Мемлекет басшысы Қасым-Жомарт Тоқаев Ата Заңға енгізілетін өзгерістер мен толықтырулар жобасы бойынша биылғы 5 маусымда республикалық референдум өткізу туралы Жарлыққа қол қойды.
Конституциялық реформа – Президенттің наурыз айындағы Қазақстан халқына Жолдауында айтылған саяси реформалар бағдарламасын жүзеге асыру үшін қолға алынған маңызды іс-шара.
Конституциялық түзетулер жобасы азаматтардың сұранысына негізделген және бүкіл қоғамның мүддесі үшін жүзеге асырылмақ. Ата Заңға енгізілетін өзгерістер мен толықтырулар жобасын белгілі заңгер-құқықтанушылар және конституциялық құқық саласының мамандары әзірледі. Оған Конституциялық Кеңес оң бағасын берді.
Конституцияға енгізілетін өзгерістер мен толықтырулардың бәрі өзара байланысты және бір мақсатты көздейді. Атап айтқанда, мынадай үдерістерге құқықтық негіз қалыптастыруға арналған:
1. Суперпрезиденттік басқару үлгісінен президенттік республикаға түбегейлі көшу;
2. Бірқатар билік өкілеттігін қайта бөлу;
3. Парламенттің рөлін күшейтіп, мәртебесін арттыру;
4. Елді басқару ісіне халықтың қатысу мүмкіндігін кеңейту;
5. Азаматтардың құқықтарын қорғау тәсілдерін жетілдіру.
«Қазақстан Республикасының Конституциясына өзгерістер мен толықтырулар енгізу туралы» заң жобасы республикалық баспасөзде 6 мамыр күні ресми түрде жарияланды.
Конституцияның қазіргі және жаңа нұсқаларының айырмашылығын түсіну, ұсынылып отырған көптеген түзетудің байыбына бару мұндай істен хабары аз адам үшін қиындық туғызатыны анық.
Сондықтан жұртқа ұғынықты болу үшін бұл түзетулер Ата Заңның нақты баптары мен тармақтары көрсетілген бірнеше бөлікке бөлінген.
Суперпрезиденттік басқару үлгісінен президенттік республикаға түбегейлі көшу
Конституциялық реформа билік тармақтары арасындағы қарым-қатынастың тепе-теңдігін және оңтайлы болуын қалыптастырады. Сондай-ақ президенттік институттың барынша дербес болуын қамтамасыз етеді.
Ата Заңымыздың 43-бабына 3-тармақ қосылады. Онда Қазақстан Республикасының Президенті өз өкілеттіктерін жүзеге асыру кезеңінде саяси партияда болмауға тиіс деп көрсетіледі. Осы логикаға сәйкес Конституциялық Соттың, Жоғарғы Соттың және өзге де соттардың төрағалары мен судьяларына, Орталық сайлау комиссиясының, Жоғары аудиторлық палатасының төрағалары мен мүшелеріне де осындай тыйым салынады (Конституцияның 23-бабы 2-тармағының жаңа редакциясы). Соның нәтижесінде саяси бәсеке артып, барлық саяси партияны дамытуға бірдей жағдай қалыптасады, дербес әрі әділ шешім қабылдауға жол ашылады.
Мемлекет басшысы барлық азаматқа тең мүмкіндік берілуінің мызғымас кепілі болуға тиіс. Сол себепті Конституцияның 43-бабына 4-тармақ қосылады. Онда «Президенттің жақын туыстары мемлекеттік саяси қызметшілердің, квазимемлекеттік сектор субъектілері басшыларының қызметтерін атқаруға қақысы жоқ» деп көрсетіледі.
Жұмыс тобы мүшелерінің ұсынысы бойынша Тұңғыш Президенттің Президент лауазымына қатарынан екі реттен көп сайлануына мүмкіндік беретін баптың (Конституцияның 42-бабы 5-тармағының жаңа редакциясы), сондай-ақ Тұңғыш Президенттің мәртебесі мен өкілеттіктері Конституциямен және конституциялық заңмен айқындалатыны туралы 46-баптың 4-тармағы Ата Заңнан алынып тасталмақ.
