TAP CHl L U A T H O C S 6 9/2016 NGHIEN cffu - TRAO Bdl
COA UBN HtNH CHAU AU W IdNH NQHIBH DOf VdJ ASBAN
PHAM H6NG HANH * Tdm tdt: Tren ea sa phdn tich ca chi ddm bdo thgc thi phdp lugt cua Lien minh chdu Au vd ASEAN, bdi viit dua ra mpt sd kinh nghigm ddi v&i ASEAN nham hodn thifn vd tang eu&ng tinh hifu lgc eda nhSng thod thugn vd trdch nhigm han nOa giiea cdc Ihdnh vien.
Tu khod: ASEAN; ca che; ddm bdo; Lien minh chdu Au; kinh nghifm; thgc thi phdp lugt.
Nhgn bdi: 30/5/2016 Hodn thdnh biin lgp: 04/10/2016 Duygl ddng: 14/10/2016
MECHANISM TO GUARANTEE THE LEGAL ENFORCEMENT OF THE EUROPEAN UNION AND EXPERIENCES FOR ASEAN
Abstract: Based on the anafysis of the mechanism lo guarantee the legal enforcement of the EUand ASEAN, the paper offers some experiences for ASEAN lo improve and enhance the effectiveness of the agreements mid responsibility of its members.
Kevwords: ASEAN; mechanism; guarantee; EU; experience; legal enforcement.
Received: May 30^. 2016; Editing completed: Oct •/*, 2016; Accepted for publication: Oct 14^. 2016
I. Nhirng v a n de phdp Ii ve co che dam bao thyc thi phdp ludt cua Lien minh chau Au
Theo quy djnh tgi Hiep udc vl Lien minh chdu Au (Treaty on European Union - TEU) ndm 2009, tiidm quyln ddm bdo tiiyc thi phdp lugt Lien minh chdu Au dugc trao cho hai co quan Id Uy ban chau Au (ggi tdt Id Uy ban) vd Tod dn chau Au,'" ttong dd, tham quyln diy du nhit Id Tod cdng Ii Lien minh chdu Au (Court of justice of European Union, ggi tdt la CJEU). Cy till, "Uy ban se
* Giing viSn, T r i r ^ g D^i b^c Lu^t Hi N$i E-mail: [email protected]
(1). Toi ta chfiu Au Ii co quan tir phip cia Lien minh chflu Au. bao g6m 3 nhdm toi: Toi cong If Lien minh chfiu Au (CJEU), Toi chung chiu Au (General Court) vi cic toi chuyfin m6n.
ddm bdo vi$c dp dung cdc higp u&c vd cdc vdn bdn dugc thdng qua b&i cdc thiit chi cita Lien minh. Uy ban se gidm sdt vigc dp dgng ludt Lien minh du&i su kiim sodt eua Tod dn tu phdp cda Lien minh chdu Au"
(Dieu 17 TEU) ttong khi Tod dn cd tham quyen "phdi ddm bdo rdng frong vigc gidi thich vd dp dgng cdc higp u&c. phdp lugt phdi dugc tudn thd... " (Dieu 19 TEO).
1.1. Thdm quyen ddm bdo thuc thi phdp lugt eua Uy ban chdu Au
Uy ban thyc hi?n thim quyln cda minh thdng qua mgt thd tyc ddc bi^t, dugc ggi Id "Thu tyc Infringement" (tam djch Id thu tyc khi cd sy vi phgm) ttong trudng hgp Uy ban ty minh phdt hien hodc xae nhan cd hdnh vi vi phgm ludt EU tten co sd khilu ngi cda
TAP CHI LUAT HQC s 6 9/2016 NGHltN CUV- TRAO Bdl bdt ki td chdc, ca nhan nao sau khi da tiln
hanh dieu tia theo quy dinh tgi Dieu 258 Hi?p udc ve chdc ndng cda Lien minh chdu Au (The tteaty on the functioning of the European Union - TFEU) ndm 2009. Trudc khi bdt d i u cdc thd tyc chinh thdc, Uy ban se tao dieu kien cho qudc gia cd co hgi trinh bay nhiing vdn de lien quan den vy viec ma UJ- ban dang xem xet bdng cac cugc doi thogi Cling nhu tgo dieu ki?n de quoc gia cd the nhanh chdng khdc phye hdnh vi vi phgm.
Trong trudng hgp Uy ban vd qudc gia khdng dgt dugc su thong nhdt ttong viec gidi quyet vdn de, thu tyc khi cd sy vi phgm se dugc chinh thuc tiln hdnh theo trinh ty sau:
- Trudc tien, Uy ban se gdi thdng bdo chinh thuc den qudc gia de qudc gia dd dua ra y kiln cua minh ve v i n di lien quan ttong mgt thdi hgn cu till, thdng thudng Id 2 thang hole ngdn hon.
- Tiep dd, Uy ban s6 neu y kiln v l vy vi$c, ttong do, xdc dinh cy thi hdnh vi vi pham vd nhihig yeu cau ddt ra doi vdi qudc gia nhdm chdm dut, khdc phye sy vi phgm.
