G I A M S A T C U A U Y B A N T l T P H A P
D O I V O I H O A T D O N G C U A C A C C O Q U A N T l T P H A P
1. Tham quyen va mot so van de ly luan ve tham quyen giam sat ciia Uy ban Tu* phap doi voi hoat dong ciia cac co' quan t u phap
Tham quyen giam sat cua Uy ban Tu phap (UBTP) cua Quoc hoi - du da dugc quy dinh trong Hien phap, Luat To chuc Quoc hoi, Luat Hoat dong giam sat cua Quoc hoi (Luat HDGSQH), Luat Phong chdng tham nhung. Quy che hoat dong ciia Hoi dong Dan toe, cac Uy ban cua Quoc hoi va cac van ban phap luat co lien quan, nhung khi thuc hien tham quyen nay trong mot so trudng hop va doi vai mot so doi tugng van con nhung quan diem va y kien khac nhau.
Theo chung toi, tham quyen giam sat ciia UBTP ve mat ly luan can lam ro tren mot so phuang dien sau day:
- Hoat dong giam sat ciia UBTP doi vdi hoat dong ciia cac ca quan tu phap (CQTP) la hoat dong do chinh UBTP thuc hien, khong the co uy quyen.
Doi vdi nhieu hoat dong khac trong xa hoi, giua cac chii the co the liy quyen cho nhau, liy quyen trong he thong cac ca quan hanh chinh nha nude, uy quyen giua cac chu the trong quan he dan su, kinh te...; ngudi dugc liy quyen thay mat ngudi liy quyen tien hanh cac hoat dong nhan danh ngudi uy quyen, nhung doi vai hoat dong giam sat ciia UBTP thi khong the co liy quyen. V i hoat dong giam sat ciia UBTP la viec thuc hien quyen luc nha nude dugc hien phap va phap luat ghi nhan; dugc cu the hoa thanh nhung nhiem vu, quyen han va trach nhiem ciia UBTP. Do do, UBTP la chii t h i duy nhat true tilp thuc hien tham quyen giam sat hoat dong ciia cac CQTP va chiu trach nhiem trudc
* TS., Uy vien thudng true Uy ban Tu phap.
Nguyen Binh Quyen Quoc hoi, Uy ban Thudng vu Quoc hoi
(UBTVQH) va nhan dan v l viec thuc hien tham quyen nay;
- Moi hoat dong giam sat ciia UBTP phai dugc tien hanh trong pham vi hoat dong va chiic nang ciia Quoc hoi; phai xuat phat tir vi tri, vai tro, chuc nang, nhiem vu, quyen han ciia UBTP do hien phap va phap luat quy dinh, va nham thuc hien cac chuc nang, nhiem vu, quyen han, vi tri va vai tro do, mgi hoat dgng giam sat ciia UBTP phai dugc tien hanh trong khuon kho cac nguyen tac hoat dong ciia Quoc hoi; phai dat viec thuc hien cac quy dinh ve tham quyen giam sat ciia UBTP trong khuon kho chuc nang, nhiem vu, quyen han ciia Quoc hoi, cac ca quan ciia Quoc hoi, tuyet doi khong co su lan san sang cac lmh vuc hoat dong khac ciia Nha nuac, nhat la linh vuc hanh phap va linh vuc tu phap;
- Moi hoat dong giam sat ciia UBTP phai xuat phat tir y chi, nguyen vgng ciia nhan dan, gan bo vdi nhan dan, phat huy sir tham gia ciia nhan dan va chiu su giam sat ciia nhan dan;
- Phai dat viec thuc hien cac quy djnh ve tham quyen giam sat ciia UBTP trong tong the cac quy dinh ve su phan cong, phoi hop thuc hien chuc nang, nhiem vu, quyen han ciia Quoc hoi, cac ca quan ciia Quoc hoi, tuyet doi tranh su triing lap, chong cheo hoac bo sot nhiem vu;
- Tham quyen giam sat ciia UBTP theo ban chat ciia ca quan dai dien phai dugc thuc hien mot each cong khai, minh bach, dan chii, khach quan va dat duai su phan cong, chi dao ciia Qudc hoi, UBTVQH.
Tham quyen giam sat ciia UBTP ddi vai hoat dong ciia cac CQTP dugc quy dinh trong nhieu van ban quy pham phap luat
(QPPL), nhung dugc quy dinh tap trung tai Dieu 27a Luat sua ddi, bo sung mot so dieu cua Luat T6 chuc Quoc hoi. Theo do, UBTP co nhiem vu va quyln han giam sat viec thuc hien luat, nghi quyet cua Qudc hoi; phap l?nh, nghi quyet cua UBTVQH ve hinh su, to tung hinh su, td tung dan su, to tung hanh chinh. thi hanh an (THA). bo tro tu phap, to chuc bo may cac CQTP; giam sat hoat dong cua Chinh phu, Toa an nhan dan tdi cao (TANDTC), Vien kiem sat nhan dan toi cao (VKSNDTC) trong viec dieu tra, truy to, xet xu, THA, bo trg tu phap.
Giam sat van ban QPPL cua Chinh phu, Thanh tra Chinh phu, Bg truang, Thu truang ca quan ngang Bo, TANDTC, VKSNDTC, van ban QPPL lien tich giua cac ca quan nha nuac co tham quyen d trung uong hoae giua cac ca quan nha nuac co tham quyen vdi ca quan trung uong cua to chuc chinh tri - xa hoi thuoc linh vuc Uy ban phu trach.
Giam sat viec phat hien va xu ly hanh vi tham nhung.
Cac tham quyen tren day dugc thuc hien qua cac phuang thuc hoat dong giam sat quy dinh tai Dieu 27 Luat HDGSQH va each thuc thuc hien tham quyen theo moi phuang thuc ciing duac quy dinh cu the tai cac dieu 29, 30, 31, 32^ 33 ciia Luat HDGSQH.
