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Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 402

Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 402

Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 402

Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 402

Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 402

Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 402

Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 402

Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 402

Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 402

Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 402

Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 402

Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 402

Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 402

Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: Illegal string offset 'exts' in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 402

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Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Warning: in_array() expects parameter 2 to be array, string given in /var/data/web/RTi/medialaw/www/wp-content/plugins/attachment-manager/wp-attachment-manager.php on line 403

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Право и СМИ Центральной Азии

Дмитрий Котляр: Доступ общественности к информации государственных органов — это важный инструмент предотвращения и выявления коррупции

«Если в стране есть реальная политическая воля совладать с коррупцией, то принятие закона о доступе к информации и отмена уголовной ответственности за клевету должны стать приоритетами», — отметил в интервью Дмитрий Котляр, руководитель мониторинговой группы ОЭСР по выполнению Республикой Казахстан обязательств по Стамбульскому плану действий по борьбе с коррупцией.

IWPR: Дмитрий, вы являетесь руководителем мониторинговой группы ОЭСР по выполнению Казахстаном Стамбульского плана действий по борьбе с коррупцией. Расскажите, пожалуйста, о самом плане, участии Казахстана в этом процессе и о результативности ваших действий по мониторингу?

Стамбульский план действий по борьбе с коррупцией (СПД) был одобрен в 2003 году. Он является главной субрегиональной инициативой Сети ОЭСР по борьбе с коррупцией для стран Восточной Европы и Центральной Азии («Сеть»). Сама Сеть является программой для стран — нечленов Рабочей группы ОЭСР по вопросам взяточничества. Стамбульский план действий охватывает Армению, Азербайджан, Грузию, Казахстан, Кыргызстан, Монголию, Таджикистан, Украину и Узбекистан, однако в его реализации принимают участие и другие страны Сети (всего около 25 стран). Реализация Стамбульского плана действий включает проведение систематических периодических обзоров законодательства и институций в области борьбы с коррупцией в этих странах. СПД использует методологию ОЭСР в проведении оценок (обзоров). Секретариат СПД находится в Париже в штаб-квартире ОЭСР. Дополнительная информация о Сети и СПД доступна на веб-сайте ОЭСР по адресу: www.oecd.org/corruption/acn.

Казахстан присоединился к Сети в 2004 году. В 2005 был проведен первоначальный антикоррупционный обзор страны. Первый отчет о результатахмониторинга, в котором была дана оценка исполнению исходных рекомендаций и присвоены рейтинги соответствия Казахстана этим рекомендациям, был принят в сентябре 2007 года. Отчет по результатам второго раунда мониторинга Казахстана был утвержден в сентябре 2011 года, а в октябре 2014 года был одобрен Отчет о третьем раунде мониторинга. В период между раундами мониторинга на заседаниях Сети (которые проходят один или два раза в год) Казахстан предоставляет промежуточные доклады о действиях по реализации данных ему рекомендаций.

В последнем отчете по Казахстану содержатся следующие рейтинги степени выполнения рекомендаций второго раунда мониторинга:из 17 предыдущих рекомендаций Казахстан выполнил частично 13 рекомендаций и не выполнил 4 рекомендации (в основном или полностью выполненных рекомендаций нет). В результате третьего раунда мониторинга сформулированы 3 новые рекомендации, а 16 предыдущих рекомендаций признаны все еще остающимися в силе. В целом, это скромный результат, у Казахстана есть большие возможности для улучшения своих показателей.

Следует отметить, что рекомендации и их количество индивидуальны для каждой страны, поэтому нельзя просто сравнить количество выполненных рекомендаций. В то же время мониторинговые отчеты по стране позволяют проследить, каким образом менялось законодательство и практика в этой стране. Относительно Казахстана можно отметить прогресс в реформировании законодательства в некоторых сферах, но в большинстве сфер, к сожалению, рекомендации остаются невыполненными или выполненными лишь частично. Отчеты констатируют, что государственные органы принимают усилия, но их пока что недостаточно для реального прогресса в борьбе с коррупцией.