- Neu quoc gia khdng tudn thu nhdng -y kiln cua Uy ban ttong dung tiidi hgn (toi da thudng Id 2 thdng), Uy ban c6 quyln khdi ki?n qudc gia ra ti^dc Tod cdng ly Lien minh chdu Au (tuy nhien tten thyc t l , dilu ndy rit it khi xay ra. Theo tiiong ke, hon 85
% cdc vvi viec se dugc gidi quylt ngay khi quoc gia nhan dugc y kiln cda Uy ban).'^' Ddc bi?t, ttong trudng hgp qudc gia khdng
chuyin hod Chi tiij ttong ddng tiidi hgn,*^' song song vdi quyln khdi ki§n q u i c gia, U;^
ban cdn cd quyln quylt djnh dp dyng hinh phgt bdng tiln hodc hinh phgt tdng hgp khi c i n tiult (khodn 3 Dieu 260 TFEU).
Trong trudng hgp vy vi?c dugc Uy ban dua ra trudc CJEU thi t h i m quyln cua Uy ban van chua c h i m dtit. Theo dd, Uy ban s€
cd quyln gidm sat viec thyc thi phdn quylt cua CJEU khi CJEU khdng djnh q u i c gia c6 hdnh vi vi pham. Cy the, n l u Uy ban nhgn thiy quoc gia khdng tudn thu d i y dd cdc nghTa vy phai sua ddi phdp lugt trong nudc va nhutig van de thyc tiln khdc cd lien quan theo phan quylt, Uy ban cd quyln gtii thdng bdo chinh thdc cho qudc gia sau khi tgo dilu kien d l qudc gia dua ra -y kiln ciia minh.
Trong trudng hgp qudc gia khdng cd phdn hoi hodc phdn hoi cua quoc gia khdng dugc chap nhgn, Uy ban se dira vy vi?c ra CJEU dong thdi cd quyen dp ddt mgt hinh phgt tdng hgp hodc phgt tiln (Dilu 260 TFEU).
Sd tien phgt sg dugc tinh todn tren ca sd nhQng v.
thiet hgi do hdnh vi vi pham, t i m quan trgng ctia nhdng quy djnh bj vi pham cung nhu nhiing tac ddng cua hdnh vi vi pham din nhiing Igi ich chung vd lgi ich cy thi.
Cd the minh hoa thu tyc ndy cua \J^ ban bdng hai vy vi?c sau:
(2). Nguin: http://curia.europa.eu. truy c§p ngiy 01/4/2016.
(3). MOt trong cic ngu6n lugt ciia Li6n minh chfiu Au li cic vin bin phip lu^t do co quan cd thim quyin cua EU ban hinh, bao g6m Regulation (Quy djnh), Decision (Quy^t djnh) vi Directive (Chi thj). Trong d6, rieng d6i vdi Chl thj, cic qu6c gia khflng dugc phfip tryc ti^p vi^n din mi phii chuydn hoi cic quy djnh cua Chl thj vio vin ban phip luflt qudc gia trong dung thbi h^n mi mSi Chi thj quy djnh.
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TAP CHi LUAT HQC S6 9/2016 NGHltN ctru - TRAO Bdl Ndm 2007, Uy ban chau Au dd gdi thdng
bdo chinh thdc cho Dan Mach, yeu cdu nudc ndy phdi sda ddi mgt sd ndi dung ttong ludt 'nudc ndy khdng phu hgp vdi Chi thi khung vl ngudn nudc sd 60/2000/EC. Tuy nhien, sau do Uy ban nhdn thdy rdng mdc du Dan Mgch dd thdng qua ludt mdi nhung van chua gidi quyet dugc mdt sd van de nhu yeu cau trudc do ctia Uy ban, bao gdm chua thuc hien nghTa vu chuyen hod djnh nghTa djch vu nudc vd sd dyng nudc cung nhu chua xdc djnh phgm vi nhdng tdn that cd thi phye hdi ttong cac djch vu nudc vd su dyng nudc. Vi vgy, Uy ban tiep tyc giii thdng bdo cho nudc nay vd Dan Mach cd hai thdng dl tudn thu nhirng yeu cau ciia Uy ban hodc cd the bj ki^n ra ti-udc Tod cdng li Lien minh chdu Au. Tren thyc te, cuoi ciing Dan Mgch da bd sung nhdng ngi dung tren vdo phdp lugt nudc minh vd Uy ban cung da chdm ddt thu tyc khi cd sy vi phgm tai day.
Trudng hgp thu hai cung lien quan den Chi tiij sd 60/2000/EC vl nguon nudc.
Nhung ttong vy viec ndy, Uy ban dd quyet djnhkhdi kien Dan Mgch cdng ba qudc gia khac Id Bi, Hy Lgp vd Bd Ddo Nha ra trudc CJEU vi da tti hodn khdng thyc hi$n nghTa v\i cdng bd cdng khai tat cd nhiing ke hogch qudn li cdc luu vyc sdng can thiet khiln cho ngudi ddn cua nhiing nudc ndy khdng dugc tilp can cdc thdng tin lien quan den hogt d§ng qudn Ii cdc luu vyc sdng, vi thi, anh hudng din cdc myc tieu cda Chi thj.***' (4). Nguon: http://curia.curopa.eu, truy cip ngiy 30/3/2016.
