Tp ch Khoa hc HQGHN, Lut hc 25 (2009) 120-124

120

Quan im v tiu ch nh gi cht lng ban hnh vn bn qun l nh nc

c Hng Quang** U ban Nhn dn phng Dch Vng Hu,

36 Nguyn Phong Sc,Cu Giy, H Ni, Vit Nam Nhn ngy 16 thng 6 nm 2009

Tm tt. Trong iu kin hin nay, khi ng v Nh nc ta ang thc hin ch trng xy dng nh nc php quyn, pht huy dn ch, tng cng php ch, ci cch hnh chnh, hi nhp quc t v xy dng nn kinh t th trng nh hng x hi ch ngha (XHCN), yu cu v xy dng mt h thng php lut ng b, thng nht, cng khai, minh bch, dn ch phi c quan tm hn bao gi ht. Do vy, gp phn nng cao cht lng ban hnh vn bn qun l nh nc, trong phm vi bi vit ny, chng ti mun cp n quan im v tiu ch nh gi cht lng ban hnh vn bn qun l nh nc ca cc c quan hnh php Vit Nam.

*Trong iu kin hin nay, khi ng v Nh nc ta ang thc hin ch trng xy dng nh nc php quyn, pht huy dn ch, tng cng php ch, ci cch hnh chnh, hi nhp quc t v xy dng nn kinh t th trng nh hng XHCN, yu cu v xy dng mt h thng php lut ng b, thng nht, cng khai, minh bch, dn ch phi c quan tm hn bao gi ht. Do vy, vn bo m tnh hp hin, hp php, tnh thng nht ca h thng php lut l mt trong nhng yu cu hng u. Ngh quyt Trung ng 8 (kha VII) thng 01 nm 1995 ch r: i mi quy trnh lp php, lp quy, ci tin s phn cng v phi hp gia cc c quan ca Quc hi, ca Chnh ph m bo tnh kp thi v nng cao cht lng xy dng php lut Trong qu trnh tin hnh ci cch t php, nhim v xy dng php lut v chun ha quy trnh xy dng php lut cn c nu r trong Ngh quyt s

______ * T: 84-913536712. E-mail: hongquang@gmail.com

08/NQ-TW ngy 02 thng 01 nm 2002 ca B Chnh tr. Ch th s 12/2002/CT-TTg ngy 19 thng 3 nm 2002 ca Th tng Chnh ph v vic trin khai thc hin Ngh quyt 08/NQ-TW ca B Chnh tr cng cp n vn ny nh mt trong nhng nhim v thng xuyn. gp phn nng cao cht lng ban hnh vn bn qun l nh nc, trong phm vi bi vit ny, chng ti mun cp n quan im v tiu ch nh gi cht lng ban hnh vn bn qun l nh nc ca cc c quan hnh php Vit Nam.

1. Nhng quan im nh gi cht lng ban hnh vn bn qun l nh nc

Cht lng ca hot ng ban hnh vn bn qun l nh nc (QLNN) quyt nh cht lng ca vn bn QLNN vi t cch l sn phm ca hot ng . V vy, nh gi cht lng sn phm cng chnh l nh gi cht lng ca chnh hot ng to ra sn phm.

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..H. Quang / Tp ch Khoa hc HQGHN, Lut hc 25 (2009) 120-124 121

Thc trng ban hnh vn bn QLNN nc ta hin nay c nhiu kin nh gi khc nhau, i khi cn tri ngc nhau. C nhiu l do gii thch tnh trng ny, nhng l do chnh l ch cha c nhng quan im chung thng nht khi nh gi. Theo chng ti, nh gi thc trng ban hnh vn bn QLNN cn xut pht t cc quan im sau:

Mt l, nh gi t gc quan im lch s. Nc ta ang trong tin trnh i mi ton din v su sc, y l i hi khch quan, cp bch c ngha quyt nh i vi vn mnh t nc. Mt s vn l lun v CNXH, m hnh xy dng CNXH, v h thng chnh tr, v thi k qu , v nn kinh t th trng nh hng XHCN trc y c chng ta chp nhn nh l kinh in, l khun mu tuyt i khng c tranh ci th ngy nay cn c nghin cu theo hng t duy l lun mi vn dng ph hp vi iu kin pht trin kinh t - x hi. cng l bin chng ca s pht trin. nh gi thc trng ban hnh vn bn QLNN t gc quan im lch s to ra kh nng sng lc, chnh l cc vn bn QLNN ban hnh v xy dng cc vn bn QLNN mi ph hp vi ch trng, ng li i mi ca ng v nh hng cc quan h x hi cn iu chnh.

