?ifti luudi fikdp. bi4l 86 5(290)-2016
BAN V£ dY QUYiN BAN H A N H QUViT BINH H A N H C H I N H
I ThS. DANG THI HA *
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ogt ddng fty quyen ban hdnh quylt djnh hanh chmh ddng vai frd hit sftc quan frpng frong qudn ly nhd nude. Tuy nhien, cho den nay, frong he thdng cdc van ban quy pham phap luat d nude ta van ehua cd mOt van ban quy pham phdp ludt ndo quy djnh mdt each ddy dft vd thdng nhdt ve van de fty quyen, dan den viee fty quyen didn ra mdt each tiiy tien, khong ro gidi hgn, khdng rd fraeh nhiem cfta timg cap, co quan, chii the.Vi the, da den Iiie ehung ta can cd edch nhm nghiem tiic vd edp thiet hon ve vdn de xdy dyng che dinh uy quyin ttong ban hanh quylt dinh hdnh chinh.
L Mdt so quy dinh phap luat vl liy quyin va uy quyen trong ban hanh quyet djnh hanh chinh d nirdc ta hien nay
1.1. Che dinh dy quyin theo phdp lugt ddn su Theo quy djnh eua phdp ludt ddn sy, viec uy quyen dupe xdc l^p thdng qua hap ddng fty quyen, theo do, dai dien theo fty quydn la dai dien dupe xdc lap theo sy fty quyen giua ngudi dai didn vd ngudi dupe dai dien. Viec fty quyen phdi dupe lap thdnh van ban. Ngudi chua thdnh nien, ngudi mat ndng lyc hdnh vi ddn sy hodc ngudi bi hgn che nang lyc hanh vi ddn sy khdng dupe ldm ngudi dgi didn theo uy quyin. Nbu vdy, mpt khi hai ben dd thda thuan xdc lap hpp dong liy quyin, ben dupe uy quyen cd nghTa vu thyc hipn edng viee nhan danh bdn fty quyin vd frong phgm vi iiy quyen, ngudi dupe fty
quyen c6 quyen thay mat ngudi uy quyin thyc bien mdt sd hanh vi nhat dinh lam phat sinh hau qua lien quan den quyen Ipi cua cde ben frong quan he hpp dong hoac Ipi ieh eiia ngudi da iiy quyen frong phgm Vi fty quyen.
1.2. Uy quyen trong xd phgt vi phgm hanh ehinh
Theo Dieu 54 Ludt Xft ly vi pham hdnh chinh ndm 2012 vd Nghi djnh sd 81/2013/ND-CP ngdy 19/7/2013 cua Chinh phii quy dinh chi tilt mdt sd didu va bidn phdp tbi hanh Ludt Xft ly vi pham hdnh chinh thi ngudi cd thdm quyen xft phgt vi pham hanh chinh cd the uy quydn cho cdp phd. Tuy nhien, thay vi sft dyng thudt ngu uy quyen, Ludt Xu ly vi phgm bdnh chinh ndm 2012 lgi su dyng thugt ngu
"giao quyin", theo dd, viec giao quyen xft phgt vi pham hanh chinh dupe thyc hien thudng xuyen hoac theo vy viec, ITnh vuc cy the tiiy vdo tinh hinh thyc te. Viec giao quyen phai thyc hidn bang vdn bdn CO chu ky va ddng dau cua ngudi co tham quyen. Cdp phd dupe giao quyen phai chju frdch nhiem vd quyet dinh xft phat vi phgm hanh chinh cua minh tiudc cdp frudng vd tiudc phdp ludt, ngudi dupe giao quyen khdng dupe fty quyen lai cho bat ky ngudi nao khdc.
Nhu vay, xet vd mat bdn chdt phdp ly, quan he fty quyen theo quy dmh cfta Luat Xft ly vi pham hanh chinh nam 2012 tdn tgi 2 quan he: (i) Quan he giua
* Dgi hgc Ludt thugc Dgi hgc Hue
Ddn chCi & Phdp ludt E H
^hi hank phdp. ioM 86 5 (290)-2016
ngudi fty quyin vd ngudi dupe iiy quyen. Trong quan he ndy, ngudi dupe fty quyin cd nghTa vy phai tiuc tilp thyc hien edc hdnh vi phap Iy frong phgm vi iiy quyin ma khong dupe phep iiy quyin lgi cho ben nao khdc; (ii) Quan he gifta ngudi dupe uy quyin vdi ben thft ba frong quan he phap ludt hanh chuih. Ngudi dupe uy quyen vdi tu cdch cua ngudi uy quyin thyc hien thdm quyen xft phat vi pham hanh chinh ddi vdi cdc hanh vi vi pham phap ludt ye hanh chinh. Ngudi dupe fty quyin c6 nhung quyen vd nghTa vu nhdt djnh ddi vdi ddi tupng hi xu phgt.
