XAY DUNG C H I N H QUYEN 0 | A PHUONG
KY NANG THAM MUU XAY DUNG CHJNH SACH PHAP LUAT CUA DOI NGU CAN BO CAP CHIEN LUVC QUATHU€ TIEN
XAY DUKG PHAP LUAT CUA CHJNH PHU
TS PHAM TUAN KHAI (*)
T6m tat: Doi ngu can bo c^p chien lOpc 1^ nh&ng ngudi co ban ITnh, tri tu$ Vci co tam nhin tien phat nham tham mOu cho Ding, Nha node nh&ng van de mang tinh dinh hodng chien lodc phat then kinh t§' - xa hoi cua dat node. Ky nang tham muu xSy dung chinh sach phap luat la khi nang cua can bd dip chien lUdc trong viec van dung kien thUc de giai quy§'t cac van de dat ra trong cong tac tham muu xiy dung chinh sach phap luat. Bai viet gidl thl$u ve ky nang tham muu, xay dong chinh sach phap !u$l cOa can bo cap chien lodc qua thoc tl§n cong tac tham muu xay dOng phap luat cua Chinh phu.
Til khoa: Can bg ei'p chien looe; ehinh sieh phap luat; ky nang tham mou xay dOng.
Abstract: Officers at strategic level are individuals with knowledge, skills, talents, and pioneer- ing vision that advise the Party and State regarding matters of socio-economic development strat- egy of the country.Legal policy development and advisory skills are the abilities of officers at strategic level in applying knowledge to resolve current matters in advising on the development of legal policies. This paper introduces the legal policy development and advisory skills of officers at strategic level In legal development advisory practices of the Government
Keywords: Officers at strategic level; legal policies: development advisory skills.
Ngay nhin bai: 25/10/2019 Ngay bien tip: 27/12/2019 Ngay duyit dang: 09/01/2020 1. Ky nang tham mUu xay difng chfnh
sach phap luat 1.1. V4 thuat ngO
Ky nang tham mau (Advisory skill) la sa thong thao daac phat trien thong qua qua trinh dao tao, ren luyen, van dung vao viec xay diing hoach dinh chfnh sach. Kien thac (Knowledge) chi la su hieu biet ly thuyet va thac nghiem ve mot chu de nao do (kinh te, luat hoc, xay dung...). Kha nang (Abilities) la nhiing pham chat the hien kha nang lam mot viec gi do. Ba khai ni§m nay bo sung cho nhau, doi khi sit dung trong thac t i l n thuflng (') Nguyen Phd Chu tich Hoi dong to van cai cich thu ((/c hanh chinh cOa Thu tudng Chinh phu; Vu trudng Vu Phap luat, Van phong Chinh phu
ddi ch5 cho nhau. Tuy nhien, muon co ky nang tham mUu, trade het can phai co kha nang va kien thac nhat djnh va phai dat chu the CO kha nang, kien thac trong mot moi trudng cong tac nhat djnh thi hieu qua cOa ky nang tham mau se cao hdn (kha nang - kien thac - ky nang).
Trong khoa hoc quan ly, khai niem tham muu chfnh sach phap luat cdn dUdc xem la viec hien ke, kien nghj, dUa ra cac y tudng, de xuat cac giai phap khoa hoc, cac sang kien, cac phuong an toi Uu, nhOng dU bao chien luoc, sach lUdc va cac giai phap hOu hieu cho cd quan, to chae, ngUdi co tham quyen trong viec xay dang va td chae thuc hien ke hoach cdng tac nham dat hieu qua cao nha't. Mudn lam dude dieu dd, can bp, cong chae phai SLf dung ky nang tham mUu bao gdm mpt he T o c h i r c n h a i i i r o c so 1/2020
'Miht^ ,^'imn, '^mtk 9'^ 2020 . thdng thao t i c trf tue v i thQc hanh (da dupe
d i o tao, hui'n luyen va kinh nghiem) d i thyc hien ed hieu q u i he thdng thao t i e dd (tU kha nang, kien thUc khoa hpe, thpc tiin da ed den each trinh b i y , thuyet trinh v i van dyng dung dan vao thue tiin) de thue hien cdng vy, nhiem vu dUde giao.
Do dd, cd the hieu ky nang tham mUu xay dung chfnh sach phap luat la nang lUc (bao gdm kha nang va kinh nghiem) eua c i n bp, edng ehQc thpe hien thuan thyc mpt quy trinh, quy pham dupe quy dinh bdi eae ed quan, td chQc cd tham quyen (hoac phap luat) bang eich lUa ehpn tri thQc, kien thQc dung dan, khoa hpe v i van dung cd hieu qua v i o thuc tiin de dat dupe myc dich de ra.