1.2. Thdm quyin ddm bdo thuc thi phdp ludt cua Tod cdng li Lien minh chdu Au
Ddi tod Tod cdng li Lien minh chdu Au, chuc ndng dam bdo thyc thi phdp ludt dugc thyc hien thdng qua tiiam quyen gidi quylt nhirng vy viec hodc vu kien dugc dua ra ttirdc CJEU. Dilu 19 TEU quy djnh tiidm quyen chung cda CJEU nhu sau: "Phii hgp v&i cde Hiip u&c. Tod dn cdng li cua Lien minh chdu Ausc:
(a) Phdn quyit cdc khiiu Idgn cua mgt qudc gia thdnh vien. mpt thiit ehi hodc mpt the nhdn, phap nhdn;
(b) Dua ra phdn quyet sa bp, theo yiu cdu cua tod dn hodc ca quan tu phdp cua qudc gia thdnh viin, ve vigc gidi thich phdp ludt cua Liin minh hodc higu lgc cua cdc vdn bdn do cdc thiel che thdng qua;
(c) Phdn quyet trong cdc tr:u&hg hgp khdc dugc quy dfnh irong cdc hiip u&c "
Cy the, nhiing vu viec ho|ic vy ki?n thugc thdm quyen gidi quyet cda CJEU bao g6m:
Thit nhdt. gidi thich phdp ludt theo thu die tiln tdi phdn (Dilu 267 TFEU)
Theo quy djnh, tgi bdt ki giai dogn ndo ttong qud trinh xet xd, tod an qudc gia cd the yeu ciu CJEU dua ra phan quylt doi vdi cdc van de lien quan den vi^c gidi thich cdc hi?p udc hodc hieu lyc vd giai thich cdc van ban ciia cac thiet che, ca quan, vdn phdng hodc ngudi dugc uy quyen ciia Lien minh. Phan quyet cda CJEU se cd gid trj phdp li bdt bugc khdng chi ddi vdi tod dn dd dua ra yeu cdu ma cdn ddi vdi tat cd cdc td chdc. cd nhan ttong nhimg trudng hgp tuong ty nhu tinh hudng cd lien quan den quy djnh
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TAP CHi LUAT HC)CS6 9/2016 NGHIEN Cffu - TR.40 Bdl d3 diroc CJEU giai thich. Noi each khac, tea
an quoc gia co nglua vu piiai ap dung theo diing nQ! dtmg da dugc CJEU giai thich de giai quyet vu viec ma minh dang xet xu.
Thu tuc n^y mpt mat n h ^ the hien moi quan he hpp tac mang tinh chat ho trg giiia Lien minh vcri cac quoc gia thanh vien thong qua moi quan he giiia Toa dn cua Lien minh va toa an quoc gia nhimg quan trgng hon la nhim dam bao cho luat cua EU dugc hieu va ap dung thong nhat tai tat ca quoc gia th^inh vien.
Thu hgi, khcri ki$n doi vdi hanh vi vi pham luat EU cua cac quoc gia thanh vien (Bieu 258, 259 va 260 TFEU)
ThSm quyen khoi ki?n doi vcri vu viec nay thugc ve Uy ban chau Au hoSc mgt qu6c gia thanh vien. Noi cich khac, t6 chiic, ca nhan khong dugc tr\rc ti^p khoi kien qu6c gia thanh vien ra trade CJEU ma bai bugc phai khcri kien tai toa dn qu6c gia mdc dii co tha vi?n din luat EU di khiti kien.
Doi vcri truimg hgp nguyen don khgi ki?n 14 Uy ban, nhu da phSn tich 6 tren, theo Thii tvc Infringement, Uy ban se khoi kien mgt QGTV ra CJEU trong tragng hgp qu6c gia khong tuan thu nhirng yeu cau ciia Uy ban nhjm chim diit, khSc phuc hdnh vi ph?m luat EU hodc khdri kien khi nhan thay quoc gia da khong tuan thu phdn quyet tnidc d6 ciia CJEU lien quan den sir vi pham Iuat EU ciia qu6c gia.
Doi vcri truimg hgp nguyen don khoi ki$n la qu6c gia, Dieu 259 TFEU cho phep mgt quoc gia thdnh vien khiSu kien doi voi hdnh vi vi pham cua mgt qu6c gia thanh vien khdc sau khi dd dua vu viec ra trade Uy ban.
Neu CJEU khdng dinh cd hdnh vi vi ph?m thi quoc gia thdnh vien lien quan si phdi thirc hien ngay cdc bifn phdp phu hgp vdi phdn quyet dd dugc dira ra
Trong ca hai tradng hgp tren, n^u nh§n thay qudc gia khong tuan thii phdn quyet ciia minh, Tod eong ly Lien minh chdu Au cd thi dp ddt mgt bien phap xii phat tdi chinh trpn gdi hoac dinh ki ddi vdi qudc gia dd (khodn 2 DiJu 260 TFEU). Viec nay dd xdy ra rapt so lan, chang han nhu khi thii tyc nay dugc ap dung lan dau tien, vao thang 7/2000, trong vy C-387/97 Commission v. Hellenic Republic, CJEU da dp dat mile ph?t la 20.000 Euro/ngay cho Hy Lap trong thdi gian nudc nay khdng thuc hien phan quyet cua tod.'^'
Thti bg, khdi kien cdc thilt chi ciia Lien minh. Cy the;
- Khdi kien yeu cau huy bd cdc vdn ban bat hgp phdp ciia cac thiet che LiSn minh (DiSu 263 TFEU)
Theo quy dinh tai Dieu 263 TFEU, cdc qudc gia thdnh vien, thilt che cia EU, co quan, dai di?n ciia Lien minh, cdc the nhdn, phdp nhdn cd the khdi ki?n ddi vdi cdc vdn bdn l$p phdp, cdc vdn bdn cua HOi dong, Uy ban vd Ngan hdng trung uong chau Au, cdc khuyen nghj vd y kien, cdc vdn bdn cila cdc CO quan, dji dien cda Lien minh ra tnrdc CJEU Cdn cd xem xet tinh hgp phdp ciia mgt vdn bdn bi khdi kifn s5 dya tren vifc vugt qua quyen hpn ban hdnh, vi phjun yeu cdu ve thu tyc ban hanh, vi p h ^ quy djnh cua cdc Hi$p udc hojc cac quy tdc lien quan
(5). NguSn: http://curia.europa.eu, truy c^p ngSy 01/4/2016.
