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TRE EM VA VAN NAN XAM HAI TINH DVC:
BAI HOC Tl/ PHAN TICH QUI TRINH
XAY D U N G VA THlJC THI CHINH SACH CONG
• DAO
N G U Y I N YEN LINH- MAI NGOC KHl/CJNG
TOM TAT:
Van nan xam hai tinh due tre em ludn la ndi lo ciia cac bac phu huynh va cua toan xa hoi ndi chung, dac biet trong thdi dai phat trien edng nghe thdng tin hien nay. Tuy nhien, la mot xa hdi mang dam da'u an van hda A Ddng chffa sSn sang tff bd nhffng dinh kie'n ldi thdi va day nguy hai ve van nan nay, nhffng cd' gang ve chinh sach bao ve tre em cua Viet Nam tuy nhieu nhffng chffa thffc sff hieu qua. Bai vie't nay ap dung nhffng ly thuyet xay dffng chinh sach cdng de phan tich mot so' thffc trang cdn tdn dpng trong cac giai doan khdi sff, hoach dinh va thifc thi chinh sach, qua do nit ra bai hpc kinh nghiem eho cac chinh sach bao ve tre em khdi nguy cd xam hai tinh due ndi rieng va cho cac chinh sach cdng cua Viet Nam ndi chung.
Tff khoa: Tre em, cham sdc tre em, xam bai tre em, bao ve tre em, thffc thi chinh sach cdng.
1. Dat va'n de
Tre em ludn la md'i quan tam hang dau ciia mpi qud'c gia tren toan the gidi va Viet Nam ciing khdng phai la ngoai le. Cach day hPn 70 nam, Qud'c hdi khda I da ghi nhan va dffa viec bao dam quyen tre em vao Hien phap dau tien ciia nu'dc Viet Nam Dan chu Cdng hda nam 1946, va quan diem nay da du'dc the hien nha't quan xuyen sud't trong cac ban Hien phap ve sau. Ben canh dd, Viet Nam cung la mdt trong cac qud'c gia thanh vien cua Lien Hdp Qud'c phe chuan Cdng U'dc ve Quyen tre em nam 1989, dffpc xay dffng dffa tren Tuyen ngdn ve Quyen tre em, trong dd neu rd "do cdn non ndt ve the chat va tri tue, tre em can dffdc bao ve va cham sdc dac biet, ke ca sff bao ve thich hdp ve mat phap ly tnfdc cung nhu' sau khi ra ddi".
194 So 14-Thdng 11/2018
Tuy nhien, mac dii nhffng thanh tffu ve kinh te va xa hdi ma Viet Nam dat dffpc trong thdi gian vifa qua da giup cai thien ddi song cua phan Idn ngiicli dan, nhffng be luy keo theo cua sff tang tnfdng nay ke't hdp vdi sff thie'u thd'n cac chinh sach, cac quy dinh phap luat toan dien cung nhff sff ye'u kemve cac nguon lffe de thffc thi cac chinh sach, quy dinh dd da gdp phan lam nghiem trpng them van nan xam hai tinh due tre em tai Viet Nam.
2. Td'ng quan v^ cac chinh sach va quy dinh phap luat Men hanh
Cho de'n nay, Dang va Nha nffdc ta da banhanb nhieu van ban lien quan de'n tre em ndi chung va tre em bi xam hai tinh due ndi rieng, trong so do cd the ke de'n:
Nghi dinh so 186/2007/ND-CP da quy dinh
QUAN TR! - QUAN LY
viec thanh lap Cue Bao ve Cham sdc tre em va Quye't dinh so' 909/QD-LDTBXH ngay 20/06/2013 ciia Bp Lao dpng - ThffPng binh va Xa bdi ve viec quy dinh chffc nang, nhiem vu, quyen han va cP cau td chffc cua Cue Bao ve, cham sdc tre em;
Quye't dinh so' 1555/QD-TTg ban hanh ngay 17/10/2012 cua Thu tffdng Chinh phu ve viec phe duyet Chffdng trinh hanh dpng qud'c gia vi tre em giai doan 2012-2020;
- Quye't dinh sd 2361/QD-TTg ban hanh ngay 22/12/2015 ciia Thii tifdng Chinh phii ve viec Phe duyet Chifdng trinh bao ve tre em giai doan 2016 - 2020;
Luat Tre em 2016 dinh nghia tre em la "ngu'di difdi 16 tudi" tai Dieu 1 va "xam hai tinh due tre em" tai Khoan 8 Dieu 4, dffa tre em bi xam hai tinh due vao nhdm tre em cd hoan canh dac biet (Dieu 10), va neu rd quyen cua tre em dffdc bao ve difdi mpi hinh thffc de khdng bi xam hai tinh due (Dieu 25);
- Nghi dinh so' 56/2017/ND-CP quy dinh chi tie't mot sd' dieu ciia Luat Tre em 2016, xac dinh 05 tnfdng hPp tre em bi xam hai tinh due;
Bd Luat Hinh sff nam 2015, sffa ddi nam 2017 quy dinh cac hinh thffc xff phat tdi danh xam hai tinh due tre em vdi mffc phat tha'p nha't la 06 thang tii va cao nha't la tff hinh (Dieu 142,
144, 145, 146, 147);
- Chi thi so' 18/CT-TTg ngay 16/5/2017 cua Thu tifdng Chinh phii ve viec tang cifdng giai phap phdng, chd'ng bao Iffc, xam hai tre em;
! Ngoai ra, cac td chffc chinh quyen, cac td chffc I chinh tri - xa hdi, cac doan the va cac td chffc giao i due cung hffdng ffng chinh sach qua nhffng hanh
; dpng thie't thffc nhu'td chffc cac budi giang day cho hpc sinh tieu hpc va trung hpc ve giao due gidi tinh
• va tff bao ve ban than trffdc cac nguy cd tiem an.