7.2. Ve mdi quan h$ glUa dUdng loi lanh d^o cua Dang va chinh sach, phip lu$t cua Nha nudc
6 nude ta, Ding Cdng s i n Viet Nam lanh dao toan dien, tuyet ddi N h i nudc v i xa hpi.
Dang v i eie ding vien hoat ddng trong khudn khd cua Hien phap va phap luat. Dang thpc hien dudng Idi eua minh bang tuydn truyen, van dong nhan dan thpc hien dUdng Idi lanh dao cua minh. Oang lanh dao thdng qua dudng Idi, chu trUdng dung d i n , djnh hudng eho toin x i hdi tren eie phUdng dien ehinh tri, kinh te- van hda, xa hpi de dinh hinh cho dat nude phit trien. Mpi hoat ddng eua N h i nUde phii phu hpp vdi dudng Idi lanh dao cQa Dang. Ndi each khac, dUdng Idi lanh dao cua Dang la "kim ehi nam" eho mpi hoat ddng eua N h i nude v i x i hdi. NhU vay, ed the khang djnh dudng Idi lanh dao cua Dang la cd sd, la diiu kien tien quyet de xay dung chfnh sach phap luat cija Nha nude.
Trong TU diin tieng Viet, "ehinh sich"
dUde hiiu la sich lUde v i ke hoach eu the nham dat mdt muc dich nhi't djnh, dya vao dydng Idi chfnh trj v i tinh hinh thyc te ma de ra chfnh sieh..."'". Mpt chfnh sach tdt phii can bang giQa ydu td chQ quan va khach quan va dupe do ludng, danh gia bang su kiem nghiem eua thyc te. Neu chfnh sieh chi mang tfnh ehu quan (y tUdng) khdng dUdc kiim tra
bang thuc tiin (hoac ed tdng kdt qua thUc tiin) se khd di v i o ddi sdng. Vf dy, chfnh saeh thud eua mot di't nUde phai can cQ v i o tinh trang kinh te (su phit trien cua s i n xua't, GDP, kim ngach xuat, nhap khau, ddi sdng ngudi dan...).
Hien nay, cd nhieu y kien khie nhau ve khii niem chfnh sich phip luit. Cd quan diem cho rang, chinh sach phip luat I i tdng the eic quan diem, ehu trUdng cQa nha nudc ve viec xay dyng v i hoin thidn (phit trien) h i thdng phip luit'^' hoac chfnh sieh trong mdi quan he vdi ed ehe I i "nhQng ehu trUdng thfch Ung vdi eae die diem va dieu kien kinh te - xa hdi cua tUng giai do^n phit triin nham vio viec bao d i m eho sy van hanh dung hudng, tich eye cQa cd che kinh te"'^'. Cd t i c gia cho ring "chfnh sich phip luat I i he thdng eic quan diim, lap trudng tu tudng, nguyen tac hinh ddng, chu trUdng dmh hudng, chUdng trinh va bien phip hinh ddng cQa n h i nudc trong viec xac dinh vai trd va hudng diiu ehinh cua phip luit trong tQng giai doan hoac thdi ky phat trien cQa dat nQdc, lam can cQ va cd sd de xay dyng phap luit v i o eude sdng v i duy tri hiiu lye phip luit trong giai dogn hoac thdi ky do"'*'.
Nhu vay, chfnh sich phip luit cd t h i hieu la chinh sich ve phip luit. Theo nghTa niy, de x i y dyng phip luat, trudc hdt phii cd chinh sieh (bao gdm quan diem, ehu trUdng, djnh hudng v i thude do hieu q u i cua phap luat hien hanh va trong tUdng lai) theo nhan thUe eua tQng chu the thich Qng vdi tUng giai doan phit trien ey the. 6 mdt nghTa khic, chinh sich phap luit khdng chi la linh hdn, la can cU, I i cd sd de xay dung phip luit, xac dinh ndi dung cua phip luat, m i ehinh sieh phap luat cd t h i la phap luat (Hien phap - dgo luat cd b i n I i cd sd de x i y dUng eie d^o luat); ehinh sich phip luat ed the I i ed sd de x i y dyng eae ehinh sich khae'^'.Chinh sich phip luat dupe trien khai bdi hoat ddng eila ehu the ed tham quyen trong viec t h i che hda dudng Idi lanh dao cua Ding thdng qua hogt ddng xay dUng va to ehUe thye hien phip luat.