Конституцияның 91-бабынан Тұңғыш Президенттің тәуелсіз Қазақстанның негізін салушы деген мәртебесі туралы норма алынып тасталады (Конституцияның 91-бабы 2-тармағының жаңа редакциясы).
Конституциялық реформаның нәтижесінде тиісті аумақтағы ахуалға жауапты жергілікті өкілді және атқарушы органдардың жергілікті мемлекеттік басқару және өзін-өзі басқару өкілеттіктері кеңейеді.
Жобада Президенттің облыстар, республикалық маңызы бар қалалар мен астана әкімдері актілерінің күшін жоятыны не қолданылуын толық немесе ішінара тоқтата тұратыны туралы құзыретін жою көзделген (Конституцияның 44-бабы 3) тармақшасының жаңа редакциясы).
Сондай-ақ Президенттің аудан, қала, ауылдық округ әкімдерін лауазымынан босату туралы құзыретін алып тастау көзделген (Конституцияның 87-бабы 4-тармағының жаңа редакциясы).
Облыстар, республикалық маңызы бар қалалар мен астана әкімдерінің құзыретке ие болу тәртібі де едәуір өзгереді.
Конституцияның 87-бабы 4-тармағының жаңа редакциясына сәйкес енді оларды Президент облыс аумағында орналасқан мәслихат депутаттарының немесе республикалық маңызы бар қалалардың және астананың мәслихат депутаттарының келісімімен тағайындайды.
Бұл ретте Мемлекет басшысы кемінде екі кандидатура ұсынып, дауысқа салады. Дауыс беруге қатысқан депутаттардың көпшілігінің дауысына ие болған кандидат келісім алған болып саналады.
Осылайша, жергілікті билікке қатысты Президенттің өкілеттігі азайып, ол мәслихаттардың рөлін айтарлықтай арттыру арқылы өңірлік деңгейдегі әкімдердің қолына жинақталады.
Бірқатар билік өкілеттігін қайта бөлу
Сенаттағы Президент квотасының саны 15-тен 10 депутатқа дейін азаяды. Оның бесеуін Қазақстан халқы Ассамблеясы ұсынады (Конституцияның 50-бабы 2-тармағының жаңа редакциясы).
Сенаттың өкілеттігі бірқатар құқықтармен толығады. Атап айтқанда, Сенат Президент енгізетін Конституциялық Соттың және Жоғары Сот Кеңесінің төрағалары лауазымына кандидаттарды келісу құқығына ие болады (Конституцияның 44-бабы 4) тармақшасының, 55-бабы 2) тармақшасының және 82-бабы 4-тармағының жаңа редакциясы).
Жалпы, Конституциялық Сот (қазіргі Конституциялық Кеңестің орнына) құру арқылы конституциялық бақылау жасау институты жаңғыртылады.
Конституциялық Сот 11 судьядан тұрады (қазіргі Конституциялық Кеңестің 7 мүшесі бар).
Конституциялық Соттың құрамы мынадай тәсілмен жасақталады: 6 судьяны Парламент (Мәжіліс пен Сенаттың әрқайсысы 3 судьядан), 4 судьяны Президент тағайындайды. Конституциялық Соттың төрағасын жоғарыда айтылғандай Сенаттың келісімімен Президент тағайындайды (Конституцияның 57-бабы 1) тармақшасының, 58-бабы 3-тармағы 7-тармақшасының және 71-бабының жаңа редакциясы).
Республикалық бюджеттің атқарылуын бақылау жөніндегі есеп комитеті Жоғары аудиторлық палата болып өзгереді. Оның төрағасы жылына екі рет Мәжіліс депутаттарының алдында есеп береді (Конституцияның 53-бабы 2) тармақшасының жаңа редакциясы, 56-бабы 1-тармағындағы 3-1) жаңа тармақшасы).
«Мемлекеттік хатшы» институты «Мемлекеттік кеңесші» институты болып өзгереді (Конституцияның 44-бабы 19-тармақшасының жаңа редакциясы). Ол Мемлекет басшысына ұсыныстар мен ұсынымдар әзірлеумен айналысады.
