NGHIEN Ciru - TRAO OOI
QUY OjNH VE BAO HIEN TRONG CAC BAN HIEN PHAP VIET NAM VA KIEN NGHi S|)A D 6 I B 6 SUNG HIEN PHAP N A M 1992
1. Quy dinh ve bao hien trong cac ban hien phap Viet Nam
1.1. Quy djnh vi bdo hien trong Hien phdp ndm 1946
Difiu 21 Hifin phdp ndm 1946 quy dinh:
"Nhdn ddn co quyin phitc quyet ve Hien phdp".
Nhu vay, iheo quy dinh cua Hifin phap ndm 1946, chii the thong qua hifin phdp la nlian dan. Hifin phdp sau khi dugc Quoc h6i (QH) lap hifin thong qua se dua ra dfi nhan ddn pliuc quyfit. Neu da so nhdn dan tan thanh, iiifin phap se chinh thiic co hieu luc thi hanh.
Vfi vific siia doi hifin phdp, Difiu 70 Hifin phap nam 1946 quy dinh: "Sira ddi Hiin phdp phdi Iheo cdch thuc sau day
a) Do hai phdn ba long so nghi viin yeu cdu;
b) Nghj vien bdu ra mdt ban dtt thdo nhung dieu thay ddi;
c) Nhirng dieu thay doi sau khi da duac nghj vien ung chudn thi phdi dua ra todn ddn phuc quyel".
Theo quy djnh nay, chu ihfi kifin nghi yeu cau sua doi hifin phap la hai phdn ba long s6 nghi vifin nhung chii the cuoi cimg thong qua nhftng dieu thay doi hien phap la loan dan.
Nhiing quy dinh vfi chii the ban hanh, thfing qua hien phap, chu the kifin nghi, yfiu cau sua doi, bo sung hien phdp, quy trinh, thli luc sira doi, bo sung hifin phdp nhu tren hoan loan phii hop voi nguyen tac dugc quy djnh lai Difiu 1 Hifin phdp nam 1946, do la;
"Tal cd quyen binh trong nudc Id cua todn
TS. TAO THI QUY^N • Ihi nhdn ddn Viet Nam, khdng phdn biit giong noi, gdi trai. gidu ngheo, giai cdp, ton gido" Su thong nhdt giOa cac nguyfin tdc hifin dinh nfiu trfin da khdng dinh mpt each ro rang vd manh me: Nhan dan Id chii Ihfi t6i cao cua quyfin lire, quyfin luc nha nuoc ihuc su bat nguon tu nhan dan, quyfin lap hifin - quyfin khoi Ihuy - quyfin quy dinh cdc quyfin lap phdp, hdnh phap, tu phap cho cac ca quan trong bo may nha nuoc Id Ihuoc vfi nhan dan.
Cac CO quan thuc thi cac quyen lap phdp, hdnh phap, tu phap phdi hoat dpng Irong khuon kho quy dinh ciia hien phap, phii hgp voi hien phap, phii hgp voi y chi ciia chii thfi giao quyfin cho minh, do la nhan ddn.
Hifin phdp nam 1946 khong quy dinh cu the, ro rang vfi kifim tra, giam sat linh hgp hifin ciia van ban quy pham phdp ludt. Tuy CO quy dinh lien quan den vific ban hanh, yfiu cdu thao ludn lai hoac huy bo van bdn quy pham phap ludt nhimg ban Hien phap nay khong xac dinh ro co so ciia cdc hoat dpng do Id dua trfin vific xem xet tinh hgp hifin cua van ban. Chang han, Dieu 31 Hien phap quy dinh: "Nhirng lual da dugc Nghi vien bieu quyet. Chit tich nudc Viet Nam phdi ban bo chdm nhdt la W hom sau khi nhdn duac ihong tri. Nhung trong hgn dy, Chu lich co quyin yiu cdu Nghi vien thdo lugn lgi. Nhirng lugt dem ra thdo lugn lgi, niu vdn dugc Nghi
' Hpc vifin chinh tri-hanh chinh quoc gia Ho Chi Minh
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viin ung chudn thi bdt budc Chu tich nudc phdi ban bd". Difiu 36 Hifin phap quy dinh."
"Khi Nghi viin khdng hgp, Ban thudng vu co quyin: a) Biiu quyet nhieng du dn sdc lugt cua Chinh phu. Nhung sdc ludt do phdi dem trinh Nghi viin vdo phien hgp gdn nhdt di Nghi vien ung chudn hoac phi bo" Theo khoan d Difiu 52 Hifin phap ndm 1946, Chinh phli co quyfin bdi bo nhung menh lenh va nghi quyfit cua ca quan cap duoi (cua cac bo, ciia hgi d6ng nhan ddn va uy ban hanh chinh cdc cdp...) nfiu can. Nhu vay, cac quy dinh nfiu trfin khong ghi ro Hifin phdp la can cir dfi so sanh, d6i chifiu van ban khi xem xet yfiu cdu thdo luan lai hoac huy bo van ban.
Xet mgi each tong the, mac dii cac quy dinh vfi bdo hifin trong Hifin phdp ndm 1946 khong nhifiu ciing nhu chua co ca chfi dfi xu li nhiing van ban va hanh vi vi hifin nhung Hifin phdp nam 1946 da xac lap dugc mot so nguyen Idc ton trpng, dfi cao hifin phap mpt cdch nhat quan va ro rang. Trfin ca sa do, bdo vfi hifin phdp Id bdo ve van bdn chinh tri phap li quan trpng nhat ciia quoc gia, bdo vfi y chl vd chu quyfin toi cao ciia nhan dan.