To chiic nha nnov so 1/3030
( Ji%m ^JUH 2020 Chfnh sich phip luit (du hieu dudi goc dp
nao) cung I i de the che hda quan diem, dydng Idi cua Dang trong ti't ca cac ITnh vpc eua ddi sdng xa hpi. Van kien Dai hpi DBTQ lan thU XII cija Dang nhi'n manh: "Dang lanh dao N h i nude bang c i e ehu trUdng, ehinh sich Idn, lanh dao the che hda e i c quan diem, dudng Idi, chu trUdng eua Ding thanh chinh sach phap luat"''''. De t h i che hda dUdng Idi cua D i n g , ehinh saeh phip luit bi che ude bdi dudng Idi cua Dang, nhUng ddng thdi t i c ddng trd lai, gdp phan diiu chinh hdp ly dudng Idi cQa Dang trong tQng giai doan eua q u i trinh phit trien kinh te - xa hdi. Trong qua trinh the c h i hda dd, chfnh sieh phip luat phan anh va b i o ve dudng Idi cua Dang. Mpt dudng Idi khdng the coi la ed hiiu q u i , dCi sQc di vao ddi sdng thuc tien neu thieu ehinh saeh phip luat - nhu mpt gidi han, mpt t i c nhan dieu chinh. Cung nhu vay, trong hoat dong eua he thong chfnh tri, sU can thiet, tinh hieu qua cua chinh saeh phip luit se nhanh chdng bien thanh mat trii ngupe va cd nguy cd bien dang ndu dudng Idi eua Ding khdng that sQ khach quan, khoa hpc va cich mang, khong li'y chfnh sach phip luat lam cdng ey thiet yeu de dUa dudng Idi dd v i o eude song. NhU vay, dudng Idi cua Dang va chfnh sieh phip luat cd mdi lien he hQu cd vdi nhau, vQa la dieu kien, tien d i , vQa la he qua cija nhau.
Trong eie cd quan Chfnh phu hien nay, ehinh sach phap luat dupe hieu ri't rpng, tQ de xuat, x i y dung, thQc thi, den dinh gia, kiem tra chfnh sach phip luat. Mdt dieu ding chu y I i tQ quy trinh tren, cae bp, nginh va eic cd quan ed lien quan ed the tdng k i t thQc tiln, r i soat lai he thdng chinh sach phip luit v i loai bd nhQng bat cap, tiep thu hoan thien nhQng mat tfch cQe eho viee xay dung chfnh sach phip luit mdi phu hdp vdi diiu kien kinh te - xa hdi eua tQng nganh, ITnh vQc.
2. Nguyen t i c va quy trinh thiic hien ky nang tham mUu xay diing chfnh sach phap luat
2.1. Nguyen tac
ThO nha't, Dang lanh dao toin dien, tuydt dd'i trong hoat dong cOa cua he thong chinh tri Nguyen t i c nay ddi hoi hoat ddng edng vu va
tham mUu chfnh sach phip luit phai phu hdp vdi dudng Id'i lanh dao cua Dang.
ThO hai, phan dinh tham quyin giOa cac cd quan, ngOdl cd tham quyin trong bd may nha nudc trong qua trinh tham mOu xay dong chinh sich phap luat. Nguyen tac nay hudng tdi viec minh bach hda he thdng cd quan n h i nUde tren cd s5 chQc nang, nhiem vu, quyen han cua tUng chu the. Trong Chinh phu, lam rd tham quyin cua Chinh phu, Thu tudng, c i e thinh vien Chinh phu (tham quyen t i p t h i va c i nhin); tUdng ty la vdi eie bd, nganh v i IJy ban nhin d i n eie ei'p. D i y eung I i viee thye hien nghiem tue tham cap cua mdt nen hinh ehinh ma c i n bd, cdng chQc khi tham mQu can nam vQng (chuyen vien tham mQu eho cap vu; ei'p vy tham mUu eho bp trUdng; bd trudng tham mUu eho Chinh phu, Thu tudng).
Chfnh quyen dia phUdng eung phai cd ky nang tham mUu theo tham cap. Nguyen tac nay cung I i sU cy the hda mdt luin diem quan trpng cua khoa hpe quan ly: "Mdi viee can ddde giai quyet dUt diim d mpt cap" v i "moi ngudi can lam cdng viee eija chinh minh"; vi vay can phai lUa chpn v i bd tri ngUdi ed kha ning tham mUu gidi, cd khi ning dy bio chfnh sieh phip luit.
