Thực trạng xây dựng và thúc đẩy môi trường khung pháp lý cho các tổ chức xã hội dân sự việt nam

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THI/C TRRNG XflVJM/NG
vn THUC DflV MOI TRUONG KHUNG PHflP LV
CHO CnC TO CHUTC XR HOI D^N SU VI€T NAM

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Ngay nhin:

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28/03/2016

LQ Thl Thu HUdng
Trudng Dgi hpc Kinh te'Qudb dan
Email:
Ngay nhin Igh

01/04/2016

Ma so: 92.10Mls.12

7 " rong thdi gian vQa qua cd nhiiu van de niy sinh trong thanh lip. to chQe, hoat ddng vi quan 1^
I
cic Hdi, Quy xi hdi. ..vied nhieu j? Win cdn thieu thong nhat. Mdt trong nhOng nguyen nhin siu
xa li ehua co mdt mdi trudng khung phip ly chinh thUc, h$ thdng vi cd hiiu luc. Bii nghien cUu nay
trin ca sd nghien cOu ca sd ly thuyet di xiy dung md hinh nghidn cOu vi vin dung de chi ra thUc tr^ng
nham dUa ra mdt khuyen nghi cd luin cU khoa hgc ve xiy dung Luit. ve Hdi. tien tdi Luit vi t6 chOc xa
hdi din sU d Viet Nam.
TO fd\da : xa hdi din sy, td-ehOe^im-hei den sU.mdi trudng/khung phip ly
nghidn cQu cho r i n g khai nipm "Td chQe x i hpi

dan sy" da cd tQ thdi n h i Chu vdi dinh nghia vo
cQng sd khai nhu la "mpt nhdm ngudi, phudng hpi
mang tinh ehat ty nguyen hpp thinh". 6 DQe, the
k^ XIX, Hegen lgi coi xa hpi dan su nhu l i mpt
phan ciia ddi sdng dao dQc, bao gdm ba yeu td
gia dinh, xa hpi dan sU va Nha nudc. Didu nay
h i m nghTa rang trong ddi sdng xa hdi, mdi ca
nhin deu cd quyen theo dudi muc dfch, ldi ich
rieng nhung trong gidi han va quy dinh cOa Phap
luit. dng edn khang d|nh rang: mdt td chQc xa hpi
dan sy fy to chQc can phai do Nha nQdc cdn nhac
v i d i t t r i t ty cho nd, neu khong xa hdi dd se trd
thanh fu ipi va khdng ddng gdp gl cho Ipi fch
Chung. Theo quan nipm eua Lien Xo cu, td chQc
xa hpi la nhQng to chQc lien hpp cua cdng dan
6 cdc qudc gia, cac to ohQc xa hpi dan sy dupe
dupe x i y dyng dua fren nguyen tac ty nguydn, tu
fhanh l i p va hoat ddng dUa tren nguyen tae hien
quan, fy chu v i h i n h dpng nham b i o vp Ipi ich
djnh l i quydn Ipp hpi va cac van ban luit the che
cua nhQng tap hpp ngudi nhat dmh. d Chau A,
hda quyen hien djnh trong Hien phap.
cac nha nghien cQu Thai Lan cho rang td chQc x i
Cd rat nhieu dmh nghTa ve xa hpi d i n su tren
hpi thi khdng phai la td chdc Nha nudc nhung
trdn thd gidi. tuy nhien, khai mem n i y xuat hien
dupe Nha nudc cdng nhpn nhu mdt td chQc ty
sdm nhaf 6 Anh v i o nam 1594 cd dmh nghTa la nguyPn, tu quan \^ cua ngUdi ddn va khdng thu ldi
nhQng ngudi sdng trong epng ddng va la mpt x i
rieng cho ngudi quan ly v i dieu hanh. Lien minh

hpi van minh vdi mdt N h i nudc khdng dpc doan. vi sy tham gia eQa eong dan CIVICUS dua ra dmh
Tham ehi, trong Hch sQ Trung Quoc, da ed nha

