T NAM

NGHIEN CUU • TRAO DOI

VE CHINH DANH CUA NGl/CD DHHQ DAU 0 0 QUAN HANH C H I N H NHA Nl/OiC d V I | T NAM

ThS. Bill TH| NGQC MAI*

T

i c gia thuyg't Chinh danh Khdng Tfl cho rang: trong quan ly, mudn xa hgi eo trat tU va di vio n l ng'p thi Chinh danh la diem miu ehdt. Mdi vit, moi ngUdi sinh ra diiu CO mpt dia vi, cflng dung n h i t dinh, flng vdi moi dia vi, cdng dung dd l i "danh" n h i t dinh. Danh nghia l i tfln gpi, danh p h i n , dia vi. Chinh CO ngMa l i dung, l i chin chinh lai cho dung tgn gpi v i danh p h i n . Do dd, ehinh danh l i l i m eho inpi ngfldi ai d dia vi nao, danh phan n i o thi gifl ddng vi tri v i danh p h i n cua minh, cung khflng d i n h vi tri cua ngudi khie, khflng li'n vUgt va l i m rdi loani. CMnh danh l i mdi ngUdi p h i i dng xd dung vdi cUOng vi eua minh.

1. Sii c h i n h d a n h c u a ngUdti d i i n g d a u c d q u a n h a n h c h i n h n h a nitdtc or ViOt N a m hiOn n a y

Td thuyg't CMnh danh eua Khdng Td cd thd t h i y r i n g : mudn x i hpi dn dinh, thinh tri, thi moi ngUdi phai lam dung "danh phan" cua minh.

Mdi ngudi c i n p h i i cd h i n h dOng, p h i t ngfln, p h i m chat tuong xdng vdi vi the x i hOi cua hg. Ngudi ddng diu eo quan h i n h chinh n h i nddc (CQHCNN) phai l i m dung vdi t r i c h nhiem eua ngddi ddng dau, l y l i chinh danh, tdc la ngudi ddng diu co quan, td chde, dfln vi phai ed nghla vu

"CM dao td ehdc thfle MOn nhigm vu dflge giao va chiu t r i c h nhiOm vi ket qua boat dOng cua cO quan, td ehdc, don vi" (khoan 1 Dilu 10 Ludt Cdn bg, cdng chiic n i m 2008) va phdi

"Chiu t r i c h nhiOm v l t o i n bO hoat dflng cua eo quan, td ehde, ddn vi ddgc giao l i n h dao, quan ly"2.

Tuy nhign, d l ngUdi ddng diu CQHCNN thuc MOn tdt trach nMOm cua minh, tM phai b i o dam thih chinh danh eua ngfldi dflng diu vk duge t h i MOn d hai ygu cau: thii nhit, danh MOu, tgn ggi cua ngfldi ddng diu CQHCNN p h i i dugc x i c dinh ro r i n g , thdng n h i t (tde l i ho ed danh vi l i "ngudi dflng d i u CQHCNN");

thii hai, e i n ed sU phu hgp gifla ylu td danh vdi yg'u td thfle eua ngilifi dflng dIu CQHCNN (tflc'li nhiOm vu, quyin han phai tfldng xflng vdi dia vi cua ngfldi dflng dIu CQHCNN).' C(i nhd viy, hg mdi l i m tdt dUfle vai trb l i ngudi dflng dau CQHCNN. Hay n6i cieh k h i c , g i n vdi ylu td danh li ngfldi ddng d i u CQHCNN phii 14 thfle quyln, thuc chiu t r i c h nhiOm vdi tu eich l i ngfldi ddng d i u CQHCNN.

Ngudi ddng diu p h i i cd quyen h^n eao n h i t trong vipc r a eic quyet diiih quin 1^ n h i m t r i l n khai boat dOng

' Hpc vIOn Hdnh chinh Quoc gla

34 TAP CHi QUAN LY NHA NUdC - s 6 225 (10/2014)

NGHIEN cufu - TRAO DOI

cua CQHCNN (trong pham vi dugc phan d p ) v i phai cMu t r i c h nMOm c i nhan v l eie quyg't dinh dd.

