Dir T H A O L U A T TIEP CAN THONG TIN CUA VIET NAM:
PHAN TICH SO SANH V 6 I LUAT MAU CUA ARTICLE 19 VA LUAT CUA MOT SO NU'OC TREN THE GlOl
Nguyen Ddng Dung
; va Cong Giao**
1. Khai quat
Tiep can thong tin (access to information) dugc cong dong quoc te coi la cong cy khong the thieu trong cugc chien chong tham nhiing. To chftc Minh bach quoc te (Transparency International), trong Bao cao ve tinh hinh tham nhung tren toan cau (Global Corruption Report) nam 2003 da khang dinh, tiep can thong tin la "vu khi quan trgng nhat trong dau tranh chong tham nhiing"'. Mgt to chu'c quoc te hang dau khac trong ITnh vyc nay la Privacy International cung dua ra nhan dmh tuong ty . Ve van de nay, Cong ude cua Lien hgp quoc ve chong tham nhung yeu cau cac quoc gia thanh vien thyc thi cac bien phap de bao dam quyen cua cong chung dugc tiep can vdi thong tin, coi do nliu each thu'c quan trgng nham phong chong tham nhung (Dieu 10), dong thdi de ra nliieu yeu cau khac c6 lien quan, cy the la ve tinh minh bach va cdi md trong boat dgng ciia cac co quan cong quyen (cac Dieu 5,7,9,10,12,13).
Boi canh ke tren chinh la dgng lyc dan tdi phong trao rgng rai phap dien hda quyen tiep can thong tin tren the gidi. Tinh den thang 9/2009, da co 140 quoc gia tren khap
GS.TS., Truong bp mon Luat Hien phap - Hanh chinh, Khoa Luat, Dai hpc quoc gia Ha Npi.
"ThS., Bp mon Luat Hien phap - Hanh chinh, Khoa Luat, Dai hpc quoc gia Ha Npi.
' Transparency International, Global Corruption Report 2003: Special Focus: Access lo Information, London: Profile Books, tr.6.
" Privacy International, Freedom of Information Around the World 2006: A Global Sun'ey of Access lo Government Information Laws, tr.7 (xem tai htt£-//www.privacvinternational.org/foi/survey')
cac chau luc ban hanh Luat Tiep can thong tin^ 6 Viet Nam, Chien luge quoc gia phong, chong tham nhung den nam 2020 (ban hanh kem theo Nghi quyet so 21/NQ- CP ngay 12/5/2009 cua CMnh phu da xac dinh mgt trong cac giai phap cu the de phdng, chong tham nhung trong giai doan tdi la: "... xdy dung vd ban hdnh Ludt ve tiep can thdng tin... " (myc III, 1(d)). Xuat phat tu yeu cau thyc te va dya tren Chien luge nay, hien nay Bg Tu phap dang chu tri, phoi hgp vdi mgt so co quan, to chuc khac xay dyng Luat Tiep can thong tin dau tien cua nudc ta.
Dugc tien hanh khi van de da dugc phap dien boa kha toan dien va cy the trong phap Mat quoc te va phap Mat cua nhieu quoc gia, qua trinh xay dyng Luat Tiep can thong tin d nudc ta rat can nghien cim, tham chieu cac tieu chuan, hudng dan quoc te ciing nhu vdi Luat Tiep can thong tin ciia cac nudc. Ve vin dl nay, t l chuc Dilu 19 (ARTICLE 19) - mgt CO quan tu van quoc te dugc thua nhan va tin nhiem ve cac van de phap ly cua quyen tiep can thong tin - da xuat ban mgt dao Mat mau ve Luat ty do thong tin {Model Freedom of Information Law, sau day ggi tat la Luat mauj nham ho trg cac quoc gia trong viec xay dyng cac Mat ve ITnh vyc nay'*.
Luat mau hien la mgt trong nhung van kien
Privacy International (2009), Global Freedom of Information Map, (xem tai http://www.privacvinternational.org/index.shtml).
"' Xem ARTICLE 19, A Model Freedom of Information Law, London, July 2001 (tai http://www.articleI9.org).
NHA NUdc vA PHAP LUAT SO 2/2011
chinh de phan tich so sanh vdi Luat Tiep can thong tin cua cac quoc gia.
Bai viet nay phan tich so sanh mgt so ngi dung co ban ciia dy thao Luat Tiep can thong tin ciia Viet Nam (sau day viet tat la Dy thao)'"' so \'di Luat mau va Luat Tiep can thong tin cua mgt so quoc gia tren the gidi^, tu d6 dua ra mgt so de xuat cu the nham hoan thien dy thao dao Mat quan trgng nay ciia Viet Nam. Cu the, c6 9 che dinh/quy dinh quan trgng dugc phan tich so sanh, bao gom: (i) Doi tirgng dieu chinh, (ii) Pham vi thong tin phai cong khai, (iii) Pham vi thong tin khong dugc cung cap, (iv) Thdi han dap ung yeu cau cung cap thong tin, (v) Le phi yeu cau cung cap thong tin, (vi) Co che to chirc thyc hien, (vii) Co che khieu nai, khieu kien. (viii) Che tai vdi nhung vi pham, va (ix) Bao ve ngudi tiet 16 thong tin.
2. Ve doi tuong dieu chinh
Dy thao liet ke cac chii the chinh co trach nhiem cung cap thong tin (tuc doi tirgng dieu chinh cua Luat) bao gom cac co quan dan cft, cac co quan chinh phii tu trung uang den dia phuong, cac toa an, vien kiem sat, CO quan kiem toan cac cap (Dieu 4(1), cac to chirc sy nghiep dich vu cong va doanh nghiep nha nirac (Dieu 31) (se do Chinh phii qu\- djnh cu the). Nhu vay, so vdi khuon kho phap luat hien hanh cua nudc ta ve quyen tiep can thong tin, Dy thao da md rgng doi tirgng dieu chinh sang ca cac chii the tu nhan ma thyc hien cac dich vu con?.
^ Trong bai viet nay. chiing toi sir dung Du thao iln thir bon, duoc ca quan chu tri soan thao trinh Chinh phu vao thang 7/2009.
