Cơ quan kiểm soát việc thực hiện trách nhiệm bồi thường của nhà nước

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Việc kiểm soát các hoạt động thực hiện Trách nhiệm bồi thường của nhà nước (TNBTCNN) trong pháp luật của nhiều nước được hiểu là việc Nhà nước chủ động hoặc theo yêu cầu của một cá nhân, tổ chức để thực hiện các hoạt động theo dõi, giám sát, đôn đốc, kiểm tra thậm chí là điều tra hoạt động của các cơ quan nhà nước khác trong việc bảo đảm quyền con người, quyền công dân nói chung và quyền được bồi thường nói riêng.

 

Trên thế giới hiện nay có rất nhiều nước có mô hình cơ quan thanh tra nhân quyền (Ombudsman) và ở những nước đó, cơ quan này là cơ quan kiểm soát việc bảo đảm quyền con người, quyền công dân nói chung cũng như quyền được bồi thường nói riêng.

 

Về tên gọi, ở đa số các nước thì cơ quan này có tên gọi là cơ quan thanh tra nhân quyền (Ombudsman). Trong khi đó, ở một số ít nước thì cơ quan này có tên gọi khác: tại Vương quốc Anh, cơ quan này có tên gọi là Ủy ban nhân quyền Nghị viện (The Parliamentary Commissioner Act 1967), tại Cộng hòa Serbia, cơ quan này có tên gọi là Cơ quan bảo hộ công dân (Law On The Protector Of Citizens 2005), tại Estonia, cơ quan này có tên gọi là Pháp quan trưởng ấn (Chancellor Of Justice Act 1999), tại Cộng hòa Albania, cơ quan này có tên gọi là Luật sư bảo vệ công dân (Law On The PeoPle Advocate1999)…

 

Về phương thức hình thành của cơ quan thanh tra nhân quyền (TTNQ), đại đa số các nước đều quy định cơ quan TTNQ do Quốc hội thành lập. Tùy theo tên gọi mà người đứng đầu là Trưởng cơ quan TTNQ hoặc Trưởng cơ quan bảo hộ công dân hoặc Trưởng pháp quan trưởng ấn hoặc Trưởng luật sư bảo vệ công dân… Riêng Luật về cơ quan TTNQ của Philippines thì quy định Trưởng cơ quan TTNQ do Tổng thống bổ nhiệm.

 

Về nhiệm kỳ của Trưởng cơ quan TTNQ, nhìn chung pháp luật của các nước quy định khá đa dạng về thời hạn nhiệm kỳ của Trưởng cơ quan TTNQ. Theo Luật về cơ quan TTNQ 2006 của Latvia (Ombudsman Law 2006) thì nhiệm kỳ là 05 năm kể từ ngày tuyên thệ nhậm chức. Luật về cơ quan TTNQ 1989 của Philippines (The Phillipines Republic Act 6770.1989. Ombudsman 1989) thì quy định nhiệm kỳ là 07 năm kể từ ngày tuyên thệ. Luật về cơ quan TTNQ 2009 của Vương quốc Thái Lan (Organic Act On Ombudsmen 2009) thì quy định nhiệm kỳ là 07 năm kể từ ngày được bổ nhiệm và Trưởng cơ quan TTNQ chỉ được đảm nhiệm chức vụ trong một nhiệm kỳ.

 

Về chế độ làm việc của cơ quan TTNQ, nhìn chung, pháp luật của các nước quy định chế độ làm việc của cơ quan TTNQ theo chế độ “thủ trưởng chế”, trong đó, Trưởng cơ quan TTNQ hoặc cấp phó được ủy quyền hoặc phân công có toàn quyền quyết định các vấn đề thuộc chức năng của cơ quan TTNQ. Tuy nhiên, cũng có một số rất ít nước thì quy định chế độ làm việc tập thể của cơ quan TTNQ, theo đó, việc ra các quyết định phải thông qua cuộc họp của Hội đồng TTNQ. Luật về cơ quan TTNQ 1982 của Cộng hòa Áo (Ombudsman Act 1982) quy định các nhiệm vụ, quyền hạn của Hội đồng Ombudsman sẽ được quyết định bởi Nghị quyết của Hội đồng, cụ thể là đối với các vấn đề sau đây: (1) các khuyến nghị, yêu cầu về thời hạn và các gợi ý về các giải pháp kiểm soát có tính chất giám sát theo quy định của Hiến pháp liên bang; (2) các báo cáo Hội đồng nhà nước – Quốc hội Áo – theo quy định của Hiến pháp liên bang; (3) các yêu cầu gửi tới Tòa án Hiến pháp theo quy định của Hiến pháp liên bang; (4) các bản ý kiến trong quá trình xem xét lại dự thảo Luật và văn bản hướng dẫn; (5) các gợi ý về việc sửa đổi hoặc thông qua các Luật; (6) việc phê chuẩn và miễn nhiệm các thành viên của các Ủy ban trực thuộc cơ quan TTNQ cũng như đối với Chủ tịch, Phó chủ tịch và các thành viên khác và các thành viên thay thế của Hội đồng tư vấn nhân quyền trực thuộc cơ quan TTNQ; (7) xác định các nội dung kiểm tra chung và (8) việc thông qua các Nghị quyết về các gợi ý đưa ra bởi Hội đồng tư vấn nhân quyền đối với các nội dung bảo đảm sự đồng đều trong hoạt động và tiêu chuẩn kiểm tra.

