TIEP TUC DOI M 6 I T O CHlTC VA HOAT DQNG CUA QUOC H O I d VIET NAM HIEN NAY
Phan Thanh Ha"
T6ra tat: Trin ca sa nhdn dien mot so bdt cap trong to chuc vd hoat dong cua Quoc hgi Vi^t Nam thai gian viea qua, bdi viet dua ra 9 noi dung dong gop y kien cho Du thdo Bdo cdo chinh tri trinh Dai hoi XIII cua Bdng, nhdm tiep tuc dot mai to chirc vd hogt dgng ciia Quoc hgi, phdt huy ddn chu, day mgnh xdy dung nhd nuac phdp quyen xd hgi chii nghia a Vi$t Nam.
Abstract: On the basis of identification of recent shortcomings of the organization and operation of Vietnam's National Assembly, the article makes nine points in contribution to the Draft Political Instrument of the 13'^ National Congress of the Party with a view to pursue the renovation in the organization and operation of the National Assembly, strengthen democracy, and promote the building of the socialist mle-of-law State of Vietnam.
DSt van de
Phat huy dan chu xa hgi chii nghTa (XHCN) va day manh xay dyng nha nuac phap quyan (NNPQ) Viet Nam XHCN la ngi dung nhat quan, xuyen suot trong dirong loi cua Dang va phap luat cua Nha nuac ta. Hien phap da khang dinh Nha nuac ta la NNPQ XHCN cua nhan dan, do nhan dan, vi nhan dan'. Trong nhung nam qua, vi^c phat huy dan chu, bao dam, bao v? quyen con nguai rat dugc quan tam, the hien nhan thiic va no lire Ion cua Dang, Nha nuac ta trong viec cung c6, hoan thien moi quan he giiia Nha nuac va cong dan theo huong ngay cang dan chu, binh dang, hgp tac, tich cue.
Tuy nhien, qua trinh xay dimg NNPQ ciing con nhiing han che nhat dinh. Theo Bao cao chinh tri cua Ban chap hanh Trung uang Dang khoa X tai Dai hgi lin thu XI,
"xay dung NNPQ XHCN chua theo kip yeu
cau phat trien kinh te va qudn ly dat nucrc"^.
Van con nhieu han che, vuang mac trong cac ca che thyc hien quyen dan chu, bao dam, bao ve quyen con nguai, quyen cong dan cua nguai dan. Viec thiet lap cac ca che kiem tra, giam sat, bao dam su minh bach, hieu lire, hieu qua trong to chuc va hoat dgng ciia bg may nha nuac van c6n nhieu bat cap.
Thuc te tren dat ra nhiing nhiem vu va yeu cau moi doi vcri phat huy dan chii XHCN, day manh xay dung NNPQ a nuoc ta. Vai tu each la ca quan quyen luc nha nircrc cao nhat, to chiic va hoat dgng cua Quoc hgi phai co nhiing cai tien tich cue nham dap ling yeu cau ve dan chu va phap quyen a nudc ta hien nay. Dieu nay da dugc Du thdo Bdo cdo chinh tri trinh Dgi hoi XIII cua Ddng khang dinh la mgt ngi dung quan trpng hang dau trong tiep tuc xay dung va hoan thien NNPQ XHCN Viet Nam hien nay {muc thii Xili). Trong do c6 cac ngi
• TS . Vi?n Nha nu6c vi Phap lu^t - Vi^n Han lam Khoa hpc xa hpi Vi?t Nam.
' Di^u2 Hien phap nam 2013. - Dang Cong san Viet Nam (2011), Van kien Dai hgi Dai bieu loan quoc lan thij XI, Ha Npi, tr.52, tr.71.