Bao gom Luat Tiep can thong tin ciia cac nuac:
Nhat Ban, Me-hi-c6, Pa-kis-tan, Nam Phi, Thuy Dien, Thai Lan, Vuong quIc Anh, Hoa Ky, An Dp, Na-Uy, Lien bang Nga. Pe-ru. Phin Lan, Phap, Thi NhT Ky, O.xtraylia. An-ba-ni. Ba Lan, Bun-ga-ri, Canada, Dan Mach, Ha Lan, Han QuIc. Xem trong UNESCO.
hreedom of Information: A Comparative Legal Survey, sdd. va Vien Nghien cuu quyen con nguoi.
Cdc van kien quoc le vd ludi cua mot so nuac ve liep can thong lin. Nxb. Cong an nhan dan, Ha Noi, 2007.
Theo Luat mau, dii tugng dieu chinh bao gom ca cac ca quan nha nuac va chii the tu^nhan (cac Muc 1(e) va 6). Muc 6(3) Luat mau dinh nghTa td chicc lu nhdn la bat cu to chftc nao, ngoai tru mgt co quan nha nudc, ma: (a) Thyc hien cac boat dgng thuang mai, kinh doanh hoac nghi nghiep trong kha nang cua to chftc do; hoac (b) Co nang lyc phap Mat. 0 day, c6 thi thiy ring khai niem td chicc lu nhdn trong Luat mau phan nao co ngi ham rgng ban so vdi khai niem id chicc su nghiep dich vu cdng trong Dy thao ciia Viet Nam.
Luat Tiep can thong tin ciia cac nudc tren the gidi deu xac dinh cac co quan nha nudc la doi tugng dieu chinh chinh nhung khong phai tat ca deu md rgng den cac chii the tu nhan. Tuy nhien, Luat ciia phan ldn cac nudc deu md rgng den nhung chu the tu nhdn thuc ihi cdc dich vu cdng nhu quy dinh trong Dy thao cua Viet Nam. Dieu nay cho thay quy dinh ve doi tugng dieu chinh trong dy thao Luat ciia Viet Nam ve co ban la phii hgp vdi thyc tien quoc te.
Tuy nhien, trong van de nay cdn mgt so khia canh can chu y, cu the nhu sau:
Thic nhdi, khai niem va pham vi cdc Id chicc SIC nghiep dich vu cdng (ma se do Chinh phu quy dinh) rat can dugc lam ro.
Tren co sd Ngu)-en tac 1 cua Cdc nguyen ldc ciia Ludt Tu do thdng lin ciia ARTICLE 19 ve md rgng toi da viec cong khai thong tin, khai niem nay can bao triim tat ca cac the nhan, phap nhan tu nhan cung cap dich vu cong thay mat cho cac co quan, vien chftc nha nudc.
Thic hai, ciing tren co sd Nguyen tic 1 ke tren, Nghi dinh cua Chinh phii hudng dan thi hanh quy dinh nay ciia Luat can ma rgng din nhiMg chu the tu nhan nam gift nhimg thong tin nhay cam vai sue khoe ciia cong ding, vdi
' Xem: ARTICLE 19, The Public's Right to Know:
Principles on Freedom of Information Legislation, London, June 1999 (tai hnp://wvv\v.articlel9 nro)
DUTHAO LUAT TIEP CAN
moi trudng va vai cugc chiln ching tham nhung (cu the nhu cac ngan hang).
Thu ha, xet ve each thuc lap phap, trong khi Dilu 4(1) Dy thao Luat cua Viet Nam diing phuang phap liet ke ten cac chu the la doi tugng dieu chinh, thi myc 6 Luat mau va Luat cua mgt so quIc gia khac khong sft dung phuang phap liet ke, thay vao do xac dinh cac thugc tinh cau thanh cua mgt co quan nha nudc. Cu the, theo Muc 6(1) Luat mau, CO quan nha nudc la bat cu co quan nao ma: (a) Dugc thanh lap bdi hoac theo quy dinh ciia Hien phap; (b) Dugc thanh lap bang mgt dao Mat; (c) La mgt bg phan d bat cft cap nao cua Chinh phii; (d) Dugc sd hiru.
dilu khiln hoac tai trg chu yeu bdi cac quy cua Chinh phu hoac Nha nudc; hoac e) Thyc hien chftc nang nha nudc hoac do phap Mat quy dinh. Cach quy dinh nay td ra thich hgp ban so vdi each liet ke trong Dy thao Luat cua Viet Nam, bdi tranh dugc viec phai sua doi, bo sung Luat moi khi cd sy thay doi ve cau true bg may cac ca quan nha nudc.