Tham quyen giam sat cua UBTP doi vdi hoat dong ciia CQTP dugc quy dinh toan dien tren cac phuang dien tir tham tra cac bao cao, giam sat van ban QPPL den giam sat hoat dong, giam sat viec thuc hien luat, nghi quyet, to chuc Doan giam sat xem xet, xac minh hoae yeu cau ca quan, to chuc huu quan, ngudi co tham quyen bao cao. Tuy nhien, tham quyen giam sat ciia UBTP ddi vdi hoat dong ciia cac CQTP trong linh vuc nao va pham vi tdi dau thi qua thuc tien thi hanh co nhung van de da dugc thdng nhat, nhung co nhung van de van con co y kiln, quan diem khac nhau.
Nghien cuu ve tham quyen giam sat ciia UBTP ddi vai hoat dong ciia cac CQTP d trung uang hay ca hoat dong ciia cac CQTP
d dia phuang la van de con tranh luan. Co y kien cho ring, UBTP chi giam sat hoat dong ciia TANDTC, VKSNDTC va ciia Chinh phu (trong cong tac dieu tra toi pham va THA), vi neu UBTP giam sat ca cac CQTP d dia phuang se d i n den sir chong cheo ve chirc nang giam sat ciia Uy ban vai chirc nang ciia cac ca quan dieu tra. chirc nang kiem sat hoat dong tu phap ciia vien kiem sat va chuc nang giam doc xet xu ciia toa an. Y kien khac lai cho rang, UBTP co tham quyen giam sat tat ca cac CQTP d trung uang va dia phuang vdi lap luan: hoat dong giam sat, dieu tra, kiem sat hoat dong tu phap va giam doc xet xir do cac chii the co tham quyen khac nhau, tien hanh vdi phuong thirc thuc hien va nhat la hau qua phap ly khac nhau, nen khong the co sir chong cheo giua cac hoat dong nay.
Tren thuc te hang nam. UBTP tham tra bao cao ve hoat dong ciia toan nganh toa an, nganh kiem sat va ciia Chinh phu trong cong tac phong chong toi pham va THA, chir khong chi tham tra hoat dong ciia cac CQTP d trung uang (TANDTC. VKSNDTC, ca quan dieu tra thuoc Bo Cong an, Tong cue Thi hanh an hinh su va ho trg tu phap - Bg Cong an, Tong cue Thi hanh an dan su - Bo Tu phap). Pham vi tham quyen giam sat ciia UBTP con bat ngudn tir pham vi tham quyen giam sat ciia Quoc hoi dugc quy dinh tai Dieu 83 ciia Hien phap, theo do, Quoc hgi thuc hien quyen ^iam sat doi vai toan bg hoat dgng ciia Nha rude.
Qua thuc tien hoat dong cho thay, neu khong co hoat dong giam sat viec chap hanh phap luat va viec giai quyet cac vu viec cu the cua cac CQTP d dia phuang thi khong co can cu thuc tien de giam sat hoat dpng ciia TANDTC, VKSNDTC va cac CQTP khac d trung uang, nhat la viec xem xet trach nhiem ciia ngudi dung dau CQTP trong viec lanh dao, quan ly dieu hanh ca quan nay thuc hien chirc nang, nhiem vu, quyen han do phap luat quy dinh. Theo cac chii truang ve cai each tu phap thi hoat dong tu phap (dieu
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tra, truy to. xet xu) cung nhu hoat (long THA va bo trg tu phap chii yeu do cac co quan a dia phuang thuc hien, cac CQTP a trung uang thuc hien nhiem vu tong ket kinh nghiem hoat dong. huong dan viec ap dung thong nhat phap luat, boi duang, tap huan nang cao nghiep vu hoat dong cho doi ngu can bo, cong chuc trong nganh. Do do, viec lam ro pham v i . tham quyen giam sat cua UBTP doi vai hoat dong ciia cac CQTP a dia phuang co y nghTa quan trong ca ve ly luan va thuc tien trong viec trien khai to chuc thuc hien cac quy dinh phap luat ve tham quyen giam sat cua UBTP.
Tham khao phap luat mot so nuac cho thay, giam sat ciia Quoc hoi, cac ca quan ciia Quoc hoi doi vai hoat dong ciia cac CQTP khong phai la dac thu rieng chi co 6* Viet Nam. Hien phap nam 2000 ciia Thuy ST cung xac dinh tham quyen giam sat cap cao ciia Quoc hoi, Uy ban ciia Quoc hoi doi vai Chinh phu, toa an va cac to chuc khac (Dieu
169). Quoc hoi Thuy Dien cung trao cho Thanh tra Quoc hoi giam sat hoat dong ciia toa an. Tuy nhien. viec xet xu ciia toa an la hoat dpng dac thu khong chiu su can thiep cua bat ky ca quan, to chuc. ca nhan nao, nen phap luat Thuy Dien nhan manh. khong mot ca quan cong quyen nao. ke ca Quoc hoi co the can thiep vao viec xet xu cac vu an cu the va hoat dong ap dung phap luat1.
2. Hoat dong giam sat ciia Uy ban T u phap doi voi hoat dong ciia cac co1 quan t u phap trong nhiem ky Qudc hoi khoa X I I
UBTP ciia Quoc hpi la mot Uy ban mai duac thanh lap dau nhiem ky Qudc hpi khoa XII vai muc tieu la tang cuang giam sat hoat dpng cua cac CQTP. giam sat viec phat hien va xu ly tham nhung. Uy ban da ke thua chuc nang nay tir Uy ban Phap luat nhilu khoa truoc va da to chirc thuc hien tham quyen giam sat hoat dpng ciia cac CQTP
Bengt Wieslander, "The Raliamentary Ombusmam in Sweden". The Bank of Sweden Tercenterary Foundation, p. 35.