1.2. Quy dinh ve bdo hien trong Hien phdp ndm 1959
Hifin phap ndm 1959 khong ke thiia hai quy dinh a Difiu 21 va Difiu 70 Hien phap ndm 1946. Theo Difiu 112 Hifin phap nam 1959, chii the ban hanh va thong qua hien phap Id QH. Trong quy trinh thong qua, sira doi hifin phap khong co su phiic quyfit ciia nhan dan. Nhu vdy, quyen lap hifin thupc vfi QH chu khong phdi thuoc vfi nhan dan nhu trong quy dinh tai Hifin phap nam 1946. Quy dinh nay phii hgp vol nguyfin tac "QH Id ca quan quyen luc nhd nudc cao nhdt cua nudc Viet Nam ddn chu cgng hoa" (Difiu 43 Hifin
phap ndm 1959) nhung lai chua thuc su nhat quan vai nguyen tic tdt cd quyfin luc nha nuac thupc vfi nhan dan.
Hifin phdp nam 1959 ldn ddu tien quy dinh QH co quyfin giam sat viec thi hdnh hifin phap (khodn 3 Difiu 50). Tuy nhien, QH khong CO thdm quyfin xii li van ban ciia cac co quan nha nuac trdi hifin phdp. Thdm quyfin xu li vdn ban trai hifin phdp dugc trao cho Uy ban thucmg vu Qu6c hpi (UBTVQH). Theo khoan 7 Dieu 53 Hifin phdp nam 1959, UBTVQH co quyfin sira d6i hoac bai bo nhiing nghi dinh, nghi quyfit, chi thi ciia Hpi d6ng chinh phii trdi vai Hifin phdp, phap luat, phap lenh va nhung nghi quyfit khong thich dang ciia hpi d6ng nhan dan (HDND) linh, thanh ph6 tnic Ihupc trung uong. Ngoai ra, Hifin phap ndm 1959 ciing co mot s6 quy dinh vfi vific kifim tra, gidm sat va xur li van ban. Chang han, Difiu 73, khoan 4 va khodn 5 Difiu 74, Difiu 82, Difiu 85 chi quy dinh mpi each chung chung vfi viec xir li vdn ban "khong thich ddng" chit khong neu ro yfiu cau xem xet tinh hgp hifin ciia van ban bi xu li (tuc la khong chi ro hifin phap la can cii dfi doi chieu, so sanh khi kifim Ira, giam sat va xii li van ban).
1.3. Quy dinh ve bdo hiin trong Hien phdp ndm 1980
Kfi Ihira Hifin phdp nam 1959, Hifin phap nam 1980 tilp tuc quy dinh QH la co quan quyfin luc nha nuac cao nhat, QH co quyfin siia doi hifin phdp. Vfi viec giam sat, bao vfi hifin phap, Difiu 83 Hifin phap ndm 1980 quy dinh: Quoc hpi thuc hien quyfin giam sat toi cao doi voi toan bp hoat dpng cua Nha nucrc, trong do co quyen giam sdt t6i cao vific tuan Iheo hifin phap. Theo Hifin phap nam 1980, CO quan thudng true ciia QH la Hpi d6ng nha nuoc, CO thdm quyen xii li nhihig van ban
ciia cac ca quan nha nuoc 6 trung uong trai voi Hien phdp. Hpi dong nha nuac co quyen dinh chi vific Ihi hanh vd sura doi hode bdi bo nhiing nghi quyfil, nghj dinh, quyfit dinh ciia Hpi dong bg truang trdi voi hifin phap, sira doi hoac bai bo nhiing nghi quyet khong thich ddng ciia HDND linh, thdnh ph6 true ihupc tnmg ucmg vd cdp tuang duong (khoan 8, khoan 10 Difiu 100 Hifin phap nam
1980). Theo Difiu 82 Hifin phap ndm 1980, cac uy ban ciia QH giiip QH va Hgi dong nha nuoc thirc hien quyen giam sat.
Difim mai ciia Hifin phdp ndm 1980 so vcri hai ban hifin phap truoc ddy la bdn Hifin phap nay da true tifip khdng dinh: "Hiin phdp nuac Cong hod xa hgi chu nghia Viet Nam Id ludt ca bdn cua Nhd nudc, co hiiu luc phdp li cao nhdt. Moi vdn bdn phdp ludt khac phdi phit hap vdi Hiin phdp " (Loi noi dau),
1.4. Quy dinh vi bdo hien trong Hien phdp ndm 1992
Hifin phdp nam 1992 trao quyen bao ve hifin phdp cho cac thifit chfi nhu: QH, UBTVQH, Thil nicmg Chinh phu. Cu thfi la:
Thd nhdt, nhifim vu, quyen han bao ve hien phap cua QH bao g6m:
1) Thuc hien quyfin gidm sdt toi cao vific tuan theo hien phap, xet bdo cao hoat dgng ciia Chu tich nuac, UBTVQH, Chinh phu, Toa an nhdn dan t6i cao (TANDTC), Vien kifim sat nhdn dan tdi cao (VKSNDTC) (khoan 2 Difiu 84);
2) Bdi bo cdc van bdn ciia Chu lich nuac, UBTVQH, Chinh phu, Thu tuong Chinh phil, TANDTC vd VKSNDTC trai voi hifin phdp (khoan 9 Difiu 84);
3) Phfi chudn hoac bai bo difiu uoc quoc
^^ do Chu tich nuoc true tiep ki, phfi chudn hode bai bo cdc difiu uoc quoc tfi khde da
dugc ki kfit hoac gia nhap theo dfi nghi cua Chu tich nuoc (khoan 13 Dieu 84).