3. Ve pham vi thong tin phai cong khai
Dieu 9 Dy thao liet ke nhung dang thong tin phai dugc cong khai rgng rai. Van de pham vi thong tin phai cong khai dugc neu d Muc 17 cua Luat mau. Quy dinh cy the trong hai van ban nhu sau:
Pham vi thong tin phai cong khai
Dieu 9(1) Du thdo Ludt cua Viet Nam a) Van ban quy pham phap Mat; van ban hanh chinh co gia tri ap dung chung; b) Dieu irdc quoc te, thoa thuan quoc te ma Viet Nam la thanh vien; c) Dy thao van ban quy pham phap luat theo quy dinh ciia phap luat ve ban hanh van ban quy pham phap luat; d) Chuc nang, nhiem vy, quyen ban, co cau to chuc, so do to chirc ciia co quan va don vi trye thugc;
thil tuc hanh chinh va quy trinh giai quyet cong viec ciia co quan; ngi quy, quy che do ca quan ban hanh; dia chi, so dien thoai, so fax, dia chi thu dien tu ciia ca quan nam gift thong tin de lien he yeu cau cung cap thong tin; d) Chuang trinh, ke hoach cong tac hang nam ciia co quan; e) Bao cao tai chinh nam; ket luan ciia to chirc kiem toan va bao cao ket qua thyc hien ket luan kiem toan (neu c6); thong tin ve phan bo, sft dyng ngan saeh, tai san cua Nha nudc cho cac dy an, chuang trinh myc tieu da dugc CO quan nha nudc c6 tham quyen phe duyet;
thong tin ve phan bo von dau tu, dy toan ngan sach, quyet toan von dau tu hang nam va khi hoan thanh ciia dy an dau tu xay dyng co ban CO su dung von tir ngan sach nha nudc; thong tin ve phan bo, quan ly, sir diing nguon von ho trg phat trien chinh thuc va nguon vien trg phi chinh phii theo quy dinh; g) Thong tin ve quan
Muc 17 Ludi mdu
(a) Mo ta CO cau to chftc, chftc nang, nhiem vy va ngan sach boat dgng; (b) Cac thong tin chi tiet lien quan den cac dich vy CO quan d6 cung cap cho cong dan; (c) Cac yeu cau trye tiep hoac co che khieu kien cong dan c6 the thyc hien lien quan den nhung viec ca quan do da thyc hien hoac chua thyc hien, ciing vdi ban tom tat cac yeu cau, khieu kien hoac cac boat dgng khac do cong dan trye tiep thyc hien va tinh hinh giai quyet cac yeu cau, khieu kien d6; (d) Ban huang dan don gian gom cac thong tin day du ve he thong luu gift ho so, cac loai thong tin dugc Mu giu va cac hinh thuc luu gift thong tin, cac loai thong tin co quan cung cap va quy trinh thil tyc thyc hien mgt yeu cau cung cap thong tin; (e) Ban mo ta tham quyen va trach nhiem ciia cac nhan vien chu chot trong CO quan, va quy trinh thyc hien viec ra quyet dinh cua co quan do; (f) Cac quy dinh, chinh sach, luat le, hudng dan hoac cam nang lien quan den viec thyc hien cac chuc nang ciia ca quan; (g) Ngi dung ciia tat ca cac quyet dinh va/hoac chinh sach CO quan do thong qua c6 anh hudng tdi cong chiing cung nhu ly do thong qua cac
NHA NUdc vA PHAP LUAT SO 2/2011
ly, su dyng cac khoan cim trg, trg cap xa hgi;
quan ly, sft dyng cac khoan ddng gdp cfta nhan dan, cac loai quy; h) Chien luge, chinh sach, ke hoach, quy hoach phat trien kinh te - xa hgi ciia quoc gia, dia phuang, nganh; i) Thdng tin thing ke ve kinh te - xa hgi cua quoc gia, dia phuang, nganh; k) Quy hoach, ke hoach sft dyng, thu hii dat, giai phdng mat bang; 1) Thong tin ve san pham, hang hoa, dich vu cd tac dgng tieu cyc den sftc khoe, moi trudng;
kit Man thanh tra, kiem tra, giam sat viec bao ve moi trudng, sue khde cong dong, an toan thyc pham, an toan lao dgng; m) Danh myc thong tin phai cong khai rgng rai theo quy dinh tai diem d khoan 1 Dieu 26 cua Luat nay; n) Thong tin khac phai dugc cong khai theo quy dinh ciia phap luat hoac do co quan xet thay can thiet.
quyet dinh/cMnh sach do, can cft giai thich cac quylt dinh/chinh sach dd, va cac thdng tin quan trgng cin thilt; va (h) Co che hoac thu tyc dl cong dan c6 the phan khang hoac tac dgng din viec hoach dinh chinh sach hoac thyc hien tham quyen cua CO quan do.
Quy djnh trong Luat ciia cac quoc gia tren the giai co sy khac nhau nhat dinh, tuy rihien, nhin chung xac dinh pham vi thong" tin phai cong khai bao gom tdt cd nhicng thdng tin chinh thicc hodc khdng chinh thuc ciia co quan cong quyen (dieu nay phu hgp vdi Nguyen tac 1 cua ARTICLE 19 da neu d tren). Mgt so nudc con quy dinh pham vi nay bao gom tat ca cac thong tin duac biet den, tuc la bao gom nhiMg thong tin bang ldi noi trong cac cugc hgp hay cac buoi lam viec quan trgng cua ca quan nha nudc neu nhu nhiing thong tin nay khong thugc bi mat quoc gia, bi mat ddi tu hay bi mat thuang mai.
Nhu vay, trong van de nay, so bg so sanh cho thay, Dy thao Luat cua Viet Nam da tuong doi phii hgp vdi thyc tien quoc te, tuy nliien van con mgt so bat cap can nghien cim hoan thien, cu the d nhiMg khia canh sau:
Thu nhdi, Dy thao (hoac Nghi dinh hudng dan thi hanh Luat) can c6 quy dinh cu the ve tinh chat (chinh thuc va khong chinh thuc) va thdi gian luu tru cua thong tin thugc pham vi phai cong khai. Dieu nay de dam bao rang viec cong khai thong tin se dugc thirc thi mgt each diing dan, hieu qua tren
thyc te, dong thdi de phii hgp vdi nguyen tac cdng khai tdi da thong tin theo ARTICLE 19.
Thu hai, mac du Dieu 9(1) Du thao kha toan dien song van nen bo sung hoac sfta doi de bao ham nhung quy dinh giong nhu d cac diem (b,c,d,f,g,h) Myc 17 cfta Luat mau (neu d bang tren), bdi day la nhiMg quy dinh rat cy the, thiet thyc cho viec tiep can thong tin.
Thic ba, trong trudng hgp thyc te chua cho phep md rgng pham vi thong tin phai cong khai den tat ca cac thong tin dugc biet den nhu de cap d tren, thi cd the dua quy dinh nay vao khoan 2 Dieu 9, nham khuyen khich cac co quan luu gift va cdng khai nhiMg thong tin bang ldi noi trong cac cugc hgp hay cac buoi lam viec quan trgng cua don vi.