ThO ba, khach quan. khoa hoc, chdng Idi ich cue bd, Idi ich nhdm trong qui trinh tham mOu xiy dUng chinh each phap luat.
Kinh nghiem da ehf ra rang, can bd, cdng chQe khi tham mdu, neu dat Ipi ich chung cua di't nUdc, dan tdc lim myc tieu cua hogt ddng edng vu thi kha ning phit trien h i i hda, ddng bd kinh te - x i hpi se cd hieu qua, b i n vQng; ngQde lai, neu vi eye bp dia phQdng, nganh hoac Idi ich nhdm, hieu qua se khdng cao va han che tinh b i n vQng cua chfnh sach phip luit.
ThO tu, ky nang phdi hdp trong tham mOu xay dung chfnh sach phap luat.
X i y dyng chfnh sich phap luat I i sy huy ddng tri tue cua dpi ngu can bp, cdng ehQc eiiia he thdng ehfnh trj. Mdt y tudng sang tao khd ed the dUdc thyc hien khi khdng ed sy phdi hpp chat ehe, eung v i o cupc eua dpi ngu tham mUu tai cae cd quan, td ehQc. Quy trinh x i y dyng van ban quy pham phip luit da To chufC n h a n u o c so 1/3030
^y/lfY/tg •:^}fdit ^aji/i &'u 2020 dupe quy djnh chat che nhUng hieu q u i ehua
cao, bdi le viee phdi hpp cdn gap rao can bdi ehinh eic cd quan, td ehUe ed lien quan trong q u i trinh li'y y kiin phan bien, tham djnh, tham tra hoac trong qua trinh thyc hien v i kiem tra viee thyc hien phip luat. Quan niem bp, nganh nao tham mUu, xay dyng, trinh ehinh sich phip luit, bp, nginh dd ty ehju trach nhiem da d i n den tinh trang tren.
Phdi hdp trong x i y dUng chfnh sieh phip luat la mpt phUdng thQc cija quin ly. Mpt ehfnh sieh phip luit ra ddi la k i t q u i hoat ddng eua ca bp may "chinh sach phip luit I i su dinh gia cao eua tinh sang tao trong qua trinh phdi, k i t hdp lien nginh eua nen hinh chfnh phat trien, la sy phu nhan nhQng y tudng den tdi eua eae e i nhin khdng biet dat Idi fch eua minh xudng dudi Idi feh ehung""'.
ThO nam, nguyen tac trach nhiem cCia ngodi lam cong tic tham mUu xay dOng chinh sach phap luit.
Nguyen tae n i y ddi hdi ngUdi ed nhiem vy tham mUu phai ehiu trich nhiem trUde k i t qua tham muu cua minh. Ngoii viec sQ dung kha nang, kien thUc de tham mdu, ban ITnh trong tham mUu, ngudi lam cdng t i c tham muu phai ehju trich nhiem ehinh trj v i trich nhiem phip ly trong hoat ddng x i y dung ehinh sich phip luat. Phai x i c djnh ai ehiu trich nhiim chfnh trong viec tham muu de chinh sich phap luat ban hanh cham hoac gay ra nhQng hau qua tieu cue trong hoat ddng quin ly. Hien nay da cd quy che lim viee cua eie bd, nginh, cua Chinh phu, nhung chf la trinh ty, thu tyc trinh c i e dy i n , v i n b i n ma ehua quy djnh rd trieh nhiem eua ngUdi lam edng t i c tham mUu xay dung chinh sach.
ThO sau, sU tham gia cua cie chuyen gia, cie nha khoa hoc trong qua trinh di xuat xay dUng chinh sich phap luat vi thUc thi phap luat.
Ket qua tham muu ehinh saeh phap luat cua b i t ky cd quan quan ly nio eung can mang tfnh khoa hpe, sing tao. Tfnh khoa hpc the hien 6 cho, nhQng vi'n de ly luin va thyc tiin ddi hoi phai cd sQ tUdng hd lin nhau. Ly luan cd the di trude hoac sau tdng ket thyc tiin, nhUng eic y tUdng tham mUu can phai cd sy bd sung cho nhau v i mat ly luin va thyc
tien thdng qua viec Ung dung eae edng trinh nghien cQu khoa hpc. Phin bien khoa hpc eua c i e chuyen gia, nha khoa hpc gdp phan cung ei'p thdng tin khoa hpe khi tham muu, d i e biet I i q u i trinh danh g i i t i c ddng cilia ehfnh sieh phip luit. Q u i trinh lay y kien cac chuyen gia, n h i khoa hpc vUa la dy lieu eic phUdng i n khac nhau khi x i y dyng, vQa I i sy kiem nghiem tfnh dn djnh k h i thi cua chinh sieh phip luit trong q u i trinh thyc thi.
