la kenh chu yeu de ngUdi dan kiem soat QLNN.
O nUdc ta hien nay, khdng cd bao chi tu nhan. Cac kenh truyen thdng dai chiing ngoai nha nUdc da so la cO quan ngdn luan cua cac to chiic chinh tri - xa hdi hoac to chiic chinh tri - xa hgi nghe nghiep. Nhan dan, thdng qua quyen tU do ngdn luan, tu do bao chi de kie'm soat QLNN. Trong do, cd quan bao chi viia la chu the, vila Tap chi Khoa hoc Ngi vu | 5
la phuong tien de Nhan dan kiem soat QLNN. Nhan dan cdn cd quyen la chu th6' kie'm soat trUc tiep quyen lUc nha nUdc thdng qua cac thiet che dan chu ca sd nhU:
thanh tra giao thdng, tap the Iao dgng, ban giam sat dau tU cua cdng ddng. Nhan dan vdi tu each ca nhan cdng dan ciing cd the tham gia kie'm soat QLNN theo cac quy dinh ve quyen tu do ngdn luan, tU do bao chi, tiep can thdng tin, hgi hgp, bieu tinh, khieu nai, td cao...
IL Ngi dung quan diem ciia Dang vi kie'm soat QLNN trong Van Iden Dai hgi XII
1. Hoan thiin the che kiem soat QLNN
De bao dam kiem soat QLNN, van kien Dai hgi XII cua Dang xac dinh, trUdc het phai hoan thien the che kiem soat QLNN. Trong dd, can phai bao dam phap luat vUa la cdng cu de Nha nUdc quan ly xa hdi, viia la cdng cu de nhan dan lam chu, kie'm tra, giam sat quyen lUc nha nUdc; "Xac dinh rd co che phan cdng, phoi hgp thiic thi quyen lUc nha nUdc, nhat la ca che kiem soat quyen lUc gifla cac ca quan nha nUdc trong viec thUc hien cac quyen lap phap, hanh phap, tU phap tren ca sd quyen lUc nha nUdc la thdng nhat"
[3, tr.l76]; quy dinh rd hon cd che phdi hop trong viec thUc hien va kiem soat cac quyen d cac cap chinh quyen.
Ddi vdi Qudc hgi, de thUc hien cd hieu qua cd che kiem soat quyen lUc vdi tu each la ca quan quyen lUc nha niidc cao nhat, la eg quan dai bieu cao nhat cua Nhan dan. Van kien Dai hdi XII yeu cau
"Ti^p tuc doi mdi to chiic va hoat ddng cua Qudc hdi, bao dam Quoc hgi thiic sU la ca quan dai bieu cao nhat cua nhan dan, CO quan quyen lUc nha nUdc cao nhat.
6 I Tap chi Khoa hgc Ngi vu
Quoc hdi thUc hien tdt chiic nang lap phap, quyet dinh cac van de quan trgng ciia dat nUdc va giam sat toi cao, nhat la doi vdi viec quan ly, sii dung cac nguon lUc cua dat nUdc" [3, tr.I76]; hoan thien ca che giam sat, danh gia doi vdi ngUdi giii chifc vu do Qudc hoi, Hdi dong nhan dan bau hoac phe chu^n.
06i vdi Chinh phu, de Idem soat QLNN ve hanh phap, van kien Dai hdi XII yeu cau, hoan thien ca cau td chiic Chinh phu, xac dinh rd hdn chiic nang, nhiem vu, quyen ban cua Chinh phu la ca quan hanh chinh nha nUdc cao nhat, thUc hien quyen hanh phap, la co quan chap hanh cua Quoc hgi. Ddng thdi, day msinh thUc hien Chuong trinh tong the cai each hanh chinh nha nUdc theo hudng xay dtfng nen hanh chinh dan chu, hien dai, chuyen nghiep, nang ddng, phuc vu nhan dan.
Hoan thien the' che hanh chinh dan chu - phap quyen, quy dinh trach nhiem va cd che giai trinh cua cac co quan nha nUdc...;
"De cao dao difc cdng vu, trach nhiem xa hgi, siet chat ky luat, ky cUong trong chi dao va thuc thi cdng vu cua can bg, cdng chiic, day nhanh viec ap dung chinh phu dien tii" [3, tr.l79]. Day la nhiing bien phap kiem soat viec thiic hien quyen lUc nha nUdc til goc, ngan chan sii tuy tien, lam quyen cua ca quan, can bg, cdng chiic nha nUdc.