4. Ve pham vi thong tin khong dirffc cung cap
Theo Dieu 2(2) Dy thao Luat cua Viet Nam, cac ca quan cdng quyen dugc tft chii hoac CO the tft choi cung cap mgt s i loai thong tin trong mgt sd hoan canh. Luat mau cua ARTICLE 19 cung dl cap din nhiMg ngoai le ma cd the tft choi cung cap thdng tin
DU THAO LUAT TIEP CAN
(Phan IV). Quy dinh cu thi ve vin dl nay trong hai van ban nhu sau:
Ngoai le dan den khong cung cap thong tin
Dieu 2(2) Du thdo Ludt ciia Viet Nam Phdn IV Ludt mdu (i) Thong tin thugc bi mat nha nudc
(bao gIm nhung thong tin mat nhan dugc tft cae co quan, t l chuc nudc ngoai); (ii) Thong tin thugc bi mat ddi tu, bi mat kinh doanh hay dugc bao hg theo phap Mat ve hiM tri tue; (iii) Thong tin da dugc cung cap hai lin cho chinh ngudi yeu cau; thong tin dugc yeu cau vdi so lugng qua ldn, vugt qua kha nang dap img cua ca quan, lam anh hudng den boat dgng binh thudng cfta co quan nha nude; (iv) Thong tin dang dugc dang tren trang thong tin dien tu cua ca quan dugc yeu cau (trft cac doi tugng yeu cau thugc dja ban mien nui, vung sau, vftng xa, hai dao). Trong trudng hgp nay, co quan dugc yeu cau c6 trach nhiem hudng dan ngudi yeu cau ve dia chi, nguon cd the tiep can thong tin; (v) Ca quan khong c6 thong tin theo yeu cau; (vi) Thong tin da dugc chuyen sang co quan luu tru;
thong tin trong qua trinh thanh tra, kiem toan; thdng tin lien quan den vy viec dang trong qua trinh xu ly cua co quan tien hanh to tyng; (vii) Thong tin ma viec cung cap se anh hudng xau den chinh sach tai chinh, tien te va lgi Ich kirM te quoc gia, an ninh qudc gia, moi quan he vdi cae quoc gia khac hoac td chftc qudc te; (viii) Thong tin ma viec cung cap cd the gay nguy hiem cho tinh mang, sue khoe hoac su an toan cfta ca nhan hoac cong dong; anh hudng tieu cue tdi trat ty an toan xa hgi, viec phdng, chong tgi pham; (ix) Thong tin ve cac cugc hgp ngi
(1) Neu viec cung cap thong tin gay thiet hai cho lgi ich cong va thiet hai do ldn hon lgi fch thu dugc tu viec cong khai thong tin (Myc 22); (2) Thong tin lien quan den mgt ben thu ba va viec tiet 16 co the lam ton hai den ddi tu cua hg^ (Myc 25); (3) Thong tin trong qua trinh to tung ma theo phap Mat can dugc bao mat, trft khi ngudi cd quyen dugc bao mat thdng tin tu choi quyen nay (Muc 26); (4) Thong tin chua bi mat dan su hay bi mat thuang mai ma viec cong bd cd the lam ton hai lgi Ich cfta ben thu ba (myc 27, a,b); (5) Thong tin nhan dugc d dang mat tu mgt quoc gia khac hoac mgt td chftc qudc te, va viec cong bo thong tin do se, hoac cd the se, gay phuang hai nghiem trgng den mdi quan he vdi quoc gia hoac to chftc quoc te do (Myc 27, c); (6) Thong tin ma viec cong bo gay nguy hiem, hoac cd the gay nguy Mem cho ti'nh mang, sftc khoe hoac an toan cfta ca nhan (Myc 28); (7) Thong tin ve thyc thi phap Mat, ma viec cong bo gay ra, hoac cd the gay ra ton hai nghiem trgng den: Viec ngan ngfta hoac phat hien tgi pham;
viec bat va truy td tgi pham; quan ly tu phap;
danh thue va thu thue; boat dgng cua cac co quan kiem soat nhap cu; viec co quan nha nudc quyet dinh thyc hien truy td hinh sy hay dan sy, hoac tinh hgp ly cua hanh vi quan ly can eft theo cac quy dmh cua phap Mat (Myc 29); (8) Thong tin ma viec cong bo se gay ra, hoac cd the gay ra tdn hai nghiem trgng den qudc phdng va an ninh qude gia (muc 30); (9) Thong tin ma viec cdng bo se gay ra, hoac co the gay ra ton hai nghiem trgng den kha nang ciia Chinh phu trong viec dieu hanh kinh te cua
Tuy nhien, ngoai le nay khong ap dung trong cac truang hgp ben thu- ba thuc sir dong y vol viec cong bo thong tin; nguoi yeu elu cung d p thong tin la nguoi giam hp ciia ben thii- ba, hoac la hp hang rupt thit hoac la nguai thi hanh di chiic ciia ben thii- ba da chet; ben thir ba da chet hon 20 nam; hoac nguoi yeu cau cung cap thong tin la hoSc tiing la cong chirc ciia mpt ca quan nha nuac va thong tin do lien quan den chirc trach cong chirc nha nuac ciia anh/chi ta.
NHA NUOC VA PHAP LUAT SO 2/2011
bg ciia ca quan; cac tai lieu do co quan \ quoc gia hay se gay ra, hoac cd the gay ra ton nha nudc soan thao cho cong viec ngi bg. - hai nghiem trgng din lgi ich thuang mai hoac ) tai chfnh hgp phap ciia mgt co quan nha nudc
! (Muc 31); (10) Thong tin ma viec cong b l se, hoac c6 thi se: Gay tin hai nghiem trgng den hieu qua hoach djnh hoac thyc hien chfnh sach ciia Chfnh phu; gay anh hudng nang ne tdi thanh cong ciia chinh sach nlu chinh sach do bi tiet Ig sdm; buy hoai nghiem trgng qua trinh thao Man trong co quan nha nudc bang viec ngan cam dua ra nhung ldi tu van hoac trao doi kinh nghiem ty do va thing thin; hoac gay anh hudng nghiem trgng din hieu qua quy trinh kiem tra hoac kiem toan do co quan nha nudc thyc hien'° (Muc 32).
• Ben canh do, Luat mau ciing quy dinh, nhirng ngoai le neu d cac Myc tu 26-31 trong bang tren chi dugc ap dyng neu nhung thiet hai dugc neu se, hoac co the se xay ra tai hoac sau thdi diem xem xet yeu cau cung cap thong tin; con nhung ngoai le quy dinh d cac Muc 27(c), 29, 30 va 31 se khong dugc ap dung vdi nhimg ho so da dugc luu gift ban 30 nam.
