Bảo đảm sự tham gia của người dân vào quá trình ban hành quyết định hành chính

THU'C TIEN PHAP LUAT BHO DHm Sir THHin GIH CUR HGIItfl DflH VHO OUR TRIRH BAN HANH QUYET DINH HANH CHINH' TrSnlikThn* *ThS Trung tam Thong tin Khoa hoc lap phap Vien Nghien cdu Lap phap Thong tin b^i viet: Tit khda: quySt djnh hanh chinh, quan ly nha nuoc, loi ich c$ng dong, quyen tham gia Lich sit bdi viet: Nh§nMi: Bientlp: Duygt bii: 20/07/2017 09/08/2017 16/08/2017 Article Infomation: K^words: administrative decision, state administration, communit benefits, participation rights Article History: Received: 20 Jul 2017 Edited: 09 Aug 2017 Appproved: Tdm tSt: Bai viet phan tich, danh gja thuc trang quy djuh oia phap luat vh bao d ^ quyen tham gia ciia ngudi d ^ vao qua trinh ban hanh quylt dinh hinh chmh va dg xult mSt s5 kiSn n ^ hoan thi$n phap luit vk ngi dung Abstract: This article points out limitations of provisions on ensuring the participation of citizens m process of promulgating administrative decisions and proposes solutions to improve laws on promulgating the admmistrative decisions 16 Aug 2017 Ngi dung cua bao Sim sutham gia cua kiSn nghi vdi ca quan nhd nudc vS cdc vdn ngudi d3n vko qua trinh ban hanh quylt dS cua CO sd, dja phuang vd cd nudc Nha dfnh hanh chinh nudc tgo diSu kiSn cho cdng ddn tham gia Di^u 28 HiSn phdp nam 2013 quy qudn ly nhd nudc va xd hgi" Quy djnh ndy djnh: "Cdng ddn cd quyen tham gia qudn \y eua Hien phdp khong dS cap cy thS quySn nhd nudc vd xd hdi, tham gia thao l u ^ vd tiiam gia vdo qua tiinh ban hanh quySt djnh BM vi6t la mgt phSn kit qud ciia Bk tM nghiSn ciiu khoa hgc dp ca sit n3m 2017 "Bao dam su tham gia ciia nguoi dSn vko qu4 trinh ban hanh C^HC" Vi?n NghiSn curu Lap phap chfi bi, ThS TrSn Ha Thu I Jm Chu n h i ^ ami A P P H A P - / S 18(346)T9/2017 M 'lLNOHItH THlTC TIEN PHAP LUAT hdnh chinh (QDHC), nhung vdi each hiSu ban hdnh QDHC Id radt hogt d0ng cua quan ly nhd nudc ttong linh vyc hanh chinh thi cd thS khang djnh: thara gia vdo qua trinh ban hdnh QDHC Id mgt ttong nJiiing ngi dung cua quyen tham gia vdo qudn ly nhd nudc vdo kSt qua dS xudt co dugc chdp nhan hay khdng, md phu thufic vao each thuc vd thdi dg tiep nhan dS xudt dd De bdo dam quyen thara gia de xuat ban hanh QDHC ihi quy djnh phdp lugt cdn chu y dSn quy ttinh tiep nhdn vd xd ly cac dS xudt nSu ttSn Ndi dung cua bdo ddm sy fliam gia cua ngudi dan vdo qua trinh ban hdnh QDHC bao gdm: bao dam quyen tham gia dS xudt ban hanh QDHC; bdo dam quyen dugc thdng tin vS vifc ban hdnh QDHC; bdo ddra quySn dugc tham vdn y kiSn vS ngi dung cda C^HC va vS cac van de ndy sinh ttong qua trinh ban hanh QDHC va bao dam quyen khieu nai ddi vdi nhdng ngi dung ciia ( ^ H C BSn canh viec thara gia dS xudt ban hanh QDHC thi viec dugc thdng tin ve viec ban hanh QDHC co y nghTa quan ttgng