Nhu vay, kM danh chua xic dinh ro l i ngfldi dflng diu, hoie v l danh x i e dinh la ngfldi dflng diu nhflng thfle tbi quyin ban, nMOm vu khdng tuong xdng vdi danh dd, nghia l i chua b i o d i m tinh ehinh danh cua ngddi dflng d i u CQHCNN. Vi viy, cae chflc danh trong bd thdng CQHCNN tfl trung flong den dia phflOng, nhfl Thu tfldng CMnh phu, ho trudng, thu trudng co quan ngang bd, chu tieb Uy ban nhan d i n (UBND) eie d p n i u chUa x i c dinh ro vi tri la ngudi ddng diu CQHCNN, tde ehua dugc mang danh l i "ngudi ddng diu CQHCNN"; hoic l i mang danh l i "ngfldi ddng d i u CQHCNN"

nhung thue c h i t chua ddng l i ngudi dflng diu'CQHCNN (khdng l i ngfldi ed quyln quyet dinh cao n h i t ddi vdi boat dOng cua cd quan, khong chiu t r i c h nhiOm c i nhan v i nhflng quyit dinh dd) tbi nhflng chflc danh n i y kiid cd the thde MOn tdt t r i c h nhigm eua ngudi ddng diu CQHCNN v i cMu t r i c h nMOm t o i n hO v i boat dOng eua eo quan m i minh ddng dau.

Qua nghign cdu cie v i n b i n p h i p luat d ViOt Nam MOn nay, ed t h i t h i y nhflng ygu eiu ddi vdi viOc bao dam tinh cMnh danh cua ngfldi dflng diu CQHCNN deu ehfla ddgc the MOn ro, vdi nhflng biiu MOn eu the:

Mdt Id, danh MOu, tgn ggi cua ngudi dflng d i u CQHCNN chua dflge x i e dinh rd rang, thdng n h i t , r i n g : bg l i ' "ngudi dflng d i u CQHCNN".

Tlieo quy dinh phap l u i t MOn hanh,

"Thu tudng l i ngfldi dflng diu CMnh phu"; "Bd trudng vd Thu trudng ca quan ngang bd Id ngudi diing ddu vd

ldnh dgo mgt bd, ca quan ngang bq' (Dilu 4 Ludi Td chiic Chinh phu n i m 2001), ebn "Chu tich Uy ban nhdn ddn Id ngudi ldnh dgo vd dieu hdnh cdng viec cua U^ ban nhdn dan"

(Dilu 126 Ludt Td chiic Hgi dong nhdn ddn vd UBND n i m 2003). Nhfl viy, vl danh, Thu tUdng, bfl trddng, tliu trddng eO quan ngang bO dugc p h i p l u i t ghi nhan la "ngfldi ddng diu CQHCNN". Nhflng vdi chu tich UBND thi lai khflng ddgc ghi nhOn nhfl vay, m i la ngudi ldnh dgo vd diiu hdnh cdng viic cda UBND.