Luat Tiep can thong tin ciia nhieu nudc tren the gidi ciing c6 nhung ngoai le tuong ty nhu quy dinh trong Luat mau, tuy ve mirc do va pham vi co khac nhau. Nhin chung, nhung yeu to mang tinh pho bien de xac dinh ngoai le trong Luat Tilp can thong tin ciia cac nudc bao gom: (i) Bao ve an ninh quoc gia, (ii) Gift gin quan he quIc tl, (iii) Bao ve ddi tu cua ca nhan c6 lien quan, (iv) Bao ve bf mat thuang mai, (v) Bao dam qua trinh thi hanh phap luat va trat ty cong cong, (vi) Thong tin nhan dugc dudi dang mat, (vii) Thong tin trong nhung cugc thao luan ngi bg. De tranh viec lam dung nhung ngoai le, Luat Tiep can thong tin ciia nhilu nudc tren the gidi ciing yeu cau phai neu va chimg minh nhung thiet hai vdi cac ngoai le, ddng
thdi gidi ban ve mat thdi gian ap dyng mgt so ngoai le.
Tu nhung phan tfch tren, cd the thay trong van de nay, Dy thao Luat ciia Viet Nam da kha tuong thich vdi thyc tien quoc te. Tuy nhien, so vdi Luat mau va phap luat cua mgt so nude tren the gidi, Dy thao con thieu hoac chua tuong thich d mgt so khia canh nhu sau:
Thic nhdi, Du thao cdn thieu quy dinh ve gidi ban thdi gian bao mat thong tin. Mac dii thdi ban bao mat da dugc quy dinh trong phap Mat ve bi mat nha nudc, tuy nhien, de thuan lgi cho viec ap dung Luat Tiep can thdng tin, can neu thdi ban bao mat trong Luat hoac ghi ro la thong tin dd chi dugc bao mat trong thdi ban quy dinh tai phap luat ve bi mat nha nudc.
Thic hai, Dy thao can quy dinh trach nhiem ciia co quan dugc yeu cau cung cap
' Tuy nhien, ngoai le nay khong ap dung vai nhirng yeu ciu cung elp thong tin lien quan din kit qua thir nghiem san pham hoac moi truong va thong tin lien quan den cac phat hien ve an toan cong cpng hoac hiem hpa moi truong.
'° Tuy nhien, ngoai le nay khong ap dung voi nhirng si lieu, phan tich so lieu, cac so lieu ky thuat va thong tin thong ke.
DUTHAO LU.AT TIEP CAN ...
thong tin ma khong co thong tin theo yeu cau phai chuyen yeu cau den co quan, to chuc, dan vi co lien quan va thong bao cho ngudi yeu cau bilt vl viec d6. Dieu nay dugc quy dinh trong Myc 13 ciia Luat mau, dong thdi dugc de cap rit cu thi trong Luat Tiep can thong tin ciia nhilu nuac.
Thu ha, Dy thao can quy dinh ro nhirng trudng hgp khong ap dyng ngoai le lien quan den thong tin ve ddi tu cua ben thu ba. Day la quy dinh dugc neu d Myc 25 ciia Luat mau va trong Luat thong tin cua mgt so nudc tren the gidi nham bao dam Nguyen tac 1 ve cong khai thong tin toi da ciia ARTICLE 19.
Thic lu, vdi nhung tai lieu ngi bg va thong tin trong cac cugc hgp ngi bg, mac dii day la ngoai le dugc quy dinh trong Luat Tiep can thong tin ciia mgt so nudc, nhung khong dugc ghi nhan trong Luat mau va dac biet la mau thuan vdi cac nguyen tac ve Luat Tiep can thong tin eua ARTICLE 19 (Nguyen tac 1 ve cong khai thong tin toi da;
Nguyen tac 2 ve nghTa vy cong khai thong tin; Nguyen tac 3 ve thuc day Chinh phu md;
Nguyen tac 4 ve gidi ban nhung ngoai le), vi vay Dy thao nen bo quy dinh nay. Tuy nhien, tinh den dieu kien khd khan d Viet Nam khi phai cong bo tat ca nhung thong tin dang nay, co the quy dinh theo hudng chi cong bo hay cung cap theo yeu cau nhu'ng thong tin ve cac cugc hgp ngi bg cua co quan hoac cac tai lieu do co quan nha nudc soan thao cho cong viec ngi bg nao ma lien quan mat thiet den lgi ich cong va khong mau thuan vdi cac ngoai le khac.
Thic ndm, tuong ung vdi quy dinh trong Muc 31 Luat mau va Luat Tiep can thong tin ciia nhieu nudc tren the gidi, Dy thao can quy dinh ro mgt so loai thong tin phai dugc cung cap vi lgi ich cao ban ciia cong chiing so vdi cac lgi ich khac (noi each khac la khong c6 ngoai le nao ap dung vai nhirng yeu cau cung cap thong tin do), cu the la
nhung thong tin lien quan den sue khoe, sy an toan cua cong chung, thong tin ve nhung hilm hga moi trudng, va neu c6 the, nhirng thong tin vl tinh hinh tham nhiing hay nhung vi pham nhan quyen nghiem trgng.
Thic sdu, doi vdi nhirng thong tin da dang tren trang thong tin dien tu cua ca quan, dan vi, can quy dinli la trong mgi trudng hgp ca quan, don vi d6 van co trach nhiem dap ung yeu cau cung cap thong tin theo hai each: (i) Hudng dan ngudi yeu cau ve dia chi, nguon co the tiep can thong tin;
va (ii) Cung cap thong tin theo yeu cau theo each thftc thong thudng neu ngudi dugc hudng dan khong the ty minh tiep can thong tin theo hudng dan. Dieu nay la de phii hgp vdi nhung nguyen tac c6 lien quan ciia ARTICLE 19, ciing nhu vdi Myc 23 Luat mau, trong do neu rang: Bat Man quy dinh trong phan IV ciia Luat nay the nao, mgt co quan khong the tft choi cung cap thong tin neu thong tin do da dugc dang tai rgng rai.
