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THAM VAN CONG CHUNG d VIET NAM - MOT SOVANDELYLUANVATH(/C TIEN
ThS. L i m KIEM ANH*
ThS. ht THJ HlTONG"
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1. Quta nigm vg tham vto cdng chdng Theo nghia cua tit Hto Viet, fliam vfa ham y la hdl de tham khao mfit vto dg nao dd. Vivay, "Tham vfa Id holy iden de fliara khao, thudng la vg vto dg quan trpng"';
"Thara vfa la hoi dg fliara khao tfiudng la van de chuygn mfin'^. Tham vfa cfing chung (TVCC) vol nghia dd da dupc ghl nhto trong he flifing phap luat Viet Nam.
Trong qua trinh xay dyng pbap luat, ehinh sach, ban hanh cac quygt dinh quto ly nha nudc (QLNN), can fliigt va quan trpng phai Ugn hanh TVCC, bdi vi "Tham van cdng chung la htoh dfing co chu dicb eua chinh quygn nhtoi Uiflng bao, hoi vd Itog nghe, fliao Into vfii nhiing ngudi chiu toh hudng bdi mpt quyet dinh, mdt gidi phap ndo dd hoac nhung ngudi cd lien quan, cfl quan tdm den ehmh sach, giai phap sap dupc ban hdnb hoac da duoc ban hdnh. Thflng qua dd, cac nhdm ngufii ttong xa hpl cd cohpl dg bay to quan digm, y kign
Ciia mtoh, tao digu kign dg nguoi ra quy^
dinh cd CO so xem xet va eto nhdc mjfic khi quyet dinh ban htoh hoSc siia dfii chinh sdch"^.
"Cflng Chung" bao gfim tdt ca cac nhanf,:
ngufii ttong xa hdi Udn quan dgn chinh'"
sach dang dupc nfii dgn (dfi la cfing dSn, hiep hpi, td chiic dto sy, nhd khoa hpc, chuyen gia va cac co quta chinh quygn lidn quan, nbuvay, cfing chung dupc higu la bdt ky bgn ndo cfl quygn lpi bi anh huong hodc Ugn quan den quyet dinh se duoc dua ra vi khdng phal la ben ra quyet dinh. Nhitag dSi tuong hoat dpng fliara vto hudng tdi bao, gfira: nguoi hudng Ioi ttije Ugp, gito tigpi^
nguoi ehiu fliiet gito Ugp, trye tiep; nguM quan ly, thyc bien (nha ehilc trach cung cap; flitoi chi cdp trgn); ngudi bao vg ddn sy (cdc hpl); ngudi cfi vai trfi ho trp (ttong
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* Sd N§i vu Ha Npi
** Hgc vi^n Hanh chinh QuSc gia
P CHI QUAN LY NHA NUdc - sd 247 (8/2016)
N G H | £ N CLfu-TRAO odl
doaifli nghigp); nguoi am higu sau ve chuyen mfin (chuydn gia, cto bfi chuygn mon sfing tten dia bto; ngufii "vfi ean" vg quygn lpi hoac thiet hai).
Trgn Uiyc tg, cfi nhigu each thiic khde nhau dg Men khai TVCC. Cac dia pbuong cd the lya chpn nhiing nguoi ed quygn im va nghia vy lign quan tdi nfii dung eua cbinh sach phap iuat mfii va nhung chuygn gia, ngudi cfl kha nfag va dieu kien ddng gdp y kign. Bgn eanh dd, cfa efing bfi rfing rai cdc dy fliao phap luat, chinh sdch, quygt dinh QLNN ttgn phuang Ugn flifing Hn de cflng chung bigt vd dfing gfip y kign.
Digu cdn TVCC la chinh saeh, quygt dmh QLNN se tde dfing ra sao dgn lpi ich cia hp. Do dfi, cae tfi chile Ugn banh tham vto cfa phai lya chpn cac vfa dg fluet fliyc, lign quan tinrc tigp dgn quyen lai, nghia vti cila ngudi dfa hoac cua co quan, td chuc dg tiiam vto. Doi vdi dfing dao cfing chung, cto fliuygt mmh rd rfag ve mfit so vfa dg ldn, nhat la nhirng vto dg dang cd nhigu y kign ttanh cai nhdt. Dfii vdi nhflng vfa de chuyen sau, chuyen mfln, eto fliam vto gidi chuygn gla. Ddng flidi, fliam vfa cung cto bao dtoi tinh he fliong, dat vto dg ehuyen mon ttong tdng flig cac Unh vue kinh tg, ctu'nh tri, xahdi... ixem bang cuoi bai).