Thu hai, nhifim vu, tham quyfin bdo vfi hifin phdp ciia UBTVQH bao g6m:
1) Gidi thich hifin phdp (khoan 3 Difiu 91);
2) Giam sal vific thi hdnh hifin phap; gidm sdi hoat dgng ciia Chinh phii, TANDTC, VKSNDTC; dinh chi viec thi hanh cdc van bdn cua Chinh phii, Thu tuong Chinh phu, TANDTC, VKSNDTC trdi vai hifin phdp vd trinh QH quyfit dinh vific huy bo cac van ban d6 (khoan 5 Difiu 91);
3) Bai bo cac nghi quyfil sai trai cua HDND tinh, thdnh pho true thuoc trung uong; gidi tdn HDND tinh, thanh pho true Ihugc trung uang trong trucmg hgp HDND d6 lam thifit hai nghiem trgng den lgi ich ciia nhan ddn (khodn 6 Difiu 91).
Thir ba, nhifim vu, ihdm quyfin bdo vfi hifin phdp ciia Thii tuong Chinh phii bao gom:
1) Dinh chi vific Ihi hdnh hoac bai bo nhirng quyfit dinh, chi thi, thong lu ciia bg truang, cdc thdnh vifin khde ciia Chinh phii, quyet dinh, ehi thi eua uy ban nhan dan (UBND) va ehii tich UBND tinh, thanh ph6 true thupc trung uang trdi vai hifin phap (khodn 4 Dieu 114);
2) Dinh ehi vific thi hanh nhiing nghi quyet ciia HDND tinh, thanh pho, true Ihugc trung uong trdi vai hifin phdp dong thai dfi nghi UBTVQH bai bo (khodn 4 Difiu 114).
Tir nhiing quy dinh nfiu trfin co Ihfi nit ra mgt so nhan xet nhu sau:
Thu nhdt, trong so cac thifit chfi nfiu trfin (QH, UBTVQH va Thii tuong Chinh phu) thi QH Id Ihifit chfi quan trgng nhat, dugc giao nhiing tham quyfin cao nhat va co y nghia quyfit dinh cuoi ciing Irong cac hoat dgng bao vfi hien phap.
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Vific giao cho QH thdm quyfin cao nhat trong vific bdo vfi hifin phdp xuat phat tir quan nifim QH la ea quan quyfin lire nhd nuac cao nhdt. Khong co quan nao co vi tri cao hon hoac ngang bdng vdi QH dfi tai phan eae dao ludt do QH ldm ra. Trong ca chfi bdo vfi hifin phap ciia Viet Nam, chiic nang bao ve hifin phdp chii yfiu dugc trao cho QH - ca quan mang tinh chinh tri. Thdm quyfin cao nhdt cua QH trong vific bdo vfi hifin phdp dugc thfi hien cu thfi nhu sau:
Mgt la CO mgt so nhifim vu, quyfin han ciia UBTVQH vd Thu tuang Chinh phu thuc hien nhdm phuc vu cho hoat dgng bdo vfi hifin phdp cua QH. Chdng han, dfi QH co thfi ra nghi quyfit huy bo vdn ban ciia Chinh phii, Thu tudng Chinh phii, TANDTC, VKSNDTC trai vdi Hien phdp, theo khodn 5 Dieu 91 cua Hien phap nam 1992, UBTVQH dinh chi thi hdnh va trinh QH quyfit dinh vific huy bo cdc van bdn do.
Hai la kfit qud eua hoat dpng bdo vfi hien phdp eua UBTVQH vd Thu tudng Chinh phii lao thanh co sd, cung cdp bdng chiing, du- lieu thirc tfi cho QH tifin hdnh hoat dpng bao vfi hifin phdp ciia minh. Chang han, theo quy dinh tai khodn 2 Difiu 91 Hifin phdp ndm 1992, UBTVQH gidm sdt vific thi hanh hifin phap, giam sat hoat dpng cua Chinh phii, TANDTC, VKSNDTC. Viec thi hdnh hifin phdp vd hoat dpng cua Chinh phii, TANDTC va VKSNDTC la hoat dgng dugc tifin hdnh thudng xuyfin, lien tuc. Do vay, QH - co quan chi hgp mgt ndm hai lan, moi lan mgt thang thi khong the gidm sat nhung hoat dpng do mpt each kip thdi, thudng xuyfin, cd chat lugng vd hifiu qua. UBTVQH la co quan thudng true eua QH vdi thanh phdn Id Chii tich QH, cac pho chu lich QH va cac uy vifin
lam viec theo chfi dg chuygn trach. Vdi thdnh phdn, tinh chdt va phuang thOrc hoat dgng nhu vdy, UBTVQH cd du ndng luc va difiu kifin dfi tifin hanh gianj sat vific thi hdnh hifin phap va hoat dgng cua Chinh phu, TANDTC va VKSNDTC. Kfit qud gidm sat (the hien d cac bdo cao giam sat) cua UBTVQH doi vdi nhiing hoat dpng ndi tren se eung cap tu lieu xac thuc cho QH xem xet bao cdo hoat dgng ciia Chinh phu, TANDTC, VKSNDTC tai cac ki hpp cua QH.
Thir hai, giiia cac Ihifit chfi cd su phan cong, ph6i hgp thuc hifin nhifim vu bao vfi hifin phap.
Co quan co dia vi phap li cao han dugc giao nhifim vu quan trpng hon, dugc quyfit dinh hau qua phap li vdi nhiing chfi tai nghifim khde hon d6i vdi doi tugng chiu su tdc dgng eua ho?t dgng bao vfi hifin phap. QH Id ca quan co dia vi phdp li cao nhdt co quyfin gidm sat t6i cao vific tuan theo hifin phap. Tinh loi cao cua quyfin giam sat dugc thfi iiifin nhu sau:
Mgt Id ddi tugng chiu su gidm sdt toi cao nhdm bao ve hien phdp ciia QH la nhiing ca quan cd dia vi phap li d tang cao nhdt trong bg may nha nudc (trir QH).