mot each toan dien tren mpi mat cong tac, nhu hang nam t i l n hanh tham tra cac bao cao cong tac cua Chanh an TANDTC. Vien truang VKSNDTC va bao cao ciia Chinh phu ve tinh hinh vi pham va toi pham; cong tac dau tranh phong, chdng vi pham phap luat va toi pham, cong tac T H A ; to chuc nhieu doan giam sat de tien hanh giam sat viec chap hanh phap luat cac CQTP d trung uong va dia phuang; giam sat van ban QPPL ve ITnh vuc tu phap; giam sat viec giai quyet khieu nai, to cao ciia to chirc, cong dan;
giam sat viec giai quyet mot so vu an cu the, trong do lam ro viec chap hanh phap luat ciia cac ca quan trong qua trinh giai quyet; to chuc giam sat chuyen de va giup UBTVQH giam sat mot so chuyen de, ITnh vuc buc xuc dang dugc du luan xa hpi va nhan dan ca nuac quan tam.
a) Thdm tra cdc bdo cdo cong tdc Hang nam, truoc moi ky hop cuoi nam cua Quoc hpi, UBTP to chuc hop toan the Uy ban de tham tra cac Bao cao ciia Chanh an TANDTC ve cong tac ciia nganh toa an, Bao cao ciia Vien truang VKSNDTC ve cong tac ciia nganh kiem sat, Bao cao ciia Chinh phu ve tinh hinh vi pham phap luat, toi pham va cong tac dau tranh phong chong vi pham phap luat va toi pham, cong tac THA. cong tac phong chong tham nhung.
De chuan bi cho viec tham tra cac bao cao. UBTP to chirc cac Doan cong tac de giam sat, khao sat doi vai hoat dpng ciia mot so CQTP 6* trung uang va dia phuang, to chirc hop thudng true de nghe cac ca quan huu quan bao cao ve nhirng van de ma Uy ban quan tam hoae yeu cau cung cap tai lieu lien quan lam ca sd cho viec tham tra, xem xet, danh gia mot each chinh xac, khach quan k i t qua hoat dpng cua cac CQTP.
Viec tham tra cac bao cao dugc xem xet, danh gia toan dien tren cac mat cong tac nhu viec thuc hien nhiem vu chinh tri theo chuc nang, nhiem vu, quyen han do luat dinh; k i t qua dat dugc, nhung han chi. kho khan vudng mac va nguyen nhan; viec chap hanh
phap luat trong qua trinh thuc thi nhiem vu;
cong tac xay dung, kien toan, ciing cd, phat trien nganh; thuc hien cac chii truang. duang loi ve cai each tu phap, cac phuang huong va giai phap trong cac nam sau...
Viec xem xet, danh gia ciia UBTP ddi vai hoat dong ciia cac CQTP duac tien hanh mot each khach quan, dan chu, cong khai, minh bach theo dung quy dinh ciia phap luat, bao dam nguyen tac lam viec tap the va quyet dinh theo da so. Do do, bao cao tham tra ciia Uy ban la can cu quan trong de hang nam Quoc hoi. UBTVQH va cac dai bieu Quoc hoi (DBQH) thao luan cac bao cao, danh gia va ra nghi quyet ve ket qua, chat lugng hoat dpng, viec tuan thu phap luat cua cac CQTP.
Cong tac tham tra cac bao cao khong dan thuan chi la danh gia ve ket qua, chat lugng hoat dpng ciia cac CQTP ma dieu quan trong han. la thong qua hoat dpng giam sat nay de xem xet. khang dinh cac duang loi chu truang, chinh sach dugc quy dinh, the che hoa trong cac van ban phap luat co di vao cupc song va dem lai hieu qua thiet thuc khong; phat hien nhung quy dinh ciia phap luat qua thuc tien ap dung da bpc 16 nhung bat cap, chua phu hop de kip thai kien nghi, sua doi, bo sung hoan thien. Qua trinh tham tra ciia Uy ban cung la qua trinh xem xet trach nhiem ciia TANDTC, VKSNDTC, Chinh phii va nhung nguai dung dau cac ca quan nay trong viec lanh dao, chi dao, td chuc thuc hien chuc nang, nhiem vu dieu tra, truy to, xet xu va THA. Cac bao cao tham tra ciia UBTP ve ca ban deu dugc Quoc hpi, UBTVQH danh gia cao, dupe cac ca quan huu quan dong tinh, tiep thu, sua chua dk nang cao chit lugng hoat dong cua nganh.
Tuy nhien, cong tac tham tra cac bao cao ciia UBTP cung con nhung han che, kho khan nhdt dinh, theo do hang nam, hdu het bao cao ciia cac ca quan TANDTC, VKSNDTC va Chinh phu gui tai UBTP de thdm tra thuang bi mudn so vai thai gian do phap luat quy dinh, lam cho viec to chuc
thdm tra ciia Uy ban cap rap, bi dpng. Chinh phu thuang khong co bao cao ve hoat dpng dieu tra toi pham trong pham vi ca nuac. So lieu ve cac van de lam ca sa cho viec danh gia trong bao cao cua cac nganh thudng khong thong nhat, chinh xac va trong mot so trudng hgp con chenh nhau qua ldn. So thanh vien ciia Uy ban tham gia hop de tham tra cac bao cao thudng khong day ctu, co trudng hop vang tdi 1/3 tren tong so thanh vien Uy ban, gay kho khan cho viec xem xet, danh gia, bieu quyet.
