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 nay.

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

1. 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 tuy 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" do 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 6 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 do 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 khi 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 nhau (phuang tifn thfing tin dai
chiing, buu difn, thu diSn td, dien thoai) va
dugc chac ehdn rang nhiing ngudi nay 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 ra 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 do thanh kS hoach ban hanh QDHC.
TrSn thyc tS, ngudi ddn cd the cd rat nhiSu f
kiSn, y tudng khdc nhau ve cimg mgt vdn dS.
Chdt lugng cda cdc ^ tudng nay cung khac
nhau tuy thuOc vdo trinh do 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 ra 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 nay
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 do. Viec hdi y kien
nay 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 con 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 trong qudn ly

do tiSp thu cac y kien ndy. Nhu vdy, bao dam

hanh chinh.

cho ngudi dan dugc tham van y kien trong
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

2. Nhung h^n ch^, bkt cap trong 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 ^

con thieu, chua thong nhdt vi hinh thuc, nQi

quySn. Tuy nhien, sau khi C^HC dugc ban

dung the hien.

hanh, ngudi dan van cd quyen khieu nai vd
dugc giai quyet khiSu ngi^. Khodn 1 DiSu 2

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

khi 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. 0 trudng hgp thu hai, viec ban hdnh

thich, cung cap thdng tin ve xd phgt hdnh

QDHC vdn tiSp tyc dugc diSn ra. 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 khi ( ^ 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

2

«

Lu^tKhieunainam20II quy dinh ve khieu nai va giai quySt khiSu nai d6i vcri QDHC.
| HGHlfeH COU

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I LAP P H A P ^ S ^ 18(346) T9/2017

THU'C TIEN PHAP LUAT
QDHC trong 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, thanh tra..., gidi thich khi 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 ha doi vdi
nha ddu tu, khdng th^c thi cfing vu theo quy

dinh cua phap lugt thi tuy theo tinh chat,
mdc do 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 ngay 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 nay dugc thdng
bao khi da ban hanh hay khi dang trong
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 nay. 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 do chi dugc thyc hien d giai doan

sau khi QDHC dugc ban hanh.
Theo cac quy djnh cua cac Dieu 6, 8
Ludt Qudn ly thuS nara 2006, ngudi dan co

Khoin 3 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 trong ra QDHC trong 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 trong 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, thanh 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 ra sao 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 khi

3. 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

khi 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 nay 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
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^ ^ I LAP P H A P ^ S f l 18(346) T9/2017