Hai la QH co quyfin xir li cdc hdnh vi vi pham hien phap bang cdc bifin phdp chinh tri phap li nghifim khac nhat nhu dinh chi, bai bo cdc vdn ban trdi vdi hifin phdp do cdc co quan cd dia vi phap li cao nhat (trir QH) trong bg may nhd nudc ban hanh.
Giua cac thiet che cung co su phdi hgp de thue hien cac hoat dgng bao vfi hien phdp.
Chdng han hanh dpng dinh chi viec thi hanh hode bai bo nhiing van bdn quy pham phdp ludt ciia bp trudng, cdc thanh vien khde ciia Chinh phli, ciia UBND tinh, thanh phd tryc thupc trung uong trai vdi hifin phap do Thii
tudng Chinh phii tien hdnh co y nghia quan trgng ho tn? cho hoat dgng eiia QH de xem xfit di dfin vific bai bo cac vdn ban trai hifin phap.
Thu ba, thifit chfi bdo vfi hifin phap mang linh phi tap trung va khong ehuyfin trdch, thdm quyfin bdo ve hien phap dugc giao cho nhifiu CO quan, ca nhan khac nhau nhung chua dugc phan dinh ro rang, mdt so thudt ngu dugc sir dung de xdc dinh nhifim vu vd quyen han ciia cac thifit chfi bdo vfi hifin phdp khae nhau nhung ihifiu su giai thich va phdn bifit rach roi da dan dfin viec dim ddy hode ne tranh lan nhau Irong thuc hifin hoat dgng bdo ve hien phdp.
D6i vdi ca ba thifit chfi nay (QH, UBTVQH, Thli ludng Chinh phii), cdc hoat dgng kifim tra, giam sat tinh hgp hien ciia van bdn quy pham phap lual, gidm sdt vifie thi hdnh hifin phap, giai thich hien phap... dfiu khong phai la hoat dgng mang tinh chuyen trdch. Vi vdy, cac thifit chfi do khong thfi ehuyfin ldm dii miic can thifit doi vdi edc hoat dgng bao vfi hien phap. Trong khi d6, su phan cong nhifim vu, quyfin han giiia cdc thiet chfi nay trong hoat dpng bao ve hifin phdp chua r5 rang ciing la nguyfin nhan dan den tinh trang trong chcr va diin ddy ldn nhau. Chdng han theo khoan 1 Difiu 84 Hifin phap ndm 1992, QH co quyfin gidm sat toi cao vific tuan theo hien phap vd theo khodn 5 Difiu 91 Hifin phdp ndm 1992, UBTVQH eo thdm quyfin gidm sat vific Ihi hdnh hien phap. Nhu vay, giiia giam sal toi cao vific tudn theo hien phap va gidm sat viec Ihi hanh hifin phap co gi khac nhau?
Lieu CO phdi gidm sdt vifie thi hdnh hifin phap do UBTVQH lifin hdnh la mgt bg phdn ciia gidm sdt toi cao viec tudn theo hien phap do QH tifin hdnh? Npi dung vd hinh thirc ciia gidm sat vific thi hanh hifin phap co giong giam sal vific tudn theo hien phdp hay
khong? Co mpt so hoat dpng bdo v? hifin phdp cimg dugc giao cho nhifiu thifit chfi nhung chi cdn mfit thiet chfi khong thuc hifin thi hoat dgng do se bi tri tre, tham chi khong dugc thuc hifin trong mgt thdi gian ddi.
2. Kien nghi sira dSi, bh sung cac quy dinh ve bao hien trong Hien phap nam 1992
2.1. Doi mdi quy trinh xdy dung, sua ddi hien phdp
Theo Difiu 84 Hifin phdp nam 1992, QH CO quyfin: "... ldm Hiin phdp vd sua doi Hien phdp". Quy dinh nay thfi hifin quan nifim hien phap ehi Id van bdn ciia nha nudc chii khong phdi la ciia nhdn ddn, hifin phdp ehua thfi hifin sir khfi udc, thoa thudn giiia nha nudc va nhan dan. Vi vay, hien phap do nEia nudc lap ra, QH vdi tinh each Id co quan quyfin luc nhd nude cao nhat, co quyen ban hanh va siia doi hien phdp.
Vfi vifie sua doi hifin phap, Dieu 147 Hifin phdp nam 1992 quy djnh: "Vi^c sua doi Hiin phdp phdi duac it nhdt Id hai phdn ba long so dgi bieu QH biiu quyil tdn thdnh "
Ngoai quy dinh nfiu trfin, Hien phap khong quy dinh chi tifit vfi trinh tu siia doi hifin phdp, chu thfi co tham quyfin de trinh du an siia doi hifin phdp, van dfi co cdn thanh lap uy ban siia ddi hifin phap hay khong, cong bd hifin phap sira doi nhu thfi nao, dudi hinh thiie nao, pham vi ciia vific siia doi hifin phap ra sao, co nhiing gidi han nao doi vdi vific siia d6i hifin phdp hay khong... Quy dinh tai Difiu 147 Hifin phap ndm 1992 ciing chua dli ro rang. Bdi vdy, vdn dfi sua doi hifin phap dugc dat ra khi co hai phdn ba dai bifiu QH bifiu quyfit tan thdnh hay hifin phap sua dfii dugc thong qua khi eo hai phdn ba dai bifiu QH bifiu quyet tdn thdnh?
Tdng kfit thuc tifin qua trinh xem xet, sira
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NGHIEN CL/U - TRAO DOI
d6i, thong qua hifin phap thdi gian vira qua, UBTVQH cho rdng: "Khi tiin hdnh xem xet, thong qua Hiin phdp, QH thuang van dung cdc quy dinh cm viec xem xet, thong qua /wa/"-"'Nhu vay, QH da d6ng nhdl quy trinh siia d6i hifin phap vd quy trinh sira doi luat.