Hai l, nh gi trn tinh thn coi trng nhng tin b ca php lut trong nhng nm qua. Trong cc thi k, cc giai on khc nhau, php lut nc ta u c vai tr, tc dng quan trng. c bit, nhng nm gy y vai tr ca php lut cng th hin r trong vic phc v ng li i mi kinh t, ci cch nn hnh chnh v kin ton b my nh nc. Nhng tin b trong thi gian qua gp phn nng cao thc php lut trong x hi. Cng tc xy dng, ban hnh vn bn QLNN c ch trng, hon thin. Vic tuyn truyn, ph bin, gio dc php lut c nng cao; vic tho lun, ly kin ng gp ca nhn dn c ch trng nh gi ng thc trng, ghi nhn nhng tin b trong hot ng ban hnh vn bn QLNN s to c s pht huy cc thnh tu, tip tc khng nh v pht trin nhng

ng gp tch cc ca php lut vo cng cuc i mi.

Ba l, nh gi trn quan im thc tin. Php lut l mt trong nhng hin tng trung tm ca thng tng kin trc, ph thuc vo h tng c s. Nhng hn ch v kinh t, tn d phong kin, phong tc, tp qun lc hu phi c tnh n khi nh gi php lut nc ta ni chung v thc trng ban hnh vn bn QLNN ni ring. Ngoi thc tin khch quan cng cn ch n thc tin ch quan l ch ca giai cp cm quyn. Giai cp cm quyn ca Nh nc ta cha tch lu c nhiu kinh nghim trong QLNN, kin thc php lut cn thiu. Hn na, i ng cn b php l ng vai tr rt quan trng trong xy dng v thc hin php lut li cha c o to ngang tm vi nhu cu. T quan im thc tin cho php nh gi ng s tht, khng th ph nhn vai tr quan trng ca php lut, thnh qu ca hot ng ban hnh vn bn QLNN thi gian qua, nhng cng cn nhn nhn nhng yu km, bt cp, nghim tc rt ra bi hc kinh nghim nhanh chng khc phc.

Bn l, nh gi t t duy mi v tm nhn mi. V ni dung, nu nhn theo quan im lch s, quan im thc tin th c th thy t thiu st, nhng mun hon thin php lut v cng tc xy dng php lut c nng cao, ngang tm vi nhu cu ca s nghip i mi th phi nh gi t t duy mi, tm nhn mi. Nhng nhn thc v php lut v s th hin thnh cc quy phm thng qua cng tc xy dng php lut trc y l ng v hin nay vn ng th cn tip tc b sung, pht trin v vn dng cho ph hp. Quan im ny khng nhng ngn chn, loi tr cch nh gi, ph nhn sch trn m cn nhn mnh tnh k tha v pht trin ca php lut. Nhng quy phm php lut t trong iu kin trc y l ng nhng hin nay khng cn ph hp th cn bi b, sa i. Cng vi tnh n nh, php lut cn c tnh nng ng. Php lut a ra cc quy tc hnh x iu chnh cc quan h x hi in hnh, ph bin m bn thn cc quan h x hi vn lun vn ng, thay i. V th, ni dung ca

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..H. Quang / Tp ch Khoa hc HQGHN, Lut hc 25 (2009) 120-124 122

cc vn bn QLNN cng phi thay i cho ph hp, c bit l cc vn bn QLNN iu chnh cc quan h kinh t [1].

2. Nhng tiu ch nh gi cht lng ban hnh vn bn qun l nh nc

V cht lng ca vn bn QLNN v cc tiu ch nh gi cht lng ca vn bn QLNN cho n nay vn cha c cng trnh chuyn kho no nghin cu mt cch h thng, ton din. Tuy nhin, xut pht t cc c s l lun v thc tin xy dng php lut nc ta, bc u c th a ra cc tiu ch nh sau:

Th nht, vn bn QLNN phi th hin trn vn v ghi nhn y ch, quyn li ca nhn dn; gn vi nhng gi tr cao qu, nhng chun mc x hi m a s cc thnh vin tha nhn. Xc nh tiu ch ny nhm bo m vic ban hnh cc vn bn QLNN ng nh hng chnh tr, gi vng bn cht dn ch nhn dn v nh gi ng mc s tc ng ca tm l php lut vo qu trnh xy dng php lut. cng l mt trong nhng iu kin a php lut pht trin ng hng, cng c lng tin ca nhn dn vo s cng minh ca php lut, nng cao cht lng, uy tn ca php lut v tng cng hiu lc thi hnh ca php lut trong thc t.

