BAN VEDITANLUAT
HOAN THIEN QUY DINH CUA PHAP LUAT VE THAM DINH Dl/ THAO VAN BAN QUif PHAM PHAP LUAT CUA HOI DONG NHAN DAN CAP TINH
Nguyen Thi Ngpc Mai*
*ThS. GV. Khoa Luat Hanh chinh - Nha nudc.Tru6ng Pai hoc LuatTP Ho Chi Minh
Thong tin b^i viet:
Tit khoa: Hoi dong nhan dan, tham dinh, dtr thao nghi quySt, bao cao th5m dinh
Lich su bdi viet:
Nhanbai : 20/05/2019 Bientap ; 20/07/2019 Duyetbai : 23/07/2019 Article Infomation:
Keywords. People's Councils, appraisal, draft resolutions and appraisal reports Article History:
Received Edited Approved
20 May 2019 20 Jul. 2019 23 Jul 2019
T 6 m tat:
Theo quy dinh ciia phap luat. Hoi dong nhan dan cap tmh co tham quyan ban hanh van ban quy pham phap luat bang hinh thirc nghi quyat. Thuc tiln cho thiy, hoat dong xay dung, ban hanh nghi quyet ciia Hoi d6ng nhan dan cdp tinh trong thai gian qua da dat duoc nhi^u kk qua kha quan, tich cue. Tuy nhien, ben canh nhiing mat tich circ van con ton tai nhung han ch6, hk cap lam anh huong den chat luong va hieu qua thirc hien nghi quy^t cua Hoi d6ng nhan dan.
Abstract
Under the applicable legal ducuments, the provincial People's Council has the authority to issue legal normative documents m the form of resolutions. The practical perforcements show that the issuance of resolutions by the provincial People's Council in recent years has reached achievements and positive results. However, besides the positive aspects, there still certain shortcomings that affect the quality and effectiveness of enforcements of the resolutions ofthe People's Council.
1. Thuc trang hoat dong th^m dinh du- thao nghi quyet cua Hoi ddng nhan dan c^p ti'nh
Theo sd lieu thdng ke cua Cue Kiem tra van bdn quy pham phdp ludt (Bd Tu phap), trong nam 2017, co quan nay da tien hdnh kiem tra 5.104 van ban ciia Hdi ddng nhan dan (HDND) va Uy ban nhdn dan (UBND) cdp tinh, phat hidn 131 van ban trai phap luat ve ndi dung, tham quyen cung nhu nhieu van ban sai sdt ve can cu, the thuc.
ky thuat trinh bay'. Thtrc trang tren cd nhieu nguyen nhdn, trong do cd nguyen nhdn ve cdng tdc thdm dinh van ban quy pham phap luat (VBQPPL) cua eo quan tu phap dia phuang ehua hoan thien.
Thuc tiln thdm dinh du thdo nghi quydt thdi gian qua cho thdy, edng tac nay chua dupc thuc bien nghiem nic d nhidu dia phuang, van cdn tinh trang ban hanb nghi quydt nhung bd qua khau thdm dinh cua co quan tu phap. Chdng ban d tinb Gia Lai,
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B!, Tu phip, Bao cao cong tic kiCra tra, ri soat, he thdng hoa VBQPPL nam 2017 va phtrong huong nhiem , „ gij, p|,jp nam 20! 8, thing 4/2018, tr. 4.
HGHlfeH CtfU y L A P P H A P ^ So 13(389)77/2019
BAN VE DlT AN LUAT
"cd ky hpp, HDND tinh thdng quaS-d nghi quyet nhimg chi cd mot du thdo duac Sd Tu phdp thdm dinh. Hoac cd khi, dir thdo van bdn cua UBND ti'nh nhung vdn bdn thdm dinh ciia Sd Tuphdp lgi gtii cho Sd Npi vu, Sd Lao dpng, Thuang binh vd Xd hpi yeu cdu hieu chinh di thdng qua HDND tinh...
