. THAM N H O N G
XUNG D O T L O I I C H V A KIFM S O A T XUNG DOT LOI ICH TRONG PHONG, C H 6 N G T H A M NHtJNG O VI$T NAM
PHAM THAI Khoa Lu3t Hinh sU, TmBng Dai hgc Luat TP. Hh Chi Minh Criminal law Department, Ho Chi IVlinh Cicy Umversicy of Law Email [email protected] vn
T o m tdt
Bai viit t4p trung lam rd khdi nidm xung ddt lai ich, tidp cdn xung ddt lgi ich tUgoc dd la mdt dgng t'mh huing d^c thit trong ca chi lam phdt sinh hanh vi tham nhiing. Vdi vai trb d4c bi^t quan trpng nhu v4y, vi^c kiim sodt xung ddt lgi ich cung chinh ia kiim sodt cdc tinh huing co thi phdt sinh hanh vi tham nhung trdn thvc ti. Tinh phtic tgp, da dgng ciia cdc Cinh huing xung ddt lgi ich doi hoi phdi co nh4n thtic d'dy dit vd no, tgo CO sb cho viic xdy difng, hodn thidn thi chi, chinh sdch, cang nhu nhang bda ddm d'dng bd khde vS kinh ti- xd hdi died thi kiim sodt hidu qud loai tinh huing ndy.
T a k h o a : xung ddt lgi ich, kHm sodt xung dpt lgi ich, phong ching tham nhang Abstract
This article focuses on clarifying the concept of conflict of interest in specific type of situations uhen corruption acts occur. Controlling of conflicts of interest is abo controlling situations where corruption may actually arise. The complexity and diversity of situations of conflict of interest requires full awareness of it, creating the basis for building and perfecting institutions and policies, as well as other comprehensive guarantees of socio-economic situation to effectively control this type of situation.
K e y w o r d s : conflict of interest, control corflict of interest, prevention of corruption Ngay nhan bai: 15/8/2019 Ngay duyet dang: 10/01/2020
T u
L^h.
uat Phong, chd'ng tham nhung (PCTN) nam 2018 dflde Q u d c vhdi khda XIV thdng qua ngay 20/11/2018, c6 hifeu Iflc tii n ^ y 0 1 / 7 / 2 0 1 9 . So vdi Luat P C T N nam 2005 (sfla ddi, bd sung nam 2007, 2012) thi Luat P C T N nam 2018 cd nhieu diem mdi ndi bat nhfl md rdng pham vi di^u chinh cua luat ra khu vflc ngoai nha nfldc hay xfl ly tai san khdng rd ngubn gd'c va kidm soat thu nhap, tai san efla can bd, cdng ehfle.
Luat P C T N nam 2018 eung Ian d^u tien d"6 c4p mdt ndi dung kha mdi me, gay nhi'du tranh luan trong gidi nghien eflu va hoat ddng thfle tidn trong linh vUc P C T N , dd la va'n de Idem scat xung dot ldi i'eh (XDLI) trong hoat ddng P C T N d Viet N a m hien nay. T u y nhien, ban cha't ciia XDLI va kidm soat XDLI thflc ra lai khdng phai la vah di qua mdi me trong Hch sfl lap phap cua Vi^t N a m tfl trfldc ddn nay. Nhflng ndi dung efla luat hdi ty (nghia gde chfl Han la tranh di hoae ne tranh) da dflOc quy dinh Ian (SSM tien tai Bd luat
7 2 T ^ P C H i K H O A H Q C P H A P LY V l ^ T IMAIYX .iv,-... ^- H5ng DiSc dudi thSi vua Le Thanh T6ng (1442 - 1497) vi vifc bd nhi^'"
doi ngo quan lai phong ki^n d:i5i dd. Luat hbi ty quy dinh nhCng ngUfii than dii'ch nhu anh em, cha con, thiy 0-6, bm be cung hgc, nhung ngUfli rt"S que thi khdng duoc Iain quan cung mdt d]a phuong. Neu g}p dieu nay tm phai bao vdi triSu dinh de thuyen chuydn ngUdi than thudc di nOi khac.
Ngay d Bn phap diin hda dSu uen ciia LuSt P C T N nam 2005 (Lujt s6 55/2Q05/QH11), XDLI thuc chat cUng da dUdc nha lirni lujt quy dinh tJl muc 3 (Quy tic Ung xU, quy tic dao dUc ngh'e nghiep, viec chuy& doi vj tti cdng tac cili can bd, cdng chiSc vien chUc) tU DiSu 36 deh Di6u 43. Tuy nhien, nha lam luSt chua dua ra khai n i t a chinh thUc v'e XDLI va kiem soat XDLI, cung nhu chua cd su md rdng pham vi cac khai n i t a nay ra khu viic ngoai nha nudc. Nhu vay, vin dS XDLI va k i t a soat XDLI dUdc quy djnh ttong LuJt P C T N nim 2018 klidng han la hoan toan mdi, nd chi th^ hitn dim net hdn ma thdi.
Dinh hudng phdng ngUa sdm hanh vi tham nhung, k i t a soat hieu qua toan bd cd che: phat sinh, hinh thanh, phat trien cUa hanh vi thani nhOng va ngay ca viec xU ly hiu qua cUa tham nhOng da dudc th^ hien kha diy du ttong Luat P C T N nam 2018. Viec tiip cJn hoat ddng P C T N tU gdc dd phdng ngUa sdm va k i t a soat tdt toan bd qua trinh hinh thanh hanh vi tham nhung cUng dudc coi la each tiep cJn va giai quy^t vjh dS mang tinh djc tnmg ciia tdi pham hoc. Bai vid^t nay se di vad lam rd khai n i t a XDLI, vai ttd ciia no ttong cd che'phat sinh hanh vi tham nhUng, vide ki^m soit XDLI va nhung giai phap han che', xii ly XDLI phat sinh ttong qua ttinh dieu hanh hoat ddng cua cac cd quan, td chUc, ddn vi.