ddi vdi cd nhiing cd nhdn tham gia dS xudt vd nhiing ca nhan khdng tham gia de xuat Chang han, vifc phd biSn thdng tin ve ban hanh nhiing QDHC cd liSn quan dSn Igi ich cdng ddng la can thiet bdi QDHC sau dugc ban hdnh s6 cd dnh hudng khdng chi tdi cd nhdn ma edn tdi ca cdng ddng Ngoai ra, ddi vdi cac QDHC bdt lgi cho ddi tugng thi hdnh hoac cho ngudi thd ba thi viec thdng tin Id bat huge dS dam bao quyen lgi cho hg Do v^y, bao dam quySn dugc thfing tin vS viec ban hdnh QDHC dugc hiSu Id nhiing ngudi cd liSn quan dugc gdi thong bao bang cdc hinh thde khac (phuang tifn thfing tin dai chiing, buu difn, thu diSn td, dien thoai) va dugc chac ehdn rang nhiing ngudi nhgn dugc thdng tin KS td tiidi diSm nhdn dugc thdng tin vS viec ban hanh QDHC, ngudi ddn bdt ddu tham gia m^t each chu dgng vao qud trinh ban hanh QDHC DS xudt ban hdnh QDHC Id giai doan ddu tiSn ciia qud trinh ban hanh QDHC DS xudt ban hdnh QDHC dugc hieu la nhihig y tudng, y kien ve ban hanh QDHC Tham gia dS xudt ban hdnh QDHC tdc la ngudi dan dugc dua y tudng cda minh vS viec ban hanh mdt QDHC Do do, bdo ddm quyen tham gia dS xudt ban hanh QDHC la bao ddm viec tiSp nhan cdc y tudng eua ngudi ddn vS viec ban hanh QDHC vd nd lyc biSn cdc y tudng kS hoach ban hanh QDHC TrSn thyc tS, ngudi ddn cd the cd rat nhiSu f kiSn, y tudng khdc ve cimg mgt vdn dS Chdt lugng cda cdc ^ tudng cung khac thuOc vdo trinh nhan thde, kiSn thde va kinh nghiSm ciia moi ngudi Trach nhiem cua ca quan cd thdm quyen la tiep nhan cac dS xudt nay, tdng hgp vd tiep thu mdt each tdi da dS dua ke hogeh ban hanh QDHC Nhu vdy, danh gia vifc ngudi dan ed dugc bao dam quyen tham gia de xuat ban hanh QDHC hay khdng khdng phy thugc TiSp theo, giai doan quan ttgng eua qua tiinh ban hanh QDHC va cd dnh hudng tdi ehdt lugng QDHC dd Id tiiam vdn y kiSn vS ngi dung cda QDHC va vS cac vdn dS smh ttong qua trinh ban hdnh QDHC Tham vdn y kiSn la viec hdi y kien, tham khao y kiSn vS mdt van dS nao Viec hdi y kien cd thS dugc thyc hien bang cdc hmh thde HGHIEH cini I a-i S6 18(346)T9/2017^|Jlp P H ^ I •*• THiTc TIEN PHAP LUAT da dang nhu: Phieu diSu tra, bang hdi, td chdc Vdi ndi dung nSu trSn, vifc dam bdo cudc hgp, tnmg cdu y kiSn tten phuang tien cho ngudi dan tham gia vao qua trinh ban thdng tin dai ehung Cang cd nhieu y kiSn, hdnh QDHC vda ddm bao quySn tiiam gia chdt lugng cua du thao QDHC cang cao vd vao qudn ly nhd nudc theo tinh than ciia vifc ban hdnh C^HC cang dat hieu qud tdt HiSn phap 2013 vd cac Cdng udc qudc tS vS Tuy nhien, viec thara vdn y kien cd tdt hay QuySn ngudi, vua gdp phdn nang cao khdng khdng nhdng phy thudc vdo qua trinh hieu qud qudn ly nhd nudc, dam bdo ddn td chdc lay y kiSn md cdn vdo each thde, thai chu, cdng khai vd minh bgch qudn ly tiSp thu cac y kien ndy Nhu vdy, bao dam hanh chinh cho ngudi dan dugc tham van