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TAP CHi LUAT HOC S6 9/2016 NGHltN ctfu - TRAO Bdl tdi v i ^ ap dyng chting vd viec Igm dung
quyln lyc. Trong trudng hgp CJEU xdc nhdn cd sy vi pham, vdn bdn dd se bj tuyen bd mat hi?u lyc, ddng thdi chd the cd lien quan se phai tien hdnh cdc bi?n phdp phd hgp vdi phdn quylt (Dilu 266 FEU). Myc dich ctia thu tyc nay Id tgo ra mdt co che theo con dudng tu phdp de kiem sodt cdc hogt ddng lgp phap ciia cac thilt chl EU.
- Khdi ki?n ddi vdi vi pham do khdng thyc hidn nghia vy ciia cdc thiet che Lien minh ^ i l u 265 TFEU)
Trong trudng hgp Nghj vien chdu Au, Hgi dong chau Au, Hdi dong, Uy ban hodc Ngdn hdng trung uong chau Au vi pham cdc hi?p udc, khdng tuan theo hi?p udc, cdc nudc thdnh vien vd cdc thiet chl khdc ciia Lien minh cd the khdi ki?n ra trudc Tod cdng li Lien minh chau Au de xet xu cdc vi phgm dd. Quy dinh ndy dugc dp dyng trong dilu kien tuong ty doi vdi cac td chdc, vdn phdng vd CO quan khdc cua Lien minh khdng tudn theo cdc hiep udc.
- Khdi kien yeu ciu bdi thudng thiet hgi do hdnh vi bit hgp phdp cua mgt thiet che Lien'minh hodc do nhan vien cua cdc thiet chl Lien minh thyc hien tiong khi thi hanh nhi?m vy (Dilu 268, khoan 2 Dilu 240 TFEU).
Day Id mgt vy ki^n boi thudng thiet hgi ngodi hgp ddng do qudc gia thdnh vien, td chdc, cd nhdn tiln hdnh khdi kien. Lien minh sS phdi bdi thudng mgi tdn thdt gay ra bdi cdc thilt che hodc cdc cdng chuc cua minh ttong khi tiiyc hi?n nhi?m vy.
Tranh chip gida Lien minh vdi cdc nhdn vien ctia Lien minh ho$c vdi cdc thdnh vien tiong gia dinh hg phdt sinh ttong quan
he lao ddng (Dieu 270 TFEU)
CJEU se cd thdm quyen ttong vi?c gidi quyet tranh chdp giua Lien minh vd cac nhdn vien cda Lien minh ttong gidi han va theo cdc dieu kien dugc quy djnh tgi Quy chl khdi nhdn vien vdn phdng vd dilu ki?n nghi nghiep ciia cdc nhdn vien khdc cda Lien minh.
- Yeu cau hoan thi hdnh mgt vdn bdn dang bi khilu kien: Dilu 278, 279 TFEU
Trong qud Uinh giai quyet cdc vu vi?c, CJEU cd the ra quyet dinh hodn thi hdnh vdn ban dang bi khieu ki?n ho^c dp dyng cdc bien phap khin cap tam thdi khi ddp dng cac dieu kien: 1) Viec thyc hien vdn bdn cd the dnh hudng tdi hieu qud cda phdn quyet sau ndy; 2) Yeu cau ctia ben nguydn ttong vy viec dang dugc gidi quyet Id cd cdn cu vd 3) Cd nguy co xdy ra tiiiet hgi nghiem ttgng vd khdng the sua chua.
Myc dich cua phuang thdc nay Id trdnh viec thuc hien ngay mgt vdn bdn dang bj khieu kien cd the gay ra nhihig thi?t hgi cho nguyen don va thiet hgi nay khdng the sua chda, ddng thdi dam bdo cho phdn quyet cua Tod ve sau se dugc thyc hi?n tren thyc te.
+ Xem xet lgi phdn quyet cua Toa chung chdu Au (khodn 2 Dieu 256)
Tod chung chdu Au - Genera! Court - Id tod cdp so thdm, cd thdm quyen xet xd vd gidi quyet cdc vu viec hodc tien hdnh cdc thii tyc td tyng doi vdi quyet djnh cua cdc tod chuyen ngdnh. Cdc phdn quyet cua Tod chung chdu Au cd the bj Tod cdng li chau Au xem xet theo cdc dieu ki?n vd ttong khudn khd dugc quy djnh tgi Quy che khi cd nguy CO nghiem trgng anh hudng tdi sy nhit qudn cda luat Lien minh.
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TAP CHi LUAT HQC S6 9/2016 NGHltN ctru-TRAO Bdl Thdng qua vi^c giai quyet cdc vu kien
thugc thim quyen cda minh. Tod cdng ly Lien minh chau Au se gdp phan dam bdo cho phdp ludt EU dugc cdc QGTV, cdc thiet che, cdc eg quan cda EU tudn thd mgt cdch chinh xdc vd ddy dd.
2. Khai quat co che dam bao thyc thi phdp luat cua ASEAN
Theo quy dinh tgi Hien chuong ASEAN vd cdc hiep djnh chuyen ngdnh Id ket gida cac qudc gia tiidnh vien, thdm quyen gidm sat, dam bdo thyc thi phdp ludt ASEAN dugc quy dinh cho tit cd cdc thilt che cda Cgng ddng va nhdng co quan chuyen ngdnh dugc thdnh lap rieng theo tdng hiep djnh.