1. Xung ddt loi ich - Mdt dang tinh hudng cu th^ trong c o ch«
phat sinh cUa hanh vi tham nhiing
Khoan 4 DiSu 7 Cdng udc cua Lien hop qudc nam 2003 vl Phdng chdng tham nhUng quy djnh; "MSi quic gia thimh vitn, Un ca sd phh hap vdi cac nguyln tk oJ bdn cAaphdp kit nadc nnnh, nd lilc ban hanh, duy tn va cimg dak CO dll ang cuing minh bach va phang ngUa XDU". Tai khoin 5, Di'eu 8 (Quy tic Ung xU cho cdng chUc) quy dinh: "Klii (Wdi hap vd phU hap vdi cdc nguyin tic ca bdn dia phdp ludt nudc niinh, mSi qudc gia thanh viin nd Im thie't Idp cdc bitn phdp vd ca cUylu ciu cdng chttc hdo cdo co quan co thdm quyin vi cdc vin ti c6 litn quan trong do oi nhttng hoi)t ddng cdng vide, cdc khodn diu tu bin ngadi hay tdi sdn hode qua tdnggid tii ldn, nhttng thtt ma cd thi gdy XDU khi ho thuc hiin cdng vu"
D i t a b, d i t a e Di'eu 12 (Khu vuc at) Cdng udc U N C A C quy dinh.
"thtic ddy xdy dung cdc chudn muc vd thi, tuc nhdm hdo vt su Uim khiii ciia cdc td chic tu nhdn tuang ttng, trong dd cd quy tdc ttng xH vi tinh chinh xac, tinh chinh true
Ti^TrongThilc. "Giacmohbity", BflDK(e(namnct.iinps;//vietnanmet.vn/vii/tuanvief
ticudiem/g,jc-nio-hoi-ty-450537,htnj, tmy cJp ngay 26/10/2019 " "
jL.w^i ir-HONG C H O N G T H A M N H O N G
vd tinh dting ddn trong hogt dbng kinh doanh vd tdt ed ede ngKi nghiip Mn quan, dbng thbi thtic ddy cbng tde phong ngtia XDLI, thtie ddy nhdn rbng cde thtie tiin thuang mgi tit trong hogt dbng kinh doanh vd trong quan hi hop dbng vbi quicgia db" wa. "phong ngUa XDLI bang cdeh cdm, khi thdy phti hap vd trong mbt thbi gian hap If, nhang ngubi dd tting Id cbng ehtie thtie hi^n cdc hogt dbng ngh^ nghiip hogc cdm khu vue tu nhdn tuyin dving cbng ehtie vdo ldm viic sau khi h<? da ttf chtic hode vi huu niu ede hogt ddng ngKi nghiip hode inic tuyin dung db eb liin quan trtic tiip din ehtie nang md cbng chtic ndy ddm nhiim hogc gidm sdt khi con duong nhi^m".
Cdng fldc U N C A C khdng cd difeu, khoan nao giai thich cu thd vfe khai nifem XDLI va kidm scat XDLL Tuy nhifen, tfl nhflng quy dinh da nfeu 6 trdn cflng ed thd nhan thfle khai quat ve XDLI la sU ddi lap, mau thuSn vfe loi i'eh ca nhan efla cdng chflc vdi cac nhdm loi ich khac se anh hfldng tifeu cflc, khdng diing dan ddn viec thfle hifen ehfle traeh, nhifem vy cua cdng ehflc. Cdng fldc khuydn nghi cae qude gia thanh vi^n quy dinh vfe nghia vu bao cao, giai trinh eda cdng chflc, h?in chd mdt sd quyfen ldi eda cdng ehflc vfe tai san, vfe qua tang, vfe cdng vific lam thdm dd ed the kidm soat tdt v&i dfe XDLL
Hidn nay, khai nifem XDLI vfe cd ban eflng da dfldc cac qudc gia, td ehflc qudc tfe, gidi nghifen eflu di dfe'n su thd'ng nhat chung. Td chflc Hdp tae va phat tridn kinh td* {Organizgtion for Economic Co-operation and Developmen - O E C D ) trong mdt nghi6n cflu til nam 2005 da dfla ra dinh nghia cu thd hdn vfe XDLI. Theo dd, mdt XDLI bao gdm xung dot gifla cdng vy va ldi i'ch ca nhan efla cdng chflc, trdng dd ldi i'ch tfl nang Iflc ea nhan ciia edng ehfle cd thd anh hfldng khdng dung ddn viec thflc hi^n nhflng nhifem vu va trach nhifem chinh thflc cila hp.^
O y ban dde lap chdng tham nhflng {Independent Commission Against Corruption - ICAC) cho rang: "XDU xdy ra khi mbt cbng chtic b vdo mbt vi tri bi dnh hubng hogc xdy ra dnh htidng bbi loi ich cd nhdn etia minh khi thi^c thi cbng i/y". Theo Td chflc minh bach qudc td {Transparency Intemational - TI) thi XDLI la: "tinh huing trong db mbt ed nhdn hogc ti ehtie noi hg ldm viic, eb thi Id chinh phti, doanh nghiip, hdng truyin thdng ho4c ti ehtie xd hdi ddn sti, phdi dii mgt vbi viie lua chgn giaa trdch nhiim vd yiu cdu xudt phdt tti vi tri cbng viec ctia hg vbi nhting lgi ich ed nhdn etia chinh hg".^
Cae dinh nghia nay da cho th^y XDLI la mdi quan hfe ddi lap, mau thuan giOa ldi ich ca nhan efla cdng ehfle vdi chflc trach va nhifem vu dfldc giao efla hg. Khi ma edng chflc phai dflng trfldc sfl chon lfla gifla ldi ich Le Thi Thdy, "M.5t s6 vSn di vS kilm soac xung dOC Ipi ich trong hojC diJng cOng vy", Vi^n Khoa HQC thank tra, http-www.mt gov. vii/vn/tin-tuc 748660/mo t-so-van-de-ve-kiem-s oat- xung-dot-loi-jch-ttong-hoat-dong-cong-vu .aspx. cruy cip 01/10/2019.