Ndi chung, viec thieu vdn bdn thdm dmh va chdt lugng thdm dinh cua Sd Tuphdp Id vdn de thirdng xuyen dugc dgt ra tgi cdc ky hop cita HDND. Khi cdc Ban cua HDND tinh yeu cdu thdm tra thi ca quan soan thdo lgi de nghi thdng edm, se bdsung...'''''^. Hoac d tinh Binh Dinh, tdng sd van ban dupc ban hanh la 1.027 nhung chi cd 537/1.027 van bdn dupe tharn dinh, sd van ban chua qua tham dinh chiem 47,7%; eon sd na>; d Quang Ngai la 421/889 van ban dupc tham dinh; Thua Thien - Hue chi cd 634/1462 van ban duac thdm dinh-'. Nam 2017, qua ra soat 728 VBQPPL cua HDND, UBND TP. Hd Chi Minh cdn hieu luc thi phat hidn cd 52 VBQPPL cd ddu hieu vi pham, trong dd vide vi pham Idn nhdt la cae van ban nay khdng dupe thdm dinb, khong dupc lay y kien cua ddi tupng dupc dieu chinh trudc luc ban hdnh ''. Thue trang ndy xudt phat tu nhidu nguyen nhan, trong dd cd nguyen nhdn tu y thuc chua coi trpng vai trd "gae cdng phap ly" ciia ca quan tu phdp dja phuang ciia cac ca quan chii tri soan thdo cung nhu tir su chua hoan thien cac quy dinh eiia phap luat ve van dd nay.
1.1. Ngi dung vd pham vi tham dinh dir thao nghi quyet cua HDND c&p tinh
Theo quy dinh cua phdp ludt, Sd Tu phap la ca quan cd trach nhiem tham dinh du thao nghi quyet cua HDND cdp tinh trong trudng hpp du thao do UBND cung cdp trinh. Can cu vao tinh chat, ndi dung cua du thao nghi quyet, vice thdm dinh dupc
thuc hien theo mdt trong cae hinh thiie sau:
777ii- nhdt, ddi vdi nhiing nghi quydt lien quan den nhieu ITnh vuc hoac do Sd Tu phap chu tri soan thao thi Giam ddc Sd Tu phap thdnh lap hdi ddng tu vdn thdm djnh va quydt dinh tdng sd thanh vien ciia hdi ddng, bao gom dai dien cac co quan, td chiic cd lidn quan, cac chuyen gia, nha khoa hpc;
trudng hop tham dinb do du thao nghi quydt cua HDND do Sd Tu pbap chu tri soan thao thi dai dien Sd Tu phap kJidng qud 1/3 tdng sd thanh vien hpi ddng. Hdi ddng tu van thdm dinh boat ddng theo nguyen tac tap the va quyet dinh theo da sd;
Thir hai, ddi vol cac du thdo nghi quydt cua HDND cap tinh cd ndi dung dan gian, rd rang, khdng phuc tap, khdng lidn quan den nhieu ITnh vuc thi to chiic cupc hpp tu van thdm dinb. Khi tham dinh du thaOj CO quan tham dinh tidn hdnh kiem tra vh tat ca cac mat cua du thao nhung thdng thudng, can bd thdm dinh thudng quan tdm ddn cdc ydu td vd ddi Urpn^, pham vi dieu chinb cua du thdo nghi quyet; tinh bpp hien, tinh hpp phap va tinh thdng nhat cua du thao nghi quydt vdi he thdng phap luat, npi dung du thao nghi quydt vdi cac chinh sach trong de nghi xay dung nghi quydt da dupc thdng qua; ngdn ngii, ky thuat soan thdo van ban,...
So vdi pbam vi tham dinh quy dinh tai khoan 3 Didu 24 Ludt Ban hanb VBQPPL cua HDND vd UBND nam 2004 trudc day, Luat Ban hanb VBQPPL nam 2015 da md rdng pham vi thdm dinb khi yeu cdu co quan tu phap phai thdm dinh cd "su phu hop ndi dung du thao nghi quydt vdi cac quy dinh trong van bdn da giao cho HDND qu); dinh chi tidt; ndi dung du thao nghi quydt vdi cac chinb sdch trong de nghi xay dung nghi quydt da dupc thdng qua" (didm c khoan 3 Didu 121), Tuy nhien, neu xem xet cu the
Phan H6ng Man (Pho truong Ban Phap che HDND tinh Gia Lai),Can thSm dinh VBQPPL theo quy djnh, Bao dien tu Dai biSu nhan dan, http://daibieunhandan.vn/defaull aspx?tabid-81&NewsId=9405 (truy cap 29/2/2019).
Doan Thi T6 Uyen (2011), Thirc trang va giai phap nang cao hieu qua hoat dpng tham dinh dir thao VBQPPL do co quan tu phap dia phuong thirc hien. Tap chi Dan chii va Phap luat, s6 chuyen de thang 5, Ix. 22.