Ve mat ca che, phap luat, cho den nay, Luat HDGSQH va cac van ban phap luat co lien quan chua quy dinh cu the npi dung bat bupc phai co cua cac bao cao ma tuy thupc vao nhan thuc chu quan ciia cac ca quan co trach nhiem bao cao, dan den trong mot so trudng hop bao cao chua dap ung dugc day du yeu cau trong viec phan anh ket qua hoat dpng cung nhu xem xet trach nhiem cua cac CQTP. Trong cac trudng hop nay, thudng sau cac phien hop tham tra hoae tham tra sa bp ciia Uy ban. cac ca quan huu quan lai tiep tuc bo sung, hoan thien them bao cao de trinh Quoc hpi, U B T V Q H nen cung gay kho khan cho UBTP trong viec chuan bi cac bao cao tham tra.
b) To chuc Doan gidm sat de true tiep gidm sat hoat dong ciia cdc ca quan tu phdp 6' trung irang vd dia phuong
De phuc vu cho viec tham tra cac bao cao hang nam. tien hanh giam sat cac chuyen de ve viec chap hanh phap luat trong cong tac THA hinh su, cong tac THA dan su, to chuc va hoat dpng bo trg tu phap. viec thuc hien nghi quyet cua Quoc hpi ve tang tham quyen xet xu ve hinh su va dan sir cho cac toa an nhan dan cap huyen, viec giam sat cac vu an cu the qua dan thu khieu nai. to cao gui tdi UBTP, tu dau nhiem ky Qudc hpi khoa X I I (thang 7/2007) cho den cudi nam 2010, UBTP da to chuc hang chuc Doan giam sat de tien hanh giam sat hoat dpng cua cac ca quan, to chuc huu quan d trung uang va dia phuang nhu: Bp Tu phap, Bp Cong
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an, Bo Quoc phong, TANDTC, VKSNDTC va Uy ban nhan dan, toa an nhan dan, vien kiem sat nhan dan, co quan dieu tra, ca quan THA, ca quan, to chuc bo trg tu phap tai cac tinh, thanh ph6 true thuoc trung uang nhu Ha Noi, TP. H6 Chi Minh, Die Lac, Gia Lai, Kon Turn, Lam Dong, Binh Duong, Ba Ria - Vung Tau, Da Nang. Quang Ngai, Binh Dinh, Nghe An, Ha Tinh, Thanh Hoa, Phu Yen, Khanh Hoa, Ben Tre, VTnh Long, Tra Vinh, Dong Nai, Tien Giang, Son La, Dien Bien, Lai Chau, Cao Bang, Thai Nguyen, Bac Giang, Can Tha, Kien Giang, Bac Lieu, Quang Ninh, Tuyen Quang, Phu Tho, Binh Thuan, Ca Mau, Quan khu Thu do, Quan khu 2, Quan khu 3, Quan khu 5, Quan chung Hai quan...
Co the noi, day la mot trong nhung phuong thuc giam sat chu yeu va quan trong cua Uy ban. Viec thanh lap Doan giam sat hoat dong cua cac CQTP dugc tien hanh tren ca so chuang trinh hoat dong giam sat hang nam cua Uy ban, theo yeu cau cua Quoc hoi, UBTVQH hoae de nghi ciia cac DBQH, cac Doan DBQH doi vai viec chap hanh phap luat hoae giai quyet mot so vu an cu the.
Doan giam sat thuang do Chii nhiem, Pho Chii nhiem UBTP lam Truang doan vai su tham gia cua cac Uy vien Thuang true Uy ban, cac DBQH la thanh vien kiem nhiem, cac Truang doan, Pho truang Doan DBQH tai cac dia phuang ma Doan tai giam sat.
Tuy theo tinh chat, ITnh vuc hoae van de giam sat ma trong Doan giam sat con co su tham gia cua dai dien cac ca quan, to chuc huu quan a trung uang nhu dai dien lanh dao cua TANDTC, VKSNDTC, Bo Cong an, Bp Quoc phong, Bo Tu phap...
Trong qua trinh tien hanh giam sat tai dia phuang, Doan giam sat ciia UBTP da phoi hop chat che vai cac Doan DBQH, Thuang true Hoi dong nhan dan, Uy ban nhan dan va cac ca quan, to chuc huu quan khac a dia phuang de thuc hien nhiem vu.
De bao dam chat lugng va hieu qua hoat dpng, duai su chi dao ciia Chu nhiem va
Thuang true UBTP, Doan giam sat da xay dung ke hoach, chuang trinh giam sat mot each cu the trong do neu ro muc dich, yeu cau, npi dung, chii de, thai gian, doi tupng giam sat va phuong thuc lam viec, trach nhiem ciia cac ca quan trong viec chuan bi va cung cap cho Doan cac bao cao, tai lieu co lien quan den viec giam sat. Ke hoach, chuang trinh nay thuang duac gui sam cho cac ca quan huu quan ma Doan tai giam sat de chuan bi cho hoat dong giam sat ciia Doan.
Nhin chung, viec to chuc thanh lap, tham quyen, trinh tu hoat dpng cua cac Doan giam sat trong thai gian qua dugc thuc hien nghiem ngat theo diing quy dinh ciia Luat HDGSQH; dugc chuan bi chu dao va nhan dugc su phoi hop chat che, tich cue ciia cac ca quan chiu su giam sat, nen chat lugng hieu qua giam sat ciia cac Doan ngay cang dugc nang cao.
Trong qua trinh giam sat, Doan giam sat da yeu cau cac ca quan, to chuc, dan vi chiu su giam sat cung cap cac thong tin, tai lieu co lien quan; nghe bao cao cua cac ca quan.
nguai co tham quyen: yeu cau cac ca quan.
to chiic, ca nhan bao cao vmang tinh chat dieu tran) ve nhung van de lien quan tai hoat dpng giam sat; tien hanh xem xet, doi thoai true tiep vai cac doi tugng tai dan vi, ca sa.
Khi ket thuc, hoan thanh chuang trinh, ke hoach giam sat, Doan co bao cao ve ket qua giam sat truac Uy ban, dong thai gui tai cac ca quan, to chuc chiu su giam sat. Viec to chuc Doan giam sat la dieu kien de UBTP co can cu thuc tien danh gia hieu luc, hieu qua, sir phu hop giua cac quy dinh ciia phap luat vai thuc tien; chat lugng hieu qua hoat dpng va trach nhiem ciia cac CQTP. Day cung la dieu kien d§ UBTP phat hien su bk cap, sa ha hoae con thieu trong cac quy dinh ciia phap luat lien quan den to chuc va hoat dong ciia cac CQTP de kien nghi cac bien phap hoan thien. Thong qua hoat dong giam sat ciia Doan cung gop phan de cac ca quan, dpi ngu can bp, cong chuc trong cac CQTP thdy ro han trach nhiem ciia minh trong viec thuc
hien chuc pang, nhiem vu dugc giao de lanh dao cac cap. cac nganh quan triet, chi dao, chan chinh. rut kinh nghiem, kien toan ve td chuc va tang cuang hoat dong theo dung quy dinh ciia phap luat.