Theo cac quy djnh phdp luat vl xft ly vi phgm hdnh chinh d ttdn, ngudi cd tham quyin xft phat vi phgm hanh chinh cd thi iiy quyen cho cdp phd. Viee giao quyin pbai tiiyc hipn bdng van ban cd chft ky va ddng ddu ciia ngudi co tiiam quyen. Cdp phd dupe giao quyin phai chiu fraeh nhidm vl quylt djnh xft phgt vi pham hdnh chinh ciia minh tiudc cdp ttudng, tiudc phdp luat vd khdng duac uy quydn Igi cho bdt ky ngudi nao khdc. Quy dinh nay ban hanh nhdm gidm dp luc cho cap tiudng, dong thdi cdi thipn vdn dl vl thii tyc hanh chinh, giup viec xft phgt vi pham hanh chinh dupe tien hdnh nhanh hon.
Tuy nhien, quy dinh nay cd the phdt sinh vudng mdc, cd y kien cho rang, mOt khi cdp trudng da giao quyen xu phgt thuOc tham quyen cua minh cho cdp phd thi ddng nghTa vdi viec cap trudng da tam chuyen giao tham quyen xft phat ciia minh cho cap phd, cap phd phdi chiu trach nhiem tiudc cap trudng vd trudc phap luat. Vi vdy, cap trudng khdng edn thdm quyen de ky cac quyet dinh xft phat frong phgm vi dd uy quyen nfta (?). Mac dii thuc tl chua xay ra vudng mac neu fren, nhung day eung Id mdt tinh hudng ma chung ta can dy li?u dl xem xet.
1.3. Uy quyen trong linh vuc qudn ly dit dai Theo quy dinh tai khodn 1 Dilu 105 Luat Ddt dai ndm 2013; "Uy ban nhdn dan cdp tinh cdp giay chimg nhdn quyen sft dyng ddt, quyin sd hiiu nha d
vd tdi sdn khdc gdn liln vdi ddt cho td chuc, ea so tdn gido; ngudi Viet Nam dinh cu d nude ngodi, doanh nghipp cd v6n ddu tu nude ngoai thuc hi?n dy dn ddu tii; td chftc nude ngoai cd chuc ndng ngogi giao.
Uy ban nhdn ddn edp tinh dupe fty quydn cho co quan tdi nguyen vd mdi tiudng cftng cdp cdp gi^y chftng nhdn quyin sft dyng ddt, quydn sd huu nha d va tai san khac gdn lien vdi ddt". Quy djnh ndy mang din nhilu each hiiu khac nhau cho co quan dp dung phap luat. Mot sd y kiln cho rdng, gidy chftng nhgn quyin sft dyng ddt, quyin sd hiiu nhd d vd tai sdn gdn liln vdi ddt vdn do Uy ban nhan dan ky ten vd ddng ddu, vi day mdi thyc su la ca quan cd quyin. Nhimg quan diem khac lgi cho rang, phai ddng ddu cfta Sd Tdi nguyen vd Moi hudng mdi hpp ly vi CO quan nay dd dupe uy quydn, phdi chju moi frdch nhiem tiudc ca quan uy quyen va tiudc phdp ludt ve van dd dupe fty quyen, nen Uy ban nhan dan khdng cd quyen frong phgm vi nay nfta (?).
Cd thi thdy, frong boat dpng quan ly hanh chinh nhd nude, vdn de fty quyen dong vai frd het sftc to Idn, nhung che dinh ve uy quyen frong ban hanh quylt dinh hdnh chinh vdn ehua dupe xac lap mpt cdch ro rang va thdng nhdt ttong he thdng phap lugt, Mac du, ttong hdu het cac van ban luat da de cgp din vdn de fty quyen, nhung quy djnh mpt cdch chung chung, viec fty quydn thieu nguyen tac, ddn den tinh frgng khdng ro gidi han, pham vi vd frdch nhidm cua tting cdp, tting ca quan, cd nhdn cu the.
2. Mot so y kien nhdm hoan thi^n quy dinh ve uy quyen ban hanh quyet dinh hanh chinh
Trong qua tiinh xay dung Du thao Luat Ban hanh quylt djnh hdnh chinh, hdu hit cde y kiln tham gia xay dyng diu thdng nhdt vdi Ban sogn thao ve sy edn thilt phdi quy dinh ve che dinh iiy quyen frong Luat Ban hanh quylt dinh hanh chinh. Tuy nhien, hien vdn con nhilu y kiln khac nhau vl vdn dk nay
E 9 Ddn chij & Phdp lu$t
^ki kdnh phdp. ludi 86 5 (290)-2016
Ykien thd nhit cho ring, Ludt can quy dinh ve che dinh fty quyen theo hudng phdn biet giua fty quyen theo thdm quyen va uy quyen ky. Theo dd, viee fty quyen theo tfidm quyen dupe hieu Id ngudi uy quyen cd the uy quyen cho cap phd hogc cap dudi trye tiep vd mpt mdng cdng viec cd tinh chat thudng xuyen, dn dinh. Viec uy quyen dupe lap thdnh van ban quy dinh rd pham vi fty quyen. Tren CO sd vdn ban fty quyen, cap phd hodc edp dudi tiuc tiep dupe fty quydn thyc hidn cdng viee, hanh vi dupe giao mpt each mac dinh va phai chiu frdch nhiem vd npi dung quyet djnh hanh chinh do minh ban hdnh.