Vay ly do nio m i p h i p luit khflng quy dinh chu tich UBND l i ngfldi ddng diu UBND? Qua tim Miu va ngMgn eflu, cd t h i t h i y trong NgM dinh sd 103/2007/ND-CP ngay 14/6/2007 cua Cbinh phu quy dinh trdch nhiim cda ngudi diing ddu ca quan, td chiic, dan vi vd trdch nhiem cda cdn bd, cdng chiic, viin chiic trong viec thiic hdnh tiit kiim, chdng lang phi cd mdt chi t i l t d i n g ehu y. P h a n Giii tMch tfl ngfl eua Nghi dinh nay quy dinh nhU sau: "Ddi vdi eic td chde boat dOng theo CO c b l t i p t h i , biiu quyit theo da sd (Uy ban, HOi ddng quan tri, HOi ddng quin ly...) tM Chu tich ddge coi nhd l i ngudi dflng diu (...)". Theo tinh t h i n eua quy dinh n i y , thi chu tich UBND ehi "duifc coi nhu l i ngifdi ddng diu", bdi UBND l i "td ehfle boat ddng theo eO c b l tap t h i , biiu quyit tlieo da sd*. Tfl quy dinh cd the suy rpng ra, dd'i vdi t i t c i nhflng td chflc boat dOng theo co c b l t i p the, hieu quyit theo da sd thi cM dflge "eoi nhfl la ngfldi dflng diu", m i khdng d

"ngddi ddng diu" nguygn nghia, diy du, thuc sU. Neu nhu vay, se d d Chinh phu, bdi theo quy dinh, "Chinh phu thdo ludn tap thi vd quyit dinh theo da sd nhang vdn de quan trgn^

TAP CHi QUAN LY NHA NUdC - SO 225 (10/2014) 35

NGHIEN CUU - TRAO DOI

(Diiu 6 Ludt Td chiic Chinh phu n i m 2001).

Nhu viy, hg thdng phip luit vi trich nhigm ngddi ddng diu CQHCNN CO sd thig'u thdng nha't khi xic dinh vi tri ngddi ddng diu CQHCNN. 6 van b i n nay xic dinh Thu tudng Chinh phu l i ngUdi ddng diu Chinli phu, nliung trong v i n b i n khac lai giin tidp phu n h i n dieu dd. Cung la td chde lioat dflng theo co che tap t b i , bidu quyg't theo da sd, nhUng trong khi Thu tudng "li ngudi ddng diu Chinh phu", thi ehu tich UBND lai khflng dflge quy dinh l i "ngddi ddng diu UBND". Ngudi ddng ddu vk coi nhu ngudi diing ddu l i mgt sfl k h i c bigt ri't ldn, do viy, se l i mOt sfl khong ehinh danh. Thfle td l i , klii dbi hdi mpt e i nhan phai thfle biOn dung traeh nbiOm, hon phan eua ngfldi dflng diu CQHCNN, thi trdde h i t , vi tri eua c i nhan l y phai duoc xic dinli ro l i ngudi ddng diu CQHCNN. Cbn kM vi tri "ngudi ddng diu" chda ddge xac dinh ro r i n g , thi khflng the thilc hign diy du t r i c h nhigm cua ngfldi ddng diu CQHCNN.

Hai Id, ehfla cd sd phu hdp gifla yg'u tg' danh l i ngfldi diing diu CQHCNN vdi yeu td thuc - nhiOm vu, quyin ban tuong dng vdi dia vi eua ngddi ddiig diu CQHCNN.

Theo phap luit Vigt Nam MOn h i n h , ngddi ddng diu CQHCNN chila ed du thuc quyln cua ngudi ddng diu CQHCNN. Biiu MOn d ehd: m i e du quy dinh Thu tudng "la ngfldi dflng dau Chinh phu" theo khoan 2 Dieu 95 Hien phdp n i m 2013, ehu tich UBND l i ngfldi "linh dao v i dilu h i n h eflng viOc cua Uy ban nhan d i n " tai Dieu 126 Ludt Td chde Hdi dSng nhdn ddn vd UBND n i m 2003, nhUng Chinh

phu, UBND l i m viOe theo che dO tip the, quyg't dinh theo da sg'. Do d6, Thil tudng, chil tich UBND chi cd quyin quyit dinh cd nhdn trong mdt sd cdng viic dugc giaxfi, nhflng vi'n d^