Tuy nhien, phuang thuc to chuc Doan giam sat de tien hanh giam sat true tiep cac CQTP a trung uang va dia phuang trong thai gian qua cung gap nhung kho khan, vudng mac nhat dinh nhu: thai gian danh cho hoat dong ciia Doan giam sat thuang khong nhieu (moi tinh nhieu nhat chi co 02 ngay) nen thuang khong du thai gian can thiet de xem xet, thao luan, danh gia mot each toan dien, cu the tat ca cac noi dung lien quan den chu de giam sat; viec xem xet, doi thoai vai cac doi tugng chiu sir giam sat tai dan vi, ca sa cung han che, khong dugc nhieu. Viec to chuc Doan giam sat tai dia phuang phai tuan thu nguyen tac khong lam anh huong tai hoat dong binh thuang cua doi tuong chiu su giam sat, trong khi da so thanh vien UBTP la dai bieu kiem nhiem, lai cu tru, cong tac tai nhieu dia phuang nen viec khap ke hoach, thai gian cua Doan vai cac thanh vien Doan va nhat la ke hoach cong tac cua cac CQTP, ca quan huu quan a dia phuang la rat kho khan, thuang phai xu ly dieu chinh nhieu lan. Viec Uy ban to chuc thao luan bao cao ciia Doan de dua ra cac ket luan thuang thai gian khong nhieu va thanh vien Uy ban tham gia cuoc hop cung khong day du, gay kho khan cho viec thao luan va bieu quyet. Hoat dong giam sat ciia Doan chu yeu van duai hinh thuc nghe bao cao va hoi dap, thao luan (mang tinh chat dieu tran) giua Doan va cac ca quan, ca nhan chiu su giam sat nen viec kiem dinh tinh chinh xac, chuan muc ciia cac so lieu danh gia trong bao cao ciing con han che.
c) Gidm sat viec ban hdnh van ban QPPL cua TANDTC, VKSNDTC, Chinh phu ve llnh vuc tu phdp
Tir dau nhiem ky Quoc hoi khoa X I I tai nay, UBTP da quan triet va tang cuang cong tac giam sat van ban QPPL ciia cac ca quan
co tham quyen trong hoat dong tu phap a trung uang, nhat la doi vai cac van ban huong dan ap dung thong nhat phap luat ciia Hoi dong tham phan TANDTC, van ban huong dan chuyen mon nghiep vu ciia VKSNDTC.
Hoat dong giam sat van ban ciia Uy ban dugc thuc hien chii yeu thong qua cong tac giam sat viec chap hanh, nhat la viec ap dung phap luat ciia cac CQTP khi gap vuang mac trong thuc te nhu viec Hoi dong tham phan TANDTC ban hanh van ban huong dan viec x i i ly doi vai toi danh bac, Nghi dinh ciia Chinh phu quy dinh ve tam giam, tam giu...
Cong tac giam sat van ban QPPL ciia UBTP thuc hien trong thai gian qua chua dugc nhieu. Mot trong nhung nguyen nhan la do ca che, quy dinh ciia phap luat ve giam sat van ban chua ro, chua cu the, nhat la trach nhiem ciia cac ca quan co tham quyen ban hanh van ban trong viec gui van ban da ban hanh cho UBTP; trinh tu, thii tuc, quy trinh ciia viec giam sat...
Mot van de quan trgng can dugc lam ro trong giam sat van ban do la pham vi giam sat, theo do, hoat dong giam sat dugc tien hanh ca giai doan truac khi ban hanh va sau khi ban hanh van ban hay chi khi van ban QPPL da dugc ban hanh va co hieu lire. Luat To chirc Quoc hgi nam 1992 tra ve truac quy dinh cac Uy ban ciia Quoc hgi co tham quyen giam sat viec ban hanh van ban QPPL thuoc ITnh vuc Uy ban phu trach. Thuc te trien khai thuc hien, co y kien cho rang, quy dinh nhu vay co the dan den each hieu: chi giam sat truac khi ban hanh, con khi van ban da ban hanh roi thi khong giam sat nua. Luat To chuc Quoc hoi hien hanh quy dinh cac Uy ban co tham quyen giam sat van ban QPPL, tire la ca qua trinh ban hanh, noi dung van ban, ca viec cu the hoa va huong dan thuc hien. V i vay, theo chiing toi, UBTP co tham quyen giam sat van ban ngay ca trong qua trinh soan thao chuan bi nhu ve trinh tu, thii tuc ban hanh, nguyen tac bieu quyet co
NHA NlfdC VA PHAP LUAT SO 5/2011
tuan thu dung theo quy dinh cua Luat Ban hanh van ban QPPL khong; pham vi tham quyen ban hanh (nhat la tham quyen ve mat noi dung), chang han nhu van ban huong dan ap dung thong nhat phap luat nhung lai co cac quy pham co tinh chat giai thich (thuoc tham quyen cua UBTVQH) hoae viec huong dan vugt qua pham vi luat giao...; ve hinh thuc van ban (van ban cu the hoa va huong dan ap dung) lai dugc ban hanh duai hinh thuc cong van khong tuan thii hinh thuc do Luat Ban hanh van ban QPPL quy dinh.
Tham quyen giam sat van ban ciia UBTP la tham quyen tham muu, kien nghi, con viec xu ly van ban QPPL trai vai quy dinh cua hien phap, luat, phap lenh thuoc UBTVQH. Do do. de cong tac nay co hieu qua thi cung can co su chi dao sat sao va ho trg tu hoat dgng giam sat van ban ciia UBTVQH.