Trong quy trinh nay, nhan dan co quyfin tham gia dong gop y kifin vao du thao hifin phap nhung khong co quyfin bifiu quyfit dong y hay khong dong y doi vdi du thao hifin phdp siia d6i. Vific Idy y kifin dong gop ciia nhdn dan vao du thao sira doi hien phdp phdn ndo da bao dam dugc vifie thfi hifin y chi ciia nhdn dan trong hifin phdp. Tuy nhifin, ket qud eua vific lay y kien nhdn dan khong mang linh chdt phap li, khong co gia tri bat bupc va viee l6 chiic Idy y kien nhan dan van mang tinh hinh thirc, hieu qud khong eao.
Nhu vay, quy trinh sira doi hifin phap hifin hanh ciia Viet Nam con khd don gian. Chii quyfin ciia nhdn ddn trong quy Irinh lap hifin va sira d6i hifin phap con md nhal va mang tinh hinh thiic.
Viet Nam la nha nudc dugc xdy dung Iren nfin ldng chii quyen ciia nhdn dan, vific xay dung vd sira doi hifin phdp phdi dua tren CO sd chii quyfin cua nhdn dan. Dfi dap iing cac yeu cau cua mgi ban hifin phdp ciia NNPQXHCN, doi hoi phai sira doi quy trinh xay dung, sira doi hifin phap sao cho do Id quy trinh dan chu, khoa hgc va chat che.
Quy trinh xdy dung hifin phap d edc quoc gia trfin the gidi thudng bao gdm mpt so giai doan CO ban sau day:
Thic nhdt, dfi xudt sdng kifin lap hifin Giai doan nay xdc lap su can thiet xay dung hoac sira doi hifin phdp. Viec xay dung mpt ban hifin phdp mdi thudng dat ra khi mpt quoc gia gianh dugc dpc lap, muon tuyfin
bd chii quyfin qu3c gia hoac khi thay ddi chfi dd chinh tri nay bdng chfi dp chinh tri khac.
Con vific siia ddi, b6 sung hifin phdp thudng xudt phat lir su khdi xudng ciia dang cdm quyfin va dugc da sd nghi sT bifiu quyfit tan thanh vdi ti Ie tir 2/3 trd Ifin. Ngoai ra, d mot sd qudc gia, nhdn dan ciing co quyfin yeu cau sua ddi hifin phap {vi du: Thuy Sy: 100.000 chii ki; Italia: 500.000 chii ki; Philippines:
20% cii Iri dugc dang ki...).
Thu hai, soan thao hifin phap Dfi soan thao du thao siia ddi hifin phap, d cdc qu6c gia thudng to chiic hdi nghi lap hifin do nhan dan bdu ra thdng qua bo phifiu ph6 thong {vi du. Hoa Ky); QH lap hifin bau ra uy ban soan thdo hien phdp nhu Hifin phap ndm 1946 eiia Viet Nam, Hifin phap ndm 1993 eua Cong hod Lien bang Nga. Hpi nghi lap hifin hoac uy ban soan thao hifin phdp dugc nhdn ddn uy quyfin thay mat nhdn dan, phdn anh tifing noi eua nhan dan trong vific soan thao du thdo hifin phap hay du thao siia doi hifin phap...
Thu ba, cong b6 du thao vd to chiic Idy y kifin nhan dan
Trong giai doan nay thudng co cac quy trinh vfi npi dung nhiing vdn de lay y kifin dong gop eua nhdn dan, thdi gian Idy y kifin, vific tifip thu vd phdn hoi y kifin cua co quan soan thao.
Thu tu, thdo ludn vd thong qua hifin phap taiQH
Du thao hifin phdp thudng dugc QH thdng qua khi co it nhat 2/3 s6 dai bifiu tro len dong y.
Thu ndm, trung cdu y dan dfi nhan dan phfi chuan hien phap
Day la xu hudng phd bifin trong quy trinh lap hifin cua nhifiu qudc gia tren thfi
NGHIEN CL>U - TRAO D P I |
gidi hifin nay. Sau khi hifin phdp dugc QH bifiu quyfit thong qua phai dua ra cho nhan ddn ca nudc bo phifiu phe chuan.
Vific doi mdi quy trinh xay dung, siia doi hifin phdp d Viet Nam cung cdn tham khao dfi thira nhdn nhiing gid tri, ehuan muc pho bifin, van dung, tifip thu nhiing difim hgp li, phil hgp vdi difiu kien d Viet Nam trong quy trinh nfiu tren. Dfi bao dam rang hifin phap khong chi la van bdn phdp li ciia nhd nude ma con la van ban thfi hifin chii quyfin toi cao ciia nhdn dan, khong nfin quy dinh chi QH co quyfin lap hifin va sua d6i hifin phap nhu hifin nay, QH co thfi co quyfin dfi xudt sang kifin siia d6i hien phap khi co tir 2/3 trd len tdng so dai bieu QH bifiu quyfit. Hifin phdp ciing cdn quy djnh ro gidi han sira ddi hien phap.
Chang han, chinh thfi ciia quoc gia khong the dugc sua doi; quy trinh sira doi hifin phdp khSng thfi dugc sira doi; vific sira doi hifin phap c6 thfi md rgng chir khong duge han chfi bdt nhiing quyfin con ngudi, quyen cong dan da dugc quy dinh trong hien phdp...
Hien phdp quy dinh quy trinh sira doi hien phdp gom cac budc: Dfi xuat sang kifin sua doi hifin phdp, lap uy ban soan thdo hifin phap, cong bo du thao hifin phap va lay ^ kien nhdn dan, thao ludn vd thong qua hifin phap tai QH va trung cau y dan ve hifin phap.