Ndi cdch khdc, cd the phdn chia co quan cd tham quyen ddm bdo thyc thi phdp Iuat ASEAN tiidnh hai nhdm: Nhdm tiiu nhit la nhdng thiet che cua Cdng dong vdi thim quyen giam sdt chung vd nhdm thu hai Id nhihig CO quan dugc hinh thdnh theo quy djnh cua tung dieu udc cu the vd chi chju trdch nhi?m gidm sdt ttong linh vyc thugc dilu udc dd.
2.1. Thdm quyin ddm bdo thuc thi phdp ludt cua nhung thiet chi cd thdm quyin chung
Ld CO quan cd thim quyln cao nhit quyet djnh nhiing vin dl quan ttgng cua ASEAN, theo quy dinh tgi Hiln chuang.
Cap cao ASEAN cd quyln "Xem xet, dua ra cdc chi dgo vi chinh sdch vd quyit dinh cdc vdn di then chdt lien quan din vigc thgc hign cdc mgc tiiu cda ASEAN, cdc vdn di' quan trgng liin quan din lgi ich cua cdc qudc gia thdnh vien vd tdt cd cdc vdn di do Hdi ddng diiu phdi ASEAN, cdc hdi ddng Cpng ddng ASEAN vd cdc Ca quan cdp bg tru&ng
chuyen ngdnh dg trinh len " vd "Chi dgo cdc bg tnrang liin quan thugc tieng hgi ddng tiin hanh cdc hgi nghi liin bp tru&ng dgc bi$t vd gidi quyet cdc vdn di quan trgng cda ASEAN cd liin quan din cdc hgi dong Cpng ddng"
fkhoan 2'Dilu 7 Hiln chuang ASEAN). Mdc du khdng tryc tilp dl egp thim quyln ddm bdo thyc thi phdp ludt nhung vdi quy djnh tiren, cd the hieu Cap cao ASEAN khdng gidm sdt doi vdi tat ca cdc quy djnh, thod thugn cua ASEAN md chi gidm sdt doi vdi viec thyc lii?n rtiiimg quy djnh Hen quan din lgi ich cda quoc gia thanh vien hodc myc tieu ctia ASEAN hodc nhdng van dl quan ttgng do cdc thiet che khdc cua ASEAN d?
ttinh. Vi?c gidm sdt dugc thyc hi?n thdng qua cac ki hgp chinh thdc dugc td chuc 2 ndm mgt lan vd/hodc cudc hgp bit thudng hay d§c biet do qudc gia thdnh vien gift chdc Chu tjch ASEAN chu tri bao gim nhdng ngudi ddng dau nhd nudc ho?ic chinh phd ciia cdc quoc gia thdnh vien.
Tuang ty nhu Cip cao ASEAN, Hiln chuang cung khdng tryc tiep quy dinh tiiim quyln dam bdo thyc thi phdp lugt cua Hpi dong dilu phdi. Tuy nhien, cdn cd vdo nhdng chuc ndng cda Hgi ding dieu phli dugc ghi nhgn tai Dilu 8 Hiln chugng,vi^c ddm bdo thyc thi phdp luat cua co quan ndy dugc thyc hi?n thdng qua tten co sd "xem xel bdo cdo hdng ndm ciia Tdng thu ki vi cdc hogt dpng cua ASEAN" tai cdc cugc hgp dugc td chdc it nhat hai lan trong ndm gdm bg trudng bg ngogi giao cdc nudc thdnh vien (diem e khodn 2 Dieu 8). Theo quy djnh ciia Hiln chuong, Ting tiiu kl ASEAN c6 ti^ch nhiem theo ddi viec thyc hi?n cdc thod 80
TAP CHi LUAT HQC S6 9/2016 NGHltN CUV - TRAO Bdl thuan, cdc quy djnh, ludt le cua ASEAN.
Nhu vdy, tuong ty nhu Cip cao ASEAN, Hgi ddng dieu phoi thyc chat khdng phdi Id CO quan tryc tiep kiem tira, xem xet qud trinh thyc thi cac quy djnh cda cdc qudc gia thdnh vien md chi gidn tiep thyc hien viec gidm sdt thdng qua viec xem xet bdo cdo cda nhimg tiiiet che khdc de trinh len. Cy the, Tdng thu ki lap bdo cdo trinh len Hgi ddng dieu phdi dl CO quan nay ndm dugc tinh hinh thyc thi phap Iuat ASEAN td phia cac qudc gia thdnh vien. Tu dd, Hdi ddng dieu phdi, ttong phgm vi thdm quyen ctia minh se tiln hdnh dilu phdi vdi cac H$i ddng Cgng ddng, ttong tiddng hgp can thiet sS de trinh vin de len Cap cao ASEAN va true tiep dieu phdi thyc hi$n nhdng thod thugn hodc quydt djnh dugc CO quan ndy thdng qua. Ndi cdch khac, dli vdi Hgi ddng dilu phdi va Cip cao ASEAN, thdm quyen dam bdo thyc thi phap ludt dugc thyc hi^n qua each thuc xem xdt bdo cdo tgi cac cugc hgp ciia nhihig co quan ndy. Ddi vdi Hdi ddng dieu phoi la xem xet bdo cdo cua Tdng thu ki trong khi Cip cao ASEAN xem xet bdo cdo cda Hgi ddng dieu phdi, cac hpi ddng Cgng dong vd cdc co quan chuyen ngdnh cdp bg trudng.