2. Mye Ugu, y nghia vd nguygn tdc cua TVCC
Mgt la, muc Ugu cua TVCC bao gfira nhirng vfa de sau ddy: bao ddra eac y kien duprc phto anh trong phap luat va chinh sdch; fliu fliap va lua ehpn cac y Hen hay, nhung ddng gdp cfl Unh chat hien ke cua cong Chung; nghe y kign cua cflng chung phto hdi vg tac dpng cua chmh sacb vd kha ntog chap banh chinh sach trpng fliyc tg;
ddnh gia rauc dp dat dupc mye dieh ciia chinh sdch khi flii hanh; dg chinh sdch phu hpp thyc tign, bgn vflng, dap img dupe
quyen Ityi, nhu cdu va mong mufin ciia ngudi dto; tao su dong thuto va chap htoh chinh sach tot ban; tao sy chuyen bien vd y thuc cua efing chung ttong viec thara gia QLNN vd xahfii.
Hai id, sythamgiacuacfingchilnggfip phfa rat Ifin ttong viec nhto ra cae vto dg ttong xa hfii, mang lai niiieu phuong to ve chmh sach hon de lya chpn, tao co so dg xay dung chinh sach, phap luat. Sy fliam gia nay cung chung to quyen cua ngufii dto duac itog nghe vd quyen yen cau cac co quan nha nudc phai cdng khai va cd ttach nliiem. Thara vto la ngudn thfing tin kiem Chung, bfi khuygt viec fliigt ke chinh sach, giam sat viec tfiyc tfii chmh sach o cac giai doan. Tham vto keo chinh sdch, quyet dinh QLNN gfa vol cufic sdng hon, bao quat ban. Tham vfa giup chinb quygn eac cap phfii hop dg xay dyng chinh sdch. Cac eo quan dto cu tun dupe giai phap thi'ch hpp nhdt dg ra nghi quygt dinh hudng glai quygt cac vfa dg phdt sinh va cae cp quan chdp hanh ed duoc su rfi rang, chinh xdc hon khi ttign khai fliyc flii chinh sacb, ddng thdi s6 iara cho chinh quyen quan tara hon den nhu eau, lol Ich cua cfing chung.
Ba la, TVCC duoc fliyc bien tfieo nhung nguy6n tdc sau day: (1) Tudn thu: TVCC phai tuto fliii cac quy dinh eiia phap luat;
(2) Minh bach: cae chu flig tien htoh TVCC phai cdng khai nhung thflng tin ve mye di'ch cua vlec tham vdn vd khufln khfi npi dung chmh sach cto fliam van, ddng thdi, phai cung cap fliflng tin pban hdi tit vigc Ugp fliu cac y kien gflp y; (3) Lign tuc: vigc tham vfa y kign phdi duoc tien hanh rapt each Ugn tuc va b Jt dto ngay cua qud trinh hoaeh dinh ehlnh sach; (4) Chuygn nghigp:
fliuc hien flieo dung ke hoach, nfii dung fliam vfa vd ky fliuat thara van da thfing nhdt, cfa fliam khao ddy dli cac efing cu, ky ,1 TAP CHl QUAN li NHA NUOC - Sd 247 (8/2016)
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thuat tham vto, cac phirong phap dieu tta xa hfii hpc vd ddnh gia cfl sy tham gia cua ngufii dfa; (5) Dtmg, du doi tupng: thu hut su thara gla cua edc cap chinh quygn, eac tfi chiic ehinh tti a dia phutmg, cua cpng dfing dfa cuva cua ngudi ianh dao vdo qua trinh tham vfa; (6) Tfin ttpng tinh da dtag:
can Um hieu y kign cflng chung tu niiieu gflc dp khac nhau, thfai chi cfl the xung dpt nhau, khfing nen tttah ne raa cto ifag nghe mpi y kien dfing gfip, sir dung a miic dp, pham vl da dang nhat nhflng y kien dd thu nhfa tu cac co quan, tfi chuc, ca nhfa nay; (7) Du thoi glan: viee thara vto dupc tien hdnh chi kill cac rauc tieu va lya cbpn ehlnh sach da dupc xdc dinh rd rfag, cdc ddi tupng tham vfa y kien phai cd du thai gian dg tim higu va phfa hfii; (8) Phto bfii rfi rtog de ngudi dto bigt thien y cua viec tham vfa va nhung dieu hp quan tam s6 dupc xem xgt; (9) Ddng Ifing: kgt hyp giua sy cam ket manh me, viec vto dung rafit each linh boat, phu hop cua cdc tfi chtrc tign htoh tfiam vto va sy tham gia u'ch cyc eua nguoi dto la ygu tfi khfing Uig tbigu trong tfiam vto.