2.2. Quy trinh thuc hien ky nang tham mini xay dt/ng chinh sach phip lu$t
Mdt la, y tUdng xiy dung chinh sach phip luat.
Day la giai doan tien d i ma ngUdi lam cdng t i e tham muu can nhan ro. Y tudng co the xuat hien trong q u i trinh quan ly, diiu hinh kinh te - xa hpi cCia chu the cd tham quyin, chang han y tudng ve phat then thUdng mai qude t i eua Vidt Nam trong dieu kien cupc chien thUdng mgi My - Trung dang diin ra. Chu the tham muu cd the la cd quan, td ehUe hoac e i nhin nhung cung cd the ehfnh la ngUdi l i m edng t i e tham mUu. Y tudng nay phai can cU vao cd sd chinh trj, khoa hpc va phap ly de phan tich, tham mUu eho ei'p cd tham quyin quyet djnh.
Hai Ii, phan tich chfnh sach phap luat.
Giai doan nay ddi hdi chu the tham muu phai xem xet chinh saeh phap luit d nhieu gde dd, tQ tinh phu hpp vdi chu trUdng, dudng Idi cua Dang, tfnh hdp ly cua chfnh sich phap luit, tfnh thdi sy cap bach, tinh kha thi, tinh dy b i o hieu qua ehfnh sieh phip luat ddn thdi diem cd hieu lyc cua chinh saeh phap luat khi dupe ban hanh. Viec phan tich chinti sieh phip luit bao gdm: x i e djnh ro muc dich, yeu cau cua viee ban hanh chfnh sach phip luat; xay dQng ke hoach nghien cUu;
thu thap t i i lieu; li'y y kien chuyen gia, cac nha khoa hpc; khao s i t thue tiin; xii ly tai lieu, thu thap; phan tfch chfnh sach; dUa ra •^
kidn ve phan tich ehfnh saeh. Luu y, khi phin tfch ehfnh sich can loai bd y chi ehu quan va dua ra eac phUdng an thUc hien ehfnh sach phip luat (ndu cd) v i phai ed lap luan cho tQng phQdng i n de trinh cd quan, ngudi cd tham quyin.
®
To chute nha nuoc soi 1/2020Q'vit 'J%m, tjiU/f 2020 Ba la, l^y y kien cie cd quan, t6 chOe ed
lien quan den chinh sich phap luat.
Tuy theo pham vi ehinh sieh phip luat do chij the tham muu d i xua't, cd quan, ngudi cd tham quyen phii chu ddng (hoae theo d i xua't ei!ia ngudi tham mUu chfnh sach phip luat) phai gQi lai dQ thao ehinh sich den c i e cd quan cd lien quan, td chQc xa hpi, c i e doanh nghiep ehju sy tac ddng eija ehfnh sach phip luat (cd the gCfi li'y y kien, to chUe hdi thao, hpi nghj ehuyen d i v i npi dung chinh sach phap luat); dong thdi de xuat vide tao dieu kien de c i e ed quan, td chUc, c i nhan tham gia gdp y kien vao du thio chinh sieh phip luat. Y kien tham gia gdp y phii dUdc ngudi lim cdng tac tham muu nghien eUu, tiep thu trong q u i trinh ehinh ly dU thao chfnh sich phip luit.
Bdn la, dinh gia tie ddng cua chfnh sich phip luit.
Chu the l i m eong t i c tham mUu x i y dung ehinh sieh phap luit phii tien hanh danh g i i t i c dong trong tQng ehinh sieh phap luit. Npi dung dinh gia t i e dong cua chinh sich phip luat phai dQa ra: vi'n d i can giai quyet; mue tieu eua ehinh sach phap luat; c i e giii phap thQc hien chfnh sieh phap luat; chi phf, Idi ieh eCia c i e giii phip; so sanh ehi phf, Ipi ich cua cie giai phap; lUa ehpn eie giai phip eua c i e ed quan, td ehUc, c i nhan v i ly do eCia viec iUa chpn; danh g i i t i e ddng thu tue hinh ehinh; t i c ddng ve binh dang gidi (neu cd).
Nam la, to chOe lay y kien phan bidn viec xay dOng chi'nh sach phip luat.