Viec phat hien cac van ban QPPL khong phu hgp hoae trai vai cac quy dinh ciia hien phap, luat, phap lenh, nghi quyet ciia Quoc hoi, UBTVQH co dac thu la phai thong qua qua trinh ap dung phap luat ciia cac CQTP.
Do do, can phai tang cuang giam sat viec chap hanh, ap dung phap luat cua cac ca quan nay lam ca sa cho viec giam sat van ban QPPL.
d) Gidm sat viec giai quyet khieu nai, to cdo; gidm sat viec giai quyet cdc vu dn cu the
Hoat dong giam sat viec giai quyet khieu nai. to cao trong ITnh vuc tu phap la mat cong tac quan trong dugc UBTP quan triet thuc hien toan dien tu dau nhiem ky Quoc hgi khoa X I I cho tai nay. Day la phuang thuc giam sat dugc quy dinh tai Dieu 27, Dieu 33 Luat HDGSQH. De trien khai nhiem vu nay, trong thai gian qua, UBTP da tien hanh viec tiep cong dan; tiep nhan, nghien cuu, xu ly khieu nai, to cao; yeu cau bao cao ve viec giai quyet khieu nai; lam viec vai cac ca quan huu quan ve cac khieu nai, to cao; giam sat, ra ket luan ve viec giai quyet khieu nai, to cao va kien nghi giai quyet.
Hoat dong giam sat viec giai quyet khieu nai, t6 cao la mot kenh quan trgng, vira gop phan bao dam thuc hien t6t quyen khieu nai, to cao cua cong dan, vua la phuong thuc de UBTP phat hien nhung han che trong hoat dong ciia cac CQTP de quyet dinh tien hanh giam sat chuyen d l , giam sat viec giai quyet cac vu an cu the khi co khieu nai gay gat, buc xuc, keo dai; giam sat van ban QPPL va nhat la co nhirng can cu xac dang de danh gia chat lugng va hieu qua hoat dong ciia cac CQTP khi tham tra bao cao cong tac hang nam.
Qua thuc te cho thay, vai viec tang cuang hoat dong giam sat viec giai quyet khieu nai, to cao ciia UBTP da co tac dung quan trgng thuc day cac CQTP nang cao trach nhiem trong viec xem xet, giai quyet cac khieu nai, to cao cua cong dan; nang cao chat lugng hoat dong va viec chap hanh phap luat trong cong tac dieu tra, truy to, kiem sat hoat dong tu phap, xet xu va THA, giup cho cac CQTP kip thai phat hien nhung sai sot, vi pham de xem xet, khang nghi khac phuc, gop phan xay dung, ciing co cac CQTP trong sach, vung manh de bao ve can can cong ly, bao dam an riliih, chinh tri, trat tu an toan ciia dat nuac.
Hoat dong giam sat viec giai quyet khieu nai, to cao ciia cong dan trong ITnh vuc tu phap con gop phan thiet thuc bao ve phap che trong viec thuc hien quyen tu phap a Viet Nam, bao ve quyen va lgi ich hgp phap ciia cong dan khi bi hanh vi trai phap luat trong hoat dong tu phap xam pham; kip thai phat hien de xir ly nghiem minh mot so can bo, cong chirc trong cac CQTP co pham chat dao due yeu kem, vi pham phap luat hoae tha hoa, bien chat, qua do de gop phan tang cuang viec xay dung va hoan thien Nha nuac phap quyen xa hoi chii nghTa a Viet Nam.
Nhan thue dugc y nghTa va t i m quan trong ciia cong tac giam sat viec giai quyet khieu nai, to cao nhu vay, nen ngay tir khi dugc thanh lap, Chii nhiem Uy ban da quan triet sau sac tai cac thanh vien Uy ban va can bg tham muu, phuc vu trong viec thuc
hien nhiem vu nay. Co the noi, day la mat cong tac dugc tang cuang va hoat dong co hieu qua nhdt so vai cac khoa Qu6c hoi truac day. Ngay tu dau nhiem ky, Thudng true UBTP da tich cue xay dung de ban hanh van ban ve quy trinh tiep nhan, nghien cuu, phan loai xu ly. theo doi, don ddc viec giai quyet cac khieu nai, td cao trong ITnh vuc tu phap.
Tir dau nhiem ky Quoc hoi khoa X I I tdi nay, bang nhieu kenh khac nhau, UBTP da tiep nhan tong so 15.175 don khieu nai, to cao cua cong dan, ca quan, to chuc gui tdi lien quan tai viec chap hanh va ap dung phap luat trong cong tac dieu tra, truy to, xet xu va THA, to giac toi pham va to cao hanh vi tham nhung ciia nhirng ngudi co chirc vu, quyen han. UBTP da phan loai, nghien cuu, xir ly. Qua xem xet, nghien cuu, Uy ban da co cong van chuyen dan thu va cac tai lieu kem theo den cac ca quan co tham quyen xem xet, giai quyet doi vdi 3.528 vu viec de giai quyet theo quy dinh ciia phap luat.
Ngoai ra, UBTP ciing nhan dugc hang chuc vu viec khieu nai gay gat, buc xuc, keo dai hoae nhirng vu viec do DBQH, Doan DBQH, Hoi dong nhan dan tinh, thanh pho true thuoc trung uang va cac ca quan khac co tham quyen chuyen den de nghi xem xet, giam sat. Doi vdi nhirng vu viec nay, UBTP da phan cong, to chuc nghien ciru ky de phat hien nhung sai sot, vi pham trong viec chap hanh va ap dung phap luat ciia cac CQTP lam ca sa cho viec giam sat mot so vu an cu the, theo do UBTP co cong van yeu cau TANDTC, VKSNDTC bao cao bang van ban qua trinh giai quyet vu viec; trudng hop can thiet, Uy ban co cong van de nghi rut hd so nghien ciru, giam sat va to chirc lam viec vdi cac ca quan co tham quyen d trung uang de lam ro trach nhiem va kien nghi, trao ddi thdng nhat giai phap xir ly theo dung quy dinh cua phap luat.