Bao moi, "TP HCM' Nhieu van ban quy pham phap luat khong qua thim dmh", [https.//baomoi com/tp-hcm-nhieu- van-ban-quy-pham-phap-luat-khong-qua-tham-dinh/c/22591950.epi] (tmy cap ngay 10/2/2019)
. , NGHltN CUU I It*
S613(369)T7/2019 ^ L A P P H A p l * • •
BAN VEDITANLUAT
cac ndi dung se cho thdy, boat ddng thdm dinh mdi chi tap trung d khia canh phap Iy va the thiic, ky thuat xdy dung van ban, chua mang tinh tu van chuydn sdu vd ndi dung cua van ban, chang ban nhu, xem xet vh tinh khd thi cua du thao - mpt trong nhirng bidu hien quan trpng trong tinh hop ly cua van ban. Ndu tinh hpp ly cua VBQPPL dupc quy dinh la mpt ndi dung bdt budc phdi tham dinh trong du thdo VBQPPL eua cac chu the cd thdm quyen d trung uang nhu ludt, phap lenh, nghi quyet do Cbinh phu trinh hay nghi dinb cua Chinh phii, quydt dinh cua Thu tudng Chinh phu^.. tbi ddi vdi du thdo VBQPPL ciia chinh quydn dja phuong, trong do cd nghi quydt cua HDND lai khdng dat ra yeu cdu ndy. Ndu trudc day, Ludt Ban hanh VBQPPL cua HDND va UBND nam 2004 quy dinh "tinb kba thi cua du thao nghi quydt" la ndi dung ma ca quan tu phap cd thd phdt bieu, dua ra y kien mpt each "tCiy nghi" thi Ludt Ban hanh VBQPPL nam 2015 khdng cdn de cap den van de nay nira. Tren thuc te, Idii tien hanh tham dinh npi dung nay, can bd thdm dinh da gap rdt nhieu khd khan nhu ngudi tham dinh khdng cd dii kidn thuc chuyen sau vd ITnh virc dupc du thdo didu chinh nhu co quan soan thdo nen khdng thd dam bao thdm dinh tinh kha thi vdi hieu qua cao; ngudn thdng tin han che ban so vdi CO quan tjdn hanh thdm tra; hd so thdm dinh khdng ddy dii, thidu cdc van ban chi rd vd tinb khd thi cua van ban, vi du nhu thieu bdo cdo danh gia tae ddng cua van ban. Vi vay, nhieu trudng hop vide thdrn dinh van ban trd nen hinh thuc*. Do do, ndu bude ca quan thdm dinh "phai chiu trach nhiem ve tinh Idid thi cua van ban" tbi quy dinh nay lai trd thanh khdng "khd thi". Tuy nhien, ddi vdi mdt VBQPPL, bdn canh vide dam bdo khia canh phap ly ciia van ban thi cung can
phdi quan tdm ddn tinb thuc tien cua chung bdi siic sdng cua mot van ban khdng cni p . thudc vao sir phii hpp ciia nd vdi cac y cdu cua Nhd nudc ma ddi sdng thirc te cu nd lai nghieng vd su phii hpp vdi cac yeu cdu cua xa hdi, "tinh kha thi la mpt trong nhidu ddu bieu mang lai hieu luc thyc te ctio VBQPPL"^. Danh gia vd cdng tac tham ainii thdi gian qua, Bd Tu phap cho rang, chat luong thdm dinh tuy tung budc da dupe nang cao, nhung chua ddng deu, ddi khi chua chu trong dling miic ddn tinh kha thi, tmh hpp ly ciia cac cbinh sach va quy dinh ft-ong du thao van bdn"^ Bdn canh dd, mae du yeu cdu ca quan thdm dinh phai xem xet ve tinh hop hidn, hop phap, tinh thdng nhdt cua du thao nhung quy dinh cua pbap ludt trudc day va hien nay vdn ididng dua ra dupc hudng ddn vd cac tieu chi cu tbd de danh gia tinh hpp hien, hpp phap... Tren thuc td, bao cao tham dinh thudng chi danh gia chung chung, khdi quat la "phu hop", vi vay, mac du da dupc thdm dinh nhung vdn cd van ban sai sdt khi dupc ban hanh.
Hidn nay, mac du tham dinh la khdu bit budc phdi thuc hien trong quy trinh xay dung, ban hanh nghi quyet cua HDND nhung Luat Ban hanh VBQPPL nam 2015 chi mdi quy dinh ydu cdu thdm dinh du thao nghi quydt cua HDND cdp tinh do UBND cdp tinh trinh HDND, cdn ddi vdi du thao nghi quydt do cdc ca quan, td chiic khac trinh HDND thi phap luat kbdng quy dinh bat bude phai thdm dinh vd chu the ndo tham djnh ma ehi quy dinh cdc co quan, td chiic trinh phdi giii td trinh, du thao nghi quyet va cac tdi lieu cd lien quan den UBND cap tinh dd CO quan nay cd y kidn; cdn UBND cho y kidn ve vdn de gi thi phap luat ciing khdng quy dinh ro.