Tuy theo tUng y kien tham mUu x i y dyng chinh sach phip luit, ehu the tham myu ed t h i td chQe li'y y kien phin bien cua cac chuyen gia, c i e nha ehuyen mdn ed lien quan den chu de tham muu. Khic vdi lay y kien nhan dan va ddi tQdng, thu tyc phin bien chinh sieh phip luat thudng dupe td chQc hep, eae y kiin can ndi ro, cy the uu diem v i han e h i cQa dy t h i o chfnh sach phip luit.
D i y I i kenh nham nang eao tfnh khoa hpe, tfnh thye t i i n cQa chinh sich phip luat. Cae
n h i khoa hpc, gidi chuyen mdn ed the dUa ra cae luin cQ v i phQdng i n khie nhau d i ehiJ the nghien cQu, tiep thu, bao cao ngudi cd tham quyin. Pham vi phan bien di s i u vao y tudng v i eic ndi dung quan trpng cua chfnh sieh phap luat. Ve ly thuyet, sQ dung edng ey trong khoa hpc chfnh saeh edng v i khoa hpc quin ly tien tien. V i thyc tiin, van dung eie quy luit d i v i dang tdn tai trong ddi sdng x i hpi hien nay.
Siu la, xay dung dU thao van ban ehinh sich phip luit.
TQ y tudng ddn quy trinh neu tren dUde chu the tham mUu x i y dUng thinh dU thio van ban hoae c i e cd quan giao cho td chUe, e i nhin khic x i y dung, hinh thanh van ban hoac mdt cd quan chu tri cd su phdi hdp cua c i e bp, nginh lien quan. C i e y kien tham mUu x i y dQng ehfnh sieh d i u dupe the hien bang dU thao va dUdc trinh theo quy ehe tim viee eua cac cd quan, to chUe (trU trudng hdp theo yeu eau trye tiep cua cd quan, ngUdi ed tham quyin).
Tuy nhien, theo trieh nhiem edng vy, chu the tham mUu xay dyng ehinh sieh phap luat van phai b i o eao ei'p tren tryc tiip eua minh (chang han, Thu tudng yeu cau mpt ehuyen vien eao cap hoac thU trudng, bp trudng eija mpt bd, tham muu ve mot ehinh sach phip luit nao dd thi khi thpc hien phii bio cao c i e cap hinh chinh m i minh la thinh vien (vu trudng, bd trudng). Ddi vdi viec giao eho tap t h i thuc hien (bp, ed quan ngang bd, ed quan thupc Chinh phu) thi bo trUdng, thij trUdng ed quan ngang bp, cd quan thude Chinh phu phii tien hinh eic thu tyc neu tren. IJy ban nhan dan cae ei'p cung thyc hien quy trinh niy.
Biy la. tham dinh, tham tra ehinh saeh phip luat.
Tham dinh, tham tra I i viec danh g i i toin dien npi dung chfnh sich phip luit xem ed phu hdp vdi mue dich, yeu cau, pham vi diiu chinh; tinh hdp hien, hdp phip va ehi phf tuin thu eic thu tue hinh chfnh (neu cd); tfnh hpp ly, kha thi; ngudn tai chinh, nhan lUe de thQc To chwc nha nuoc so 1/3030
'/(Irfm^ ^Itdn ^€ayi>k 9'p 2020 . hien; ngdn ngQ, ky thuat v i trinh tQ soan
thao chfnh sach phap luat (lUu y, theo tham quyen eua Luit ban hanh van b i n quy pham phap luat, cae hinh thUe v i n ban dupe quy djnh chat ehe; rieng ddi vdi van b i n khac, chu the tham mUu x i y dung chfnh sach phap luit ed t h i van dung linh hoat c i e ndi dung cua tham djnh, tham tra d i i p dung v i o q u i trinh tham mdu).
Tim Ii. trinh y kiin tham mUu xiy dung chinh sich phap luit.
Sau khi cac thu tye d i dupe hoin ti't, ehu the tham mdu soan thao chfnh thQc van ban trinh cap cd tham quyin. Ndi dung trinh, ngoii dy thao can eung cap day du y kiin cua cac ed quan, td chQc cd lien quan, cac y kidn phin biin v i eic phQdng i n khae nhau;
thuyet trinh phUdng an va b i o ve phUdng i n (ddc lap - ehju trich nhiem ve phUdng an do minh tham mUu). Theo thij tue phip luit hien hanh, chu the tham muu tien hanh trinh van ban quy pham phap luit theo c i e yeu cau eua luit. Rieng eie loai van ban khie ehUa dupe luat quy dinh thi tuan thu quy che l i m viee cua ed quan, to chUe hoac xin y kien true tiip cua ngUdi phu trich hoae linh dao ed quan, to chQc.