Doi vdi cdc hgi ddng Cgng dong vd eg quan chuyen ngdnh cap bg trudng, pham vi dam bdo thyc thi phdp ludt dugc gidi hgn ttong nhung ITnh vyc thugc ngi dung hgp tdc cii^Cdng ddng dd tten co sd gidm sdt vd xem xet nhdng bdo cdo vl tinh hinh thyc hi?n cdc thod thugn trong Cgng ddng cua mmh do nhdng co quan dugc thdnh lap theo tdng tiiod thugn d? trinh len. Chdng hgn, ttong Cgng dong kinh tl (AEC), Hgi nghj bp
trudng kinh te AEM, mdt ttong nhimg co quan chuyen ngdnh cap bg trudng cda AEC se xem xet bao cao ve tinh hinh thyc hien Hiep dinh ve khu vyc dau tu ASEAN do H$i ddng khu vyc ddu tu ASEAN (ggi tit la Hgi ddng AIA), mgt co quan dugc thdnh lap theo Hiep dinh tryc tiep trinh len, sau dd AEM se lap bdo cdo vd de trinh cho Hgi ddng Cdng ddng kinh te xem xet.
Theo quy dinh cda Hien chuong, co quan tryc tiep gidm sat qud ttinh thyc thi cdc quy dinh ciia ASEAN Id Tdng thu ki. Theo dd, Tdng thu ki ASEAN cd thim quyln
"theo ddi tiin dp thuc hign cdc thod thugn vd quyit dinh cua ASEAN vd di trinh bdo cdo hdng ndm ve edc hogt dpng ciia ASEAN lin Cdp cao ASEAN'' (khoan 2 Dieu 11).
2.2. Ddm bdo thuc thi phdp lugt theo cdc higp dinh chuyen ngdnh
Ben cgnh nhimg thiet che cd thdm quyen chung theo quy djnh cua Hien chuong, viec ddm bdo thyc thi phdp ludt cdn dugc thyc hien thdng qua nhihig co quan dugc thdnh lap theo cdc hiep dinh chuyen ngdnh. Thdng thudng, mdi hiep djnh se quy djnh mgt co che ddm bao thyc thi rieng, ttong dd, sS cd mgt CO quan dugc thdnh lap chju ttdch nhiem tryc tiep gidm sdt vide thyc hi?n dd.
Chdng han, ttong ITnh vyc kinh te, theo quy djnh tgi Hiep djnh thuong mgi hang hda ASEAN (ATIGA) ndm 2009, Hgi nghj quan chdc kinh tl cip cao (SEOM), vdi sy hS trg cua Uy ban dieu phoi vi?c thyc thi ATIGA (CCA) se ddm bdo thyc thi hi?u qud Hi?p djnh ndy, ddng thdi. Ban thu ki ASEAN se ho ttg Hgi ddng AEM vd Hgi ddng AFTA (mgt dgi dien cdp bg trudng dugc moi quoc 81
TAP CHi LUAT HQC SO 9/2016 NGHltNCtrU- TRAOBdl gia thanh vien de cu va Tdng thu ki
ASEAN) ttong viec giam sat, hgp tdc vd rd soat viec thuc hien Hiep dinh ndy ciing nhu cung cip nhung ho trg vdi tat cd cdc van de lien quan, gidm sat vd thudng xuyen bdo cdo len hdi ddng AFTA vl tiln trinh thyc hien Hiep djnh ndy (Dilu 90 ATIGA). Hodc tiieo quy dinh cda Hiep dinh dau tu toan dien ASEAN (ACIA), Hdi ddng khu vyc diu tir ASEAN (Hdi dong AL\) do Hdi nghi bg trudng kinh tl thdnh lap cd chuc ndng giam sdt, dilu phoi vd xem xdt vi$c thi hdnh Hiep djnh, cap nhat cho AEM vl viec thi hanh va thyc hi?n Hi?p djnh. Uy ban dilu phdi ASEAN vl dau ttr ("CCF') dugc tiidnh lap bdi H$i ding AIA, bao gim cac quan chdc cdp cao chiu ttdch nhiem ve dau tu vd cdc quan chuc cap cao khac tu cdc co quan chinh phu lien quan s5 ho ttg hgi dong AIA ttong viec thuc hien chdc ndng cda minh (Dieu 42 ACIA). Trong Iinh vyc mdi trudng, theo quy dinh tgi Hi^p djnh d nhiem xuyen bien gidi, mgt Hgi nghi cua cdc thanh vien Hiep dinh dugc thdnh lap cd chuc ndng tien hanh nhdng bien phdp cin thiet nhdm ddm bdo viec thyc thi hidu qua Hiep djnh (Dilu 18). Hay ttong ITnh vyc chinh ttj - an ninh, Hi?p dinh chong khung bd quy djnh nhdng co quan cd lien quan ciia ASEAN ttong ITnh vyc ching khiing bd sS chju ttdch nhifm gidm sat vi^c thyc hien Hiep djnh ndy (Dilu 16).