3. Co s6 phdp iy dg Udn hdnh TVCC 6 VigtNam
Nam 1998, Bd Chlnh tri da tung dat ra van de ddn chii tai xa, trong dd cfl ngu vlec phal phat huy quyen Idm chu cua nhan dan, thu hut nhto dan tham gia QLNN...
de khdc phuc Unh trang suy thoai, quan Ugu, raat dan chu vd nan tham nhung.
Theo dfl, khau quan trpng va cap bach trudc mdt la "phat huy quygn Iam chti cua nhdn dan 6 co so"". Ngay sau dd, Chinh phu da ban hanh Nghi dinh so 29/I998/ND-CPngay 11/5/1998 (nay duoe sua doi bfag Nghi dinh so 79/2003/ND-CP ngdy 07/7/2003) kem theo Quy che thyc hien dto chu o xa, phuong, thi trdn quy
dinh cac nfli dung, phirong thiic vd ttddi nhiem ciia chinh quyen cdp xa trong vi|c thyc hign quygn dan chii cua nhfa ddn.
Ddy dupc coi la nhimg vdn bfa phap Ij quta ttpng, thg chg hfla phuong cham dSn bigt, dan ban, dan lam, dto kiem tta cila Dtog Cflng sto Viet Nam.
Ngay 20/4/2007, Oy bta Thuong vy Quoe hfii khfia XI da thfing qua Phap Bnh thuc hign dan chi dxa, phuang, thi trin, quy dinh nhflng vto de phai dupc ngii«
dan cap co so bto, tham gia kiu chinii quyen quyet dinh. Ben canh dfi, nhtoi cji the hfia edc quy dinh cua Phap Ignh, dg cd quy ttinh, tiiu tuc chi tigt han, mfit sfi Hji dfing nhto dto (HDND) tinh, flidnh pho ffl bta htoh rigng nghi quyet cila HDND vd boat dfing tiiara vto, hoac Quy chg phdl hpp hoat dfing gifla HDND vol Doto djl bieu Qufic hfii cua tinh. Mat ttto Tfi quoc.
Dieu 25 Hign phap nam 2013 quy dint
"Cfing dan cd quygn ty do ngfin luta, tydo bdo chl, tiep cto flifing tin, bpi hpp, ijp hOl bigu Unh. Viec thyc Men cdc quyen nay dii phap luat quy ditih".
Digu 6 Luat Ban hinh vin bin qiif pham phip luat nam 2015 cung khkg dinh: Mat trto To quoc Viet Nam, Phdng Thuong Mai va Cfing nghiep Vigt Nam, cds tfi chile thanh vien khdc eua Mat ttjn vd eac CO quan, to ehiic khac, ca nhto cd quyen va dupc tao digu kien gdp y kign vd dg nghi xay dyng vto bto quy pham phdp luat va dy thao van bto quy pham phdp luat. Trong qua trinh xay dyng cac vto bdii nay, CO quan, td chuc ehu tti soan flido vi CO quan, td chue cd hgn quan cd trdch nhiem tao digu kien dg cac co quta, td ehiic, ca nhta tham gia gfip y kign vg ii nghi xdy dyng vd dy thao vdn ban quy phara phap Iuat; to chuc ldy y kign cua d«l tupng chiu sy tac dpng true Hgp ciia vdIi
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TAP CHl Q U A N LY N H A NUCTC - s d 247 (8/20161* < i : . • . ,
lilioj ''ta-^kignthamgiavedenghixaydung vd B nil!''" * ^ ° ^*" l^™ quy P^'fa' p h i p 'u^t phai kin* ^"'^ nghign cuu, tigp fliu ttong qua ninh Hii ' ' ™ ' ' 'y ''V dito v t a bta.