Doi vdi cac cd quan tU phap, van kien Dai hgi XII yeu cau "Phan dinh ranh mach tham quyen quan ly hanh chinh vdi trach nhiem, quyen han tU phap trong td chiic, hoat dgng cua cac ca quan tU phap.
Cu the hda day du cac nguyen tac hien dinh ve chiic nang, nhi6m vu ciia Tda an nhan dan va boat dgng xet xif" [3, tr.l79].
To chiic tda an theo tham quyen xet xif;
bao dam nguyen tac dgc lap, nguyen tac
\ \ \ NGHIEN COU-TRAO D6I
tranh tung trong xet xif, bao dam quy6'n bao chufa cua bi can, bi cao, ciia dUOng sU.
Vien Ki6'm sat nhan dan thUc hanh quyen cong to va kilm sat hoat ddng tU phap;...
tang cUdng trach nhiem cdng to trong hoat dgng di^u tra. Kien toan to chiic CO quan dieu tra... Nang cao chat lugng, hieu qua hoat dgng cua luat sU, bd trg tU phap. Thuc hien nhiing chu trUOng neu tren, bao dam kiem soat dUdc boat dgng tu phap, bao dam cho cac hoat ddng nay dugc thiic hien theo quy dinh ciia phap luat, ngan chan tinh trang tiiy tien, thieu trach nhiem, g^y oan sai khi thUc hien quyen tu phap.
Ddi vdi ddi ngu can bg, cdng chiic, van kien Dai hdi XII xac dinh: "Dang tap trung lanh dao ve dUdng loi, chu trUdng, xay dung tieu chi, tieu chuan, cd che, chinh sach ve' can bd, cdng chifc. Day manh dan chu hda cdng tac can bg, quy dinh rd trach nhiem, tham quyen cua moi td chifc, mdi cap trong xay dUng ddi ngii can bg, cdng chifc cd ban linh chinh tri vUng vang, pham chat dao difc trong sang, cd trinh do, nang lUc chuyen mon phii hgp, dap ling yeu cau cua giai doan mdi... hoan thien tieu chi danh gia va ca che kiem tra, giam sat, kiem soat viec thUc thi cdng vu, xac dinh rd quyen han, trach nhiem cua ngUdi diing dau cO quan hanh chinh"[3.tr.l80-191].
2. Kiem soat QLNN luon gan vdi viec phdt huy vai tro cua nhan dan vdi tticdch Id chu the toi cao vd duy nhat cua quyen lUc nhd ntidc
Kie'm soat QLNN cua Nhan dan - chu the toi cao va duy nhat ciia quyen lUc nha nUdc, doi vdi Nha nUdc la moi quan he Idem soat quyen lUc ciia ngUdi chu doi vdi Nha nUdc. Vi vay, can tiep tuc phat
huy dan chu xa hdi chu nghia, dam bao tat ca quyen lUc nha nUdc thugc v^ Nhan dan; mgi chinh sach, phap luat cua Nha nUdc phai xuat phat til nguyen vgng, Igi ich chinh dang cua Nhan dan, dugc Nhan dan tham gia gdp y.
Thiic ti^n chi ra rang, chi cd phan dinh mgt each thiic chat, giao quyen mgt each rd rang nhflng nhiem vu, quyen han gi cho Nha nUdc, cdn nhiing gi Nhan dan thUc thi quyen lUc nha nUdc mgt each triic tiep hoac thdng qua cac to chifc chinh tri - xa hgi, nghe nghiep cua minh, thi Nhan dan mdi thUc hien dUgc quyen kie'm soat QLNN cd hieu qua. Ddng thdi, xay dtfng mgt ca che giam sat hflu hieu dl Nhan dan kiem soat dUdc quyen liic nha nUdc da giao, da uy quyen cho Nha nUdc, "Bao dam de nhSn dan tham gia tat ca cac khau cua qua trinh dUa ra nhflng quyet dinh lien quan den Igi ich, cugc song cua nhan dan, tif sang kien, tham gia thao luan, tranh luan den giam sat qua trinh thUc hien' [3,tr.l96]. The che hda va thUc hien tot phUOng cham "Dan biet, dan ban, d^n lam va dan kiem tra". Dac biet la hoan thien va cu the hda cd che nhan dan thiic hien dugc quyen bai nhiem va mien nhiem nhflng ngUdi do minh bau ra khi hg khdng cdn xifng dang.