IWPR: Вы часто бываете в Казахстане. На Ваш взгляд, заметны ли изменения в Казахстане как в связи с выполнением Стамбульского плана действий, так и с проведением национальных антикоррупционных реформ?

Изменения заметны, но они недостаточны. Политическая воля должна реализоваться в конкретные действия по искоренению коррупции. Коррупция остается распространенной, особенно на высшем уровне, где она укоренилась в государственных институтах. Есть прогресс на отдельных участках, например, во внедрении электронных методов государственных закупок, но в тоже время большая часть закупок выведена из сферы профильного закона и осуществляется в ручном режиме и непрозрачно. Следует признать, что без реформирования таких институций как суды и прокуратура действенная борьба с коррупцией навряд ли возможна. Также необходимы изменения в политической системе — любая монополизация способствует коррупции. Казахстан входит в неблагоприятную экономическую тенденцию, поэтому больше не может позволить себе неэффективно использовать свои ресурсы и борьба с коррупцией становиться не просто важной, но жизненно необходимой.

IWPR: Есть ли перспективы у Казахстана по вступлению в ОЭСР и в GRECO? Когда и при каких условиях это может произойти?

ОЭСР — это международная организация, в которую входят 34 наиболее экономически развитые страны. Стать членом ОЭСР достаточно непросто, поэтому, думаю, у Казахстана такая возможность есть, но только в дальнесрочной перспективе. Это тем не менее не мешает Казахстану интегрироваться в различные инструменты и инициативы, действующие в рамках ОЭСР, как, например, СПД. ГРЕКО — это не организация, а мониторинговый механизм, созданный в рамках Совета Европы на основании международных конвенций и специального соглашения стран. Насколько я понимаю, Казахстан находится на завершающем этапе вступления в этот механизм и присоединения к антикоррупционным конвенциям Совета Европы.

IWPR: Отчет по последнему раунду мониторинга Казахстана (расположен по ссылке: http://www.oecd.org/corruption/anti-bribery/Kazakhstan-3rd-Round-Monitoring-Report-RUS.pdf) содержит много рекомендаций в различных областях. Обладаете ли информацией о том, выполняются ли эти рекомендации властями и с какой динамикой?

На следующем заседании Сети ОЭСР в Париже 7—9 октября 2015 года Казахстан представит промежуточный отчет о выполнении рекомендаций третьего раунда мониторинга. Секретариат и эксперты Сети проведут короткую оценку этого отчета, которая будет опубликована на сайте Сети. В марте этого года Казахстан уже представлял такой промежуточный отчет (http://www.oecd.org/corruption/acn/Kazakhstan-ACN-Progress-Update-March-2015-RUS.pdf). При этом эксперты отметили прогресс лишь по 3 рекомендациям.

IWPR: Есть ли перспективы у Казахстана по вступлению в ОЭСР и в GRECO? Когда и при каких условиях это может произойти?

Полноценный новый раунд мониторинга в рамках Сети ОЭСР может начаться в 2016 году, если страны-участницы подтвердят свое желание далее принимать участие в работе Сети и одобрят новую рабочую программу. Также продолжение программы зависит от наличия финансовых пожертвований. Если Четвертый раунд мониторинга стартует в следующем году, то новый раунд мониторинга Казахстана будет проведен ориентировочно в 2017 году.

Целая серия рекомендаций в отчете третьего раунда касается обеспечения участия общества и доступа к информации (п. 3.6) как одной из мер по предупреждению коррупции. Ключевая рекомендация здесь — это скорейшее принятие законопроекта «О доступе к информации», соответствующего международным принципам и стандартам по свободе информации. Почему возникла такая рекомендация? И почему рекомендуется принять этот законопроект «как можно скорее»?