Xem DiSu 58, D i k 92, Di6u 98, Di6u 102 Luat Ban hanh VBQPPL nam 2015
Bp Tu phap - Du dn phat tnIn lap phap qu6c gia tai Viet Nam (NLD). Bao cao khao sat danh g,a thi hanh luat n hanh VBQPPL ciia HDND va UBND nam 2004 v^ Luat Ban hanh VBQPPL nam 2008, tr 67 ^^
Hoang Minh Ha (2011), "LuSn ban vl tieu chi thSm dinh tinh kha ihi cua dir thao VBQPPL , Tap chi Dan chu va PJiap luat, S6 chuyen dg thang 5-2011, tr. 14. ,_• u u . A - u- ^ BoTuphap (2018), "Baocaos660/BC.BTPngay!2/3/2018cuaBgTuphap phuc vu hoat dong chat van vatrala, chil vAn tai phien hop thu 22 ciia Uy ban Thucmg vu Quoc hoi", tr. 8.
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1.2. Ho sa va th^ hgn thdm dfnh dy thdo nghi quyit cua HDND c&p tinh
Mpt trong nhihig nguyen nhdn lam anh hudng ddn chdt lupng thdm dinh d\s thao nghi quydt cua HDND hi?n nay lidn quan den hd sa va thdi han giii hd so d\x thao de thdm dinh cua ca quan soan thao. Tren thuc td, hd so gijri thdm dinh thudng khdng day dii theo quy dinh, nhidu trudng hpp hd sa chua du cac tai lieu can thiet, chi cd td trinh vdi ndi dung sa sai, ban du thao nghi quydt vdi chdt lupng khdng dap dng ydu cau va bdn tdng hop y kien gdp y du thao dupc lam chieu Id, thu tuc cdn nhieu sai sdt da lam anh hudng den chat lupng, tien dp thdm dinh^.
Ve thdi ban gui hd so du thao dd tham dinh, hdu nhu ca quan chu tri soan thao khdng tuan thii dung thdi ban gui hd sa dan den CO quan thdin dinh roi vao the bi ddng, thidu thdi gian can thiet dd tien hdnh thdm dinh. Theo quy dinh cua phap luat, cham nhdt la 20 ngdy trudc ngay UBND hpp, co quan chu tri soan thao phdi gui hd ^a du thao nghi quyet cua HDND cap tinh den Sd Tu phap de tham dinh. Thuc tien tridn khai cdng tac ndy d dia phuang cho thay, quy dinh vd thdi gian thdm dinh nhu vdy phu hpp vdi cac du thao nghi quydt cd npi dung don gian, cdn ddi vdi cdc du thdo nghi quyet cd noi dung phiic tap, pbam vi didu chinh rdng bat budc phdi thdnh lap hpi ddng tu van thdm dinh thi khoang thdi gian nay Id chua du de chudn bi cac dieu kien can thidt cho viec td chiic cupc hpp, chua du thdi gian cho cac chuydn gia, nha khoa hpc nghien ciiu hd so, tai lieu va chudn bi y kidn phat bieu cd chat lupng tai cudc hpp. Han nua, tren thuc td ca quan chu tri soan thao thudng chua thuc hien dung quy dinh ve thdi gian gui du thao nghi quydt ddn Sd Tu phap dd tham djnh ndn mpt so trudng hop giri van bdn trong tinh trang rdt gap dd kip trinh UBND xem xet, thao ludn tai phidn hpp. Khi do, vi thdm dinh trong thdi gian ngan, gap gap se khd cd thd td chuc cdc hinh thiic thdm dinh phii hpp
va bao cdo thdm dinh phat bidu dupc todn didn cac van dd cua du thao. Phap ludt quy dinh thdi gian tham dinh la 20 ngdy nhung thuc ra, Sd Tu phap chi cd 10 ngay dd tidn hanh thuc hien tdt ca cac khdu tu xu ly hd sa, nghien ciiu hd sa, Idy kidn chuydn gia, nha khoa hpc, tdng hpp cdc can cu phap ly... vi bdo cdo thdm dinh phai dupe gui ddn CO quan chii tri soan thao trong thdi han 10 ngay kd tu ngay Sd Tu phap nhdn du hd sa gui tham dinh {khoan 4 Didu 121 Luat Ban hanh VBQPPL nam 2015).
1.3 Ve gid tri cua Bdo cdo tham dinh du thao nghi quyet cua HDND c&p tinh
Kdt qua thdm dinh cua co quan tu phap phai dupc tbd bidn bang hinh thuc nhdt dinh.