Tinh than cot loi cua quy trinh siia doi hien phdp Id phai bdo dam linh chat che, khoa hpe, nhdn ddn duge thfi hifin y chi ciia minh \ a dua ra quyfit dinh cuoi ciing vfi hifin phap
2.2. Xdy dung ca che bdo ve hien phdp mdi vdi thief che chuyen trdch, dgc lap. thi chi ddng bg, thong nhdt. rd rdng vd phuang thiec hogt dgng tdi phdn hien phdp mang linh chinh tri phdp li
De dat dugc muc dich bao vfi hien phap.
thifit chfi bdo ve hifin phap phai cd vi tri dge lap vdi cdc ca quan khae trong bg may nha nudc, hoat dpng ciia thifit che nay phdi mang tinh ehuyfin trdch vdi nhung ehiic nang, nhifim vu rifing.
Bao ve hifin phdp la hoat dpng dde bifit dugc thfi hifin d muc dich, tinh chdt, ngi dung dac bifil vd do vdy doi hoi hoat dgng do phdi dugc tien hdnh bdi chii thfi dac bifit.
Bao vfi hifin phap la bao vfi chti quyfin nhdn ddn, bdo vfi chfi dp chinh tri, nfin tang phdp li cua Nhd nudc, bao vfi nhimg gid tri trudng ton va cao quy nhdt trong xa hgi. Bdo vfi hifin phap khong ehi la bdo vfi va bdo dam sir tuan thu nhiing nguyfin tac, quy pham dugc thfi hifin bang Idi van eiia hifin phap ma c6n bao ve tinh thdn cot loi ciia hifin phdp. Dfi dat dugc muc dich do, ngi dung bdo ve hien phdp khSng chi bao gom hoat dpng mang linh phap li dan thudn ma con bao gom ho^t dgng mang linh chinh tri. Thifit che bao vfi hifin phap phdi Id ea quan ehuyfin trdch dugc giao chirc ndng, nhifim vu tien hanh ede nhom hoat dgng sau: 1) Xem xet, phan quyfit xti li van ban vi hifin; 2) Giai quyfit tranh chdp va vi pham hifin phap lifin quan dfin to ehiic va thue hifin quyfin luc nhd nudc; 3) Giai thich hien phap; 4) Bao ve quyfin con ngudi, quyfin va tu do hien dinh cua cong dan; 5) Hoat dgng lifin quan dfin cde quan chite nha nudc cao cap.
Nfiu xet trong pham vi bp mdy nha nudc, chi hai nhom hoat dpng xem xet, phan quyfit xti li van bdn vi hifin va gidi quyfil tranh chap, vi pham hien phap lifin quan dfin to chiic va thuc hifin quyfin lire nha nudc da dii dfi doi hoi ihifit chfi bao vfi hifin phap can c6 vi tri dge lap so vdi cdc co quan thuc hien cdc quyfin lap phap, hdnh phdp vd tu phdp. Tinh chat dac
TAP CHl L U A T HOC s 6 7/2013
NGHIEN CLTU - TRAO DOI
thil cua hoat dgng bao vfi hifin phdp (dugc bifiu hifin ro nhdt d cac hoat dgng nhu giai thich hifin phap, bao vfi quyfin con ngudi, quyfin va tu do Iiifin dinh cua cdng ddn, hoat dgng lifin quan dfin quan chiic nha nude cao cdp) doi hoi CO quan chuyen trdch bdo vfi hifin phap phdi vira mang tinh ehinh tri, vira mang tinh lai phdn hifin phap. Nfiu thifiu tinh chat chinh tri, co quan bdo vfi hifin phdp kho CO thfi thuc hifin hoat dgng gidi thieh hifin phap, giai quyet cac vu vific lien quan dfin cdc quan chiic nha nudc cao cap co hanh vi vi hifin. Neu thifiu tinh chat tai phan hifin phap,
•«d , ^ a n bao vfi hifin phdp khdng thfi phdn quyet va xu li van ban vd hdnh vi vi hifin, bdo ve cdc quyfin va tu do iiifin dinh ciia cong dan.
Bdo ve hifin phap la Ioai boat dgng dac thil, dac bifil quan trpng vd phai dugc difiu chinh bdi he thong quy dinh vfi bao vfi hien phdp rifing. He thong ndy bao gom cac nguyfin tac, quy pham dong bp, thong nhat xde dinh muc tifiu, dinh hudng va tao lap ca sd phdp 11 cho vific xdy dung, van hanh c a chfi bao vfi hifin phap.
Cde quy dinh vfi bdo vfi hien phdp Irudc hfit Id nhiing nguyen tdc hifin dinh ciia Nha nudc Cpng hod xa hpi chii nghia Viet Nam, do la: Nguyen tac bdo dam quyen luc nha nudc thupc ve nhdn dan, nguyfin tdc ve hifiu luc toi eao cua hifin phap, nguyfin tac tdn trpng vd bdo ve quyen con ngudi, quyen cong dan... Cdc nguyfin tdc nay khong chi mang tinh phdp Ii ma con mang tinh chinh tri sdu sac. Chiing vira phdn anh nhiing yfiu cdu bao dam tinh phdp quyfin vira phan dnh yfiu cdu ve mat chinh tri bdo dam ban chdt giai cdp, ban chat ddn chii cua Nha nudc Cgng hod xa hgi chii nghTa Vifil Nam. Bfin canh cdc nguyfin tdc chinh tri-phdp li nfiu Iren, cdc quy
dinh dugc ghi trong hifin phap vd cac van ban quy pham phap ludt ehuyfin bifit khac la bg phdn ciia thfi chfi bdo vfi hifin phap. Bg phan ndy tao lap co sd phap Ii cho hoat dgng bdo vfi hifin phap. Chdng han nhu hoat dgng xem xel vd xii li vi pham hien phap trong hoat dgng lap phap chii yeu dua trfin can cii phdp li Id cac quy dinh ciia Hien phap chii khdng phai dua trfin can cii la cae quy dinh cua Luat to chiic Quoc hdi va cdc ludt khac... Cdc quy dinh trong Hifin phap ciing xdc dinh vj tri, tinh chdl, nhifim vu, quyfin han ciia ca quan bao vfi hifin phap ehuyfin trach.