Dinh Thi Huong Giang, "Kilm soac XDLI trong hogt dgng c6ng vy: Kinh nghiem qudc tl".
Top chi Td chiic nhd nudc, so 5 (146), 2019
TAP CHi KHOA H O C PHAP JL,y vn^x
(thfl ma nd mang lai sfl thoa man hay dap flng dUdc nhu cau vfe ^"^ ^ hoac vat chat) cho ban than ca nhan cdng chflc vdi vifec thflc hien nghi^ ^ ehinh ehfle trach, nhiem vu dfldc giao chinh la lue xuat hifen tinh nu ng XDLL Ldi ieh ea nhan efla cdng ehflc cd thd ehi phdi, anh hfldng khdng dflng dan dfen vifec thflc hien chflc flrach, nhifem vu hoac cd thd lam eho vi. c thflc hifen ehflc n:ach, nhiem vu khdng cdn bao dam dfldc tinh khach quan, vd tfl, dang tin e^y.
Theo khoan 8, Difeu 3 Luat P C T N 2018 thi "XDU Id Hnh huing mt^
trong db lgi ich ctia ngubi cb chtic vy, quy'in hgn hode ngubi thdn thich eda hg ^^^^^^
hogcse tdc dbng khbng dting din viie tliUc hiin nhidm vy, cbng vu". Vdi quy djnh nay, nha lam luat Vifet Nam eflng da md rdng vfe ph^m vi difeu chinh ra Unh vUe ngoai nha nUdc dd'i vdi cic tinh hud'ng XDLI.
XDLI la tinh hudng dUdc tao ra bdi sfl mau thuin, xung ddt gifla ldi ieh ca nhan efla ngfldi cd ehfle vu, quydn h^n hoac ldi ieh ciia nhflng ngfldi than thich cua ngfldi c6 chile vu quyfen han se tae ddng ti6u c\lc ddn vifec thfle hien nhifem vy, cdng vu, lam cho vide thflc hien nhifem vu, cdng vu khdng con bao dam tt'nh dung dan, khaeh quan, vd tfl. XDLI va hanh vi tham nhflng co mdt md'i Hfen ht nhSn qua ra't chat che. XDLI h nguydn nhan, tham nliung la kdt qua. Trong md'i quan he nay, XDLI la cai cd trflde ve mat thdi gian, la cai cd thd trflc ndp lam phat sinh hanh vi tham nhung tr&i thflc td. XDLI vfla mang tinh khaeh quan, lai vfla cd thfe bieu hifen ca nhan td chfl quan efla chu thfe la ngUdi co chflc vu, quyen han. Day la Idai tinh hud'ng cd the dfldc tao ra bdi cac nhan td khach quan dfe'n tfl bfen ngoai mdi trfldng xa hfei (nhU sU phan cdng nhifem vu, cdng tae, eac md'i quan hfe xa hdi, cac hoan canh ngau nhien...) nhung cflng cd the do chinh chfl thd tao ra dd sfl dung nd vao viee thfle hien hanh vi tham nhflng (chvi ddng tham gia vao nhflng hoat ddng, nhflng hop ddng hoac giao dieh dan sfl).
Tidp can XDLI nhfl mdt dang tinh hudng lam phat sinli thani nliflng dfldi gde dd Tdi pham hpe, chflng tdi cflng nhan thay mdt sd dac difeni dae trflng efla loai tinh hudng nay, dd la:
Thti nhdt, tinh phd bifen eua XDLI trong moi linh vflc khac nhau cua ddi sdng xa hdi. Mau thuan, xung dot la phd bife'n eua mpi sfl vat, hifin Mdng tdn tai trong tfl nhifin, xa hdi va tfl duy.'' Mau thuan gifla lpi fch ca nhan chfl the vdi cac nhdm lpi ich khac ludn tdn tai nrong mpi hoat dono- eua eon ngfldi. TrUdc khi bit tay vao thflc hien bat efl boat dpng nao tl^
con ngudi eung ludn can nhae vfe lpi ich ca nhan ma minh cd thd nhan dupc
•• Q u y lujl t h 6 n g nh5t va din cranh giOa cac m J t ddi lap c o n goi la q u y lu^t m i u thuiti Ik trong ba quy lugt co ban cua p h e p b i e n chilng d u y v j t va l i quy luat q u a n t r p n g nhft ciia "k- b i f n chilng duy vat t r o n g m f t h p c M a c - Lenin, la hgt nhSn ciia p h e p b i e n chilng Quv^l'^^
nay v^ch ra n g u b n g6c. d^ng lye cua sy v j n d $ n g , phac t r i l n T h e o d o , ngu&n g6c c^a sit T^
t n i n chi'nh la mSu t h u i n va viec giai quyet mSu t h u i n niji t?i nrong b a n than m6i sy v^t tf
T H A M N H O N G
til vifec thflc hifen cac ho^t ddng dd. N h u e^u va ldi i'ch ea nhan chinh la hfe thdng ddng Iflc cho moi d$ng hoat ddng ciia con ngfldi trong xa hdi. Xu hfldng tdi da hda cac ldi i'ch mong ddi efla chii the ludn mang tinh tS^t ydu va lam cho cae ldi ich nay efla ca nhan phat tridn lah at, di ngUde lai vdi cac n h d m ldi i'ch khac ndu khdng cd sfl kidm soat hifeu qua. XDLI la phd bife'n, t^t ydu va hidn difen trong mpi linh vfle khac nhau ciia ddi sdng xa hdi nfen se rit khd c6 thd Hfet kd va quy dinh mdt each day du, ehinh xac.