Thu bdy, cung phii hgp vdi nguyen tac cong khai thong tin tdi da cua ARTICLE 19, Dy thao can bo sung quy dinh ve tiep can thong tin theo tftng phan. Cu the, can neu ro trong trudng hgp cd mgt yeu cau lien quan den ho so dugc coi la ngoai le, song phan thong tin dugc yeu cau lai khong thugc trudng hgp ngoai le, thi phan thong tin dd van c6 the dugc tach ra khoi ho so va cung cap cho ngudi yeu cau. Day la quy dinh neu trong Muc 24 Luat mau va trong Luat Tiep can thong tin eiia nhieu nudc tren the gidi.
5. Ve thoi han dap ftng yeu cau cung cap thong tin
Dieu 22 Du thao quy dinh thdi ban khac nhau cho viec dap ung nhung yeu cau cung cap nhung loai thong tin khac nhau. Luat mau ciia ARTICLE 19 ciing de cap den thdi ban tra ldi yeu cau cung cap thong tin (Myc 9). Quy dinh cy the ve van de nay trong hai van ban nhu sau:
NHA NUdc vA PHAP LUAT sd 2/2011
Thoi ban dap u-ng yeu cau cung cSp thong tin Dieu 22 Du thdo Ludt ciia Viet Nam Muc 9 Ludt mdu (1) Thong tin don gian, c6 san va cd
the cung cap ngay: Cham nhat la ba ngay lam viec, ke tft ngay nhan dugc yeu cau hgp le; (2) Thong tin phftc tap, can cd thdi gian de chuan bj thi phai cung cap trong thdi ban cham nhat la 15 ngay lam viec ke tu ngay nhan duge yeu cau hgp le, cd the dugc gia them toi da la 15 ngay trong trudng hgp thong tin dugc yeu cau vdi so lugng lan hoac co quan dugc yeu cau can them thdi gian de tim kiem, tap hgp, sao chep, xu ly thong tin.
(1) Vdi thong tin binh thudng: Tra ldi ngay khi c6 thi, va khong qua 20 ngay lam viec ke tu ngay nhan dugc yeu ciu. C6 the gia ban nhung khong qua 40 ngay lam vi?c neu yeu cau cung cip thong tin lien quan den nhieu ho so hoac ddi hdi phai nghien cim mgt so lugng ldn ho so, va viec tra ldi yeu cau cung cap thong tin trong vdng 20 ngay lam viec se gay nhieu trd ngai cho hoat dgng cua to chftc do; (2) Vdi nhiMg thong tin c6 the can thiet de bao ve tinh mang hoac ty do cua mgt ngudi: Trong vdng 48 gid.
Luat Tiep can thong tin cua cae nudc tren the giai ciing quy dmh cac ca quan nha nudc phai tra ldi ngay hoac trong thdi ban sdm nhat co the dugc nhiing yeu cau cung cap thong tin. Vdi mgt so loai thong tin, Luat ciia mgt so nudc tham chf yeu cau cac CO quan nha nudc phai tra ldi trong vdng 24 gid , tuy nhien, thdi ban trung binh cho viec dap img yeu cau cung cap thong tin theo quy dinh trong phap Mat cua cac nudc thudng tu hai den bon tuan.
So sanh vdi Luat mau va thyc tien tren the gidi, c6 the thay quy dinh ve thdi ban dap img yeu cau cung cap tat ca cac loai thong tin trong Dy thao Luat cfta Vict Nam hien kha tuong thfch. Tuy nhien, Dy thao nen quy dinh them ve viec dap img yeu cau ve nhirng thong tin ma co the can thilt dl bao ve tfnh mang hoac tyc do cua mgt ngudi, vdi thdi ban toi da la 48 tieng hoac ngan ban nhu dugc kliuyen nghi trong Muc 9 ciia Luat mlu.
6, Ve le phi yeu cau cung cip thong tin Dieu 23 Dy thao quy dinh, ngudi yeu ciu cung cap thdng tin chi phai tra chi pM
Privacy International, Freedom of Information Around the World 2006: A Global Siin'ey of Access lo Government Information Laws, tai lieu da din, tr.44.
doi vdi cac khoan: a) Chi phf in an, sao chup ho so, tai lieu; b) Chi phi tim kiem, xu ly thong tin; c) Chi phi gui ho so, tai lieu qua dudng buu dien. Tuy nhien, nhung khoan phi nay dugc mien vdi cac doi tugng la ngudi ngheo; ngudi cd cong vdi each mang;
ngudi gia co don, ngudi khuyet tat; ngudi dan tgc thieu so thudng tru d vung cd dieu kien kinh te - xa hgi dac biet kho khan.
Trong Luat mau, van de le phi dugc neu d Muc 11. Myc nay khdng quy dinh cac khoan phf cy the, ma chi quy dinh ngudi yeu cau cung cap thong tin phai tra mgt khoan le phi phai chang (reasonable) cho viec tim kiem, chuan bi va cung cap thdng tin nhung khong ap dyng vdi nhung yeu cau cung cap thong tin ca nhan hoac thong tin ve lgi ich cong cong. Cung theo Muc nay, can quy dinh nhiMg trudng hgp dugc mien le phi va le phi trong mgi trudng hgp khong dugc vugt qua mgt mftc tran xac dinh.
Luat Tiep can thong tin ciia hiu hit cac nudc cho phep cac co quan chfnh phii dugc thu le phi ddi vdi ngudi yeu cau cung cip thong tin. Cac dang le phi pho biin bao gIm le phi nop dan, le phf tim kiem, le phf sao chep... Tuy nhien, tren thyc tl hiu hit cac quIc gia chi cho phep thu le phf vdi mgt s i
DUTHAO LUAT TIEP CAN ...
loai yeu cau va deu cd quy dinh mien le phf cho mgt so dang dii tugng. Viec thu le phf doi vdi vi^c khieu nai ve quyln tilp can thong tin rit it dugc quy dinh. Nhin chung, phap luat cac nudc tuan thii mgt nguyen tic chung la le phi khdng duac Ird ihdnh rdo cdn vdi viec liep can thdng tin, ciing nhu khdng phdi Id mdt cdch thicc de thu lai nhuan.