Phuang thuc lien hanh hoat ddng bdo ve hifin phdp Id phuang thirc dac biet nham dat dugc muc dich bao vfi Iiifin phap, phu hgp vdi vi tri, tinh chdt, chuc nang, nhifim vu va pham vi thdm quyfin eiia co quan bdo vfi hifin phdp.
Co quan bao ve hien phap ehuyfin trach, dgc lap, viia mang tinh ehinh tri vira mang tinh tdi phdn hifin phap. Vi vay, phuang thiic hoat dpng ciia CO quan bdo vfi hifin phdp ehuyfin trdch phdi khac so vdi phuang thuc bao ve hifin phap thdng qua co quan mang tinh chinh tri nhu QH vd cung khac so vdi phuang thiic to tung lu phap d eac toa an thudng. Phuang thiic bao vfi hien phap thong qua eo quan ehinh tri chu yfiu mang linh tu vin, khuyfin nghi, it CO nhiing chfi tai phap Ii manh va trifit dfi, khong phil hgp dfi tai phan hanh vi vi hifin. Phuang thuc l6 lung tu phdp d cde loa dn thudng co thfi ddn dfin nhiing quyfit dinh, ban dn tuyen b6 dp dung chfi tdi nghifim khde nhdt nhung ehiing mang tinh ca thfi hod trdch nhifim phdp li. Nhirng phucmg thiic nhu vay khong phil hgp vdi mue dich, tinh chdl, npi dung bdo ve hifin phdp. Hem niia, chii thfi ciia nhimg hanh vi vi pham hifin phap ehu yfiu la ehu thfi cong quyfin, chfi tai trach nhifim co
60
thfi dp dung doi vdi nhiing ehu thfi dd Id trdch nhifim ehinh tri phdp li, do do hoat dpng bdo ve Iiifin phdp phai dugc tifin hanh theo phuong thirc dac ihii mang tinh tdi phdn Iiifin phdp.
2.3. Quy dinh hiiu luc true tiep cua hien phdp vd siea doi cdch quy dinh trong hien phdp ve mgt so quyen vd tu do eita cong ddn
Xu hudng lap hien tren the gidi hifin nay coi hien phap khong chi Id vdn ban mang linh chinh tri vdi nhiing "ldi hiia chinh tri thu dpng" cua cdc dang phdi chinh tri ma con dugc coi la vdn ban chiia dung nhung quy pham thuc chdl va co hifiu luc phap Ii, eo khd nang duge dp dung true tiep doi vdi edc eo quan nha nudc, to chiie va cdng ddn. Trong nha nude phap quyfin, hien phap la ludt toi cao dong thdi la luat thue dinh co ban. Hifin phap khong chi la nhiing dinh hudng ehinh tri, dao diic hoac mang tinh Irifit Ii ma con la luat xac thue vd co hieu luc phap Ii.
Nhiing yfiu cau ve bao dam va phdt huy dan chu doi hoi hifin phdp - ludt co ban cua nha nude, vdn bdn thfi hien y chi toi cao ciia nhan ddn phai duge dp dung true tifip. Hifin phap Vifit Nam phai sii dung li lfi phii hgp cac loai quy pham nguyfin tac, quy pham muc tifiu, quy pham dinh nghia vd quy pham quy tac: "Viec su dung dung miec cdc quy phgm noi tren eita hiin phdp cdn duac li gidi bdi nhu cdu dp dung hiin phdp vd gidi thich hien phdp. Boi hoi ciia nen ddn chu, mong muon cua ddn chiing vd ndi chung la nguyen tdc phdp quyin ddt ra nhu cdu hiin phdp cdn phdi duac dp dung true tiep Chinh vi vdy, cdc quy dinh cua no phdi ddp ung dugc yeu cdu cho viic dp dung true tiip vd bdo ddm de su gidi thich duac chinh xdc ",*^'
Trong thue tien dp dung phap luat d Viet Nam, khi gidi quyet cac khifiu kifin ciia ddn.
cac ca quan nha nudc, kfi ca tod an khong can cii vdo edc quy dinh ciia hien phdp ma thudng chi xem van dfi cd lien quan dfin vu vific dugc quy dinh trong luat nhu thfi ndo. Vi vay, dfi bdo dam hifiu Iuc true tifip ciia Iiifin phap can phdi doi mdi cdch quy dinh trong hifin phap vfi cac quyfin vd tu do ciia cong ddn.