Nhff vay, cd the tha'y Dang va Nha nffdc da rat I quan tam va ngay cang danh nhieu nd Iffc cho cdng
tac phdng, chd'ng xam bai tinh due tre em. Tuy 1 nhien, mot thffc te dang budn la thdi gian gan day,
cac vu xam hai tinh due tre em cang ngay cang gia ,tang, khdng chi ve so lifpng ma cdn ve ca mffc dp nghiem trpng, gay hoang mang, phin no trong dff luan. Chi rieng trong 6 thang dau nam 2017, toan
qud'c phat hien de'n 805 vu xam hai tre em, trong dd, xam hai tinh due tre em len de'n 696 vu vdi 716 dd'i tUpng gay an, xam bai 710 nan nhan (Bich Tuyen, 2017). Theo so' lieu ciia Lien Hdp qud'c Viet Nam nam 2017, "cff bd'n tre em thi cd mdt em la nan nhan cua xam hai va cd it nha't 1.300 vu xam hai tinh due tre em dffpc to' cao moi nam".
Day mdi chi la nhffng con so' thd'ng ke tff nhffng trffdng hdp dffpc khai bao, phat hien, cdn phan chim ciia tang bang cd mffc dp nghiem trpng bao nhieu thi chung ta vIn khdng the dff doan du'dc.
3. Phan tich quy trinh xay dffng va thffc thi chinh sach
Cac van de lien quan den cac quy dinh, chinh sach ddi hdi nha lap chinh sach phai xac dinh van de va thu thap thdng tin day du nham dff doan va difa ra cac bien phap phdng ngffa nhffng khd khan, vifdng mac cd the gay trd ngai cho viec bao ve tre em khdi cac nguy cd bi xam hai tinh due.
3.1. Giai dogn khdi sU: Xac dinh dot tuang a) Ddi tuang cd nguy ca bi xam hgi cao
Ban than tre em vdi sff non ndt ca ve the chat lan tinh than vd'n da nam trong nhdm cac dd'i tifdng de bi tdn thifdng nha't, nhffng khi ke't hpp vdi cac ye'u to' nii ro (risk factors) khac cQng cd the gdp phan khie'n nguy cd bi xam hai tang cao hPn vi du nhff dp tudi; gidi tinh; tinh trang mo cdi cha, me hoac md cdi ca cha lan me; khuyet tat; vd gia Clf, v.v... (Kaufman va cdng sff, 2016). Tuy Dieu 10 Luat Tre em 2016 da liet ke danh sach cac nhdm tre em cd hoan canh dac biet, nhifng vdi muc dich de Chinh phii va cac cd quan nha mfdc cd cac chinh sach hd trd phii hpp cho tffng nhdm trong cac linh vffc, hoan canh khac nhau, khdng phai de tap trung phdng ngffa nii ro bi xam hai cho cac em dd bi tdn thffdng nha't. Hay ndi each khac, hien tai cdng tac xac dinh dd'i tu'dng ciia ta chi mdi dffng d giai doan xem toan bp tre em ndi chung la dd'i tffdng de bi tdn thifPng, chff chifa thffa nhan sff gdp phan ciia cac ye'u to' nii ro khac.