I . C d s d I y thuyet
Xu the foin cau hda keo theo sy phit frien eua
c i c td chQe xa hpi dan sy trong thdi gian gan d i y
la mpt frong nhQng bien ddi idn frong sinh hoat
chinh tr| d cae quoc gia tQ phat trien sang c i c
nudc dang phit tridn. tQ c i c nude d bac ban cau
sang eae nude 6 nam b i n cau cung nhu nen ehinh
trj qudc te. Qudc gia - Nhd nudc khdng cdn la
nhQng chu thd duy nhat va ehi phdi ddi sdng chinh
trj trong nudc v i qudc te nhu truyen fhong vdn cd
eua nd. Cae to chQc xa hdi d i n sy (da cd tieng ndi
rieng ciJa minh va bupc eac chu the' khac phai
lang nghe. ton frong nd trong tat c i c i c dien d i n
ty chinh fhyc nhU Lien hpp qude hay eie Hpi nghi
mdi trudng va chdng bien ddi khi hpu qudc te).

illlBa llDC
20 thififtiBinal

^ = ^ = ^ ^ ^ . ^ ^ ^ _ ^ _ _ _
S6 92/2016


UMSSn TB TA qjC^X
nghTa vd Xa hdi din su li "Dien din glQa gia dinh,
nhi nudc vi thi trudng, nai mi mgi eon ngudi bat
tay nhau de thue day quyen lgi chung". Cho den

nay, Id chQc xi hdi din sy" vdn cdn giy ra nhiiu
tranh cii trong viec dmh nghia ve khii niim. Tuy
nhien, nhin chung lai, fd chQe xa hpi dan sy dupe
hieu la c i c to chQc khdng nam trong hp thdng td
ChQc bp may Nha nUdc, dUOc to chQe va hoat
dpng theo nguyen fac ty nguypn do dan ty lap ra,
tu q u i n ly, tu ehju trach nhlPm trudc phap luit,
dan chu, tu ehu ve tPi chinh. Dupe hoat dPng dya
trpn mye dich phat trien epng ddng ma khdng
phai vi muc tidu Ipi nhuin. Td chQc xa hdi d i n su
dUdc gpi la "khu vuc thQ ba" ciia xa hpi, phan biet
vdi ehinh phii va doanh nghidp. Ld id chQc d
ngoii N h i nudc, la doi tac cua Nha nude va biet
ty td chQc lgi de' phat huy nang lye sang fao, hidn
thue hda c i c y tudng va de tUdng fac vdi n h i
nude nham dat tdi mdt nen quan trj qude gia minh
bgch, hieu qua va cd trPch nhipm.
xac d|nh la mpt frong d i e tinh ty nhien cua
con ngudi, quyen Ipp hpi dUde eac nha tU tUdng
chinh trj khai sPng theo hpe thuyet quyen tu nhien
the ky thd XVlll nhu Thomas Aquinas, Thomas
Hobbes, Hugo Grotius, John Locke quan nipm la
quyen tu do ciia cdng dan, l i sU the hipn dPn chu
cQa mpt ehe dp nhd nude. Tren co sd quan diem
eua hpc thuyet quyen ty nhien, quyen Ipp hpi da
dupe ghi nhpn d nhQng ban tuydn ngon ve nhPn
quyen noi tieng nhu Tuyen ngdn Nhin quyen va
D i n quyen eua Cach mang tU san Phap; Tuyen
ngdn dpc l i p cua Hoa K^ v i Tuyen ngdn toan the
gidi ve nhin quyen 1948. Cu thd, Dieu 20 cua

Tuydn ngdn f o i n the gidi ve nhan quyen 1948
quy djnh bao ve quyen ciia ca nhan dUpc "fu tap
hda binh va hdi hpp". NhQng ban tuyen ngdn ve
nhan quyen noi tieng nay lai la ed sd de Hien
phip, van ban quy pham phap luat cd hieu lyc
phap ly eao nhat, cua eac quoc gia quy djnh
quyen Ipp hdi Id mdt quydn Hien dinh va thudng
dupe cy the hda bang mpt dao lupt cua nghj vlpn.
d c i c ban Hien p h i p cd anh hUdng Idn tren the
gidi nhu Hien phap Hoa kJ, quyen ly do Ipp hpi la
mdt trong nhQng quyen con ngUdi quan trpng
nhat, mpt trong nhQng quydn cdt ldi - cung vdi
quydn fu do hdi hpp hda binh - dupe thiet ke de'