Co the thdy, cong tac giam sat viec giai quyet khieu nai, to cao trong ITnh vuc tu phap ciia UBTP da dat dugc nhung ket qua
quan trgng va ngay cang di vao ne nep. co hieu qua. Viec tiep nhan, xem xet, nghien cuu xu ly dan thu duac to chuc theo chieu sau mang tinh chuyen mon hoa, theo do, dan khieu nai, to cao duac giao cho cac nhdm cong tac chuyen trach theo tung ITnh vuc giam sat: giam sat boat dong dieu tra va phong chdng tham nhung; giam sat hoat dong thuc hanh quyen cong to va kiem sat hoat dong tu phap; giam sat hoat dong xet xir; giam sat hoat dong T H A va bo trg tu phap. Tren ca sd do phan cong mot nhom lam cong tac tong hop ve viec xir ly don thu khieu nai, to cao. Thudng true Uy ban thudng xuyen va dinh ky nghe bao cao de chi dao, kiem tra viec tiep cong dan; tiep nhan, phan loai vao so thu ly; tien hanh nghien ciru, xir ly va chuyen dan den ca quan co tham quyen giai quyet hoae quyet dinh giam sat viec giai quyet mot so vu an cu the; theo doi, don doc viec giai quyet ciia cac ca quan. Cho den nay, hau het cac vu viec ma UBTP phat hien co sai sot. vi pham trong qua trinh giai quyet dugc cac ca quan cd thdm quyen (TANDTC, VKSNDTC, Bg Cong an, Bo T u phap) chap thuan nghien ciru, tiep thu sira chua. Hang chuc vu an dugc xem xet khang nghi theo thii tuc giam doc tham qua de nghi xem xet ciia UBTP.
Ben canh nhirng ket qua dat dugc tir dau nhiem ky Quoc hgi khoa X I I tai nay, cong tac giam sat viec giai quyet dan thu ciia UBTP van con mot so han che, kho khan nhat dinh. do la van con tinh trang ton dgng dan thu, nhat la thai gian phuc vu cac ky hgp Quoc hgi; so vu viec dugc to chirc nghien cuu sau de tien hanh giam sat cu the con it; so trudng hgp xir ly con trung lap;
viec theo doi, don doc viec giai quyet thuc hien con chua thudng xuyen, chua sat sao...
Nguyen nhan cua tinh trang tren la so lugng dan thu gui tai UBTP ngay cang nhieu, cac nam sau deu tang so vai nam trudc. Trong khi do, ve nguyen tac, UBTP khong co chirc nang, tham quyen va di lien vdi no la to chirc, bo may tuang irng de giai
NHA NI/6C VA PHAP LUAT SO 512011
quyet cac vu viec cu the ma nguai dan khieu nai, to cao. Chuc nang chinh cua UBTP la tham muu hoach dinh chinh sach, giam sat gop phan bao dam tinh dung dan, tinh tuan thu phap luat trong hoat dong cua cac CQTP, ca quan THA, ca quan, to chuc bo trg tu phap. Nhan thuc ciia nguai dan ve chuc nang, tham quyen cua UBTP chua diing va cho rang, ca quan ciia Quoc hoi la ca quan co tham quyen cao nhat trong viec giai quyet nen bat ke khieu nai gi trong hoat dong tu phap cung dugc gui tai UBTP. To chuc bo may ciia Uy ban va bo phan giup viec chua tuang xung vai khoi luang va tinh chat cong viec, nhat la so lugng dan thu ma Uy ban nhan dugc.
Hoat dgng giam sat doi vai viec giai quyet vu an cu the con co quan diem khac nhau trong viec thuc hien tham quyen giam sat ciia Uy ban Phap luat truac day va UBTP hien nay. Su khac nhau ve quan diem cung phan anh, day la van de mai trong hoat dong cua Quoc hoi, cac ca quan cua Quoc hoi, lien quan tai ly luan ve cac nguyen tac ca ban ciia viec phan cong thuc hien quyen luc nha nuac.
Co y kien cho rang, viec UBTP giam sat viec giai quyet cac vu an cu the la lam thay chuc nang giam doc xet xu ciia TANDTC. Y kien khac cho rang, cac Uy ban ciia Quoc hoi la cac ca quan tham muu, hoach dinh chinh sach a tam vi mo nen viec di vao giai quyet, giam sat cac vu viec cu the la khong phu hop vai chirc nang, nhiem vu ciing nhu ca cau to chuc ciia cac ca quan nay, han nua, viec giam sat vu an phai di din k i t luan diing, sai thi kho tranh khoi viec danh gia cac chimg cir trong vu an, trong khi viec danh gia chimg cu lau nay thuoc chuc nang ciia ca quan tien hanh to tung, nhat la ciia ca quan xet xir. Ca biet co y k i l n cho la, viec giam sat vu an cu the ciia Uy ban giong nhu viec tham muu khang nghi giam doc tham ciia cac toa chuyen trach va ca quan huu quan thuoc TANDTC.
Tuy nhien, chimg toi cho rang, can phai tra lai cac ly luan ca ban trong viec phan dinh rach roi tinh chat cac hoat dong giam sat, k i l m sat, giam d6c xet xir, thanh tra, kiem tra v l mat chu t h i , pham vi tham quyen, phuang thuc thuc hien, trinh tu thii tuc va nhat la hau qua phap ly ciia cac hoat dong nay. Do do, theo quy dinh ciia Hien phap, Luat To chirc Qulc hoi, Luat HDGSQH thi UBTP hoan toan co tham quyen tien hanh giam sat doi vai viec giai quyet cac vu an cu the va hoat dong giam sat nay la het sue can thiet, gop phan bao ve quyen va lgi ich hgp phap ciia cong dan;
dong thai UBTP co duac nhirng can cu xac dang trong viec danh gia chat lugng hoat dong, nhat la viec tuan thii phap luat trong hoat dong ciia cac CQTP. Thuc te cho thay, UBTP khong lam thay cac ca quan huu quan trong viec sira chua nhirng sai sot, vi pham trong cac ban an, quyet dinh ciia toa an ma thong qua hoat dong giam sat, UBTP dua ra nhirng ket luan, kien nghi de cac ca quan co tham quyen xem xet, giai quyet.