y kien qua trinh ban hanh QDHC la bdo dam cac diSu kien cho hg dugc thara gia ddng gop y kien va ddm bdo vifc tfi chdc tfing hgp, tiep Nhung h^n ch^, bkt cap quy dinh cua phap luat ve bao dam su- tham gia ciia ngudi dan vdo qua trinh ban hanh quyit dinh hanh chinh thu cac y kien dd mdt each nghiem tiic Thu nhdi, & mot so ITnh vuc, quy dfnh Cudi cung, qua trinh ban hanh C^HC cua ludt chuyen ngdnh ve su tham gia cua vS CO bdn se kSt thuc Idii mfit C^HC dugc ngu&i ddn vdo qud trinh ban hanh QDHC ban hdnh bdi ca quan nha nudc cd t h ^ thieu, chua thong nhdt vi hinh thuc, nQi quySn Tuy nhien, sau C^HC dugc ban dung the hien hanh, ngudi dan van cd quyen khieu nai vd dugc giai quyet khiSu ngi^ Khodn DiSu Nhin chung, phdp ludt chuySn nganh khfing quy dinh true tiSp ttdch nhiem Lugt KhiSu n ^ nara 2011 giai thich "khiSu cila Nha nudc, quyen cua ngudi dan ttong n ^ Id vifc ngudi ddn cd quySn ySu cdu co bdo dam tham gia vdo qud trinh ban hanh quan cd thdra quySn xera xet lai QDHC QDHC, rad chi quy dinh ve ttach nhifm cd cdn cd eho rdng quyet dinh dd ttai cua Nha nudc ttong viee thdng bdo QDHC phdp ludt, xdm pham quyen, lgi ich hgp phap cho ddi tugng chju tdc dgng va quySn khieu ciia minh" KSt qud eiia qua trinh giai quyet nai, khdi kien QDHC cua ngudi cd quySn khiSu nai Id hoae giu nguyen QDHC cu de thi loi va nghia vy liSn quan Mgt sd lugt co hdnh bode thay ddi ndi dung ciia ( ^ H C cho quy dinh them vS quySn dugc ySu cdu giai phd hgp trudng hgp thu hai, viec ban hdnh thich, cung cap thdng tin ve xd phgt hdnh QDHC vdn tiSp tyc dugc diSn Vdi y nglua vi vi pham ttong qua trinh ban hanh QDHC do, ddra bdo quySn khiSu nai ddi vdi C^HC nhu la mdt ttong nhung bifn phdp dam sau ( ^ H C dugc ban hanh, theo chung tdi, bdo Vi dy, cdc DiSu 28, 204 vd 208 Ludt dugc coi la cua sy bdo ddm ttong qud trinh Ddt dai nara 2013 quy dinh vS (1) Trach ban hdnh ( ^ H C nhiem cda Nha nudc ttong vifc thdng bao « Lu^tKhieunainam20II quy dinh ve khieu nai va giai quySt khiSu nai d6i vcri QDHC | HGHlfeH COU I LAP P H A P ^ S ^ 18(346) T9/2017 THU'C TIEN PHAP LUAT QDHC linh vuc qudn ly ddt dai cho td chdc, cd nhan bi anh hudng quyen va lgi ich hgp phdp (DiSu 28)^; (2) QuySn khiSu nai, khdi kiSn QDHC cua ngudi sd dyng dat, ngudi co quySn lgi va nghia vu liSn quan den sd dyng ddt (DiSu 204)"*; (3) Xd ly ky luat hoac truy cuu ttach nhifm hinh sy vdi hanh vi vi pham ^ i S u 208)^; Luat Xay dyng nam 2014 quy dinh trach nhiSra cua ca quan Nha nudc ttong viec Idy y kiSn ve quy hoach xay dyng (Dieu 16 vd 17), quySn khiSu nai, khdi kifn, to cao hdnh vi vi pham ttong viec cap phep xay dung cua ngudi ddn (T)iSu 106); Lu|it Quan ly thuS ndm 2006 quy djnh ngudi nop thue dugc quySn "khiSu nai, khdi kien quyet dinh hanh chinh liSn quan dSn quySn vd lgi ich hgp phap cua minh" ^ i S u 6), ca quan qu&Q ly thue