Thti hai, tinh ddi khang ca nhan efla XDLI. Tinh hudng XDLI ludn ham chfla ydu td chu quan thudc ve ehfl thfe, ngfldi ed chflc vu quyfen ban, khi thflc hidn nhifem vu, cdng vu dfldc giao cua ban than hp. Trong loai linh hudng nay, ehfl thd ludn cd su danh gia, can nhae gifla ldi ich ea nhan vdi cac n h d m ldi i'ch khac, vifec ra quyfet dinh eua ehii thd nhfl thflc hifen hoae khdng thfle hien m d t hanh ddng nao trong chflc trach, nhidm vu cua minh deu thd hifen sfl sd sanh va danh gia cua chfl thd vfe tfldng quan gifla ldi i'ch ca nhan vdi cac Idai ldi ich khac. Hanh vi tham nhflng se ehi dfl<?c thflc hifen khi trdng sfl danh gia efla chfl thd, tt'nh "mao hidm" (kha nang bi phat hifen, td cao, td giac, bi trflng phat) dflpc giam xudng d mflc dd thap nha^t.^ Tinh ddi khang ca nhan trong tinh hud'ng XDLI cang cao, tflc la bidu hifen ciia xung ddt cang gay g^t thi nguy cd phat sinh tham nhiing cang ldn.
Phong ngila tham nhflng phai hfldng cac giai phap vao vifee trifet thoai, gidm thidu di mflc dd ddi khang nay trong cac tinh hudng XDLI hoac phai bang cae giai phap chuydn hda ldi i'eh ca nhSn tifem can hdn vdi cae nhdm ldi ich khac d mflc dd td'i da.
Khi tifep can XDLI dudi gde dd la tinh hudng ^ m phat smh hanh vi tham nhflng, chflng ta cflng cd thd ufen hanh phan loai eac tinh hud'ng XDLI thed cac tifeu ehi da dfldc sfl dung dfe phan loai cac tinh hudng trong cO chd phat sinh hanh vi pham tdi cu the. D o cd tinh dac thu eda dang tinh hudng xung ddt nfen chflng tdi cho rang XDLI cd thd dflde phan loai dfla trfen hai tifeu chi, dd la:
a. Can cd vao thdi gian tbn tai efla (inh hudng XDLI cd thd phan loai XDLI thanh:
- T m h hudng XDLI tdn tai nhat thdi, mdt Ian. Vi du: vifec tang qua va n h ^ qua tang cd Hdn quan dfen edng vifec eua ngfldi ed chflc vii, quyfen han...
- T m h hudng XDLI tdn tai Urong thdi gian dai. Vi du: vifec tham gia dau tfl, kinh doanh, quan ly doanh nghifep, cdng ty efla ngfldi cd chflc vu quyfen ban...
b. Can cfl vad ngudn gdc hinh thanh eua hnh hudng XDLI, ed thd phan loai thanh:
5 Tniang Dai hgc Lu^t TP. Ho Chi Minh, Gido trinh Tdi phifin hoc, Nxb. H6ng Dde - H<ti lujt gia Viet Nam, tr. 221,
76 TAP c m KHOA HOC PHAP LY VIEI i
- Tmh hu6'ng XDLI do yfa tfi chii quan, do ban th4n nguSi co c J^
vtt, quyin han tao ra. Vi du: vifc nguOi co chdc vu quyen han thOT pa hoat dong tBu tU, kinh doanh, quan ly doanh nghiep, cflng ty, bfl nJii^^
nguai than thich vao cac vi tri g4y XDLI trong cO quan, td chdc, ddn vi nunh la ngucii ddng diiu... ^ j^
- Tmh hudng XDLI do ydu td khach quan tao ra. Day la nhung o hudng XDLI khdng ddn tfl ea nlian cua ngfldi cd chflc vu, quy^n han do ca nhan, td chUe, do hoan canh ngau nhifen tao ra. Vi dfl: sfl phan c g nhifem vu, vifec chi dao, difeu hanh efla e^p trtn, efla td chflc, ddn vi ddi v ngudi cd ehflc vu, quyen han.
2. Quy dinh vfe ki^m soat xung ddt lpi ich trong hoat ddng P ^ ^ " | chdng tham nhung theo Lu^t Phdng, ch6ng tham nhOng n ^ 201»
Kidm soat XDLI la vifec xem xet dfe phat hifen, ngan ehan vifec hmii thanh XDLI, can thifep kip thdi dfe xfl ly tinh hudng XDLI nham phong ngfla tham nhui^. Nhfl vay, dfe c6 thd kifem soat, phdng ngila XDLI, ttiidc tien can cd sfl nhan thflc didng nha't cua cac chfl thd ve tinh hud'ng ed XDLI ttren thUe tfe. Vai ttrd cua ca nhan ngfldi cd chflc vu, quyfen han, eua cd quan, td chflc, ddn vi va cua edng ddng xa hdi tham gia kidm dra, giam sat se tao thanh thd "kifeng ba chan" vflng chai drong kifem soat, phdng ngfla >S)LL Ngfldi cd ehfle vu, quyfen han can tfl minh ban chfe cac ldi ieh ca nhan cd nguy ed xung ddt vdi eac loi ich khac khi thflc hifen nhifem vu, cdng vu.
Nhung ldi ich ca nhan efla ngfldi cd chflc vu, quyfen ban bi ban chfe c ^ dfldc quy dinh mdt each rd rang ttrong van ban quy pham phap lufit, dfldi dang eac quy tac flng xfl hay cac quy tie d^o dflc nghfe nghidp ttrong tflng Hnh vflc hoat ddng eu thd. Nhflng han ehd dd'i vdi ldi ich ca nhan ciia ngfldi ed chflc vu, quyfen ban nh^m phdng ngfla XDU thfldng tap trung vao mdt sd nhdm ldi ich nhfl: han chfe H^n quan ddn tai san va thu nhap, ban che Hfen quan ddn edng vi6c lam th6m trong khi dang lam vide hoae sau khi da nghi hUu, han chd H^n quan den ngUdi than, h ^ chd Hen quan den qua tang.