So 92/2016

IT

bao vp kha nang ngudi dan den vdi nhau va lam
vipe vl Ipi fch chung. Vi dy: tu chinh an sd 1 cOa
Hoa Ky (dieu khoin sQa ddi Hien phap sd 1) quy
djnh quyen fu do t i p hpi cung vdi c i c quyen ty do
ngdn lupn, ty do b i o chi .. Ngoai ra, Dieu 18 Hien
phap Italia, Muc 18 Hien p h i p Nam Phi, Dieu 2
Hien ehUdng quyen va fy do Canada...
The chd hda cac npi dung eua Hidn phip. nghi
vien eie qude gia thudng ban hanh dgo luit rieng
re ve hpi trong dd bao h i m c i c npi dung chinh sau
d i y : (i) phgm vi dieu chinh ciia luit (cac logi hpi,
fd ChQc nao dupe dieu chinh); (li) dieu kipn thanh

Ipp. gia nhip hpi; (iii) cd quan, thO tyc dang ky',
tiianh lap hpi; (iv) quyen cua cae hpi; (v) cO quan
giam sat, xQ ly vi pham; v i (vi) cham dQt hoat
ddng cua hpi.
2. Md hlnh v i phUOng phap nghien cQu
TQ eie quan nipm tren ve xa hpi dan sU v i td
ChQc xa hpi d i n sy eho thay, mdt to' chQc xa hpi
ddn sy dupe thinh Ipp, tdn tgi v i phat frien phii
chju t i c dpng v i dieu chinh bdi eie yeu fd mdi
trudng ben ngoii td chQc, trong dd quan trpng
nhdt l i mdi trudng chinh tn va phap luit. Vd
nguyen ly, ed the phdn cae lye luong phip ly vdi
c i c td ChQc xa hpi dan su thanh 4 nhdm:
- Cac c^ifnh sich khung xay dung xa hpi dan sy;
- Cae dinh che p h i p ly xa hpi dan sy;
- C i c khung khd phip ly cd lien quan den to'
chQe xa hpi d i n sy;
- Cac khung khd p h i p ly, quy fac quan hp giQa
Chinh phu v i td chQc xa hdi d i n su.
Nhu v i y mdi trUdng khung phap \^ chinh i i yeu
td thQ 3 v i 4 ndu tren va fQ npi h i m khai nidm cho
thiy chQng phai dupe thiet l i p fQ b i c cao nhat
(Hien phap) den Luit chuyen nginh v i eie van
ban quy phgm phap lupt/dmh che phap \^ dUpc
Qude hpi ban hPnh va dupe cac ed quan Nha nude
ed tham quyen bao hp chap hinh.
Vdi tiep c i n trdn, md hinh nghidn cQu cua
xay dyng va thue day mdi trudng khung p h i p ly
cho eae td chQc xa hdi d i n sy dupe the hipn qua
hinh 1 sau:

PhUdng phap nghien cQu: nghien oQu n i y vpn
dung phUdng phap tiep edn hd thdng, bipn chQng,
logic va Ijch sii; eac phuong p h i p nghien cQu cy
the' l i phUdng phip ddi sanh, phuong phip phin

—"

hhBa hoc
thijdng mai

^
21


KMH 1^ vA nvM tx
d Vipt Nam, hdi dupe
dmh nghTa lan dau tien tgi
Sac Ipnh sd 52 ngiy 22
thing 4 n i m 1946: "Hpi l i
mpt doan thd cd tinh each
vinh oQu gdm hai ho$c
Hi&u mil phii irien cic
nhieu ngudi giao Udc hipp
xa h^i dBn St;
lue m i hinh dpng dd dgt
mye dich chung, muc dich
ay khdng phai de chia Ipi
tQc". Tren cO sd Sac Ipnh
Tinh quan h( idi tic vdi Chinh phiS
so 52 va Sac Idnh sd

102/SL/L004 ngay 20
t h i n g 5 nam 1957 v l
Ngudn: Tic gia
"Luit quy dinh quyen lip
Hlnh 1 ; Md hinh nghiin cQu mdi tnidng khung phip 19
hdi", c i c hpi v i cae to
cho cac tdchUc xa hdi din su
chQe xa hpi dan sy khic
tich - tdng hpp, phUdng phPp khii quat hda va md
da dupe thinh l i p , hogt ddng va ddng gdp mpt vai
hlnh hda.
trd quan trpng vdo sy phat frien kinh td - xa hpi cCia
3. Thyc tr^ng xay dung mdi h^dng khung phap
ddt nude.
ly cho cac td chQc xa hpi dan sU d Vipt Nam
Hidn nay nhQng loai to chQc xa hdi chinh cQa
6 Vipt Nam, Dieu 25, Hien phap 2013 mpt lan
Vipt Nam bao gdm: (i) cac doan Old quan chiing
nQa kha'ng djnh quyen ty do Ipp hdi d i dupe ghi
(cd cdc hoat ddng gan bd chat che vdi nhipm vu
nhpn trong eac b i n Hien phip truPc dd khi quy
ciia n h i nudc); (ii) cae td chQe hpi, lidn hiep hpi,
djnh "Cdng dan cd quyen fy do ngon luin, tU do
lidn doan; (iii) c i c td chQc hpi khdng ed thinh viin
bao chf, tidp c i n fhong tin, hpi hpp, ipp hpi, bieu
gdm: eie td chQc nghien cQu. khoa hoc. phit trien,
tinh. Viec thuc hipn c i c quydn nay do phip luat
fu van, d i o tao, xda ddi giam ngheo; (iv) eac quy
quy djnh". Trdn cd sd c i c quy dmh tQ c i c Hien
xa hpi, quy tQ fhipn, quy phit trien; (v) cae td ehiic/