cd ttach nhiem "Giai tiiich, cung cap thdng tin "; "Giai quyet khieu ngi, td cao " va "Giao ket lugn, bien bdn kiSra tta thue, tra , gidi thich co yeu cdu"^iSu 8); Ludt Ddu tu nara 2014 quy djnh: "Ngudi lgi dyng chdc vy, quyen hgn can ttd hogt ddng ddu tu kinh doanh, CO hanh vi sach nhilu, gdy phiSn doi vdi nha ddu tu, khdng th^c thi cfing vu theo quy dinh cua phap lugt thi theo tinh chat, mdc vi pham ma bj xd 1^ ky luat hoac bj truy cdu trach nhiem hinh su" (Khoan 2, DiSu 73) Thir hai, cdc quy dinh cua phdp lugt chuyen ngdnh chua ddm bdo quyen ciia ngu&i ddn tham gia vdo qud trinh ban hdnh QDHC tu giai doan sogn thdo du thdo QDHC DiSu 28 Ludt Ddt dai nam 2013 da quy dinh ve viec thfing bao vS QDHC cho ddi tugng cd liSn quan Nhung dieu lu|it chua lam ro QDHC dugc thdng bao da ban hanh hay dang qua trinh xay dyng Dy thdo Trong trudng hgp QDHC da dugc ban hanh va ky bdi ngudi cd thara quySn rdi mdi thdng bao cho ngudi cd lien quan thi chua ddra bao dugc su tham gia cua ngudi dan (trude het la ngudi chiu tac ddng) vao qua ttinh ban hanh QDHC Hay DiSu 204 Ludt Ddt dai nam 2013 quy djnh vS gidi quySt khiSu nai, khiSu kien ddi vdi QDHC ttong linh vyc dat dai - radt ttong nhdng phuang phap bao dam quySn va lgi ich cua ca nhan, td chdc la ddi tugng chju tdc ddng cda QDHC - nhung phuang phdp ndy chua thyc su hiSu qua dfii vdi qua trinh ban hanh QDHC chi dugc thyc hien d giai doan sau QDHC dugc ban hanh Theo cac quy djnh cua cac Dieu 6, Ludt Qudn ly thuS nara 2006, ngudi dan co Khoin Di6u 28 Luit DSt dai 2013 quy dmh Nh^ nucrc c6 tr^ch nhigm "ThSng bao QDHC, hdnh vi hanh cUnh ttong linh virc quan ly dat dai cho tfl chiic, ci nhSn bi anh huong quyen va l(fi ich hgp phap" Digu 204 Luat DSt dai 2013 vk giai quyit khilunai, khilu kiSn ve Sk dai quy duih:" Ngu&i sii dung dat, ngutn co quyin loi va ngbla vu liSn quan dSn sfi dung Sk c6 quyln khieu nai, khoi ki&i QDHC hoac hMih vi hanh chinh v6 quSn ly 3k dai"; "Trinh tu, thu tuc giai quylt khilu nai QDHC thiic hi$n theo quy dinh ciia phdp luSt vi khiSu nai Trhih tu, thii tuc gidi quyet khilu kifin QDHC vl ddt dai duoc thuc hi?n theo quy dinh ciia phap luat ve tfl tung hdnh chinh" Di6o 208 Ludt DSt dai 2013 quy dmh xut 1^ dfli vcri cac hanh vi "Lgi dyng chiic vu, quyen han lam trai quy dinh ciia phap ludt QDHC quan iy dlt dai" vd "Vl pham cdc quy dmh v% lay :f kiln, cong bfl, cong khai thflng tm; vi pham quy dmh trinh tv, thu t|ic binh chinh, vi pham quy dinh ve bao cao quan ly ddt dai" , HGHliH Cdu 143 S6 18(346)T9/2017V_LAp PHAPl THlTC TIEN PHAP LUAT quySn yeu cau gidi thich ve ket luan, bien ban kiSm tta thue, tra thuS Tuy nhiSn, quy trinh gidi thich, bien phdp xd ly ddi vdi can bg khdng thyc hien yeu cau gidi thich cda ngudi dan thi chua dugc phdp ludt quy dinh cu thS Quy dinh cua Ludt Khieu nai nam 2011 vS quySn dS