MONTHLY ISSUE
7(387) 2020
49™ YEAR
STATE AND LAW
EDITOR IN CHIEF TRAN VAN BIEN
EDITORIAL BOARD DAO TRI UC BUI XUAN DUC PHAM HONG HAJ TRAN DINH HAO HA THI MAI HIEN PHAM HUU NGHI NGUYEN NHU PHAT
LE MINH THONG NGUYEN TRUNG TIN
VO KHANH VINH DINH NGOC VUONG
Office of Ihe Editorial Board:
27 Tran Xuan Soan Ha Noi Tel: 024.39713333 Fax: 024.39764534
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Licence for Press Activities No. 121/GP' BTTTT dated 22 April 2013
Printed by Dong Bae Trade and Print Joint Stock Company
Price: 20.000 VND
CONTENTS
SUGGESTIONS FOR THE INSTRUMENTS OF THE U'" .SATIO^AL CONGRESS OF THE COMMUNIST PARTY OF VIETNAM
• PHAN THANH HA: Continuing to Renovate the Organization and Operation of the National Assembly in Viet Nam CRIMINAL LAW
•> HOANG MINH DUC. Criminal Responsibility of Commercial Legal Entities and Issues to be Improved
CIVIL PROCEDURE LAW
• THAI CHI BINH: Applying Regulations under the Civil Procedure Law to Measurement
ECONOMIC LAW, LAND LAW
•> DOAN TRLING KIEN: On Trade Remedies Used by Viet Nam
•:• NGUYEN THANH PHUONG: Perfecting the Law on Support for Training, Job Change, Job Seeking after the State's Recovery of Agricultural Land
HUMAN RIGHTS
• NGUYEN THI THU TRANG: Human rights in the Face of Covid-19 Pandemic
LEGAL PRACTICE
•:• TUONG DUY LUONG: A Commentary on the Case Law N o . 05/2016/AL
INTERN.iTIONAL TRADE LAW
•!• NGirVEN MAI LINH LE THI HA MY: Dispute Avoidance/Adjudication Board under 2017 FIDIC Contract as a Method for Settlement of Disputes and Proposals for Viet Nam
2 2
31
50
75
TIEP T y c DOI MOn TO CHlTC VA HOAT DONG CUA QUOC HOI 6 VIET NAM HIEN NAY
Phan Thanh Ha*
Tom tat: Tren ca sa nhan dien mQt so bdt cap trong to chuc vd hoat dgng cua Quoc hoi Vi^t Nam thai gian vita qua, bdi viet dua ra 9 noi dung dong gop y kien cho Du thdo Bdo cdo chinh tri trinh Dai hgi XIII cua Ddng. nhdm tiip tuc doi mat to chuc vd hoat ddng cua Quoc hgi, phdt huy ddn chii, ddy manh xdy dung nhd nuac phdp quyin xd hoi chu nghia a Viet Nam.
Abstract: On the basis of identification of recent shortcomings of the organization and operation of Vietnam's National Assembly, the article makes nine points in contribution to the Draft Political Instrument of the 13''' National Congress of the Party with a view to pursue the renovation in the organization and operation of the National Assembly, strengthen democracy, and promote the building of the socialist rule-of-law State of Vietnam.
Dsit van de
Phat huy dan chii xa hgi chu nghia (XHCN) v^ day mgnh xay dvmg nha nuac phap quySn (NNPQ) Viet Nam XHCN la npi dung nhat quan, xuyen suot trong duong loi cua Dang va phap luat cua Nha nuoc ta. Hien phap da khang dinh Nha nuoc ta la NNPQ XHCN cua nhan dan, do nhan dan, vi nhan dan'. Trong nhiing nam qua, viec phat huy dan chii, bao dam, bao ve quyen con nguoi rat dugc quan tam, the hien nhan thuc va no lire 1cm cua Dang, Nha nuoc ta trong vi?c cung co, hoan thien moi quan he giua Nha nuoc va cong dan theo huong ngay cang dan cfau, binh dang, hgp tac, tich cue.
Tuy nhien, qua trinh xay dung NNPQ ciing con nhirng han che nhat dinh. Theo Bao cao chmh tri cua Ban chap hanh Trung uong Dang kh6a X tai Dai hgi l4n thu XI,
"xay dung NNPQ XHCN chua theo kip yeu
cau phat trien kinh te v^ quan ly dat nuoc"^
Van con nhieu han che, vuong mac trong cac CO che thuc hien quyen dan chu, bao dam, bao ve quyen con nguofi, quyen cong dan ciia nguoi dan. Viec thiet lap c^c co che kiem tra, giam sat, bao dam su minh bach, hieu luc, hieu qua trong to chuc va hoat dpng ciia bp may nha nuoc van con nhieu bat cap.
Thuc te tren dat ra nhimg nhiem vu va yeu cau moi doi voi phat huy d&n chii XHCN, day manh xay dung NNPQ o nuoc ta. Voi tu each la co quan quyen luc nha nuoc cao nhat, to chuc va hoat dgng cua Quoc hgi phai c6 nhung cai tien tich cue nham dap ling yeu cau ve dan chii va phap quyen a nuoc ta hien nay. Dieu nay da dugc Du thdo Bdo cdo chinh tri trinh Dai hoi XIII ciia Ddng khang dinh la mpt npi dung quan trgng hang dau trong tiep tuc xay dung va hoan thien NNPQ XHCN Viet Nam hien nay (muc thii XIII). Trong do co cac ngi
* TS., Vi?n Nhik nu6c va Phap lugt - Vien Han lam Khoa hQC xa hpi Vi?t Nam.