Vfe plu'a cac cd quan, to chflc, ddn vi c'an ban hanh cac quy dinh bao dam rinh khach quan, vd tfl cua viee thflc hifen nhiem vii, edng vu, bao dam vigc thflc hifen quyfen Iflc edng dflpc kidm soat tfl nhifeu pln'a. Pham vi efla nhflng quy dinh nay la rat rdng, tii nhflng quy dinh mang tt'nh nguydn tdc cho ddn nhflng quy dinh cu the trong tflng linh vfle quan ly nha nfldc. Vi^c thyc hifen quyfen Iflc cang khep kin bao nhiftu thi nguy cd xay ra XDLI cang ldn bay nhieu. Vi vay, d gdc dd cac chu thd la cd quan, to ehfle, ddn vi thi rat can cd sfl kidm soat viee thflc hifen quyfen Iflc. Quyfen Iflc cang bi kifeni soat chat che tfl nhifeu phia thi kha nang xay ra XDLI cang giani.^
Luat P C T N nam 2018 da cd cau rifeng Chfldng II, quy dinli vfe phbna
^ Le T h i Thiiy, lldd.
> G rHAM NHONG
ngfla tham nhflng trong ed quan, td ehfle, ddn vi {khu vuc e d n ^ . Ci muc 3 ciia chfldng nay h. nhflng quy djnh Hfen quan ddn vific kife'm soat XDLL Tan ciia myc nay la "Thuc hiin quy tdc ting xti ctia ngubi eb ehtie vy, quy'in hgn, trong ca quan, ti ehtie, dan vi". Trong myc nay, nha lam luat chi d^ih mdt difeu luat eudi eflng dfe quy dinh vfe "kifem soat XDLI", (pifeu 23 Luit P C T N nam 2018), ba difeu luat cdn l^i pifeu 20, Difeu 21, Difeu 22). Day thflc chsft ia nhflng tinh hudng XDLI cd ban va difen hinh nha't xet theo eac dae didm va tifeu ehi phan loai da ndu 6 ttrfen, dfldc cu thd hda bang cac quy pham mang tt'nh bdt b u d e ' va cam doan^ rift rd rang. Theo Luit P C T N nam 2018, XDLI thudng bidu hifen thdng qua eae hinh thflc phd bife'n sau day:
- T j n g / nhan qua tSng (b^ng tifen va khdng b ^ g tifen);
- DUu tu ehia se ldi ich;
- Sii dung lpi thd thdng tin dd vu ldi;
- R a quydt dinh ho$c tac ddng cd ldi eho ngUdi than thich.
C i c tinh hudng nay dfeu cd mflc do tac ddng rat manh me, tifem in nhflng "ngfly ed" t^t yfeu lam phat sinh hanh vi tham nhflng, vi vay phai dfldc nhan dien va minh dinh bang cac quy tac xfl sfl cua ngfldi cd ehflc vii, quyfen han. Cac tanh hudng XDLI khac, mang tihh dac thfl cho tflng Hnh vfle hdat ddng khae nhau (hanh ehi'nh, tfl phap, cae td ehflc chinh tri, xa hdi) se dUdc cac chfl thfe cd t h ^ quyfen ban hanh thanh cae quy tae flng xfl cu thd cho mdi Hnh vuc khac nhau (Difeu 21). Ddi vdi khu vflc ngoai nha nfldc, t ^ khoan 1, Difeu 79, Luat P C T N nam 2018 quy dinh: "Doanh nghiip vd cde ti chtic kinh tikhdc ban hdnh, thifc hiin quy tde ting xti, ca chi kiim sodt nbi hb nhdm phong ngtia XDLI, ngdn chgn hdnh in iham nhting vd xdy dyng van hoa kinh doanh ldnh mgnh, khbng tham nhting"
Ngoai nhflng tinh hudng XDLI cd ttnh dac trflng, dien hinh, cd vai trd trflc tifep trong vifec Iam phat sinh hanh vi tham nhung da dfldc luat hda cflng nhfl eu thd hda b ^ g hfe thd'ng quy tac flng xfl eho can bd, cdng chflc vifen chflc trong cac Hnh vflc hoat ddng khac nhau nhu da nfeu trfen, Nghi dinh sd 5 9 / 2 0 1 9 / N D - C P efla Chink phfl n ^ y 01/7/2019 da cy thd hda nhifefl win dfe cua Luat P C T N , trong dd ed ndi dung hudng dan thi hanh Difeu 23, Luat P C T N (Kidm soat XDLI). Difeu 29 Nghi dinh so 59/2019/
N D - C P da quy dinh cd 09 tinh hudng dflpc coi la cd XDLI, cu thd la:
"Ngubi cb chtic vy, quy'in hgn duge xde dinh Id cb XDLI khi cb ddu hiiu rb rdng eho rang ngubi db thubc ho4c se thubc mbt trong cde tru'ong hgp sau ddy:
1. Nhdn ti'in, tdi sdn hade lai ich vdt chdt ctia ca quan, ti ehtie, don vi, ed nhdn
' K h o a n 1, Difeu 20 L u j t P C T N n a m 2 0 1 8 q u y djnh: "Ngudi cochitcvi^, quyinhon trong co quan, td ckiic, don vi khi th»c hi^n nhi^m vu, cdng m vd tmng quan hi xa h^i phdi thifc hifn quy tac iing xii, bao gdm cdc chudn mifc xit sif la nhcing vifc phdi ldm hogc khdng dupc lam phii hpp vdi phdp ludt va d^c thu ngh'i nghidp nhdm bdo ddm Uim chinh, trach nhifm, duo dUc cdtig vu."
' K h o d n 2 D i e u 2 0 L u j t P C T N n a m 2 0 1 8 q u y d | n h : "Ngu'oi cd chiic vij, quyin hun trong ca quan, td chiic, don vi khdng duoc ldm nhang vifc sau ddy:..."