nghi ca quan, tfi ehdc, cd nhan cd thdm quySn xem xet lai QDHC Mot s6 ki^n nghj Chung tdi cho rdng, de bdo ddm sy tham gia cua ngudi ddn vao qua trinh ban hanh QDHC, edn thyc hifn mdt sd gidi phap sau ddy: Thir nhdt, can ddy nhanh qua trinh xdy dung va hoan thien phdp hx%X ve hdnh chinh ndi chung vd vS ban hdnh QDHC cd cdn cd cho rdng quySt djnh dd Id ttdi phdp ndi riSng nhdm tao co sd phdp ly cho lugt, xara phgm quyen, lgi ieh hgp phap cua ngudi ddn thyc hifn quySn tham gia cua minh (DiSu 1) chi ddm bdo dugc cho ngudi minh vao qua trinh ban hdnh QDHC Do ddn tham gia cd y kiSn mgt each bj dgng sau do, viSc nhanh chdng xem xet dua Dy dn ca quan nhd nudc ed thdm quySn ban Ludt Ban hanh QDHC vdo Chuang ttinh hdnh QDHC Thu ba, chua co bien phdp xu ly ky ludt doi v&i hdnh vi th& a hay cdn tra sif tham gia cua ngu&i dan vdo qud trinh ban hdnh QDHC DiSu 208 cua Ludt Ddt Dai nam xay dyng luat, phap lenh ho|ic nghien cdu bfi sung cdc quy djnh vdo lugt cd USn quan la can thiSt; Thu hai, can xdc dinh myc tiSu cua vifc xay dyng cac quy dinh cua phap iugt vS ban hanh QDHC theo hudng: (1) Tang 2013 da cd quy djnh ve viec xd ly ngudi cudng kha nang thyc hien va bao dam quySn cd thdm quySn cd hdnh vi vi pham cac tham gia eua ngudi ddn vdo quan ly nha quy dinh ve trinh ty, thd tyc ban hanh nudc bdng cdc quy djnh cua phap ludt; (2) QDHC Tuy nhiSn, ddi vdi hdnh vi khdng Thdng nhat vd cu thS hda cdc quy dinh cda tiep thu, gidi trinh ddi vdi y kiSn cua nhdn phdp ludt vS quy trinh ban hdnh QDHC va dan hode hdnh vi cdn trd viec tham gia cua ngudi ddn cd bi xd ly hay khong, bien ve mdc dO, n^i dung tham gia cua ngudi ddn vdo qud trinh ban hdnh QDHC; phap khdc phyc h|iu qud thS nao vdn Id vin dS cdn bd ngd Tuang ty, L u | t Xdy Thu ba, lam rd mgt sfi nfi dung nhu: dyng nam 2014, Lugt Ddu tu ndm 2014 vS qua ttinh ban hdnh ( ^ H C ; vS thdng tin chi quy dinh ttdch nhifm cda ca quan frong qua trinh ban hdnh QDHC; vS tham cd tham quy^n ma khfing xac dinh hinh van y kiln cua cd nhan, tfi chdc cd lien quan; thuc xd ly ddi vdi trudng hgp khdng hodn vS hanh vi vi pham ttong qud trinh ban hdnh thdnh trach nhifm dd QDHC bi xd Iy ttach nhifm ã J|ô I HOHICN cini , ^ ^ I LAP P H A P ^ S f l 18(346) T9/2017 ... tin vS viec ban hanh QDHC, ngudi ddn bdt ddu tham gia m^t each chu dgng vao qud trinh ban hanh QDHC DS xudt ban hdnh QDHC Id giai doan ddu tiSn ciia qud trinh ban hanh QDHC DS xudt ban hdnh QDHC... y tudng, y kien ve ban hanh QDHC Tham gia dS xudt ban hdnh QDHC tdc la ngudi dan dugc dua y tudng cda minh vS viec ban hanh mdt QDHC Do do, bdo ddm quyen tham gia dS xudt ban hanh QDHC la bao... canh viec thara gia dS xudt ban hanh QDHC thi viec dugc thdng tin ve viec ban hanh QDHC co y nghTa quan ttgng ddi vdi cd nhiing cd nhdn tham gia dS xudt vd nhiing ca nhan khdng tham gia de xuat Chang