Парламенттің рөлін күшейтіп, мәртебесін арттыру
Конституциялық реформаның нәтижесінде биліктің заң шығарушы тармағы айтарлықтай өзгереді. Соның арқасында Парламенттің және оның палаталарының рөлі едәуір күшейіп, мәртебесі артады.
Жоғарыда айтып өткеніміздей, Президент Конституциялық Соттың және Жоғары сот Кеңесінің төрағаларын тағайындау үшін Сенаттың келісімін алады. Сондай-ақ Президент Сенатқа 15 емес, 10 депутат тағайындайтынын айттық. Оның 5-еуі Қазақстан халқы Ассамблеясының ұсынысы бойынша тағайындалады (Конституцияның 50-бабы 2-тармағының жаңа редакциясы).
Осы орайда Қазақстан халқы Ассамблеясының Мәжілістегі квотасы Сенатқа беріледі. Оның саны 9-дан 5 депутатқа қысқарады. Соған сәйкес Мәжіліс депутаттарының жалпы саны 107-ден 98-ге азаяды (Конституцияның 50-бабы 3-тармағының жаңа редакциясы).
Мәжіліс депутаттары аралас сайлау жүйесімен, яғни пропорционалды және мажоритарлы жүйе бойынша сайланады (Конституцияның 50-бабы 3-тармағының жаңа редакциясы). Аралас сайлау жүйесі барлық азаматтың құқықтарын толық сақтауға, сайлаушылардың мүддесін қорғауға мүмкіндік береді.
Сайлаушылардың бір мандатты сайлау округі бойынша сайланған Мәжіліс депутаттарынан мандатты кері қайтарып алу құқығы енгізіледі (Конституцияның 52-бабы 5-тармағының жаңа редакциясы). Соның нәтижесінде демократия дәстүрлері нығая түседі, депутаттар мен сайлаушылардың арасында өзара жауапкершілік пен сенімге негізделген жаңа саяси мәдениет қалыптасады.
Мәжілістің құзыреті кеңейіп, республикалық бюджеттің атқарылу сапасына парламенттік бақылау күшейеді. Ол үшін, бұған дейін айтқанымыздай, Республикалық бюджеттің атқарылуын бақылау жөніндегі есеп комитеті Жоғары аудиторлық палата болып қайта құрылады. Оның төрағасы жылына екі рет Мәжіліс депутаттарының алдында есеп береді (Конституцияның 53-бабы 2-тармақшасының жаңа редакциясы, 56-бабы 1-тармағының 3-1) жаңа тармақшасы). Бұл Мәжілістің және жалпы Парламенттің мәртебесін одан әрі күшейте түседі.
Саяси жүйеде тепе-теңдік және тежемелік тетіктерді нығайту және заң шығару жұмысын оңтайландыру мақсатында Мәжіліске заңдарды қабылдау (бұрын заң жобаларын қараған және мақұлдаған), ал Сенатқа заңдарды мақұлдау не мақұлдамау (бұрын заңдарды қабылдаған) құзыреті беріледі (Конституцияның 61-бабы 4 және 5-тармақтарының және 62-бабы 5-тармағының жаңа редакциясы).
Парламент конституциялық заңдарды Палаталардың бірлескен отырысында, кемінде екі оқылымда қабылдайтын болады (Конституцияның 53-бабының жаңа редакциясы).
Айрықша қажеттілік туындаса, заңдарды жедел қабылдау тәртібі енгізіледі. Халықтың өмірі мен денсаулығына, конституциялық құрылысқа, қоғамдық тәртіпті сақтауға, елдің экономикалық қауіпсіздігіне қатер төндіретін жағдайларға жедел ден қою мақсатында Үкіметтің заң шығару бастамасы арқылы енгізілетін заң жобалары Парламент Палаталарының бірлескен отырысында шұғыл қаралады. Бұл заң жобаларын қарау кезінде Үкімет заң күші бар уақытша құқықтық-нормативтік актілер қабылдай алады (Конституцияның 61-бабы 2 және 3-тармақтарын толықтыру).