2.4. Sua doi mgt so quy dinh lien quan den quyin gidm sdt cua QH
Chiing loi cho rang d Vifil Nam nfiu thifit lap ca quan bao vfi hifin phap ehuyfin trdeh, dgc lap thi van cdn giao cho QH Ihdm quyfin giam sat thi hdnh hifin phdp, giam sal vdn bdn quy pham phdp lual. QH la co quan dai difin eiia nhdn dan, thuc hien cac chiic ndng lap phdp, quyfil dinh nhiing vdn dfi quan trpng ciia ddt nude va gidm sdt. Chiic ndng gidm sat noi chung va cac hoat dgng gidm sat vifie thi hdnh hifin phdp, gidm sat vdn bdn quy pham phdp ludt noi rifing khong dgc lap, tdeh rdi ehiic ndng lap phdp vd quyfit dinh nhiing vdn dfi quan trgng cua dat nudc ciia QH. Giam sat vific thi hdnh hifin phap, giam sal van ban quy pham phdp luat co tac dung ho trg dde luc bdo ddm cho QH thuc hifin tot hem chiic nang lap phap vd quyfit dinh nhiing vdn dfi quan trgng cua ddt nudc. Mat khac, hoat dpng gidm sat vific thi hanh hifin phdp, gidm sat vdn ban quy pham phap luat ciia QH c6 y nghTa hfit siic quan trpng trong vific bao vfi hifin phdp. Tuy nhifin, edn phdn bifit vd xac dinh ro tinh chat, pham vi tham quyen giam sdt thi hdnh hifin phdp, gidm sdt vdn bdn quy pham phdp luat ciia QH vdi kiem tra, giam sat va phan quyfil vfi cac vi pham hifin phdp trong hoat dpng lap phap, hanh phdp, tu phap cua ca quan bao vfi hifin phdp ehuyfin trdch. Xel vfi tinh chat, giam sat ciia QH la mpt trong ba chiic ndng cua ca quan
TAP CHl LUAT HOC s 6 7/2013
NGHIEN Cl/U - TRAO DOI
dai difin cua nhdn dan, QH thay mat nhan dan thuc hifin gidm sdt cac co quan trong bg mdy nha nudc thuc hien quyfin lue da dugc nhdn ddn uy thdc. Nhung vi tri vd tinh chat ciia QH khong phii hgp vdi viec ra phdn quyfit ddi vdi nhiing vi pham hifin phap trong lap phdp, hanh phdp vd lu phap.
Dfi gidi quyfit thod dang moi quan he giiia QH vdi ca quan bao vfi hien phdp ehuyfin trdch, chiing toi eho rang hifin phap phai xde dinh mpt each diing ddn, ro rang vfi tinh chdt, pham vi, tham quyfin giam sdt cua QH. Theo quy dinh ciia Hifin phdp hifin hanh, QH c6 quyfin gidm sal loi cao vific tudn theo Hifin phdp con UBTVQH giam sdt vific thi hanh Hifin phap. Chiing toi cho rang edn quy dinh QH CO quyfin giam sal toi cao vific thi hanh Hifin phdp eon UBTVQH gidm sat vific thi hanh Hien phdp. Trong do, giam sat ciia UBTVQH dugc hieu la hoat dpng giam sat phue vu eho giam sdt tdi cao ciia QH tai ki hpp ciia QH. Giao cho UBTVQH thue hien quyfin gidm sdt vific thi hdnh hifin phdp dfi bao dam tinh lifin tue eua hoat dgng giam sdt trong difiu kifin QH Viet Nam khong hoat dgng thudng xuyfin ma hoat ddng theo ki hgp.
Doi lugng chiu su gidm sat toi eao ciia QH la nhirng co quan, chiic danh cao nhat trong bg may nhd nudc. Tuy nhifin, c6 mgt so doi tugng cimg chiu su gidm sal tdi cao cua QH vd UBTVQH, do la: Chinh phu, Thu ludng Chinh phu, TANDTC, VKSNDTC. Tuy nhien, cdn phan bifit rd rang vfi tinh chdt va hdu qua phdp li eiia hoat dgng giam sat eua UBTVQH va giam sat t6i cao eiia QH. Vfi tinh chdt, hoat dpng giam sat cua UBTVQH cung cdp dii lieu, bang ehiing, cdn eii cho hoat dpng giam sat tdi cao ciia QH. Bifin phdp ma QH sir dung nghifim khde hem so vdi bifin
phdp md UBTVQH sir dung.
Thuc hien quyfin giam sdt tdi cao viec thi hdnh hifin phdp, QH van gidm sat vdn ban quy pham phap luat cua mpt sd ca quan trong bp mdy nha nudc nhung khong nfin giao eho QH thdm quyfin bai bd mdt sd van ban quy pham phap ludt nhu quy dinh tai khoan 9 Difiu 84 Hifin phdp nam 1992. Hien nay, theo quy dinh ciia phap luat, QH cd quyfin giam sat cdc van ban quy pham phdp iuat ciia Chii tich nudc, UBTVQH, Chinh phu, Thu tudng Chinh phu, TANDTC, VKSNDTC. Trong trudng hgp phat hifin cac van bdn quy pham phdp lu|it nay cd dau hieu trdi vdi hien phap, ludt thi cac ca quan cua QH cd quyen yfiu eau CO quan hode ca nhan cd thdm quyen ban hanh van ban quy pham phdp luat khong hgp hifin tu sua d6i hoac dfi nghi UBTVQH xem xet, dinh chi vifie thi hanh va trinh QH xem xet, quyfit dinh viec bai bd mdt phdn hay loan bp van bdn do tai ki hpp gdn nhdt. Mac dii phap luat quy dinh nhu vay nhung thuc tfi, vifie xem xet linh hgp hifin eua edc vdn ban noi trfin khSng thudng xuyfin va kem hifiu luc. Vific giao cho QH thdm quyfin tai phan vfi tinh hgp hifin ciia van ban quy pham phap lual khong phu hgp vdi vi tri, tinh ehat hoat ddng ciia QH. Ddi vdi nhiing vdn ban nay, thong qua hoat ddng giam sat cua QH, nfiu phdt hien co ddu hifiu trdi vdi hifin phap thi yeu cau eo quan bdo vfi hifin phap chuyen trach bai bo mdt phan hay toan bd vdn ban do ihi hgp li hon./.
(l).Xem: Uy ban thirimg vy Qu6c h^i - Ban cong Uc l^p phip, Quy trinh, thu lyc Irong hoat dgng cua Qudc hoi, nt Npi, 2005, tr, 51,
(2).Xem: Dio Tri LJc, "Hien phap trong d&i s6ng xfl hoi vi qu6c gia", Tgp chi nghien cuu lap phap, ^ 9/2010, tr, 11-12.