Chin Ii, ban hanh va kiim tra thoc hien chinh sich phip luat.
Chinh sieh phip luat sau khi dupe thdng qua se dUdc ban hinh theo thu tyc hinh chinh den edng ehung hoac cac ddi tUdng ehju su t i e ddng bang hinh thUe van ban do phip luat quy dinh. Be chinh sach phip luit dUdc thUc thi hieu qua, ehij t h i tham mUu phai thudng xuyen theo ddi va kiem tra tfnh kha thi eua chfnh sieh phap luit. Ddi vdi van ban quy pham phip luit, ChUdng XV cua Luat ban hinh quy pham phip luit nam 2015 quy dinh ri't ro cac ehu the tham gia giam sit, kiim tra theo npi dung cac Dieu 162-167. Tuy nhien, ehinh sieh phip luit ma ehu the tham mUu dudi hinh thQc van ban khac hien chua cd quy dinh cu the. Vi v i y , chu the tham mUu x i y dung chinh sach phap luat phai true tiip theo
ddi, kiem tra viec thuc thi ehinh sich phip luat dd va kip thdi b i o cao ei'p cd tham quyin ve tinh k h i thi (sU ddng y hoae phan Qng cija xa hpi); thdi gian thuc hien (ddi vdi c i e ehinh sieh phip luit ve thi diem khi chua ed phap luat quy djnh); sy chdng cheo cua he thdng phap luat; su phu hpp vdi tinh hinh kinh t i - xa hpi trong tQng giai dogn i n h hudng den chfnh sieh phip luat... v i kien nghi ei'p ed tham quyin sQa doi, bd sung hoae dinh chi, hijy bd chfnh sach phip luit; d i xui't eac bien phip khae phyc v i d i nghi xQ ly ed quan, ngydi thuc thi chfnh sieh phip luit ed sai pham.
Ndu chinh sach phip luit cd mQc dp sai pham nghiem trpng, ehu t h i tham mUu chfnh sach phap luat cOng phai ehju trach nhiem trQde phip luat tuy theo mQc dd vl pham eija chu the dd.
3. Mpt so kien nghj nang cao ky nang tham miiu xay diing chfnh sach phap luat
Mdt Ii, ddi mdi tQ duy ve ky nang tham muu x i y dyng chfnh sach phap luat. Quan triet quan diim eija Ding ve ddi mdi cdng tic c i n bp, trong dd cd c i n bp tham mdu ei'p chien lupc, mdi nganh, mdi cap phii trien khai tu duy ddi mdi eua Dang v i tinh ei'p thiet phii xay dyng nen kinh te thj trudng djnh hudng xa hdi chu nghTa; phit trien ly luin nen kinh te thj trudng d nUde ta hien nay; kiin tao ly luin xay dung Nha nude phap quyen xa hdi chu nghTa;
ly luin ve hpi nhap qud'c te; nhan dien nin van hda Viet Nam tien tien, dam da b i n sac van hda dan tde de tao tu duy khoa hpc - cich mang cho nhQng ngUdi l i m edng t i c tham muu chinh sach phip luit. Tham mUu chfnh sieh phip luat giQ vai trd het sUe quan trong, mdi chinh sich phip luat la n i n tang, la tien d i djnh hudng cho su phit trien; the hien ning lUc tu duy bien chUng cho sQ phat trien, la thQde do nang lye eho sy phat triin kinh td - x i hpi cua di't nude.
Hai Ii, xay dung dpi ngu tham mUu x&y dUng chinh sich phip luat phai gioi v i chuyen mon, ky nang, kien thQc v i k h i nang d i p Ung nhanh nhgy vdi cae diin bien phQc tap tr§n
^
To chiic n h a nuwc so 1/3030dc'U ^A^hn ^JU/r 2020 the gidi va sQ phit trien cua di't nude tren tat
ea e i c ITnh vye, ddng thdi cd pham chat ehfnh trj tdt d i trien khai, cy the hda quan diem cua Ding v i nha nude. Nang eao trinh dp, ky ning tren 4 phUdng dien: 1) Kidn thUc chuyen mdn; 2) K h i ning, sU hieu biet (tam nhin) chien lupe; 3) Dy b i o chien lupc tinh hinh kinh te - xa hpi; 4) Kiem soit dUdc viee thUc thi ehinh sich phap luit. Can tang eudng md eic Idp bdi dudng, dao tao ngan hoac d i i han cho chu the l i m edng t i c tham mUu nang eao ky ning x i y diing ehinh sich phap luit; bien soan t i i lieu v i ky nang tham mUu xay dyng ehinh sich phap luat de dda vao chUdng trinh chfnh khda d i o tao, bdi dudng c i n bd, edng chQc, vien chQe.