Бұл тәсіл елге төнген қауіп-қатердің бетін қайтару үшін билік тармақтарының бірлескен әрі шұғыл жұмысын үйлестіруге қажет. Оны қалыпты, күнделікті жұмыс барысында қолдануға болмайды. Бұл үдеріс Парламент депутаттары мен Үкімет мүшелерінің өзара жауапкершілікке негізделген қарым-қатынасы арқылы іске асады.
Елді басқару ісіне халықтың қатысу мүмкіндігін кеңейту
Негізгі Заңда жер және жер қойнауы, су, өсімдіктер мен жануарлар дүниесі, басқа да табиғи ресурстар халыққа тиесілі екені жайындағы норма нақты және кесімді түрде бекітілген. Меншік құқығын халықтың атынан мемлекет жүзеге асырады (Конституцияның 1-бабы 2-тармағының жаңа редакциясы).
Жоғарыда айтылғандай, Мәжіліс депутаттарын аралас сайлау жүйесімен: біртұтас жалпыұлттық сайлау округінің аумағында пропорционалды жүйе бойынша, сондай-ақ бір мандатты аумақтық сайлау округтері бойынша сайлау ұсынылады (Конституцияның 50-бабы 3-тармағының және 51-бабы 1-тармағының жаңа редакциясы). Сондай-ақ бір мандатты аумақтық сайлау округі бойынша сайланған Мәжіліс депутаттарының мандатын кері қайтарып алу мүмкіндігі пайда болады (Конституцияның 52-бабы 5-тармағының жаңа редакциясы).
Облыстардың, республикалық маңызы бар қалалардың және астананың әкімдерін Президент өңірдің (қаланың) мәслихаттарының барлық депутаттың келісімімен және баламалы негізде (кемінде екі кандидатура ұсынылады) тағайындайтын болады (Конституцияның 87-бабы 4-тармағының жаңа редакциясы). Осылайша, белгілі бір өңірдің дамуына жауапты жергілікті өкілді және атқарушы органдар жүзеге асыратын мемлекеттік басқару мен өзін-өзі басқару ісіне берілетін кепілдік нығая түседі.
Азаматтардың құқықтарын қорғау тәсілдерін жетілдіру
Жоғарыда баяндағанымыздай, Конституциялық Кеңес Конституциялық Сот болып қайта құрылады. Конституциялық Сот азаматтардың өтініштері бойынша олардың Конституцияда бекітілген құқықтары мен бостандықтарына тікелей қатысты Қазақстан Республикасының нормативтік-құқықтық актілерінің Республика Конституциясына сәйкестігін қарайтын болады (Конституцияның 71-74-баптарының жаңа редакциясы).
Өлім жазасын жою туралы шешім конституциялық деңгейде түпкілікті бекітіледі (Конституцияның 15-бабы 2-тармағының жаңа редакциясы).
Прокуратураның құзыреті, оның жасақталуы мен қызмет тәртібі Конституциялық заңмен белгіленеді (Конституцияның 83-бабы 4-тармағының жаңа редакциясы). Бұл құқық қорғау қызметінің жүйелі жұмыс істеуін және заңда белгіленген тәртіпке сәйкес мемлекет атынан Қазақстан Республикасының аумағында заңдылықтың сақталуын қадағалауды күшейтуге тиіс.
Конституцияның жаңа 83-1-бабының нормалары Адам құқықтары жөніндегі уәкілге иммунитет береді. Ол азаматтардың құқығы мен бостандығын қорғау кезінде қандай да бір өзге мемлекеттік органдар мен лауазымды тұлғаларға тәуелді болмайды, ешкімге есеп бермейді. Ол өз жұмысында Конституциялық Сотқа жүгіне алады. Адам құқықтары жөніндегі уәкілдің құқықтық мәртебесі мен қызметін ұйымдастыру Конституциялық заң арқылы айқындалады.
Осылайша, конституциялық реформа азаматтардың елді басқару ісіне қатысу мүмкіндігін арттырады және саяси үдерістерді шын мәнінде демократияландырады деп толық сеніммен айта аламыз.
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