hilt, *• f * ™ ? thdch flidK vd v t o dg dat ra n M m t t o g cudng higu qua ttnng thyc jiign . Hi " ' ^ C hign nay
]lB(i; I'Jdc/i thuc datra tuphia chlnh qufgn
^ j cic dp: chlnh quygn cap co so nhigu noi ii(«: ™" "^hua higu rd tam quan ttpng cua vfa (al- *^ ^^ '^hil trong qud ttinh fliap Into va ra I ijjv quydt dinh. Trgn fliyc tg, p h t o Ion lanh dao iflll! '^^^^ ''"5'^° " ' '^°ti han chg nfag luc Uji '^'•"y™ ™°"' * i e u dong ca tfi chile cuoc jj^. hpp flito lufa vdl nguoi dto. Cto bp chua JlS '"^*' "^'^ ' ^ ° ^ ^ ^ '''^" ™ f ^ ° quygn cho )nit " ^ ^ ' ' * " ^ ' ^ ^ ^ * * ° ' " t o va ra quyet
NGHIEN CiTU-TRAO D d i
Ift ^ ' ^ ' ' ^ ' ' ** " ' ' ''™S ''"''''^''™ "•" * a o
^., lufa vdi ngudi dfa ehi mang tinh hinh
^ • fliuc, rafit sfi nfli dung khac khflng duoe 'I P m t a g ra b t a bac. Mpt bfi p h t a khfing nho
"'" cto bp ehinh quyen ca so cho rdng trao W quygn cho ngufii dfa se ddnh mJt tiiam l«»: quygn va quyen lyc cua mmh. Bgn canh dfl,
sy fliieu ngufin tai tro cy flig cho viec tfiyc il It hien dfa chu co sd cung Id mfit fliach fliiie jl|i ldn. Luong cto bfl tfidp, khfing du hap d t o il,! nhung nguoi co ntog lyc vd dfing vien hp il.\i danh nhiet buygt cho cfing vigc. Muc dfi (115 ttach nhiem gial trinh ciia chinh quyen dia , li phuong eac cdp Ign cap tten, dae biet la dfii fi vfli cdp xa ve cae boat dpng d t o chu co sd ilj: rdt tfiap.
Is ria'ch thdc dit ra lien quan den ngudi it I dan; ttgn fliyc tg, nhfa Uiuc ciia nguoi d t o ,B vg nfli dung quy chg d t o ehu co sd ehua j : dupc day du. Hp it quan tam den quygn p dupc bigt, quyen duoc b t o vd quyet dinh.
([I Ngudi d t o tap trung vao cac quy dmh Ugn ji; quan dgn lpi ich kinh tgva khcng quan tdm a nhieu den cac quy dinh phuc vu cho muc i, dich phat ttign dia phuong nfii chung. Mfit
digm khfi khfa xuat phdt tu qua trinh giao Ugp cua ngudi d t o , dfi la ttong cupc hpp cd it ngudi, hp thuong ngai Uig hien q u t a diem cua mmh, it cfi y Uiuc cfing ddng...
Cbinh vi vay, de viec diyc hien TVCC dat hieu qua eao, fliep chung tfii, e t o dat ra yeu cau nghien cuu nhtmg glai phap phu hpp. Trong dfl, mfit sfi v t o dg cfa quan tdm dupe xera Id mdu chot cho qua trinh nay, dfi Id:
Thir n i a t , c t o tao digu kien va trao quyen eho ngufii d t o dg day raanh sy fliam gia cua hp vao qua ttinh xay dyng phap luat. Thara v t o fliuc day sy tham gia cua ngyfii d t o nhdm n t o g cao chat luong hg flidng v t o b t o phap luat. Dac biet fliam v t o la edu bdi rat he ttpng, Iara cho viec tfiara vfa cd y nghia fliuc ddy d t o chu.
Thiihai, t t o g cudng thue hien co chg p h t o hfil efi higu qua. Tiep thu phan hfil bien dang Id khau yen nhat ttong qua trinh TVCC hien nay. Viec p h t o bfii cung cdn rdt ban che ngufii dan cung chi dupc nghe y kign mfit chigu ngn chat luang fliam vfa rat thap.
Thd ba, ttog cufing trdch nhiem cua chu flie tfiyc hien Uiam vto. Phfa lioi cbo d t o la ttach nhiem cua chu Uig thyc hien thara vto. Phal cfl ngufii chiu trdch nhiem ttong n h t o va tra loi y kien phan hoi cua ngudi dfa, sau dfl cfing khai vol ngufii dan.