3. M$t so kinh nghidm doi vdi ASEAN trong xay dyng eg che dam bao thyc thi phdp luat
Td thyc tien cda Lien minh chdu Au, cd thi ddnh gid co chl dam bdo thyc thi phdp luat cua to chdc ndy khd hidu qud. Nhu dd
tiinh bdy d tten, hem 85% cac vy vi?c deu dd dugc gidi quylt khi Uy ban chdu Au cd yeu cau chinh thdc doi vdi quoc gia thdnh vien vi phgm.*^' Tdc la trong hau hit trudng hgp, qudc gia thanh vien diu nhanh chdng, ty nguyen tudn thu nhdng yeu cdu cua Uy ban nhdm ddm bdo viec tuan thu day dti, chinh xdc phdp lugt EU. Ngay cd frong tnidng hgp vy viec phai gidi quyet tgi CJEU vin cd co chl dl bugc quoc gia lien quan phai tudn thu phdn quyet nhdm khdc phye hanh vi vi phgm"
thdng qua tham quyen gidm sat cda Uy ban vd dp dyng chl tai phgt tiln ho^c hinh phgt tong hgp do Uy ban va/hodc CJEU quylt djnh. Ndi cdch khdc, dd theo con dudng hdnh chinh hay tu phap, cdc thilt chl cd thim quyln cua EU deu dugc ttao nhihig cdng cy rat ddy du vd cy the de bu^c cdc qudc gia thdnh vien phdi tudn thd chlnh xdc nhdng nghTa vy phdp li cua minh.
Trong khi Lien minh chdu Au quy djnh tryc tiep thdm quyen dam bdo thi hanh phdp luat EU chi ddnh cho Uy ban vd Tod dn chdu Au thi ngugc lgi, tham quyen ddm bdo thyc thi phdp Iugt ciia ASEAN dugc quy djnh kha ddn ttdi khi tit cd co quan chlnh deu cd tham quyln, tu Cip cao ASEAN cho din Ban thu kl. Tuy nhien, vl thyc chit, ngodi Tong thu kl vd Ban thu ki Id nhimg co quan tryc tiep gidm sdt vifc thyc hi?n cdc thoa thugn cua ASEAN, nhdng co quan cdn lgi deu chi gidm sdt tiidng qua vigc xem xet bdo cd%do nhihig CO quan khdc de trinh. Mdt khdc, neu nhu tham quyen cua U;^ ban vd Tod dn chdu (6). Nguin: ht^://ec.europa.eu/atwori(/applying-eu-Iaw/
infiTngenientsi)roceedings/indcx_en.htm, tmy c(ip ngiy 01/5/2016.
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TAP CHi LUAT HOC S 6 9/2016 NGHltN CUV - TRAO Bdl Au, cy till Id CJEU dugc quy djnh rit chi tilt
ttong chuc ndng ddm bdo tiiyc thi lugt EU tiii thdm quyen cua nhdng co quan cua ASEAN lai chi quy dinh rat chung chung d viec xem xet bdo cdo hay theo doi tien do vi?c thyc hifn hi?p djnh ho$c giam sat, rd sodt viec thyc hien. Ddc biet, ttong khi TFEU quy djnh rdt cy the ve che tdi dp dyng ttong trudng hgp mgt qudc gia thanh vien khdng thyc hien day du nghta vy phdp li ctia minh nhu khdng chuyen hod Chi thi ttong dting thdi hgn hodc khdng tudn thd phdn quylt cua Tod ve khdc phuc hdnh vi vi phgm thi ttong Hiln chuong vd tit cd cdc hifp djnh cua ASEAN, khdng cd dilu khoan ndo ghi nhdn chl tdi ddt ra n l u mgt q u i c gia khdng thyc tiii diing thod thugn ho^c khdng tuan thu nhihig bifn phdp do cdc co quan dugc thanh lgp theo hifp djnh d l ra nhSm ddm bdo vifc thyc thi hifp djnh dd. Chlnh nhftng sy khdc biet ndy dSi dnh hudng khdng nhd d i n hifu qud ciia vifc thyc thi vd ddm bdo thyc thi phdp lugt cda ASEAN.
Td gdc dg so sdnh vdi co c h l dam bdo tiiyc thi phdp luat cda Lien minh chdu Au nhu dd phdn tich d ttdn, phd hgp vdi nhung d$c tnmg ridng cda minh, ASEAN cd t h i hgc hdi tu EU nhihig kinh nghif m sau nhdm tdng cudng hifu qud cda hoat dgng ddm bdo tiiyc thi phdp lugt cda Hifp hgi:
Thir nhdt, thay vi quy djnh chung chung vd ddn trai nhu hifn nay, ASEAN can trao chdc ndng ddm bdo thyc thi phdp ludt cho mgt CO quan cy the. Dd nhat thilt phdi Id mpt CO quan hogt dgng thudng tryc, g i m dgi difn cua tit ca cac q u I c gia thdnh vien vdi thim quyln dugc quy djnh mdt cdch rd rdng, tu
gidm sat qua trinh thyc hien cdc thod thuan ciia moi qudc gia, dua ra nhimg khuyin nghi, yeu cau can thiet nhdm dieu chinh khi cd hdnh vi vi pham cho d i n dp dyng nhftng quyet dinh bdt bugc frong trudng hgp quoc gia lien quan khdng tudn thu theo nhihig yeu cau va c h i m dtit hdnh vi vi pham. ASEAN van cd the gid lgi co che ddm bdo ridng theo tdng hifp dinh chuyen ngdnh nhung de ddm bdo sy thong nhdt, b i t bugc tat cd nhirng co quan dugc thdnh lap theo hiep djnh phdi tryc tiep bao cao len mdt co quan chuyen frdch duy itiiit ve qud trinh thyc hifn ciia cdc quoc gia thdnh vien, dong thdi nhimg co quan nay cung phdi chiu sy gidm sdt cua chinh co quan chuyen frdch de kiem tra tinh xdc thyc ttong nhdng bdo cdo ciia minh. Trong trudng hgp nlu q u i c gia thdnh vidn cda hifp djnh khdng thyc hifn chmh xdc nhdng nghia vy ddt ra, vifc gidi quyet s6 do co quan chuydn trdch tryc tilp tiln hdnh vdi quoc gia lien quan theo dung trinh ty, tham quyen dugc quy djnh cho co quan ndy.