Th hai, ni dung vn bn QLNN phi ph hp vi iu kin kinh t - x hi, iu kin pht trin ca a phng. Php lut l mt phm tr ch quan, phn nh hin thc khch quan. S phn nh xut pht t i hi ca i sng hin thc, khng th cao hn trnh pht trin kinh t - x hi trong tng thi k. Php lut c phn nh ng hin thc khch quan th mi iu chnh c cc quan h x hi, cng nh mi c x hi chp nhn. Ni xy dng vn bn QLNN phi khch quan khng c ngha l cc c quan c thm quyn b nguyn, sao chp li cc s kin hot ng mang tnh t chc, k thut nghip v m t chng di dng cc quy tc x s ca hnh vi. Tnh khch quan trong xy dng vn bn

QLNN i hi ngi c thm quyn, cn b son tho vn bn QLNN phi bm st ng li, ch trng, chnh sch ca ng; Hin php, lut, cc vn bn QLNN ca cp trn; tnh hnh thc tin x hi; nhim v trc mt v lu di ca QLNN; thi , tm l ca cng ng dn c i vi vn , ni dung ca vn bn QLNN sp ban hnh... Tnh khch quan trong xy dng vn bn QLNN cng i hi phi loi tr tnh trng cao li ch ca a phng mnh, coi thng li ch chung, li ch ca ton x hi v li ch ca cc a phng khc.

Th ba, h thng vn bn QLNN phi bo m tnh hp hin, hp php v tnh thng nht. Bo m tnh hp hin, tnh hp php ca vn bn QLNN l mt trong nhng tiu ch quan trng trong nh gi thc trng ca h thng vn bn QLNN ny. Hin php l o lut c bn, c hiu lc php l cao nht, do mi vn bn lut cng nh vn bn di lut u phi tn trng tnh ti cao ca Hin php. Cng vi tnh hp hin, cc vn bn QLNN phi bo m tun th th bc hiu lc php l ca vn bn trong h thng php lut. Yu cu ny tn ti song song vi yu cu vn bn QLNN do c quan nh nc cp di ban hnh phi ph hp vi vn bn QLNN ca c quan nh nc cp trn. Vic khng xc nh r th bc hiu lc php l ca vn bn v tip tc gy ra nhng kh khn cho c quan kim tra, gim st trong qu trnh thc hin thm quyn.

Th t, h thng vn bn php lut phi ton din, ng b, kh thi, cng khai, minh bch, bo m pht huy vai tr v hiu lc. V tnh ton din, Nh nc l t chc cng quyn duy nht, nhn danh quyn lc ca nhn dn thc hin chc nng qun l x hi bng php lut trn tt c cc mt i sng x hi. Thc hin chc nng ny i hi h thng vn bn QLNN phi y , ton din [2]. V tnh ng b, h thng php lut l tng th cc quy phm php lut th hin di hnh thc cc vn bn QLNN bao gm nhiu b phn lin quan cht ch vi nhau. Cho nn, khi nh gi thc trng ban hnh vn bn QLNN phi xem b phn

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..H. Quang / Tp ch Khoa hc HQGHN, Lut hc 25 (2009) 120-124 123

hnh thnh trong h thng php lut c mu thun, trng lp, chng cho vi nhau khng. Mt h thng vn bn QLNN khng ng b kh c th pht huy hiu qu trong iu chnh cc quan h x hi. Tnh ng b ca h thng vn bn QLNN i hi vn bn QLNN c ban hnh phi m bo trn vn, hn ch v loi tr kh nng xy ra tnh trng chia ct trong p dng php lut. Mun vy, cn tun th nguyn tc: vn bn QLNN phi c quy nh c th khi cc vn bn c hiu lc th c thi hnh ngay; vn bn hng dn phi c son tho cng lc vi vn bn QLNN c hng dn; bo m tnh chc chn, tnh n nh, tnh trong sng, r rng ca php lut V tnh kh thi, chng trnh xy dng, ban hnh vn bn QLNN v d tho vn bn QLNN phi da trn cc cn c khch quan, khoa hc, d kin c cc ngun lc, cn nhc cch thc trin khai thc hin v km theo phng n xut v kinh ph v tnh ton cc ngun lc khc cn thit cho vic trin khai thc hin. Cc quy nh trong cc vn bn QLNN cn c th, khng dng li chng, mc mang tnh chung chung Vn bn QLNN ch c th nhn c s hng ng, ng tnh v bo m kh thi khi tnh minh bch, cng khai ca n c coi trng ng mc.