3. Kiem soat QLNN gan vdi viec phdt huy vai tro ciia Mat tran To quoc, cdc doan the chinh tri - xd hot vd cdcphUdng tien thong tin dai chung
Quyen lUc nha nUdc dugc kiem soat tif ben ngoai thong qua cac hinh thflc Nhan dan tham gia cac khau cua qua trinh ra quyet dinh, giam sat qua trinh thUc hien;
quy dinh va thUc hien giam sat, phan bien xa hdi cua Mat tran To quoc va cac to chflc chinh tri - xa hgi ciing vdi nhan dan gdp Tap chi Khoa hgc Ndi vu | 7
y xay dUng Dang, xay dUng chinh quyen.
Day la phUOng thflc kie'm soat cd hieu lUc, hieu qua, do do, can quan tam hon den phUdng thflc KSQLNN tfl ben ngoai, nhat la kiem soat cua Mat tran, cac thanh vien Mat tran, cac phUdng tien thdng tin dai chung va cua toan the nhan dan.
Mat tran To quoc Viet Nam va cac to chflc chinh tri - xa hdi la cau noi gifla Dang, Nha nUdc vdi Nhan dan, vi vay, la noi de ngUdi dan tham gia vao viec thiic hien quyen lUc chinh tri, tao nen vung giao nhau cua he thong chinh tri va xa hdi. Cac to chflc chinh tri - xa hgi cung vdi Dang Cong san Viet Nam va Nha nUdc tao thanh he thong chinh tri Viet Nam, trong do Mat tran To quoc Viet Nam la cO sd chinh tri cua chinh quy^n nhan dan. Mat tran cung vdi cac to chflc chinh tri - xa hgi la noi the hien y chi, nguyen vgng, ddng vai trd ndng cdt trong tap hgp, van ddng nhan dan, day manh phong trao thi dua yeu nUdc, phat huy sflc manh dai doan ket dan tgc, thflc hien dan chu,"... giam sat va phan bien xa hgi, tham gia xay dflng Dang, Nha nfldc, hoat ddng doi ngoai nhan dan gdp phan xay dflng va bao ve To quoc"
[3, tr.l66]. Vi vay, can phai: "bao dam tac dung, hieu qua thflc chat boat dgng giam sat, phan bien xa hdi cua Mat tran To quoc va cac to chflc chinh tri - xa hgi; tao sfl ddng thuan xa hdi" [3, tr.l59] va"Phathuy vai trd cua cac ca quan dan cfl, Mat tran To qudc, cac doan the nhan dan,... trong dau tranh phdng, chong tham nhung, lang phi" [3, tr. 213]. Day la mgt dac diem can rat Iflu y trong the che kie'm soat QLNN d nfldc ta hien nay.
Vdi tu each la mgt thiet che, dong thdi la mgt phuong thflc kilm soat QLNN tfl ben ngoai, truyen thdng dai chung cd vai tro dac biet quan trgng. Thdng qua viec tuyen truyen chu trflong, dfldng loi cua Dang, chinh sach, phap luat cua Nha nfldc vao cugc song, phat hien va bieu dUdng nhflng nhan td mdi, co vu nhflng phong trao thi dua yeu nfldc, gdp phan phat hien va cd thai do dau tranh kien quyet doi vdi cac bieu hien tieu cflc trong xa hgi, truyen thdng dai chung vfla la chu thi quan trgng cua ddi song chinh tri, vfla la phfldng tien thflc hien cac muc tieu chinh tri. Cd the ndi d nfldc ta chUa bao gid truyen thdng dai chung lai phat triln manh me va cd vai trd to Idn nhfl hien nay. Danh gia tam quan trgng cua truyen thdng dai chung trong kiem soat QLNN, tai Dai hgi XII, Dang ta nhan manh: "Phat huy vai trd cua... cac phuong tien thdng tin dai chung va cua nhan dan trong dau tranh phdng, chong tham nhung, lang phi" [3, tr.2I3].a
TAI L I £ U T H A M KHAO 1. Trinh Thi Xuy£n (2008), Kiem soat QLNN - Mgt so van de ly luan va thUc tien d Viet Nam hien nay, Nxb Chinh tri quoc gia, Ha Ngi.
2. Nguyen Minh Doan, Vfl Thu Hanh (2014), "Quan niem vl kiem soat va cd che kilm soat QLNN", Tap chi Nha nfldc va Phap luat, so 9.
3. Dang Cdng san Viet Nam: Van kien Dai hgi Dai bilu Toan quoc lan thfl XII, NXB Chinh tri quoc gia, Ha Ndi, 2016
I Tap chi Khoa hgc Ngi vu