Thu hai, c i n quy dinh cy t h i v l co c h l dd quoc gia vi phgm khdc phye vi pham cda minh vd nhihig che tdi ho^c nhChig hf qud phdp li md cdc quoc gia sd phdi gdnh chju khi khdng tuan thu d i y du nhihig nghTa vy phdp li cua hg. V l d i l u ndy, cd the hgc t§p cdch ldm cua Lidn minh chau Au d ch§, khdng phdi quy djnh rieng r2 cho tdng hifp dinh ma se quy dinh mgt co che chung nhu ttong thdi gian tdi da bao Idu q u i c gia lien quan phdi cham dut vi phgm, tiep tyc thyc hifn day du nhihig cam ket cua minh ciing nhu c h l tdi se dp dung ttong trudng hgp quoc gia khdng cd hdnh vi khdc phye ttong
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i
TAP CHI LUAT HQC SO 9/2016 NGHltN Ctru -TRAOBdl thdi hgn dat ra. Vifc dp dyng che tdi ndo?
(phgt tiln, hinh phat tdng hgp hay han che viec thyc hifn tu cdch thanh vien...), mdc dg ra sao se do co quan chitydn trach nhu da de cap d tten quyet dinh.
Thu ba, lieu ASEAN cd nen thanh lap mpt tod dn gidng nhu md hinh ctia Tod cdng li Lien minh chdu Au ? Vl mdt li thuylt, tod dn la mdt co quan tu phdp hihi hifu trong viec dam bao thyc thi phdp lugt thdng qua hoat ddng gidi quyet cac vu khieu kifn cimg nhu giai tiiich phdp ludt dl vifc dp dung dugc chinh xdc vd thong nhat tgi tat cd cdc quoc gia. Vi vdy, ttong tuong lai, ASEAN cung cdn phdi cd mgt toa dn de Cgng ddng ASEAN cd the lien ket vd hogt dgng vihig chdc tten nen tdng phdp ludt. Duong nhien, khdng thi dp dyng hoan todn md hinh cda Tod cdng li Lien minh chau Au nhung it nhat tod dn do ciing phdi cd thim quyln xdt xu tranh chdp gida cdc qudc gia thanh vien cung nhu xet xd nhung vy kifn md mgt qudc gia cd the sd bj mgt thiet che cd thim quyln cua ASEAN khdi kien do khdng thyc hifn day dli nghia vy cda minh. Tuy nhien, di mdt tod dn nhu vdy cd thi hmh thdnh vd hogt dgng hifu qud till mdt trong nhihig vin dl cdn phdi thay ddi Id quan nifm ed phdn "ciing nhdc" ve chu quyen. Lich sd cda cdc nudc ASEAN hiu het diu timg Id thugc dja dd tgo nen mgt tdm li rat khd khdn ttong vifc chuyin giao hay hgn chl mgt phan chu quyln, ttong khi di mgt tod dn thyc sy hoat ddng hifu qua, cdc qudc gia thdnh vien s5 phdi hgn che mpt phdn chd quyln cda minh khi chap nhgn rdng, neu mgt phan quylt ctia toa dugc dua ra ma qudc gia khdng thi hdnh,
tod sg cd quyln dp ddt nhihig chl tdi va quoc gia bdt bugc phdi tuan tiiu cd nhdng che tdi dd va phdn quylt cua tod. Vi vgy, d thdi diem hifn tgi, mgt co quan chuyen trdch giong nhu md hinh ctia Uy ban chdu Au Id phu hgp vdi ASEAN cdn ttong tuang lai, khi thay ddi dugc dieu tren thi mgt "Tod dn Cdng ddng ASEAN" se tao thdnh hai co quan ddm nhgn chuc ndng dam bdo thyc thi phap luat cua Cgng ddng.
Mdt td chdc qudc te muon lien ket cli$t che va thdnh cdng thi mgt trong nhihig dieu kifn diu tidn la phai hogt dgng fren nen tang phdp ludt vd quan ttgng hon la cac thdnh vidn phdi tudn thu chinh xdc, day dd nhdng luat If dd dugc ddt ra. Do dd, dd mgt Cpng dong ASEAN thyc su Id lien kit d cap dp cao hon cua ASEAN nhu muc tieu hudng tdi, cin thilt phdi cd co chl ddm bdo thyc tiii phdp lugt hdu hifu nhdm tdng cudng tinh hifu lyc cua nhimg thod thugn vd trdch nhifm han nda gida cdc thdnh vi6n./.
TAI L i f u THAM KHAO 1. Hifp udc ve chdc ndng ciia Lien minh chdu
Au (TFEU) 2009.
2. Hiep udc ve Lien minh chdu Au (TEU) 2009.
3. http://curia.europa.eu, truy cap ngay 30/3/2016.
4. http://curia.europa.eu, tmy egp ngdy 01/4/2016.
5. http://ec.europa.eu/atwork/appIying-eu- Iaw/infringements-proceedings/index_
en.htm, truy cap ngdy 01/5/2016.
6. Rudoft Thienel, Organisation and function of the ECJ, 20U.
7. Declan O'Dempsey, Litigating before the ECJ, practical issues to consider, 2008.
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