Th nm, vn bn QLNN phi c son tho thng qua k thut lp quy v t yu cu v hnh thc. Hnh thc th hin ca vn bn QLNN ch c tha nhn l tt khi thng qua cc k thut lp quy v chuyn ti c cc ni dung cn php lut ho thnh nhng cu trc, phm tr php l, bo m khng thot ly ra khi bn cht, thuc tnh ca php lut - tnh giai cp, tnh quy phm ph bin, tnh chun mc v hnh thc biu t, tnh bo m thc hin bng quyn lc nh nc Cho nn, khi nh gi thc trng ban hnh vn bn QLNN qua tiu ch trn cn xem xt cc yu cu c th nh: cch thc th hin ni dung ca d tho vn bn QLNN tun th cc quy lut ca chnh qu trnh lm lut hay cha? C bo m s tng quan gia ni dung v hnh thc ca php lut hay khng? Cc ni dung cc iu

khon ca vn bn QLNN c bo m v tnh thng nht, phi hp gia cc thnh t ca quy phm php lut, gia cc quy phm php lut, gia cc ch nh lut trong cng ngnh lut v gia cc ngnh lut trong cu trc tng th l h thng php lut hay khng?...

Th su, quy trnh xy dng, ban hnh vn bn QLNN phi hon thin. Vn bn QLNN ch c cht lng cao khi thng qua quy trnh xy dng, ban hnh hp l, khoa hc, hiu qu, m bo cc giai on c thc hin mt cch c lp v c xc nh theo mt trt t cht ch, nghim ngt, ghi nhn y ch ca nhn dn, thu ht tr tu ca cc nh khoa hc, kinh nghim v ng gp ca cc i tng lin quan [1].

Trong nhng nm qua, chng ta t c nhng kt qu ng k trong nhiu lnh vc lin quan ti pht trin bn vng, song vn cn nhiu vic phi lm. Trong s , xy dng v hon thin mt h thng php lut hon chnh to lp khung php l ton din cho mc tiu pht trin ca quc gia c coi l yu cu tin quyt, i hi s gp sc ca cc ngnh, cc cp. Cng tc xy dng php lut va phi m bo tnh ton din, ng b, va phi tp trung gii quyt nhng vn bc xc v kinh t - x hi v mi trng. Trong qu trnh ny, mt mt chng ta va phi tng kt vic thc thi php lut c nhng sa i, b sung thng nht, mt khc cn nghin cu sm ban hnh vn bn php lut mi trn mt s lnh vc ang c hnh thnh v pht trin. ng thi, tip tc nng cao cht lng nghin cu, bin son cc vn bn QLNN, bo m tnh khoa hc, tnh thng nht ca cc vn bn. Phi tng kt thc tin mt cch y , kt hp vi vic nghin cu vn dng kinh nghim nc ngoi, c chn lc, ph hp vi thc tin v h thng php lut Vit Nam; loi b dn cc quy nh chung, thiu c th; xy dng cc quy nh d hiu, d thc hin, tin ti xy dng cc vn bn vi cc quy nh chi tit, y gp phn gim bt vic ban hnh cc vn bn hng dn km theo. y mnh cng tc nghin cu d lun x hi v vic ban hnh v thc hin vn

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..H. Quang / Tp ch Khoa hc HQGHN, Lut hc 25 (2009) 120-124 124

bn QLNN; gn cng tc xy dng vn bn QLNN vi vic gim st thi hnh. Gii quyt tt yu cu trn, khng ch gp phn thc hin mc tiu pht trin t nc nhanh, hiu qu v bn vng m cn gp phn y li nguy c tt hu, hn ch cc tc ng tiu cc, to iu kin thun li a nc ta theo kp cc nc trong khu vc v trn th gii [1].

Ti liu tham kho

[1] Nguyn Quc Vit, Nng cao cht lng ban hnh vn bn quy phm php lut ca cp B nc ta hin nay, Lun vn thc s qun l hnh chnh cng, Hc vin Hnh chnh quc gia, H Ni, 2005.

[2] Nguyn Ngc Hin (ch bin), Quy trnh son tho vn bn quy phm php lut, D n VIE/94/2003, H Ni, 1998.

Opinions and indicators for assessment of legal document of the state

Do Duc Hong Quang

People's Committee of Dich Vong Hau Wards, 36 Nguyen Phong Sac, Cau Giay, Hanoi, Vietnam

In current conditions, when the Party and the State is implementing the policy of building a Rule of Law, promoting democracy, strengthening legislation and administrative reforms, international integration and building market economy school-oriented socialist, requirements for building a legal system which is public, transparency, democracy should be interested more than ever. Therefore, in order to contribute to improving the quality of the text of the government, within this article, the authors want to mention opinions and indicators for assessment of legal document of the State of documents the government's the executive agencies in Vietnam.

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