Trudc ddy, cd Ludt Ban hanh VBQPPL eua HDND va UBND nam 2004 va Nghi dinh so 91/2006/ND-CP ngay 6/9/2006 cua Chinh phu quy dinh chi tidt thi hanh mdt sd didu cua Luat Ban hanh VBQPPL cua HDND va UBND nam 2()04 ddu khdng quy djnh vd hinh thiic, eo cdu cua van ban thdm djnh. Vi vay, trong thuc tiln, cd dia phuang Ichi tham djnh su dung binh thdc cdng van tham dinh nbung Cling cd dia phuang duiig hinh thiic bao cao thdm dinh. Sy khdng thdng nhdt nay ddn ddn tinh trang van cd su sai sdt ve thd thue, ky thuat trinh bay trong van ban thdm dinb, tu dd lam dnh budng tdi "uy tin" cua van ban thdm dinh. Ludt Ban hdnh VBQPPL nam 2015 ra ddi da xac djnh rd kdt qua thdm dinb cua ca quan tu phap dupc the hien dudi hinh thiic bao cao - Bao cao tham dinh.
Gia trj phap ly ciia bdo cao thdm dinh la vdn dd ludn nhan dupc su quan tdm, dac biet la tu phia ca quan chu tri soan thdo, ca quan thdm dinb va ca quan tham tra. Gia tri cua bao cao nay cd y nghia trong trudng hop cd mau thudn giira y kien cua co quan tham djnh va ca quan chu tri soan thao ciing nhu khi du thdo nghi quydt sau khi chinh suacd su thay ddi nhidu so vdi ndi dung ban ddu.
Ludt Ban hanh VBQPPL nam 2015 da xac
9 Bo Tu phap (2013), Bao c^o t6ng k6t thi hanh Luat Ban hanh VBQPPL nam 2008 va Luat Ban hanh VBQPPL ciia HDND va UBND nam 2004, H^ Npi, thdng 11/2013
^ NGHICH Cini S613(389)T//2019 V L A P P H A P I
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dinh bao cao thdm dinh cd gia tri bit budc ddi vdi ca quan chii tri soan thdo. Didu 121 Ludt Ban hanh VBQPPL nam 2015 quy dinh, bao cao thdm dinh pbai thd hidn ro y kidn cua co quan thdm dinh vd npi dung thdm djnh va y kidn ve viec du an (cbinh xac phai la du thao) du didu kidn hoac chua du didu kien trinh UBND va ca quan chu tri soan thdo cd trach nhiem giai trinh, tidp thu y kien thdm dinb dd chinh ly, hoan tbien du thao nghi quyet... Dieu nay ed nghia la co quan ehu tri soan thao phai tiep thu todn bp y kien thdm djnh du dong y hay kbdng ddng y vdi y kien tham djnh. Hay ndi cdch khac, gia tri phap ly cua bao cao thdm dinh mang tinb bat budc, ca quan soan thao phdi tudn theo. Ludt Ban hanh VBQPPL nam 2015 ciing xac dinh co quan chii tri soan thdo cd traeh nhidm giai trinh, tiep thu y kidn tham dinh dd cbinh ly, hodn thien du thdo nghj quyet va gui cac van ban nay ddn Sd Tu phap khi trinh UBND du thao nghi quydt.
Quy dinh nay cd y nghTa quan trpng trong vide CO quan tham dinh kidm soat ndi dung du thao nghi quyet, trdnh trudng hop sau khi tiep thu y kien va chinh sua nhidu Idn, du thao cudi cung trinh UBND cd the cd npi dung khac hoan toan so vdi du thao ban dau va cd the cd npi dung khdng phii hop, tham chi trdi phdp ludt. Tuy nhien, tii quy dinh nay cua Luat Ban hanh VBQPPL nam 2015 ciing cho thay, neu "bat bude" ca quan chu tri soan thdo phdi tidp thu y kien tham dinh dd chinh ly, hoan thien du thdo ve mpi vdn de thi dudng nhu khdng phii hpp bdi le ddi vdi nhung y kien thdm djnh lien quan den tinh hap hien, hpp phap, tinb thdng nhat tbi CO quan chu tri soan thao bat budc phai tiep thu nhung cdn ddi vdi nhung van de mang tinh chuyen mdn tbi lieu rang y kien cua co quan thdm dinh trong mpi trudng hop cd
ludn phu hop khdng? Lien quan den van de nay cung cd y kidn cho rang, "ve mat phap ly, rd rang van bdn thdm dmh kbdng phai la VBQPPL nen duang nhien nd khdng co gia tri bat budc ddi tupng phdi thi hdnh va cung khdng ed chd tai ddi vdi nhirng ngudi khong thi hanh""'.