4. M o t so kien nghi
Qua thuc tien hoat dong va nghien ciru cac van de lien quan tai to chirc va hoat dong ciia Quoc hoi, cac ca quan ciia Quoc hoi va hoat dong ciia cac CQTP, chimg toi xin neu mot so kien nghi gop phan nang cao han nua hieu qua giam sat ciia UBTP:
- Tiep tuc nghien cuu de hoan thien ca che, phap luat ve hoat dong giam sat ciia UBTP, theo do quy dinh cu the hon ve pham vi tham quyen giam sat, each thuc, trinh tir, thii tuc da tien hanh moi phuong thuc giam sat va nhat la trach nhiem ciia cac ca quan chiu su giam sat trong viec xem xet, thuc hien cac k i t luan, kien nghi giam sat cua Uy ban.
- D6i vai viec tham tra cac bao cao, phap luat can quy dinh cu the v l thai dilm tinh so lieu trong cac bao cao gui tai UBTP d l tham tra, cac noi dung ca ban can dugc bao cao, nguai co tham quyln d i n bao cao tai phien hgp tham tra, cac ngi dung ca ban
cua bao cao tham tra. Hang nam, Chinh phu can trinh Quoc hoi bao cao v l cong tac dieu tra toi pham.
- Doi voi hoat dong giam sat van ban QPPL, can quy dinh ro pham vi giam sat van ban, ke ca giai doan truoc khi ban hanh va sau khi ban hanh, da co hieu lire phap luat;
trach nhiem ciia cac ca quan khi ban hanh van ban phai gui tai UBTP de giam sat trong thai gian do luat dinh; quy dinh cu t h i ca che giam sat de x u ly khi ap dung phap luat ma y kien ciia cac ca quan co tham quyen khong thong nhat, qua khac nhau.
- Doi vai phuang thuc to chuc Doan giam sat, can ket hop to chuc Doan giam sat theo chuang trinh, ke hoach vai viec to chuc cac Doan giam sat dot xuat. Thanh phan Doan giam sat phai la nhirng thanh vien Uy ban co kinh nghiem va am hieu sau ve cac van de hoat dong tu phap de lam ro trach nhiem, pham chat dao due nghe nghiep, nang luc va hieu qua cong tac, viec chap hanh phap luat. Da dang hoa hinh thirc hoat dong ciia Doan, ket hop nghe bao cao, hoi dap mang tinh chat dieu tran vai viec d6i thoai true tiep vai cac doi tugng a ca sa, xem xet true tiep tai dan vi, ca sa. D6i tuang can doi thoai phai da dang, khong chi nhung nguai quan ly ma ca nhirng can bo true tiep thuc thi nhiem vu. B6 tri thai gian dai han cho hoat dong ciia moi Doan giam sat. De nghi UBTVQH b6 tri thai gian nghe bao cao de xem xet, xir ly cac k i t luan, k i l n nghi ciia UBTP thong qua viec td chirc Doan giam sat. Quy dinh ro han trach nhiem ciia ca quan chiu su giam sat thirc hien cac k i t luan, kien nghi ciia Uy ban thong qua phuang thirc giam sat to chuc Doan.
Hoat dong cua Doan giam sat phai tren ca sa va tuan thii chat che cac quy dinh ciia phap luat, bao dam khong anh huong toi hoat dong binh thuang ciia cac ca quan, to chirc chiu su giam sat. Ket luan ciia Doan can tap trung vao cac van de lam ro trach nhiem, viec tuan thii phap luat trong qua
trinh hoat dong ciia cac CQTP va hieu qua, hieu suat cong tac. Tranh ket luan chung chung, "di hoa vi quy" hoae khong thay het dugc kho khan, sir co gang ciia cac ca quan.
- Doi vai hoat dong giam sat viec giai quyet khieu nai, to cao, can tang cudng theo hudng xay dung tieu chi cu the ve viec phan loai, xir ly dan thu, tranh xir ly triing lap, loai bo cac don thu qua xem xet khong cd can cu, ddng thai tap trung vao cac vu viec ma qua dan thu va cac tai lieu kem theo, phat hien nhung sai sot, vi pham phap luat de to chuc xir ly kip thai.
- Tang cudng ket hgp giua hoat dong giam sat viec giai quyet khieu nai, to cao vai phuang thuc tham tra cac bao cao, to chirc Doan giam sat, giam sat van ban, yeu cau bao cao, cung cap thong tin mang tinh chat dieu tran, cir ngudi xac minh ve cac van de ma Uy ban quan tam de nang cao hieu qua va su ho trg lan nhau ciia moi phuang thirc giam sat.
Xay dung Website ve to chirc va hoat dong, chirc nang, nhiem vu, quyen han ciia UBTP de thong tin rong rai, tranh cac dan thu gui tai Uy ban nhung khong diing tham quyen xir ly.
- Cong tac giam sat cac vu an cu the ciing can dugc tang cudng han, nhat la ddi vdi cac vu an dugc du luan quan tam hoae do DBQH, Doan DBQH. cac Hgi ddng nhan dan tinh, thanh pho true thuoc trung uong kien nghi giam sat.
Co ca che chat che, ro trach nhiem trong viec don doc, theo doi viec thuc hien cac d l nghi, ket luan, kien nghi ciia Uy ban trong viec giai quyet dan thu.
Doi vai viec giam sat cac vu an cu the, can xay dung ca che phdi hgp chat che gitra UBTP va cac CQTP. D l nghi UBTVQH danh thai gian thao luan xem xet, quylt dinh ve ket qua giam sat ciia Uy ban v l cac vu an cu the lam can cu phap ly cho viec xir ly tiep theo.