quan trpng thuge t h i m quyln cua Cbinh pliu, nhflng van d l quan trong thuOc t h i m quyin UBND p h i i ddgc thao lu§n tOp t h i v i quyg't dinh theo da sfl'*. Nhfl vay, dfl'i vdi ri't nhieu boat dOng eua Chinh phu v i UBND, vi mat quy dinh, khi biiu quyg't giiJa t i p till, vi tri eua Thu tUdng v i chu tich UBND chi ngang bang vdi ti't cd t h i n h vign k h i c trong CMnh phu, UBND. Ngay ca ddi vdi bO, co quan ngang bg - cie eo quan hoat ddng theo CO ehe thu trUdng - sfl phu hgp gifla danh l i ngfldi ddng d i u bg, efl quan ngang bg vdi thife quyln eua bO trudng, thu trudng ed quan ngang bp eung cd nhiiu v i n d i can xem xdt.

Nhflng phan tich trgn eho thiy, eic chflc danh Thu tddng CMnh phu, bo trudng, thu trudng cd quan ngang bo, chu tich UBND cie d p hoic la ehua duoc mang danh l i "ngfldi ddng diu CQHCNN", h o i c l i mang danh l i ngudi dflng d i u CQHCNN nhflng thifc q u y i n t h i chila d u n g la ngudi dflng d i u CQHCNN - khong p h i i l i ngudi CO q u y i n q u y i t dinh cao nhit doi vdi boat dOng eua co quan v i chiu t r i c h nMOm c i nhan v l nhflng quyll dinh dd. Cd le, d i y cMnh l i nguygn nhan dan d i n nhflng b a n c b l trong viOc thfle MOn traeh nhiOm cua ngfldi dflng d i u CQHCNN eung nhu trong viOc d i n h gii, quy k i t t r i c h nMOm eda ngudi dflng diu eic CQHCNN.

2. M g t a6 khuyd'n n g h i Trong quan ly xa hOi ndi chung vi QLNN ndi rigng, van d i quan trgng c i n IdU y dd l i : d l mOt chu t h i ed the

36 TAP CHi QUAN LY NHA NUdC - S 6 225 (10/2014)

NGHIEN CLfU - TRAO DOI thue Mgn tdt t r i c h nMgm cua bg, tM

vi tri, vai trb cua hg d n dugc x i e lap mOt d e h ro rang. Do dd, di ngudi diing ddu CQHCNN thuc hiin trdch nhiem mdt cdch thiic sU vd chiu trdch nhiem mdt cdch ro rdng, cu thi.

Chinh vi viy, khuyin ngM eua t i c gii b i i v i i t d l nham hoan tMOn p h i p Mat, dd l i : d c quy dinh p h i p Mat v l 5 Viet N a m trong thdi gian tdi d n bao dam t i n h chinh danh eua ngudi dflng dau CQHCNN. Tuy nMgn, trong bdi d n h d c h thde td ehdc va h o a t ddng cua bO m i y h i n h cMnh n h a nUdc d Vigt N a m MOn nay ddng t h d i d ea CQHCNN boat dOng theo c b l dO thu trudng, d CQHCNN hoat dOng theo c b l dO tap t h i ket hgp vdi c b l dO thu trddng, vige x i e diiih ro rang, thdng n h i t dia vi, tfl d c h p h i p ly d a ngUdi ddng diu CQHCNN h o i n t o i n khgng phai l i vige d l d i n g .

Day la mOt van de ldn, Ugn quan d i n nguygn t i e td ehfle v i boat ddng cua d e eo quan n h i nfldc, ddng thdi, Ugn quan den n M i u ylu td v i t b i e h i cMnh tri, lieh sut, van hoi... do dd, d n cd sU ngMen cdu d mdc dO ehuygn sau. Tuy nMgn, d l xua't mpt dinh hudng giai quydt v i n d i n i y l i d l xic dinh ro rang, thdng n h i t dia vi, td d c h ' p h i p ly d a ngfldi dflng diu CQHCNN, d n d sfl thay ddi efl ban v l d e h thfle td chflc, boat dOng d a bo may h a n h cMnh n h a nfldc theo hfldng: thiet lap che dd thd trudng ddi v&i todn bd cdc CQHCNN d Viet Nam hiin nay. KM tMet lOp dugc che do thu trfldng ddi vdi toin bO d c CQHCNN se k h i e phue dflge tinh trang khdng xie dinh ro dflge ai l i ngfldi dflng diu CQHCNN, la mOt d