7 8 T A P C H i K H O A H Q C P H A P LY VlJ^l rsmvi ^-^ " ' v - _ : ^
liin quan din cdng viic do minh gidi quyit hogc thubc phgm vi qudn If etia nm • 2. Thdnh Idp, thamgia qudn If, di'iu hdnh doanh nghiip tu nhdn, cdng J trdch nhiim htiu hgn, cdng ty dphdn, cbng ty hgp danh, hgp tdc xa, trti tmbng n.p ludt cb quy dinh khde; , ..
3. Tu vdn cho doanh nghiip, tSchtic, ed nhdn khde b trong nubc vd nUbc ngo v'i cbng vi^c cb liin quan din hi mdt nhd nubc, bi mdt cbng tdc, cbng viic ihudc thdm
quyin gidi quyit hogc tham gig gidi quyi't; , 4. Sti dung nhting thdng tin co dugc nhb chtic vy, quy'in hgn eda minh divg
lgi hogc diphye vy lgi ich ctia ti chtic hoge cd nhdn khde;
5. Bi tri vg ho4c chbng, bi, me, con, anh, chi, em rudt ctia m'lnh giti "^tic vy qudn ly v^ ti chtic nhdn su, ki todn, ldm thti quf, thti kho trong co quan, tb chtic, dan vi do minh Id ngubi dting ddu hogc cdp phd ctia ngu'oi dting ddu;
6. Gbp vin vdo doanh nghiip hogt ddng trong phgm vi ngdnh, ngh'i do mmh tnfc tiip thuc hiin viic qudn If nhd nude hogc diva hogc chbng, bi, me, con kinh doanh trong phgm vi ngdnh, nghi do minh tnfc tiip thifc hiin viic qudn If nhd nUOe;
7. Kf kit hgp dbng vbi doanh nghiip thubc sb htiu ctia vg hogc chbng, hi, me, con, anh, dii, em mdt ho^ di doanh nghiip thudc sb htiu etia vg hogc chbng, bd, me, con, anh, chi, em rudt tham dy cdc gbi thdu ctia ca quan, ti chtic, don vi minh khi dugc giao thyc hiin cdc giao djch, mua bdn hdng hda, dieh vy, kf kit hdp dbng cho CO quan, ti chtic, don vi db;
8. Co vg hogc chbng, bi, me, con, anh, chi, em mbt la ngubi cb quyin, ldi ich true tiip liin quan din viic thuc hiin nhiim vy, cbng vy ctia minh;
9. Can thiip ho4c tdc ddng khdng dting din hogt dbng etia co quan, td chtic, dan vi, cdnhdn co thdm quy'in vi vy lgi".
Trong cae tinh hudng trfen, ed mdt sd tinh hudng cdn cd sfl triing lap vdi cae ndi dung da dflpc qfly dinh tai Difeu 20 ciia Luat P C T N (Quy tac flng xfl cua ngfldi cd ehflc vfl, quyfen han). Chflng tdi nhan thay, Nghi dinh sd 59/2019/ND-CP da md rOng thfem cac tinh hudng XDLI ttran ed sd nhflng quy tic flng xfl dflpc Luat P C T N nam 2018 quy dinh ddi vdi ngfldi cd chflc vu, quyfen ban va dd'i vdi ngUdi dflng dau, cap phd efla ngfldi dflng c^u ed quan, td chflc, don vi. Nghi dinh s6 5 9 / 2 0 1 9 / N D - C P eflng quy dinh kha chi tidt vfe ban chd edng vifec lam thfem efla ngfldi cd chflc vu quyfen han sau khi thdi giu ehfle vu. Vifec md rdng ph^m vi h^n chfe ddi vdi eae lpi ich ca nhan cua ngfldi cd chflc vu, quyfen h^in ddi hdi cd sfl cSn nhdc dung hda d mfle do hop ly sao cho khdng xam pham dfen cac quyfen cd ban eiia Cdn ngfldi nhflng lai phai loai trfl dfldc nhflng XDLI cd thd phat sinh day ed thd coi la mdt difeu hdt sflc khd khan tt-ong bdi canh ^ n dau hfen thflc thi nhflng quy dinh mdi efla Luat P C T N . Khi ca nhan ngfldi cd chflc vu quydn han hi hgn chd mdt sd ldi ieh vfe tai san, vfe qua tSng, vfe cdng vi^c lam thfem thi cflng nit can cd nhflng cp ehd bao dam cho cac Ipi ich ca nhan
iL.w.ai t-Jtiuiwii CHONG THAM NHONG
dfldc dap flng va thda man trdng khudn khd nhflng quy dinh cua phap luit.
C h m h sach tifen Ifldng, thu nh^p, bao hidm xa hdi, an sinh cua ngfldi cd chfl:c Vfl, quyfen h ^ va nhifeu chinh sach khac trong quan ly va difeu hanh nfen hanh chinh qudc gia ciing phai dfldc difeu chfnh phu hdp.
Ngdai nhflng tinh hud'ng XDLI da dflOc quy dinh cy thfe trong Lu^t P C T N va cac van ban hfldng d t o thi h^iih thi vdn edn r^t nhieu cac tinh hudng ddn tfl hoan canh khach quan khac, dfen tfl qua trinh quan ly, difeu hanh cac hoat ddng efla cd quan, td chflc, ddn vl ma khdng thd lu§.t hda day d^, trifet dd. Giai quydt vSh dd m y , nha lam luit da quy dinh cu thd vfe trach nhifem bao cao eua ngfldi cd chiic vii, quyfen han vdi chii thd cd t h ^ quyfen giai quydt XDLI, eflng nhfl traeh nhifem thdng tin vfe XDLI ciia eae ehfl thd khac. Difeu 23, Luat P C T N nam 2018, tai khoan 1, khoan 2 quy djnh:
" 1 Ngubi duge giao thyc hiin nhiim vy, edng vy niu biit hoge bubc phdi biit nhiim vy, cdng vy dtigc giao eb XDU tHi phdi bdo cdo ngubi cb ihdm quy'in dixem xet, xti If.