Tft nhung phan tich tren, co thi thiy Dy thao Luat cua Viet Nam da kha tuong thich vdi Luat mau va thyc tien quoc te ve van de le phf, ngoai tru cac khfa canh: (i) Quy dinh mien le phi vdi nhung yeu cau cung cap thong tin ca nhan hoac thong tin ve lgi ich cong cong; (ii) Quy dinh trong trudng hgp chi phi cho viec thu le phi vugt qua muc le phf thu dugc thi co quan dugc yeu cau cung cap thong tin se khong dugc thu le phi; (iii) Quy dinh le phf trong mgi trudng hgp khong dugc vugt qua mgt mftc tran xac dinh.
Nhung quy dinh nay nen dugc bo sung vao Dy thao, khong chi vi chung dugc ghi nhan trong Luat mau va phap Mat ciia nhieu nudc tren the gidi ma cdn vi nhung lgi fch xa hgi ma chiing dem lai.
7. Ve CO" che to chii'c thyc hien
Theo Dieu 26 Dy thao, viec bao dam quyen tiep can thong tin d cac co quan, to chirc se do ngudi dimg dau co quan, to chuc chiu trach nhiem va dugc thyc hien bdi can bg, cong chuc dugc bo nhiem lam dau moi tiep nhan thong tin, ngudi phat ngdn va bg phan van thu, hanh chfnh ciia co quan, don vi.
Theo Luat mau, ben canh nhan vien/can bg phii trach thong tin cua moi co quan (cac Miic 16, 31), cdn co Cao uy thong tin quoc gia. Luat quy dinh rat cu the, chi tiet ve tieu chuan chuyen mon, nghe nghiep, viec bo nhiem, chuc nang, nhiem vy, tham quyen, bg may giup viec... cua Cao uy thong tin quoc gia (cac Phan IV va V). Nhin chung, Cao uy thong tin quoc gia cd cac tham quyen va trach nhiem nhu: (a) Giam sat viec thi hanh luat ciia cac co quan nha nuac va bao cao ca quan nha nudc co tham quyen; (b) Dua ra
nhung kiln nghi cai each viec thyc hien Luat ndi chung va vdi cac co quan cu the; (c) Phii hgp to chuc hoac to chuc cac boat dgng dao tao cho cong chftc nha nudc ve quyen tilp can thong tin cung nhu thyc hien cd hieu qua Luat; (d) Tiep nhan va giai quyet khieu nai ve quyen tiep can thong tin (bao gom ca viec dieu tra va dua ra khuyen nghi vdi cac CO quan nha nudc co lien quan); va (e) Pho bien, tuyen truyen ve cac yeu cau va cac quyen ve tiep can thong tin theo quy dinh cua Luat (Myc 38).
Co che Cao uy thong tin quoc gia cung dugc quy dinh trong Luat Tiep can thong tin cua nhieu nudc tren the gidi. C) mgt sd nudc cdn dong thdi c6 cac thiet che khac, vi dy nhu Ombusman.
Nhu vay, co the thay co che bao dam trong Dy thao Luat cfta Viet Nam cdn yeu neu so sanh vdi Luat mau va thyc tien tren the gidi, do khong quy dinh viec thanh lap Cao uy thong tin hoac mgt co quan tuong ty.
Mac dil Dy thao quy dinh viec chi dinh ngudi phat ngdn cfta moi co quan, don vi, song chuc nang, nhiem vu cfta chft the nay khong the so sanh dugc vdi thiet che ve Cao uy thong tin.
8. Ve CO" che khieu nai, khieu kien Dieu 27 Du thao quy dinh, ngudi yeu cau cung cap thong tin cd quyen khieu nai, khieu kien trong cac trudng hgp: a) Bi tft choi cung cap thong tin khong phu hgp vdi cac can cft quy dinh cua Luat nay; b) Dugc cung cap thong tin khong dung yeu cau; c) Qua thdi ban xem xet, giai quyet yeu cau nhung chua dugc cung cap thdng tin; ly do gia ban giai quyet yeu cau khong hgp ly; d) Phai tra chi phf tiep can thong tin trai quy dinh cua phap Mat. Dieu nay cung quy dinh trinh ty, thu tyc khieu nai, khieu kien thyc hien theo phap Mat hien hanh ve khieu nai, to cao.
Trong Luat mau, viec giai quyet khieu nai, khieu kien trudc het dugc giao cho Cao iiy thong tin. Myc 41 Luat mau quy dinh cu
NHA NUdc vA PHAP LUAT sd 2/2011
the ve nhung vi pham cua cac co quan nha nuac ma co the bi khieu nai vdi Cao uy thong tin. Cac Myc 42, 43 quy dinh Cao uy thong tin se to chftc hoa giai giua ngudi khieu nai va ca quan nha nudc bi khieu nai trong vong 30 ngay, neu hoa giai khong thanh, Cao uy thong tin se dua ra y kien danh gia cua minh ve vy viec, trong d6 bao gdm ca nhiMg yeu cau vdi co quan nha nudc ve nhiMg bien phap can tien hanh de thyc hien nhung nghTa vy dugc quy dinh theo Luat. Theo Myc 45, trong vong 45 ngay, ngudi khieu kien, hoac co quan nha nudc hoac to chuc tu nhan lien quan, co the khieu nai vdi toa an xem xet lai toan bg quyet dinh ciia Cao uy thong tin.
Ca che giai quyet khieu nai tuong ty nhu trong Luat mau cung dugc quy dinh trong Luat Tiep can thong tin cua nhieu nude tren the gidi, vi vay, Dy thao Luat cua Viet Nam can xem xet quy dinh bo sung.
Dieu nay cung bdi co che Cao uy thong tin da chimg minh tinh thiet thyc, hieu qua tren thyc te d nhieu quoc gia, trong khi co che giai quyet khieu nai, khieu kien cua Viet Nam cho thay nhiMg ton tai, bat cap ldn ma chua cd hudng giai quyet thich dang.
9. Ve che tai voi nhirng vi pham
Dieu 28 Dy thao quy dinh nhiMg hanh vi bi coi la vi pham va se bi xft ly theo Luat, bao gom: (1) Hiiy hoai, lam gia, lam sai lech ngi dung ho so, tai lieu vdi myc dfch can trd viec tiep can thong tin; (2) Khong cung cap thong tin; (3) Co tinh tri hoan viec cung cap thong tin. Dieu nay ciing quy dinh, tuy theo muc do, hanh vi vi pham c6 the bi xft ly theo ba hinh thuc che tai: Ky Mat; hanh chinh, hinh sy.