1.4 Vi cdc diiu kien ddm bdo cho cong tdc tham dinh dir thao nghi quyet cua HDND cap tinh
Mdt brong nhirng kho khan chung g^p phdi trong cdng tac thdm dinh nia t;ac dia phuang deu chia se dd la van de ve nhdn luc. Ngodi nhiing khd khan ve nhdn luc, trong cdng tac tham dinh cdn gap mdt "rao cdn" niia anb hudng tdi chdt lupng thdm dinh - do chinb la ngudn tai ehinh chi cho cdng tac xay dung, ban hdnh VBQPPL ndi chung vd cdng tdc thdm djnh ndi rieng. Hien nay, ngudn kinb phi do ngdn sach nba nudc cdp chua dap ung dupc yeu edu cua cdng tac xay dung phap ludt, cdn qua thdp so vdi ydu cdu ciia cdng vide". Thdng tu sd 338/2016/
TT-BTC ngay 28/12/2016 cua Bp Tai chinh quy dinh mue chi cho cdng tdc xay dung VBQPPL cua HDND cdp tinh nhu sau: xdy dung dd cuong cbi tidt dy thao van bdn mdi hoac tbay the la 950.000 ddng/dd cucmg;
dd cuong van ban sira ddi, bd sung muc chi 650.000 ddng/dd cuang; soan thdo van bdn mdi hoac thay the: muc chi 3.200.000 ddng/
du thdo van ban cdn van ban siia ddi, bd sung mdt sd didu" muc chi 2.700.000 ddng/
du thao van ban; muc cho cho cdng tdc tham dinh la 500.000 ddng/bao cao thdm dinb'l Vdi khoan kinh phi ndy, Sd Tu phap khdng thd td chiic cdc boat ddng thdm dinh cd chdt luong, dac bidt ddi vdi cae van ban thuc hien quy trinh xdy dung chinh sach phai thuc hien nhidu boat ddng phiic tap ddi hdi tdn nhidu ngudn luc ve tai chinh ciing nhu con
10 Dinh Cong TuSn (2009), Hoan thien phap luat vi thim dinh du thao VBQPPL ciia co quan tu phap dia phucmg". Tap chi Nghien cuu Lap phap, s6 !9 (156), tr. 20.
11 Bp Tu phap. Ban tflng hgp tigp nhan va tra loi kiSn nghi cua cac Bp, nganh, UBND cdc tinh, thanh pho true thuoc trung uongdfli vol cflng tie chi dao, diSu hanh ciia BpTu phap tir dSu nam 2018 dSn nay, (thang 7/2018)
12 Thflng tu sfl 338/2016/TT-BTC ngay 28/12/2016 ciia Bfl Tai chinh quy dinh iap du toan, quan ly, su dung va quygt toan kinh phi ngan sach nha nuoc bao dam cho cong tac xay dung VBQPPL va hoan thien h? thflng phap luat.
M
l NGHICH Cini , I i j l p P H A P - V S6 13(389) T?/2019BAN VE Dir AN LUAT ngudi hoac trong trudng hpp phai thanh lap
hdi ddng tu vdn thdm dinh. Kdt qua khao sat d mpt sd tmh, thanh niiu Tuydn Quang, Da Ndng, Quang Ngai, Ddng Nai va TP. Hd Chi Minh cho thay, chi cd hi 23%- 32% can bp dupe khdo sat cho rdng kinh phi tham dinh da dap ling dupe cac cdng vide can thidt cua cdng tac thdm dinh". Hon nua, Thdng tu sd 338/2016/TT-Bfc ngay 28/12/2016 ciia Bd Tai chinh quy dinh mirc chi chung cho cdng tac xay d^rng VBQPPL ap dung trdn pham vi ca nudc, tdt ca cdc tinh, thanh ddu dp dung muc chi nhu nhau la kbdng hpp ly trong khi dieu kidn kinh te - xa hpi la khdng hoan toan gidng nhau. Didu nay cung cd anh hudng rdt nhieu den chat lupng thdm dinh ndi rieng va chdt lupng nghi quydt ndi chung.
2. M3t so kien nghi nSng cao ch^t Iv^ng thdm dinh nghj quy^t cua Hoi d^ng nhan dan c^p tinh
Thir nhdt, can bd sung yeu cdu thdm djnh ddi vdi tdt ca cac du thao nghi quydt do cac chii thd cd thim quydn trinh HDND cap tinh.