Mat khac, nhffng dinh kie'n ve gidi va tinh cdn ton tai trong xa hdi, dac biet la viec xem tre em nff cd kha nang la nan nhan cao hdn tre em nam, din de'n suy nghi sai lam rang tat ca thu pham xam hai tre em nam la nam gidi, hoac nam gidi phai cd ham mud'n tinh due cao ke ca tre em va thie'u nien
TAP CHi CONG THIfKNG
nam - tham chi tai hai hdn la suy nghi tre em nam khdng the bi xam hai. Dieu nay la trai ngffdc hoan toan vdi thffc te (Dung, 2013, To chffc Di cff Qud'c te lOM, 2012), can trd viec hoach dinh mdt chinh sach thffc te va bao quat.
b) Xdc dinh ddi tuang cd khd ndng phgm tdi cao Hien tai, xa hdi vIn cdn tdn tai nhieu nhan thffc, quan niem sai lam ve tdi pham xam hai tinh due, nhat la xam hai tinh due tre em (Finkelhor, 2009). Mdt trong nhffng quan niem sai lam phd bie'n nha't la cac bac phu huynh chi day con em phai canh giac vdi ngu'di la nbuTng lai de cho ngu'di quen, ho hang cd nhffng cff chi tiep xiic, ddng cham vdi tre, khdng quan tam tre cd ddn nhan nhffng tiep xuc dd hay khdng; tuy nhien, sd lieu tff td chffc chong bao Iffc tinh due Idn nha't Hoa Ky RAINN (Mang lurdi Qud'c gia ve Cifdng hiep, Bao hanh va Loan luan) cho tha'y cd de'n 93% nan nhan la tre em va thie'u nien cd quen bie't vdi thu pham xam hai cac em va chi cd 7% la ngifdi la. Ngoai ra, tre em nhd tudi ciing cd nguy cd bi xam hai bdi nhffng tre em Idn tudi hdn, thu'dng la anh chi em hoac ban be, hang xdm (Vifdng Linh, 2017).
Mat khac, chinh sach khuye'n khich thiic day du lich phat trien ciing gdp phan gia tang tdi pham tinh due tre em. "Du lich tinh due tre em" la mdt boat ddng du lich de'n mdt ndi khac ndi d ciia ca nhan vdi muc dich quan be tinh due vdi tre em (ECPAT International, 2008), ma dien hinh tiong nam 2017 vffa qua la vu an nam diln vien bai Hdng Quang Minh (nghe danh "Minh Beo") bi bat khi lifu diin sang My, hay tnfdng hdp ca si ngifdi Anh Gary Glitter bi bat giff d Viet Nam vao nam 2014. Tdi pham du lich tinh due rat khd kiem soat, vi chiing gay an xong thifdng se chuyen de'n ndi khac tnfdc khi lffe lu'dng chffc nang phat bien va kip cd nhffng bien phap phan ffng.
3.2. Giai dogn hogch dinh: Trd ngai tU nhan thUc xa hgi
Viet Nam la mot dat mfdc cd van hda A Ddng va nhffng chii de ve tinh due deu bi xem la nhay cam va cam ky, do vay trong cdng tac giao due gidi tinh va an toan gidi tinh cho tre em cdn kha e de, chu'a quye't doan. Cac budi giao due gidi tinh cho hpc sinh ca'p tieu hpc va trung hpc thffdng dffpc td chffc bdi cac td chffc, ddn vi rieng
le chff chifa phat ddng thanh mdt chie'n dich done bd vdi quy md du rdng de tac ddng de'n y thiic ciia toan xa bdi. Thffc te' la cac cdng tnnh nghiSn cffu ve giao due gidi tinh, ve va'n nan xam hai tinh due, mai dam tre em chi mdi dffng lai d ck ban thd'ng ke so' lieu cd dffdc tff nhffng vu an diTcJc bao cao hang nam chff chffa the dff doan con so thffc te la bao nhieu.
Ngoai ra, nhan thffc xa hdi ve sff di bi ton tbffPng cua tre em nhin chung cdn chffa thoa dang - nhieu cha me, dng ba vIn chia se hinh anh nhay cam ciia con em len cac mang xa hdi ma khong lu'dng de'n nhffng be luy cho con em minh sau nay.
Tuy nhien, vffa qua vao thang 05/2017, Qudc hoi da ban hanh Nghi dinh so' 56/2017/ND-CP quy dinh chi tie't mot so' dieu cua Luat Tre em - trong dd, Qud'c hdi da nha'n manh tam quan trong ciia viec bao ve tre em tren mdi trffdng mang. Ben canh dd, hien nay difdng day ttf van va hi trcl tre em da du'dc nang cap thanh Tdng dai dien thoai qud'c gia bao ve tre em so' 111 thay cho so' cii dai va khd nhd hdn (Phifdng Thanh & Dffc Thang, 2017). Day la diem mdi trong chinh sach bao ve tre em tuy nhien, do vffa ban hanh each day khdng lau, chu'a the cd ke't luan ve mffc do hieu qua cua viec thffc thi Nghi dinh nay.