n h i n hay l i t i p the, k h i c phuc ddgc tinh trang ddi vdi d c CQHCNN boat dflng theo eo c h i tap the nhu UBND thi chu tich UBND cM dugc "eoi nhu ngfldi dflng diu", ddng thdi, thflng qua dd, kM d i tMet l i p ehe do thu trudng ddi vdi cac CQHCNN, tM vige xic dinh ngi ham k h i i mgm the n i o l i ngudi dflng diu CQHCNN cung se ' khong gap vfldng mie.

ViOe t M i t l i p e h i dfl thu trUdng ddi vdi eie CQHCNN dUa trgn efl sd khoa bgc d d gde dg ly Min v i gde dg thuc tiln:

Thd nhdt, d goc dd ly ludn, c i n ddi mdi td chflc va boat dgng theo hfldng t M i t l i p c b l dO tliu trddng ddi vdi d e CQHCNN x u i t phat td die diim ve tlnh chat v i ygu ciu boat dgng cua CQHCNN. H i n h p h i p i i noi d n hdnh ddng ban la ludn bdn, noi d n sU dng phd nhanh va mau Ip, dung Ide, qua quyit vdi nhflng diln b i i n pbfle tap, da dang, nhanh ehdng, thfldng xuygn v i lign tue eua ddi tdgng quin ly, eua nhifng nMgm vu mdi p h i t sinh dbi hdi phai giii quydt g i p rut. Do dd, d i y l i noi dbi hdi phai cd t r i c h nMgm c i n h i n ro rang v i e h i do thu trfldng phu hgp vdi ygu d u niy, Montesquieu v i Rousseau, nhflng ngudi s i n g l i p bgc thuyit p h i n quyln v i k h i ude x i hgi d i k h i n g dinh r i n g : quyin b i n h p h i p , do d i e ttiu eua nd, d n giao cho mOt d n h i n . Montesquieu viit: "Quyin h i n h p h i p ludn ludn d n d i n mOt h i n h dOng n h i t thdi, d l cho mOt ngudi n i m tM hfln la nMiu ngfldi eung n i m . Nd k h i c vdi quyin lap p h i p , do nMlu ngUdi ban tM hon l i mOt ngUdi"^. Cbn Rousseau tM viit:

"Ta t h i y rang chinh phu phai do mdt

TAP CHi QUAN LY NHA NUdC - S 6 225 (10/2014)

NGHIEN cufu - TRAO DOI

ngddi n i m (...), cho nen chinh phu n i n g dflng nha't se la cbinh phu cua mOt ngfldi". "Chic phin l i cdng t i e cing giao eho nhiiu ngudi thi cang cham xong (...), vi bd qua mat CO hOi, v i b i n cai nhiiu thi thfldng hdng viOc-e. Diiu do eho thiy, d e CI^HCNN phii v i ngn boat dOng theo che dO thu trudng va trich nMgm trong dieu hanh phai thuoc v i e i n h i n ngfldi ddng diu CQHCNN.

Trong khi dd, vdi ehd dfl diiu h i n h t i p t h i , thi "khflng l i m the nio m i tim ra dugc ngudi chiu t r i c h nhigm ci". Vi v i n d i nay, V.I.Lgnin d i viit nhu sau: "Thao luan thi thao luin chung, nhung t r i c h nhiOm l i eua tflng ngfldi... Vi khflng biit van dung nguygn tac n i y ngn cd moi bddc di, ehung ta lai bi khdn ddn..."' v i "Ding le phai chiu trach nhigm vi cdng viOc cua minh,... vdi y thfle r i n g chinh minh l i ngfldi chiu trach nhiOm thi ngudi ta lai n i p sau cac ban"*.