Dieu nay cd nghia la ddi vdi cac du thao nghi quyet do eac co quan, td chiic khac ngoai UBND cdp tinh ft-inh HDND ciing cdn phai dupe Sd Tu phap thdm dinh trudc khi trinh HDND. Ngoai ra, dd nang cao chdt lupng thdm dinh du thao nghi quydt, nhdt la nhiing du thao nghi quydt cd cac tidu ehi lien quan sdu den ndi dung, phap luat cdn xem xet quy dinh thanh phan bdt bupe trong quy trinh thdm dinh la phai cd dai didn cua nhdm ddi tupng chiu su tdc dpng true tidp ciia nghi quyet vao hdi ddng thdm dinh.
Ddng thdi, nham han chd cae van dd can giai trinh hay nhiing mau thuan cd thd nay sinh giira ca quan chu tri soan thdo va co quan thdm dinh, phdp luat can quy dinh vd su tham gia true tiep cua can bp thdm dinb trong edng tac soan thdo van ban, tham gia
vao cac cudc hpp cua td soan thao/bien tap dd nam bat cac npi dung va cdc vdn dd trong qua trinh xdy dung du thao nghi quydt; cd the coi ddy la su chudn bi chu dpng, tieh cue cho vide tham dinh chinh thiic, tir dd cd thd gdp phan nit ngan dupc thdi gian thim dinh sau nay'".
Thu hai, vd npi dung tham dinh.
Cdn bd sung quy dinh hudng din vd cac tidu chi cu thd khi thim dinh du thao VBQPPL ndi ehung va nghi quydt ciia HDND cip tinh ndi rieng. Chdng han, khi thdm dinh vd tinh hpp hien cua du thao cdn xac dinh hai van dd ca ban sau: (i) ndi dung du thao khdng dupc trai vdi cac quy dinh eu thd cua Hien pbap lidn quan tdi ITnh vuc didu chinh cua du thao; (ii) ndi dung eua du thdo phai phu hpp vdi "tinh than" cua Hidn phap dupe the hidn trong cac quy pham cua Hien phap (chii khdng phai tinh thdn cua Hien phap mdt each chung ehung). Mac du day la mdt tidu chi rat khd nhimg co quan thdm djnh phai xac dinh dupe vdn dd nay; hoac khi thdm dinh vd tinh hpp phap, co quan tham dinh pbai xac dinh dupc mpt sd vdn dd nhu: (i) du thao van ban dupc ban hanh dung thdm quyen (gdm cd thdm quydn ve hinh thiic va tham quydn vd ndi dung); (ii) du thao phai tudn thii day du cac quy dinh cua phap ludt vd tbu tuc xay dung, ban hanh;
hoac tinh thdng nhat eiia du thdo dupe xac dinh dua h-en mdt sd tieu chi nbu: du thao van ban khdng mdu thuan, tning lap vdi eac van ban khac do chinh HDND da banjianh;
du thao van ban khdng dupc mdu thudn vdi van bdn do co quan nba nudc cdp tren ban hanh,... Ng9ai ra, phap ludt cin quy dinh rd pham vi thim dinh du thao nghi quydt cua HDND khdng chi bao gdm cae van dd nhu quy dinh cua phap ludt hidn hanh ma can phdi xem xet bd sung ndi dung thdm dinh
"tinh khd thi" cua du thdo nghi quydt.
Bo Tu phap va Du an phat trien l^p phap quflc gia (NLD), Bao cao khao sat danh gia thi hanh Luat Ban hanh VBQPPL cua HDND va UBND nSm 2004 va Luat Ban hanh VBQPPL nam 2008, tr. 79
Hien nay Nghi dinh sfl 34/2016/ND-CP ngay 14/5/2016 ciia Chinh phii quy dinh chi tigt mpt s6 digu va bien phap thi hanh Luat Ban hanh VBQPPL ta! khoan 4 Digu 49 chi quy dinh chung vg trach nhigm ciia So Tu phap tham gia vao cac hoat dpng ciia ca quan chii tri soan ihao trong qud nrinh soan thao.
S6l3(389)T7/2019 ^
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BAN V E D U A N L U A T
Thu ba, vd hd so vd thdi gian thdm dinh.
Dd dam bao chat lupng thdm dinh, cac ca quan chu tri soan thdo cdn phdi chudn bi bd sa ddy dii theo quy dinh ciia phap ludt, trong dd ngoai vide dam bdo chdt lupng cua du thdo to trinh, co quan chu tri soan thao nghi quyet cdn quan tdm den chat lupng ciia Bdn tdng hpp, giai trinh, tiep thu y kidn gdp y cua cac eo quan, td chiic, ca nhdn; nghien cuu bd sung vao hd so thdm dinh them mdt loai tai Hdu nira la "Ban thuydt minh chi tidt vd du thao nghi quydt va bdo cao ddnh gia tac ddng cua du thao nghi quydt". Ndu eac tai lieu nay dupe cung cdp day du se giup cho CO quan thdm dinh cd dupc cai nhin tdng quan hon ve du thao dd tu do cd the dua ra cac danh gia khdch quan, phu bpp.