3.3. Giai dogn thUc thi: Khd ndng dp dung cua cdc hinh thUc phong, chdng
Mac dii Bp Luat Hinh sff da cd nhffng hinh phat cu the cho tffng dd'i tffpng pham tdi xam hai tinh due tre em, ban cha't cua hinh phat la chi difdc ap dung dd'i vdi nhffng vu viec da xay ra, khdng phai phdng ngffa nhffng vu viec trong tifdng lai. Trong khi dd, ca Chffdng trinh hanh ddng qud'c gia vi tre em giai doan 2012 - 2020 va Chifdng trinh bao ve tre em giai doan 2016 2020 deu khdng nhan manh ve van de xam pham tinh due tre em ma chi ndi de'n xam pham tre em.
Ngoai ra, cac quy dinh phap luat vIn chifa quan ly chat ve cac kenh van hda, truyen thong.
Vffa qua, Bd Van hda The thao va Du lich da ban hanh bang tieu chi phan loai phim theo do tudi, tuy nhien chi mdi ap dung cho cac phim chi^u^
rap ma lai Id la dd'i vdi cac phim truyen hinh dffdc chieu trong khung gid vang (Ngifdi W^
Tin, 2017). Dong thdi, sff phat trien cua khoa hoc
196 So 14 Thdng 11/2018
QUAN TRj - QUAN LY
cdng nghe cung da tao dieu kien cho tre tie'p xiic sdm vdi van hda pham ddi truy, anh hffdng de'n tam sinh ly tre nhd ciing nhff tam ly bat chude ciia cac em.
Tdm lai, ehinh sach bao ve tre em tnfdc nguy cd xam hai tinh due v i n cdn tdn tai khoang each giffa hoach dinh va thffc thi do nhieu nguyen nhan: cdng tac hoach dinh chinh sach cd lien quan mat thie't de'n ngifdi dan va tap trung vao md'i quan tam hang dau la eon em bp, nhu'ng lai khdng ed sff tffdng tac giffa chinh quyen va ngffdi dan, khdng ed sff tham gia ciia bp vao cdng tac gdp y, xay dffng, phan bien chinh sach. Ngoai ra, cac ly do khac nhff sff thie'u hut cac ngudn lffe (nhan lffe cao, kinh phi cho viec tuyen truyen, xay dffng chinh sach, v.v...), cung gdp phan anh hifdng de'n hieu qua thffc thi ehinh sach.
4. Danh gia chinh sach va kien nghi
Nhin chung, Nha mfdc da ban hanh nhieu van ban phap luat nham tang cu'dng viec bao ve tre em va phdng, chd'ng xam hai tinh due tre em qua nhffng quy dinh mdi mang tinh bien dai, bat kip vdi bd'i canh thay ddi nhanh chdng ciia xa hdi ndi chung va tre em ndi rieng, dap ffng nguyen vpng cua ngffdi dan.
Tuy nhien, nhffng chinh sach nay van cdn nhieu diem bat cap, chifa thffc sff td'i ifu. O giai doan khdi sff, viec xac dinh van de va cac chii the, khach the lien quan de'n chinh sach chffa du'dc hoan thien, chifa cd sff quan tam thich dang de'n cac dd'i tffdng chiu nii ro bi xam hai va d i bi tdn thffdng nha't. Giai doan hoach dinh va thffc thi cdn chffa ddng bp; cac chie'n dich, chffdng trinh hanh ddng, tuyen truyen chifa mang tinh triet de, nha't quan, quy md chu'a dii rdng de cd the tac ddng de'n toan xa hdi, thay ddi nhan thffc ciia ngffdi dan ciing nhu" nhffng quan niem sai lam ciia hp trong viec bao ve con em minh. Giai doan danh gia nhin chung mang tinh thffc te trong cac budi hpp bao va bdi thao, tuy nhien trong cac bao cao cud'i nam do cac sd, ban, nganh gffi ve lai chi dffa vao so' lieu nen cd the khdng phan anh chinh xac tinh hinh thffc te, dan de'n tinh trang chii quan duy y chi, khdng thffc sff bao ve difdc ngffdi dan trifdc tinh hinh ngay cang bie'n dpng ciia xa bdi.