' Di6u 2 Hifin phap n5m 2013.
^ Dang Cong san Viet Nam (2011), Van ki?n Dai hpi Dai bieu toan quoc lan thii XI, Ha Ngi, tr.52, tr.71.
.\HA yfCfC I-i PHAP LL.ATSd 7/2026
dung dang chu y nhu: Tiep tuc doi moi t6 chlic va hoat dgng ciia Quoc hgi: nang cao chat lugng va hieu qua cong tac lap phap, giam sat toi cao va quyet dinh nhtrng van de quan trpng ciia dat nuoc; doi mcri quy trinh lap phap, tap trung xay dung he thong phap luat theo yeu cau xay dyng va bao ve To quoc trong giai doan moi; hoan thien co che danh gia, giam sat doi vcri nguoi giiJ chiic vy do Quoc hgi, Hpi dong nhan dan bau hoae phe chuan.
Trong thai gian qua, Quoc hpi Viet Nam da dat dugc nhirng thanh tuu dang ghi nhan trong to chiic va hoat dgng. Tuy nhien, mac dli da co nhieu cai tien, doi moi, nhung nhin chung, hoat dgng ciia Quoc hgi truac yeu cau dan chii, phap quyen trong NNPQ XHCN Vi?t Nam van con nhieu bat cap, nhieu van de dat ra doi hoi can dugc tiep tuc hoan thien.
1. Nhan thirc ve tinh dai dif n Tim hi^u lich sii Quoc hgi/Nghj vien, CO the thay, mpt trong nhirng can cu quan trgng de hinh thanh nen mo hinh ca quan dai dien ciia he thong xa hgi chii nghia chinh la mo hinh cong xa Pa-ri, theo do:
"Cong xa bao gom nhirng dai bieu thanh ph6 do diu phieu pho thong a cac khu trong thanh pho Pa-ri bau len... Da so uy vien ciia Cong xa tat nhien la nhirng cong nhan hoae nhirng dai bieu dugc thiia nhan ciia giai c5p cong nhan"^. Lien quan den v4n d^ dai dien, c6 nhiing quan diem khac nhau vh tinh chit cua dai dien va uy quyen.
"Cac hgc gia ling hg che do dai nghi cho r ^ g thanh vien ciia Nghi vien khong dai dien cho cu tri bau ra hg, ma dai dien cho toan the dan tpc. boi vay, hp khong phy
thugc vao cu tri va khong bi cu tri bai nhiem"^. D6ng thoi, "trong hogt dgng. Ngh!
vien chi tuan theo Hien phap va lu^t ma khong phai chju s\r giam sat ciia nhan dan, boi le Nghi vi?n tu bi^t nhan dan muon gi va se thong qua luat thi hien y chi do ciia nhan dan"^ Da thuc hi?n trach nhi?ni dgi di?n theo quan ni?m nay, phuang thuc pho bi6n a cac nuoc hien nay la phuong thuc
"uy quySn tu do" (theo do, cac nghj si khong bj rang bugc boi bit ky mpt su chi dao nao, dii la tii cir tri, dang chinh tri ciia minh hay tii bat ky mpt chii the nao khac va CO thd quy dinh them vi?c cim ^p dung phuong thiic "uy quyen chiu l?nh")^.
Doi lgp vcri quan diem tren ia quan diSm XHCN vk dgi dien nhan dan. Theo do,
"dgi biSu trudc het dai di?n cho cii tri bau ra minh va cir tri co quydn bai nhi?m dai bieu khi dgi bieu khong con xiing dang vol su tin nhi?m ciia cii tri"". Tuang ling vai quan ni$m nay la phuang thiic uy quyen chiu lenh - dugc ap dung chii yeu a cac nuoc XHCN truoc day^. Phuang thiic iiy quyen chiu l?nh co myc tieu rang bugc chat che trach nhi?m dgi dien cir tri cua nhiing nguoi dgi bieu. Cac dai bieu ngoai viec phai chiu trach nhiem truoc cir tri, con co nghia vu bao cao voi nhimg cu tri da bau ra minh ve cac hogt dgng ciia ban than cung nhu cac hogt dgng ciia Quoc hgi tai ky hpp. Day ciing la phucmg thiic dgi dien dugc thyc hien Vi?t Nam. Theo khoan 1 Didu 79 Hifin
^ V.I.Lenin, Nha nu&c va Cdch mqng, Lenin toan tap. Nxb. Tiln bp - Matxccrva, 1976, t?p 33, tr.51.