Thd hai, d goc do thiic tien. ViOe thig't lap c b l do thu trfldng dfl'i vdi cac CQHCNN d Vigt Nam l i phu hgp vdi xu t h i ehung eua n i n h i n h cMnli eic qudc gia trgn thd gidi. HiOn nay, xu hfldng chung cua cie n i n h i n h cbinh trgn t h i gidi la thig't l i p ehe dp thu trfldng ddi vdi CQHCNN. N i n h i n h cbinh n h i nddc eda hau h i t eic nddc trgn t h i gidi van h i n h theo nguygn tie: mdt viec do mgt ca quan (td chiic) phu trdch vd mdt ca quan (td chiic) do mot ngudi diing ddu chiu trdch nhiim. Cie n h i nude d i n chu p h i t t r i l n ngiy cang di vio co ehe trich nhjOm c i nhan. Ching ban, nguygn t i e chiu t r i c h nMOm t i p thd eua eie t h i n h vign cua NOi eic Anh qudc d i d i n d i n hi thay ddi b i n g c h i

do chiu t r i c h nMOm ca n h i n cua cdc bO trifdngS. Trong nhflng nhiOm kj g i n day, Trung Qufl'e cung d i thilc biOn theo ehe dO tinh trfldng, thi trudng...

Do dd, trgn co sd ly Man v i thuc t i l n , n i u thfle Mgn duoe, se tao ra t i i n d i t h u i n lgi cho viee x i e dinh ro ring, thfl'ng nha't dia vi, tU cieh phip ly cua ngudi ddng diu CQHf^NN, thflng qua dd, n i n g cao MOu qua thilc MOn t r i c h nhiOm cua ngddi ddng dau CQHCNN, gdp p h i n nang eao hiOu qua d i each h i n h ehinh v i xay ddng n h i nudc dan chu, p h i p quyin d Vi$t Nam trong thdi gian tdiU

Chd thich:

1. Nguyen Thi Thanh Mai. TU tudng dgo diic Nho giio vi dnh hudng cda n6 d niidc ta hiin nay. Tap chi Nghiin cdu vftn hoi online, http://huc.edu.vn, nglly 26/5/2014.

2. Khoan 1 Dieu 7 Nghi dinh s$

157/2007/NB-CP ngiy 27/10/2007 ciia Chfnh phu quy dinh did do trach nhi$m ddi vdi ngudi ddng dau co quan, i^ chile, don vi cua Nhi node trong tlii hanh nhi$m vu, cong vu.

3. Dieu 98 Hien phdp nim 2013; Dilu 124, 126 Ludt Tg chiic Hgi dong nhin dto vi U^ ban nhdn din n&m 2003.

4. Diiu 95 Hien phdp nSm 2013; Dilu 124 Luit Td chitc Hdi dong nhin ddn u4 U^ ban nhin ddn nim 2003.

5. Montesquieu. Ban vi tinh thdn phdp ludt (Hoing Thanh Dam dich). H. NXB U luin chinh tri, 2004, tr. 268.

6. Jean - Jacques Rousseau. Bin v^ kh^

ude xi hdi (Hoing Thanh Dam dich). H.

NXB Ly luan chinh tri, 2004, tr. 130 -131 7. V.I. L§-nm. Todn tap. Tap 44. H.

NXB Chinh tri qudc gia, 2006, tr. 207.

8. V.I. L4-nin. Toan tdp. T|ip 45. H.

NXB Chinh tri qudc gia, 2006, tr. 138.

9. Nguyen Ding Dung. Chinh phd trong nha nudc phap quyin. H. NXB Dai h9C qudc gia, 2008, tr. 487.

38 TAP CHi QUAN L f N H A NUdC - S 6 225 (10/2014)