phap 1946, 1980, 1992 va hien nay la Dieu 25
nhdm tgi cdng dong; (vi) c i c cdng ty phi Ipi nhuin
Hien phip 2013 neu trdn, cac td chQc xa hpi d i n
(md hlnh mdi hogt dpng theo cd ehe cdng ty
sy ngiy eing ddng gdp mpt vj tri quan trpng trong
nhung khdng phan chia Ipi nhupn); (vii) c i c hipp
ddi song chinh tn, kinh te v i xa hdi. Tuy nhien, cac
hdi nghe nghidp (hoat dpng vl Ipi ich cua cic
fd chQc xa hdi dan su Vipt Nam va quan ly c i c to
thinh vien la c i c td chQc. don v\ kinh doanh); (viii)
ChQc xa hpi dan sU Vipt Nam la van de mdi, ludn
Cac fd chQc tfn ngQdng va (ix) c i c nhdm khong
mang tinh thdi sy trong tinh hinh hipn nay d nUPc
dang ky fu each p h i p nhan... Mdt nghidn edu 6
ta. De eie To chQc phi chinh phii Vipt Nam hoat
Vipt Nam cho thay tfnh den nam 2010. d Vipt Nam
dpng cd hipu qua xa hpi cao fhi vipe quan ly ve
cd khoang 1.700 td chQc da dang kJ hoat dpng de
van de n i y cija Nha nude Id d i e biet quan trpng.
hd'trp c i c van de vd kinh te va xa hpi.
Mpt frong nhQng bien phap quan trpng nhat de thd
De dam bao thyc hipn quyen l i p hoi ciia cdng
chd hoa quyen lap hpi dupe hien dmh tgi Dieu 25
Hien phip 2013 la xay dyng mdt khuin kho phap din, ngay sau khi nude Vipt Nam ddn ehCi epng
hda
dupe fhanh lap, Chu tich Hd Chf Minh da ban
ly day dCi, vdi nhQng ndi dung phii hdp vdi bdi canh
nen kinh te th; trudng djnh hudng xa hdi chu nghTa hinh Sac ipnh sd 52 ngay 22 thing 4 nam 1946
v i hpi nhpp kinh te qudc te ciia Vidt Nam ngiy ve hpi va Sac Ipnh sd 102/SUL004 ngiy 20 thing
eing s i u rpng vdi cac hiPp dmh thuong mai tu do 5 nam 1957 ve "Luat quy djnh quyen Ipp hpi". Cho

ddn nay Sac Ipnh sd 102/SUL004 vCn cdn hipu
song va da phUOng.
lyc thi hanh, nhieu quy d|nh cua Sac Idnh n i y d£

khoa hpc _
22 thifdngmai'

So 92/2016


^ ipatH.Tfe'
khdng con phQ hdp vdi didu kipn fhue te ve td
chQc, hoat ddng ciia hpi da thay doi frong g i n 60
nam qua. Ngoii ra. mdt sd van b i n quy pham
phap luit quan trpng ve hpi cung dUpc ban hanh
trong thdi gian ddy bao gdm Nghj d|nh
177/1999/ND-CP cQa Chfnh phu ve fd chQc v i
hogt ddng cCia Quy xa hpi, Quy tQ thlpn v i Ngh|
djnh 88/2003/ND-CP ciia Chfnh phQ vd td chQc,
hoat dpng va quan ly Hpi.
4. Mpt so khuyen ngh| vS xay dyng va ban hanh
Lupt ve Hpi thay cho Ngh| dinh 88/2003/ND-CP
Trong hoin canh xay dyng xa hdi Vipt Nam
hien dai, ba fm cpt quan trpng dd la: nha nude
phap quyen, kinh te thj trudng va xa hpi dPn sU.
Trong khi eac van ban de xay dyng n h i nUdc phap
quyen va cd s6 phap ly cho ndn kinh te thj trudng
dmh hudng xa hdi chu nghTa dupe ban hinh dudi
hinh thQe van ban luit do Quoc hpi ban hinh nhu
Luit Doanh nghipp. LuPt Dau tu... thl xa hpi d i n