2. Cg quan, ti chtic, don vi, cd nhdn khi phdt hiin cb XDU ctia ngubi ed chtic vy, quyin hgn tin phdi thbng tin, bdo cdo eho ngubi tnfc tiip qudn If, sti dyng ngubi db dixem xet, xti If".
Nhfl vay, ban than ngfldi cd ehflc vu, quydn ban phai ed nhan thflc dflng dan, d^y d^ vfe cac tinh hudng XDLI, hp phai f thfle dfldc vifec thfle hifen nhifem vu, cdng vu etia minh ed bao dam sfl khach quan, vd tfl, dang tin cSy hay khdng. Cac ed quan, td chd:c, ddn vi thdng qua hoat ddng quan ly ciia minh phai chu ddng nam bat, thu thap thdng tin dd xac dinh eac tinh hudng XDLI efla ngUdi cd chflc vu, quyen han do minh quan ly. Vifee phat hifen XDLI ed thd thflc hifen d nhifeu thdi difem khac nhau nhu tife'p nhan, giao nhifem vu thfldng xuyfen hoac cac nhifem vu ddt xua't chd ngitdi cd chflc vu, quyfen han.^ Dac biet, theo chflng tdi, c'an chfl y ddn eac hoat ddng kidm tra, thanh tra cua eac cd quan c6 t h i n quyfen khi thUe hifen eac boat ddng dinh ky hay ba't thfldng trong thflc tfe. Khoan 2, Didu 23 Luat P C T N nam 2018 cQng chi ra n h d m ehfl thfe ddng vai trd ra't quan trpng trong vifec phat hifen va thdng tin, bao cao vfe tinh hudng XDLI la mpi ed quan, td ehfle, ddn vi, ca nhan khac trong xa hdi. Day ed thd coi la nhdm chii thd riTt da dang, thflc hifen vifec kifem tra, giam sat ddi vdi t^t ca cac hoat ddng ciia cd quan, td chflc, ddn vj va cac ca nhan ngfldi cd chflc vu, quydn han.
3. M 6 t sd ki^n nghi nh^m ndng cao hieu qua thuc thi quy dinh ve ki^m soat x u n g ddt loi ich trong p h o n g chdng t h a m n h a n g d Viet N a m hifen nay
XDLI la mdt dang tinh hudng lam phat sinh hanh vi tham nhung trfen thflc td nfe'u khdng cd sfl kifem soat, phdng ngfla hifeu qua. T u n hidu ban ' Le Th( Thiiy, tlild.
80 TAP CHi KHOA HOC PHAP LY VlgT l»Am s).-' J chat cua XDLI, cac dac diim die tnlng cua dnh hutfng XDLI, phta Ioai»
dang flnh hudng XDLI se giiip cho vi6c nhjn dadc cBy diS, toan di«n vl ngubn g«c hinh dianh, thai gian tftn tai, mdc dO tac ddng eda 1°^
hudng niy trong cO chf phit sinh hanh vi tham nhung. Bi phdng ngila t ^ ^ nhang hieu qua, budc phai xay dUng dUOc cac giai phap di kiim s""' ^^
dli, giam dii& XDLI phat sinh trong td chdc, hoat ddng, quan ly va hanh ciia cac cd quan, td chile, dOn vi va cae doanh nghi$p, td ehdc Wiu ^^
ngoai nha nude. Trong pham vi eda bai vidt nay, chung tdi xin ddde n mOt sd ki&i nghi nham nang cao hidu qui thilc dii cae quy dinh cia pMP lujt v i idim soat XDLI d^ phdng ngila hanh vi diam nhiing nhU satu
Thti nhdt, cac flnh hudng XDLI phiin ldn deu cd ngudn gdc phat Sinn ttt phia ngudi cd ehdc vu, quySn han n t o diSu cflu ddn can djc bl«t quan tam la giao diic nhin thdc dung dan vi nguydn tac phuc vu ldi ich cdng trong hoat ddng edng vu. Ldi ich eda edng ddng, ldi i'ch cdng phii trd thanh ddng CO, ddng luc thdc day hoat ddng eua ca nhin ngudi ed ehdc vu, quydn han. Do dd, eac quy dinh vd kiem soat XDLI c'in dude dua vao ndi dung thi n i y & hoic xet myfo can bd, edng chdc, vidn chdc va c'in giao due thddng xuydn trong sudt qua trinh Iam viec 6 ed quan, td chdc, ddn vl.
Thtt hai, eSn chd y bd sung va eii thd hda mdt sd quy dinh v'e nghia vu bao eao eda ngiidi ed chdc vu, quy'dn ban khi CO cdng vide lam thdm, duoc nhin qua tang, kd khai thu nhip va tii san cdng nhU cac flnh hudng ed XDLI khae ngoai nhflng dnh hud'ng di dUdc phip luat quy dinh. Bdn eanh dd, nha lam luat can quy dinh cac bidn phap k^ luit ddi vdi ngttdi ed chdc vii, quyin han khi khdng bao eio v'd eac tinh hud'ng XDLI.