Cac Myc 48, 49 Luat mau cung de cap den ba loai trach nhiem (hinh sy, dan sy va ky Mat) vdi nhiing hanh vi vi pham cac quy dinh cua Luat. Cac hanh vi dugc coi la vi pham bao gom: (i) Ngan can viec tiep can ho so mgt each trai phap Mat; (ii) Ngan can co quan nlia nudc thyc hien cac trach nhiem ve
cung cip thong tin; (iii) Pha buy ho sa trai quy dinh cua phap Mat.
Luat Tilp can thong tin cua cac nudc hien ciMg diu quy dinh nhung hinh thuc die tai doi vdi nhmig hanh N'i x'l pham nhu tft choi cong b l thong tin hoac sua doi, pha hiiy tai lieu mgt each bit hgp phap. Che tai bao gom ve hanh chinh, hinh sy va dan sy (phat tien). Ngoai ra, cdn c6 quy diiM ve viec den bft tMet hai (gom ca bii thudng cac chi phi phap ly cho viec khieu nai, khieu kien) cho ngudi bi vi pham quyen tiep can thong tin.
Nhu vay, so vdi Luat mau va thyc tien tren the gidi, Dy thao Luat cua Viet Nam da kha tuang thich ca trong quy dinh ve nhirng hanh vi vi pham va trong quy dinh ve che tai. Tuy nhien, Dy thao tren thyc te chua de cap den hai dang hanh vi vi pham dugc quy dinh trong Myc 49 Luat mau, bao gom: (i) Ngan can viec tiep can ho so mgt each trai phap Mat; (ii) Ngan can ca quan nha nudc thyc Men cac trach nhiem ve cung cap thong tin (mac du cac hanh vi vi pham quy dinh trong Dy thao ft nhieu cd lien quan den hai hanh vi nay). Kinh nghiem cho thay day la nhiMg harM vi rat thudng xay ra trong thuc te, vi vay Dy thao cua Viet Nam nen bo sung hai hanh vi nay. Them vao do, Dy thao ciing can quy dinh them mgt dang che tai nua ve dan sy (phat tien) nham den bu thiet hai cho nhiMg ngudi bi vi pham quyen tiep can thong tin.
10. Bao ve nguoi cung cap thong tin Theo UNESCO, d thdi dilm nam 2006, Luat cua tren 30 quoc gia da quy dinh viec bao ve ngudi cung cap thong tin (whistle- blower) ve nhirng sai pham dien ra trong cac CO quan nha nudc . Dieu nay la mgt minh chimg cho thay sy can thiet, tac dung va y nghTa cua quy dinh nay.
'- LTNESCO, Freedom of Information: A Comparative Legal Sur\-ey, by Toby Mendel, (second edition, revised and updated), UNESCO, Paris, 2008, tr.34.
DU THAO LUAT TIEP C.A.N
Trong Luat mau, van de bao ve ngudi cung cap thong tin dugc dl cap trong hai Muc 47 va 48. Theo Myc 47, khong ca nhan nao c6 thi hi xu ly hinh sy, hanh chfnh hoac bj anh hudng den nghi nghiep, du hg vi pham nghTa vu phap ly hoac ngi quy nghi nghiep, neu tiet 16 thong tin vl nhung hanh vi sai trai, hoac cong khai thong tin de doa nghiem trgng den sue khoe, an toan hoac moi trudng, mien la hg cong khai thong tin ngay tinh va cd nhung bang chiMg chimg minh rang d6 la sy that. Muc nay quy dinh cac hanh vi sai trai bao gom tgi pham hinh sy, khong tuan thu nghTa vy phap Mat, xet xu sai, tham nhung hoac thieu trung thyc.
hoac quan ly yeu kem cua mgt co quan nha nudc. Myc 48 tai khang dinh rang, khong ca nhan nao phai chM trach nhiem hinh sy hoac dan sy, hoac bi anh hudng den nghe nghiep vi nhiMg viec da lam mgt each ngay tinh nham thyc Men, thi hanh hoac ho trg thyc hien quyen lyc hoac nhiem vy quy dinh trong Luat nay neu hg thyc hien mgt each hgp ly va ngay tinh.
Hien Dy thao Luat cfta Viet Nam khong CO mgt quy dinh nao de cap, tham chf cd lien quan den van de tren. Tfnh den thyc tien quoc te va y nghTa cfta nd, Dy thao can bd sung quy dinh ve bao ve ngudi cung cap thong tin.
Tai lieu tham khao:
1. Transparency International, Global Corruption Report 2003: Special Focus: Access to Information, London: Profile Books.
2. Privacy International, Freedom of Information Around the World 2006: A Global Survey of Access to Government Information Laws, (tai http://'vvww.
privacyinternational.org/foi/survey).
3.?rixacylntemationa\, Global Freedom of Information Map, 2009, (tai hftp://vvww.privacvinternational.org/index.shtml).
4. ARTICLE 19, A Model Freedom of Information Law, London, July 2001 (tai http://\vww.article 19.org).
5. ARTICLE 19, The Public's Right lo Know: Principles on Freedom of Information Legislation, London, June 1999 (tai http://'www.article 19.org).
6. UNESCO, Freedom of Information: A Comparative Legal Survey, 2008 (second edition, revised and updated), UNESCO, Paris.
7. Vien Nghien cim quyen con ngudi, Cdc vdn kien qudc ti vd ludt ciia mdt sd nudc ve dep can thdng tin, Nxb. Cong an nhan dan, Ha Ngi, 2007.
8.Dy thao Luat Tiep can thong tin cua Viet Nam, ban thu tu, trinh Chinh phu thang 7/2009.
9.Luat Tiep can thong tin cua cac nudc: Nhat Ban, Me-hi-c6, Pa-kis-tan, Nam Phi, Thyy Dien, Thai Lan, Vuong quoc Anh, Hoa Ky, An Do, Na-uy, Lien bang Nga, Pe-ru, Phan Lan, Phap, Tho NhT Ky, Oxtraylia, An-ba-ni, Ba Lan, Bun-ga-ri, Canada, Dan Mach, Ha Lan, Han Quoc.