Ba Ii, nang cao tinh than trieh nhiem cQa can bp, edng ehUe trong hoat ddng edng vy ndi ehung, trong edng t i e tham muu ehinh sach phip luit ndi rieng. Trieh nhiem trUde Td qude, trudc nhan d i n v i cdng tac tham muu xay dung ehfnh sach phap luit; trach nhiim phap ly ve s i n ph^m tham mUu trUde cd quan, td ehUe, ngUdi cd tham quyen (dupe kiem nghiem bing thye t i i n tham mUu nhu hieu q u i tfch eye v i he q u i tieu cQc cua chfnh sieh); chdng mpi bieu hien eye bd nginh, dja phUdng, Ipi fch nhdm, "san sau" trong qua trinh tham muu. Mat khie, neu eao tinh khich quan, minh bach trong qua trinh tham muu de lim tien de eho phat huy d i n ehu trong eie quyet dinh quan ly, phat huy tri tue tap the, gdp phan ning eao chat lupng tham muu chinh sach phap luat.
Bdn la, tang cUdng cd chd phdi hdp giQa eic chu the tham gia x i y dung chinh sach phip luat de moi chfnh sach phip luat khi dupe ban hanh that sp the ehe hda dung dan dudng Idi linh dao cua Dang, Idi fch kinh td - xa hpi eua di't nude, cua dan tdc; ddng thdi, la su phan anh khich quan c i e khia canh cua ddi sdng quan ly trong qua trinh phat trien eic ITnh vUc cua ddi sdng xa hpi. Vi vay, can x i c djnh rd ehu the chu tri v i c i e ehu the tham gia; quy dinh trieh nhiem cua tUng chu the v i
hau q u i phap ly khi chfnh saeh phap luit khdng hpp phap v i khong cd hieu q u i trong thue tiin; ddng thdi, khen thudng kjp thdi, thfch d i n g nhQng thanh tieh xui't s i c trong tham mUu x i y dyng chfnh sich phap luat.
Nam Ii, Chfnh phu can ban hinh van ban quy djnh ehi tiet ve ky nang tham mUu xay dyng chfnh sach phap luat. Trong dd, ed c i e npi dung: tU y tudng tham muu, ky nang tham mUu, quy trinh thu tyc, chat lupng c i n bd, cdng chUc lim cdng t i c tham mQu, khen thQdng, k^ luit den viee thu hut nhan t i i va trach nhiem phip ly ddi vdi ngudi l i m edng t i e tham mUu ehfnh sach phap luat. Bdi le, cong t i e tham muu ehfnh sich phap luat rat da dang, the hien dudi nhieu hinh thUe; eae quy dinh hien nay cdn thieu, neu ed thi nam rai rie d eie quy chd lam vide hoac chUa thdng nhi't. Day la viee can l i m ngay nham d i p Qng yeu eau "tip trung x i y dung dpi ngu can bd, nhi't I i dpi ngu can bp cap chien lupe, dunang iQc va pham chat va uy tin, ngang t i m nhiem vy..."'^' nhu Van kien Dai hdi DBTQ lan thU XII eua Ding da de ra./.
Ghi chij:
(1) TO dien Tieng Viet. Nxb Da N§ng va Trung tam tCr dien hpc an hanh 1997, tr.157.
(2) Tran Thai DLfOng, Xay dung chinh sich phap lu$t theo quan diem ben vOng, Tap chi Nhi nudc v i Phap luit, sd 02/2009, tr.3.
(3) Nguyin Thanh Tuyen, Nguyin Le Anh, Md'/ quan he hOu cd giOa the che, cd che, chinh sach, cd che dieu hinh vi hinh vi Ung xO, Tap chi Hpi nhap va Phat trien, sd 22, thing 5/2015, tr.5.
(4),(5) Nguyin DUc Minh, Bin ve khai niem chinh sach phip luat. Tap chf Nha nudc va Phap luat, sd 3/2017.
(6),(8) Van kien Dai hoi dai bieu toan quoc lan thOXII, Nxb CTQG-ST, H.2016, tr.214, tr.432.
(7) Quy che phoi hdp cdng tac cija Chinh phiJ lien bang, Cong bio Van phdng Thu tudng CHLB DUc, 1980, sd 132, tr.567 (tiing DUc).
To chtkc n h a n u 6 « so 1/3030