Thtt ba, sd dung cac thdng tin kd khai tai san, thu nhJp eda ngttdi cd chdc vu, quydn han dd ra soat, phit hien sdm XDLI. Day la phttdng phap dttdc nhidu qudc gia trdn thd gidi thttc hidn cd hidu qua. Cdng khai thdng tm vd thu nhip, tii san eda ngttdi c6 chdc vy., quy'dn ban l i edng cu quan trgng dd thttc hidn vide giam sat xa hoi, phat hidn sdm tinh budng ed XDLI xay ra vdi ca nhin ngttdi dd. C i n tidp tuc nghidn cdu v i tdng bttdc md rdng pham vi va hinh thde edng khai tii sin, thu n h i p eda ngttdi ed chile vu, quy'dn han. Tuy nhidn, cung c'in cd stt thin trong, ein nhae sao cho boat ddng nay phu hop vdi eic quy dinh eda phap luit, ddng thdi phai bao dam stt an ninh, an toin ddi vdi ngttdi cd tai san.^"
Thil ttt, c'in can nhae vide md rdng pham vi didu ehinh mdt sd quy dinh v'd kidm soat XDLI, khdng chi ddng lai d ban than ngttdi cd chttc vu quydn ban ma cd thd md rdng vdi cac chd thd khac cd quan hd ^n gui vdi hp. Nguy co XDLI trong vide thuc tbi nhidm vu, cdng vu cua nguiji cd chdc vu, quy'en han ttt mdi quan hd vdi ngttdi thin la nguy ca cd tinh
^ - ^ ^ ^ ^ . ^ i , v r v.nw.--.vj I H A M N H C N G 81
truyfen thdng va r^t phflc tap. Ngfldi than khdng chi la nhflng ngfldi cd quan hfe vd chbng, con, bd, me, anh, chj em rudt nhfl nha lam luat quy dinh n:^ cd thd h. nhOng m d i quan hfe khae nhflng tt'nh chiit efla quan hfe la ra't ^ n gui, phy thudc l i n nhau vfe lpi ich. T h e o dd, mdt sd quy djnh vfe kidm sdat X D L I dd'i vdi ngudi cd ehfle vii, quyfen ban can dfldc x e m xet md rdng dfe'n n h d m chfl thd nay. Vi du: quy dinh vfe ban chd nhan qua tang ddi vdi ngfldi cd chflc vu, quyfen ban cflng cd thd dfldc ap dung ddi vdi nhflng ngfldi than ctia h p (vd, eh'dng, con)."
Thti ndm, c'kn nghifen cflu va dfe xu^t giao chflc nang kidm soat XDLI cho m d t ed quan d3.u mdi thed nhfl cac khuydn nghi ciia Ngan hang thd gidi. C h i i i ^ tdi cho r a i ^ , cd the tang cfldng thfem chflc n i n g nay cho bd phan td chile, quan ly nhan sfl eua cae ed quan, td chflc, ddn vi khu vflc cdng va cac ddanh nghifep, td chflc khu vflc ngdai nha. nfldc. Bd phan nay se chiu trach nhifem td chflc cac hoat ddng nang cao nhan thflc vfe XDLI, kidm soat XDLI, tdng kfet thflc hifen, tham mflu hoan thifen chinh saeh, phap lfl|.t ve X D L I eung nhfl x e m xet, xfl ly hoac kifen nghi xfl ly eae hnh hudng XDLI, cac hanh vi vi phgm vd kidm soat XDLI theo t h ^ quyfen dfldc phap lujt quy dlnh.^^ •
Tai li^u tham khao
[1] Dy thao Nghi djnh (quy djnh chi ti& mijt s6 diSu va biijn phap thi hanh Lu^t PCTN), Di6u 25.
26, 32 Cdng thbng dn di^n ni TTCP [tians; Draft Decree (detailed mles a number of amcles and measures to implement the Anti-Comiption Law), Articles 25,26, 32 Web Portal of Prime Minister]
[2] Dinh Thj Huong Giang, "Ki^m soat XDLI trong hoat d<>ng cong w-. Kinh nghidm qui5c t^', T^p chi TdchUc nha nudc, B^ N$i vy, 5/2019 [Crans: Dinh Thi Huoi^ Giang, "Controlhng Labor Practices m Public Service: International Expenence", JoHmai of Stale Organization, Ministry of Home Afiiis, 5/2019]
[3] The World Bank, "Kigm soat XDLI trong khu vyc cflng- Quy djnh va diyc h^n 6 Vi^t Nam"
[trans: The World Bank, "Controlhng XDLI in Pubhc Sector - Regulations and Practices in Viemam"], http://-www .-worldbank.org.pubb cation man..., accessed on tlie 1" of October, 2019 [4] LS Thj ThUy, "Mijt so v& d& vS ki^m soat xung dot loi ich trong boat dOng eftng vy", Trang difn
lii nid Viin Khoa hpc thanh tra [trans: Le Thi Thuy. "Some issues of control of conflicts of interest in public service activities". Institute ofSaente of Inspection], http:ww\v mt.gov, vn/vn/tm-tuc/48 660/
mot-so-van-de-ve-kiem-soat-xung-dot-loi-ich-trong-hoat-dong-cong-vu aspx, accessed on the 1" of October, 2019
[5] Le Th4 Thuy, "Nhflng ditu ben bao dam cho vi^c ki^m soat XDLI trong ho?c diJng cOng vy 6 Vi^t Nam hien nay", Vi^n Khoa hgc thanh era [trans' Le T b Thuy, "Conditions to ensure the control of labor force in current official activities in Vietnam", Institute of Saence Inspector], http: hanam gov vn/thanhtra/Pages/Nhung-dieu-kien-bao-dam-cho-viec-kiem-soat-)aing-dot-loi.-ich-trong-hoat- dong-cong-vu-o-Viet-Nam-hien-1714508749.. „ accessed on the 1" of October, 2019 [6] TrUdng Dai hgc Lu^t TP.H6 CW Minh, Gido trinh Tdi pham hpc, Nxb. Hbng Dilc - H<>i lujt gia
Vi^t Nam [trans: Ho Chi Minh City University of Law, Curriculum of Cmninohgy, Hong Due Publishing House - Vietnam Lawyer Association]
Le Th} Thuy. tldd.
The World bank, "Ki^m soat XDLI trong khu vUc c6ng- Quy dinh va thuc ti^n 6 Vi^t Nam", http,//www,worldbank.org>publication>man .., truy cap ngay 01/11/2019