Доступ общественности к информации государственных органов — это важный инструмент предотвращения и выявления коррупции. Прозрачность публичной администрации — важное условие ее добропорядочности и профилактики коррупции. Информация о бюджете, распоряжении государственным или муниципальным имуществом, государственных закупках, доходах и имуществе государственных служащих, а также другая информация общественного интереса является ценным источником информации, которая помогает раскрыть коррупцию в государственных органах. Ни одно государство не способно самостоятельно побороть коррупцию без участия общества, для которого доступ к информации является не только правом человека, но и инструментом контроля за государством. Поэтому во всех отчетах СПД большое внимание уделяется доступу к информации и прозрачности государственных органов. Особенно важно действенное законодательство о доступе к информации для журналистов, которые занимаются антикоррупционными журналистскими расследованиями. Казахстан здесь не исключение. Если в стране есть реальная политическая воля совладать с коррупцией, то принятие закона о доступе к информации и отмена уголовной ответственности за клевету должны стать приоритетами. История закона о доступе в Казахстане долгая, поэтому наш отчет и настаивает на скорейшем принятии закона, который, однако, должен при этом соответствовать международным стандартам и быть эффективным, а не декларативным.

IWPR: Мы ознакомились с последней редакцией казахстанского законопроекта «О доступе к информации» (досье на законопроект доступно по ссылке: http://online.zakon.kz/Document/?doc_id=30791337). Он вызывает вопросы, у национального экспертного сообщества. Что Вы думаете по поводу предложенных казахстанскими законодателями подходов?

Этот законопроект является неплохой основой для будущего закона, но он еще требует серьезной доработки. В моем заключении от июня этого года, подготовленном по просьбе Центра исследования правовой политики, делается вывод, что версия проекта Закона РК «О доступ к информации» от 28.04.2015 в некоторых важных аспектах представляет собой шаг назад по сравнению с предыдущей редакцией (версия от 26.04.2012). Хотя даже предыдущая редакция проекта была далеко от идеальной. Целый ряд положений новой версии законопроекта не соответствует международным стандартам.

Среди главных рекомендаций:
— четко установить принцип максимальной открытости (презумпции открытости) информации как главный принцип режима доступа к информации. Открытый доступ к информации должен быть правилом, а ограничение доступа — исключением.

— закрепить приоритетность Закона о доступе к информации в регулировании соответствующих правоотношений и четко определить любые исключения из сферы действия закона.

— одним из главных недостатков проекта является отсутствие в нем правил трисоставного теста — совокупности условий для ограничения доступа к информации согласно международным стандартам, которая включает проверку на вред и общественный интерес.

— существенно пересмотреть проект в части ограничения доступа к информации, особенно оснований для отказа в предоставлении информации.

— серьезным недостатком законопроекта является отсутствие положений об органе внесудебного государственного контроля за реализацией права на доступ к информации. Рекомендуется предусмотреть создание или определение такого органа, который должен пользоваться операционной и институциональной независимостью, иметь достаточные финансовые, кадровые и другие ресурсы для эффективного выполнения своих функций, а также быть наделен адекватными полномочиями, в том числе по проведению проверок, рассмотрению жалоб на нарушения права на доступ к информации, изданию обязательных предписаний.

— включить в проект положения о доступе к информации в форме «открытых данных» (наборы структурированных данных, которые могут обрабатываться автоматизированными средствами) и праве свободного повторного использования такой информации.

— предусмотреть положения о защите информаторов (желательно, в виде отдельного комплексного законопроекта о защите информаторов (разоблачителей).

Поддерживают ли страны-участники ОЭСР инициативу «Открытое правительство» и каким образом?

Многие страны — члены ОЭСР были среди основателей Инициативы Партнерство «Открытое правительство» и далее поддерживают эту важную инициативу. Казахстану следует присоединиться в этой влиятельной инициативе и разработать национальный план по ее внедрению в стране. Важной частью такого плана должно стать принятие закона о доступе к информации. Это позитивно скажется на оценках мониторинга Казахстана со стороны Сети ОЭСР/СПД.

Дмитрий Котляр, эксперт, руководитель мониторинговой группы ОЭСР по выполнению Республикой Казахстан обязательств по Стамбульскому плану действий по борьбе с коррупцией.

Источник: http://cabar.asia/ru/kazakhstan/412-dmitrij-kotlyar-dostup-obshchestvenn…

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