sU m i nen tang cda nd la cac td chQc xa hdi d i n
sy van thieu hinh lang p h i p ly' l i luat ve hpi do
Qude hdi ban hanh, ed hipu lyc p h i p ly chi sau
Hien phip. Vide ban hanh mpt lupf ve hpi se dap
Qng dupe nhQng van de sau d i y :
ThQ nhat, lupt hda mdt quyen hien dinh dupe
UiQa nhpn rdng rai d nude fa. Vf dy, quyen ty do
kinh doanh dupe cu the hda bang Luit Doanh
nghipp, quyen ty do bao chi dupe cy the hda bang
Luit b i o chi...
ThU hai, tao hanh lang p h i p \'^ cho vide thinh
lip eae to chQe xa hpi dan sy. Khi cac ITnh vuc
dupe thinh Ipp, c i c fd chQc xa hdi ddn sy se cd
cac quy d|nh rd ring, tranh tinh trang mpt so ed
quan nha nudc do tiiieu h i n h lang phap ly ed thd
gay ra nhQng trd ngai frong qua trinh thinh l i p .
ThQ ba, mpt trong cac sQ mpnh quan frong eua
eie td ChQc xa hdi dPn sy la giam s i t v i phin bipn
chinh sach. Tuy nhien, khi khdng ed mdt hanh
lang phip 1^ d i y dii thi nhQng hogt dpng giim sat
hope phin bipn chinh sach rat de'bj c i c cd quan
n h i nudc cho l i nhay cam. Day ehinh ia ly do can
phai cd Lupt ve hpi de cac td chQe x i hpi d i n sU
cd the giam sat v i phan bipn chfnh sieh cua nha
nudc mpt each dpc l i p , tnjng thyc, dung phap lupf
ma khdng bj ngdn can.

vk-^v^jx

ThU tu, xay dyng mdi trudng khung phap ly

hodn thipn ve eae to chyc xa hpi dan sy edn la
CO sd phap ly quan trpng de Vidt Nam tuan thCi
cae cam kdt qudc te nhu Cdng ude cua Lidn hpp
qude ve eae quyen d i n sy v i ehinh tn, Hipp
djnhTPP...*

Tai liiu tham Idiao;
1. Tuong Lai (2005), Nha nUdc phip quySn
vi xa hdi din su. Tap chi Nghien cQu l i p phap.
11-2005.
2. Nguyen Ngpe L i m , Legal Regulations on
Organization, Management of Association, and
Measures of refinement. Presentation for a workshop organized by fhe Legal Reform Assistance
Project, Hanoi, January 2007.
3. Thang \ ^ n PhQc, Nguydn Minh Phuong
(2010), Vai trd cua cic tdchUc xi hdi: Doi vdi phit
trien vi quin 1^ xi hdi, NXB Chinh tn Quoc gia.
H i Ndi.
4. Vd Khanh Vinh (2008), Mdt so vdn dely luin
vS xa hdi din sU, Tap chf Khoa hpc xa hpi, so 04
(116), tr. 21-35.
5. William Taylor, Nguyen Thu Hang, Pham
Quang TQ, HuJ'nh Thj Ngoc Tuyet. Civil Society in
Vietnam: A Comparative Study of Civil Society
Organizations in Hanoi and Ho Chi Minh City. A
Asia Foundation Publication.
Summary
There have arisen many problems in tiie formation, organization, operation and administration
of social associations and funds in Vietnam in
recent time and different opinions on this issue.

One of fhe hidden reasons for this matter is there
has not been an official, systematic and effective
legal framework environment. Upon theoretical
studies, this article builds up research model and
applies the model to identify the situation, then
puts forth scienfitie proposals on setting up law on
associations in an approach to building up law on
civil society organizations in Vietnam.

_khoa hoc
86 92/2016

'thifdngmal

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