Tbu Or, fliuc day su phat trign cua xa hpl d t o sy dg dflng gflp tieng nci vao fliuc ddy sy doi mdi, xuc tien tfiuc bien cdng cupc cdi each h t o h chinh nfli rigng va QLNN nfii chung. Xa hfli dfa sy Id mpt khu vyc "phi nha nuoc", bao gom cac lien hiep, higp hpl, hpl, tfi chuc cfing dong, nhom Unh nguygn,' to chuc phi chinh phu,... thyc hien cac chuc nang, vai ttd xa hfii hojc mue dich nghe nghiep, tu Uiien, nhan dao... nhat dinh; boat dpng ehu yeu dya trdn tinh tu
I TAP CHl Q U A N LY N H A NUdlC - Sd 247 (8/2016)
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NGHIEN CLTU-TRAO DOI
chu ve tai chlnh, tu quan trong td chiic quan ly va sir tu nguyen ciia cac thanh vien, hpi vien voi muc tieu phi loi nhuan, da dang ve hinh thiic td chiic, phong phu ve muc tieu cu the, nham tham gia hoach dinh cac chu truong, chinh sach ciia Nha nuoc, phdi hgp vol Nha nudc trong hoach dmh, thuc hien va giam sat thuc hien cac chinh sach, gop phan xay dung va hoan thien he thdng phap ly. Nhu vay, TVCC se duac coi la nen tang de tien tdl xay dung quan tri nha nuoc, quan tri dia phuong hieu qua d Viet Nam trong thdl gian tdiO
Qui thich:
1. Vien Ngon nguhpc. Tir dien Tieng Viet. H.
NXB Tir dien Bach Khoa, nam 2010.
2. Trung tam Tir dign hpc. Tir diin Ti6^
Viet. H.NXB Da Ning nam 2010.
3. Van phdng Qudc hpi va Chuong trinh phat tri^n Lien hop quoc. Hudng dan tham vis cdngchungcua coquan dan cu/Chuongtiii^
"Du an tang cudng nang luc cua cic co quaa dan cu&VietNam", nam 2015.
4. Chl thi sd 30-CT/TW ngay 18/02/1998 cfia Bo Chinh tri vB xay dung va thuc hien Quy dtf danchiidcosa.
Tii n$u tbam kbio:
1. Hd Chi Minh. Toin tap. Tap 5. H. NXfi Chinh tri qudc gla, 1995, U. 698
2. Ngan hang The gidl. Bio cio phit tiify Viet Nam 2010 - Mot tbi chi hien dai. Bio cSa ch ung cua cic nba tai tra tai Hdi nghi tuvinck nha taitracho VietNam, 2010.
MlTC Dp GIA TANG Sy^ THAM GIA CUA NGlTCfl D A N VAO CAC QUYET BfNH CUA NHA NUOfC
Cong cu
Thong tin Cung cap cho cong chung cac thong tin day dii va diing mye tieudehi;) hieu ro van dc, cac lira chpn, ccr hpi va giai phap.
Nha nircrc bao dam vi^c thong tin den ngucri dan
- Tai tieu - Webside
Tham van Nhan dirac phan hoi Ciia ngucri dan ve cac phan lich, cac \\fa chon va cac quyet dinh
Nha nuac bao dam thong tin den nguoi dan, (Sng nghe va lam ro cac tam tu, nguyen vgng cua ngucri dan phan hoi ve vipc xii ly cac y kien cua cong dan.
- Lay y kien binh iuan cua cong chimg - Nhom miic tieu - Dieu tra du luan
\ a hoi - Gap cong chiing
Tham gia Doi thoai true tiep vcri cong chiing de bao ddm cac quan tam va mong muon ciia hp dirpc lang nghe va xem
Nha nuac doi thoai vcri nguen dan de bao dam nhung tam tu, nguyen vpng ciia ngucri dan dupc phan dnh trong cac lira chpn chinh sach va phan h6i ve vipc xir ly cac y kien ciia cong dan.
- Hpi nghl, dieu tran - Trung cau y kien (ham khao
Doi tac La doi lac vai cong chung trong timg khia canh ciia quyel d|nh kg ca trong vi^c xay dyng cfic lira chpn va dua ra quyel
Nh^ niroc tim den nguai dan de lay y kien tu van va cac sdng kien chinh sach va sir dung toi da cac y kien nay trong cac quyet djnh ciia minh.
- Uy ban tir van cong dan - Xay dung sy dong Ihuan - Ra quyci dinh
LliiliajD_gia__^
Nha nuik s8;
th^c hi^D nhung gi nguin dan quyel dgnh.
Hpi dong cong ddn
TrTmgciu dan y - Uy quyen quyel djnh.
Nguon. International Asocitaition for Public Particcipation, http://www.iap2.org