Tff viec phan tich quy trinh xay dffng va thffc thi chinh sach bao ve tre em trffdc nguy cd xam bai tinh due ndi tren da eho tha'y nhieu bai hpc kinh nghiem, nhif:
Giai doan xac dinh van de, giai doan nay tuy ngan nhifng rat can thie't phai xem xet van de can trpng va toan dien de cd the ban hanh mdt chinh sach bieu qua.
- Dd'i vdi nhffng chinh sach anh hffdng trffc tie'p de'n ddi song cua ngifdi dan, can phai thu thap thdng tin, y kie'n phan bien tff chinh bp, tao sff tffdng tac, tin tu'dng de difa ra nhffng chinh sach thffc te bPn, qua dd cai thien hieu qua ciia qua tiinb thffc thi chinh sach.
De mdt ehinh sach cd the van hanh td't, viec cung cap du ngudn lffe la rat quan trpng, bao gdm nhan Iffc phii hpp va ngudn kinh phi. Can ra soat bien che cua cac cd quan, ddn vi chuyen trach cdng tac nay va tuyen nhffng ca nhan cd nang Iffc, cd kinh nghiem lam viec trong linh vffc tam ly hpc tre em va nhffng ITnh vffc khac cd lien quan; can xem xet, danh gia sff cap bach cua viec phdng, chd'ng nan xam bai tinh due tre em va cung cap cac ngudn Iffc can thie't de gdp phan giai quye't.
Nhffng chinh sach xa hdi can phai thffc hien cdng tac tuyen truyen td't, phd'i hdp cac cac td chffc cdng tac xa hdi, cac td chffc giao due trong nffdc va qud'c te de' cd nhffng chffdng trinh vffa mang tinh ddng bp, nha't quan, vffa cd kha nang tac ddng manh de'n nhan thffc ngifdi dan, thay ddi nhffng quan niem sai lam din de'n nhffng bau qua khdng dang cd.
Tdm lai, de cd difpc mdt chinh sach td't, ngay tff liic khdi sff nen du'a vao ap dung, tham khao quy trinh xay dffng va thffc thi chinh sach cdng khoa hpc de dam bao cac khau can thie't ciia mdt chinh sach td'i ffu deu da difpc xem xet can than, tranh viec du'a ra mdt chinh sach cd cac khau khdng ddng bp, khie'n cho hieu qud cua toan chinh sach bi ban che'. Ngoai ra, rat can thie't cd dffpc sff thd'ng nha't, ddng thuan tff cac ben lien quan, cQng nhff sff phd'i hpp ddng bp vdi cac td chffc, ca nhan chiu anh hffdng cua chinh sach de cdng tac thffc thi dffdc hieu qua. Cud'i ciing, viec tuyen truyen, nang cao nhan thffc ciia cac dd'i tffpng lien quan cung rat quan trpng •
TAP CHi CONG THITQNG
TAI LIEU THAM KHAO:
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https://giadinh.vnexpress.net/tin-tuc/to-am/nhung-ke-xam-hai-tre-ma-bo-me-khong-ngo-toi-3555470.html
198 So 14 Thdng 11/2018
QUAN TR! - QUAN LY
Ngay nhan bai: 3/10/2018
Ngay phan bien danh gia va sffa chffa: 13/10/2018 Ngay chap nhan dang bai: 23/10/2018
Thong tin tdc gia:
1. DAO NGUYEN YEN LINH
Hoc vien Can bo thanh phd'Ho Chi Minh 2. TS. MAI NGOC K H U O N G
Trffffng Dai hoc Quoc te - Dai hoc Quoc gia Thanh pho' Hd Chi Minh
CHILDREN AND SEXUAL ABUSE - LESSONS FROM ANALYZING THE PUBLIC POLICY FORMULATION
AND IMPLEMENTATION PROCESSES
• DAO NGUYEN YEN LINH Academy of Public Servants
• Ph.D MAI NGOC KHUONG
International School, Vietnam National University - Ho Chi Minh City
ABSTRACT:
The problem of child sexual abuse raises tremendous concern for parents and the whole society in general, especially in the current information technology era. However, Vietnam, which has a strong Eastern Asian cultural identity, is not ready to give up the outdated and dangerous stereotypes about the problem of child sexual abuse. The governments efforts to protect children against the child sexual abuse problem are not effective. By using theories of public policies development, this paper is to analyze some existing issues at different stages of developing public policies including policy formation, planning and implementation stages in order to draw lessons and recommendations for developing better policies related to protecting children against the child sexual abuse in particular and other public policies of Vietnam in general.
Keywords: Children, child care, cWld abuse, child protection, implementation of public pohcies.