 

Về phạm vi thẩm quyền, nhìn chung pháp luật của các nước quy định phạm vi thẩm quyền của cơ quan TTNQ là rất rộng. Tuy nhiên, về cơ bản thì có thể phân loại pháp luật của các nước thành 03 nhóm chính: ở nhóm thứ nhất, pháp luật chỉ quy định cơ quan TTNQ có quyền “can thiệp” vào hoạt động của các cơ quan nhà nước khác để bảo vệ và thúc đẩy quyền con người, các quyền tự do cơ bản nhất và quyền công dân; ở nhóm thứ hai, ngoài việc “can thiệp” vào hoạt động của các cơ quan nhà nước khác để bảo vệ và thúc đẩy quyền con người, các quyền tự do cơ bản nhất và quyền công dân thì pháp luật còn quy định cơ quan TTNQ có quyền tham gia vào quá trình xây dựng các văn bản quy phạm pháp luật của các cơ quan có thẩm quyền khác để bảo đảm các văn bản quy phạm pháp luật không xâm phạm quyền con người, các quyền tự do cơ bản nhất và quyền công dân cũng như bảo đảm phù hợp với các Công ước quốc tế về quyền con người mà quốc gia đó là thành viên; ở nhóm thứ ba, ngoài việc “can thiệp” vào hoạt động của các cơ quan nhà nước khác để bảo vệ và thúc đẩy quyền con người, các quyền tự do cơ bản nhất và quyền công dân thì pháp luật còn quy định cơ quan TTNQ có quyền kiến nghị các phương thức để bảo đảm nguyên tắc “quản trị Nhà nước hiệu quả”, theo đó, thông qua quá trình thực hiện các chức năng, nhiệm vụ, quyền hạn của mình, cơ quan TTNQ phát hiện ra những thiếu sót trong tổ chức và hoạt động của các cơ quan nhà nước khác để từ đó kiến nghị biện pháp khắc phục, hoàn thiện.

 

Về hạn chế đối tượng tác động, pháp luật của các nước đều quy định các hạn chế về đối tượng tác động của cơ quan TTNQ, trong đó, đối tượng mà cơ quan TTNQ không được quyền tác động, can thiệp thường là các cá nhân có thẩm quyền là như Tổng thống, Thủ tướng, Chủ tịch Quốc hội, Chánh án Tòa án tối cao. Đối với cơ quan nhà nước thì đại đa số pháp luật các nước đều quy định cơ quan TTNQ không được can thiệp vào hoạt động xét xử của Tòa án. Chỉ một số rất ít nước pháp luật cho phép can thiệp vào hoạt động xét xử của Tòa án nhưng cũng chỉ giới hạn trong trường hợp mà hoạt động xét xử của Tòa án không bảo đảm về thời hạn theo quy định của pháp luật.

 

Về cách thức “can thiệp” và các biện pháp bảo đảm cho sự “can thiệp”, pháp luật về cơ quan TTNQ của các nước đều quy định cách thức can thiệp là “kiến nghị” mà không trực tiếp làm “thay đổi” hoặc “làm thay” hoạt động của các cơ quan nhà nước bị “can thiệp”. Các cơ quan nhà nước bị “can thiệp” có nghĩa vụ phải tiếp nhận, nghiên cứu các “kiến nghị” của cơ quan TTNQ và phải có trả lời hoặc giải trình chính đáng trong thời hạn luật định. Nếu không trả lời hoặc không giải trình trong thời hạn luật định thì cơ quan TTNQ sẽ thông báo hoặc báo cáo lên cơ quan hoặc cá nhân có thẩm quyền cao hơn như cơ quan cấp trên trực tiếp của cơ quan bị can thiệp hoặc Chính phủ, Thủ tướng Chính phủ, Quốc hội hoặc Tổng thống. Đối với cá nhân người thi hành công vụ tại các cơ quan nhà nước bị “can thiệp”, trong quá trình xem xét, kiến nghị thì cơ quan TTNQ cũng có quyền đưa ra các kiến nghị xử lý trách nhiệm đối với cá nhân người đó, trong đó, tập trung vào 02 dạng trách nhiệm là xử lý kỷ luật hoặc xử lý trách nhiệm hình sự.

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