Uy quyen ky Id uy quyen cho cap phd hoac cap dudi tiuc tiep ky ban hdnh quyet dinh hanh chmh theo vy viec frong mOt thdi gian nhdt dinh vd khdng thudng xuyen. Trong ttudng hop nay, ngudi uy quyen van phdi chiu trdeh nhiem vd ndi dung ciia quyet dinh hdnh chinh do ngudi dupe uy quydn ban hdnh frong phgm vi gidi hgn fty quyen.
Ykien thu hai cho rdng, Ludt chi nen cho phep ngudi uy quydn dupe fty quyen cho cap phd hoac cdp dudi tiuc tilp. Ngudi dupe fty quyen khdng dupe fty quyen lgi vd frong mpi trudng hop, ngudi iiy quyin vdn phdi chiu frdch nhidm tiudc phap luat vl quyet djnh hdnh chinh do ngudi dupe fty quyen ban hanh, tiu tiudng hpp ngudi dupe fty quyen cd tmh vupt qud phgm vi dupe fty quyen.
Tdc gid ddng y vdi y kien thft hai, bdi cac ly do sau day:
Mot la, khdc vdi cde quan he ddn sy hay lao dOng, quan he phdp lugt hanh chinh mang tinh ddc tiiu. Mdt ben chft the trong qumi he phap ludt hanh chinh mang quyen luc nha nude va nhan danh nha nude tiiam gia vao edc quan he hdnh chinh. Trong qua trinh quan ly nhd nude, cdc quydt dinh hdnh chinh dupe ban bdnh cd tdm anh hudng rat ldn, nd khdng nhung tdc dOng den quydn vd lpi ich cfta mOt
ca nhan hay tap the va cdn cd tac dOng mgnh me den lpi ich edng ddng, cfta qudc gia nhu cde quyet dinh ve giai phdng mat bang, quydt dinh ddu tu... Vi vay, phdp ludt da trao cho ai quyen thi ngudi dd phdi cd txach nhiem tiiyc hien tiidm quyen dupe giao, ngudi fty quyen cung khdng the lay ly do da uy quyen ma thodi thdc frdch nhiem dd dupe nhd nude vd nhdn ddn tin tudng giao phd. Do do, phdp ludt can cd nhiing quy dinh mang tinh cftng ran vd dftt khodt ve trdeh nhiem eua ngudi fty quyen ddi vdi cac quydt dinh do ngudi dupe fty quyen ban hanh.
Hai Id, ed mOt thyc te, nhiem vy da dupe giao eho mdt ca quan, mpt ca nhan cy the, nhung ca quan, cd nhan do Igi iiy quyen cho mot cd nhan, ca quan tiep theo, ca quan, cd nhdn do Igi uy quyen lai eho CO quan, cd nhan khac... ddn den tinh trang rudm ra, thieu minh bach ttong qua trinh thye hien phdp ludt dac biet la frong td tiing hdnh ehinh. Vi thi, sy edn thilt phdi quy dinh rd ngudi dupe fty quyen phai la cap phd hoac cdp dudi trye tiep, ddng thdi, ngudi dupe fty quyen khdng dupe phep fty quyen lgi va phai cd frdch nhidm ddi vdi quydt dinh do hp ban hanh, dilu ndy giup xde dinh ro chftc nang, nhiem vu dupe giao trdnh uy quyen trka lan, dan din dim day fraeh nhiem gifta ngudi fty quyen vd ngudi dupe uy quyen.
Ba Id, dl vdn dl iiy quydn dupe thye hien mdt each tiidng nhdt, thilt nghT, ndn xdy dung he tiidng edc quy dinh cd tinh nguyen tac bao gdm: (i) Ngudi uy quyen Id ngudi cd tham quydn ban hdnh quyet dinh hanh chinh vd dupe phep fty quyen frong pham vi tham quyen dupe giao; (ii) Ngudi dupe uy quyen phdi Id cap phd tiuc tiep hogc cdp dudi trye tilp; (iii) Vide fty quyin phai dupe lap thanh van ban; (iv) Ngudi dupe iiy quydn phdi chju trac nhiem trudc ngudi fty quyen va trudc phdp ludt frong trudng bap vupt qud phgm vi fty quydn ddn den vi phgm phdp luat...G