Sira ddi Luat Ban hanh VBQPPL nam 2()15 theo hudng tang thdi gian thdm dinh ddi vdi nhirng du thao nghi quydt cd ndi dung phiic tap, pham vi dieu cbinh rdng, bat budc phai thanh lap hdi ddng tu vdn tham dinh len 30 ngdy dd dam bao co quan tham dinh CO du thdi gian cdn thidt tien hanh cdng tac thdm dinh dam bao chat lupng. Ddng thdi, can quy dinh thdng nhdt each tinh thdi ban la theo ngay lam viec hay theo ngay lich thdng thudng. Bdi le neu tinb theo ngay lich thdng thudng co the ddn tdi thdi gian thdm dinh cdn nit ngan ban. Vi du, co quan chu tri soan thdo giii du hd so tham dinh ddn Sd Tu phap vao ngdy 03/5/2019 (thu Sdu) thi cd nghTa la den ngay 12/5/2019 (ngay Chu nhdt), Sd Tu pbap phdi gui bao cao tham dinh ddn co quan ehu tri soan thdo. Nhu vdy, thuc td CO quan tham djnh chi cd 06 ngay lam vide (tinh cd ngdy nhdn du hd so) dd tidn hanh tham dinh. Do dd, chiing tdi kien nghi thdi ban trong luat se dupc tinh thdng nhdt theo ngay lam viec.
Thu tu, ve gia trj phap ly cua bdo cao thdm dinb. '
Theo quy dinh ciia phap Iuat hidn nay, CO quan chu tri soan thao budc phdi tidp thu y kidn cuaca quan thdm djnh. Tuy nhidn, pbap ludt cdn quy djnh cu thd gid tri phap ly cua bao cao thdm dinh d muc dp phii hpp.
Chung tdi cho rang, trong bdo cao thdm
dinb, ddi vdi nhiing y kidn tham dinh chung nhu danh gia vd tinh hpp hidn, hop phap, tinh thdng nhdt cua du thao nghi quyet trong he thdng phdp ludt... co quan chu tri so^n thao bit budc phdi tidp tbu nhung cdn ddi vdi nhirng vdn dd mang tinh chuyen mon thi CO quan soan thao vin cd the "bao luu ma khdng bit bude phdi chinh ly theo y kien thim dinh. Ddng thdi, dd ban che phan nao nhiing mau thudn cd tbd xay ra, kbi tidn hanh thim djnh, co quan thim djnh nen cbu ddng trao ddi y kidn vdi ca quan soan thdo trudc khi dua ra y kidn thdm dinh, tir do gidm bdt cac khuc mdc vd mdu thudn cd thd phat sinh.
Thu ndm. vh cac didu kidn dam bao cho edng tae thim djnh du thao nghi quyet.
Cdng tac thdm djnh giir vai trd quan trong trong quy trinh xay dung, ban hanb nghi quydt cua HDND cdp tinh ndi ridng va quy trinh xdy dung, ban hanb VBQPPL cua chinh quydn dia phuang ndi chung ndn cdn nang cao nang luc cho dpi ngu lam cdng tac quan trpng nay. Cu the, ngoai viec tang them
"bidn che", cin phai dupc chuydn nghiep boa hoat ddng tham dinh; nghien ciiu, xdy dimg chiic danh cho can bd lam cdng tac thdm dinh nhu "thdm djnh vidn" vdi cdc tidu chuan, didu kien cu the, thu tuc cdng nban/
bd nbiem... dd dam bao tinh chuyen nghiep, tinh ddc lap chju trach nhidm trong thdm dinh, ddng thdi de hp cd thd nhan dupc miic phu cap tuong xiing, tir dd khuyen khich su nhiet tinh ciia hp trong cdng vide.
Ngodi ra, de gdp phan nang cao chdt lupng tham dinh du thdo nghi quyet, cdn tang muc kinb phi danh cho cdng tdc xay dung, ban hanh VBQPPL, trong dd cd cdng tdc thdm dinh du thdo van ban dd cd the dap irng dupc nhiing "nhu eau cdn thief cho cdng tae nay. Muc chi cd the can cii vao tinh chdt cua timg loai van ban (muc dp dan gian - phiic tap, pham vi dnh hudng nhd hay Idn, nhu ciu thdnh lap bdi ddng tham djnh,...) vd didu kien kinh td - xa hdi d timg dia phuong (hoan toan tir ngan sach nha nudc hoac cd thd huy ddng them cac ngudn lyc xa hdi khac dd phuc vu cho cdng tac thdm dinh)B