* TS. Vu Hong Anh, T6 chirc va hoat dgng cua Nghi vi^n & mpt so nuac trin thi giai, Nxb. Chinh trj quoc gia. Ha Npi, 2001, tr. 12.
^ TS. Vfl H6ng Anh, tldd, l r . l 3 .
* Hoang Minh Hi£u, Chuc nang dgi difn cua Quoc hpi: Mgi so van dk vi khai ni^m, T j p chi Nghien cuu lap phap, s6 24 (185), thang 12/2010, tr.15.
' TS Vu H6ng Anh. tldd, tr. 14.
* Hoing Minh Hifiu, tldd, t r . l 6 .
TIEP T{!CDdi Mdi...
phap nam 2013, "Dgi biiu Quoc hgi Id nguai dgi di?n cho y chi. nguyen vpng oia Nhdn ddn a dan vf bdu cie ra minh va oia Nhdn ddn cd nuac".
C?uan ni?m v6 tinh dgi dien va phucmg thiic uy quySn khac nhau se din den su khac nhau trong each thiic bau cir, to chiic va hogt dpng Dgi bieu Quoc hgi (DBQH).
Thyc te thai gian qua cho thay, quan niem ve tinh dai dien nhan dan theo do, DBQH vua dai di?n cho nguai dan a don vi bau cir va nhan dan ca nuoc, da dan den mgt so nhgn thiic ciing nhac ve tinh dgi di?n, ve yeu cau phan bo so dai bieu theo so dan, ve ti le, CO cau, thanh phan dgi bieu... trong bau cu. Quan niem va cdch thuc bau cii nhu vay dang dan bgc Ig nhirng han che khong nho tac dgng tai chit lupng va ket qua bau cii, chua giup nguoi dan bau chpn ra dugc nhiing dgi bieu xiing ddng nhat, dgi dien cho tifing n6i, y chi ciia hg. Tir do, anh huong dSn chit lugmg va kha nang hogt dgng ciia cac DBQH, ciing dong nghTa voi viec tgo ra nhung rao can tren con duong huong toi chuyen nghiep ciia cac dai bieu.
Thiet nghi, trong boi canh hien nay, can nhgn thiic Igi ve tinh dgi di?n cua Quoc hgi.
Khong nen hieu dai dien la su phan anh Cling nhac co cau, thanh phan xa hpi. Can hieu dgi dien truoc het la mpt each thiic to chlic dai song dan chii cua Nha nuoc, la mgt cha do. Nguai dgi bieu, bat ke xuat than nguon goc the nao, ciing phai la nguoi dgi dien xiing dang cho tieng noi cua cii tri nai minh bau va nhan dan ca nuac. Dong thoi, viec bau cu ciing can phai co nhung doi mai ve ca che, bao dam sy ty do, binh dang va cong bang. Co nhu vay, viec bau cir mai thyc sy hieu qua, nguoi dan mai biu chgn ra dugc nhung img cii vien thuc su tam
huyet, CO tinh than xa than, cong hien, co nang lyc xiing dang de dai di^n cho minh.
Khi ban den tinh dai dien, khong the khong nhac tai hai phuong thiic lap nen nguoi dgi dien do la: Bau cii va ling cir. Co hai khia cgnh dan chu khi ban ve bau cu.
Mgt mat, can ton trpng bau cir vai tinh chat la quyen thyc hien dan chu tryc tiep cua ngucri dan - quyen ngucri dan tryc tiep dung la phieu lap nen ngucri dgi di?n, thong qua ngucri dai dien de thuc hi^n cac quyen ciia minh trong quan ly nha nudc va xa hpi. Mgt khac, can nhgn thiic diing dan vd c6 co che phu hgp nham phat huy hon nira khia canh thii hai trong phuong thuc thanh lgp nen nguai dgi dien do la: Quyen ty ling cir ciia ngudi dan. Dgc biet, d khia cgnh thii nhat - quyen bau cir, su ton trpng vi bdo dam de ngudi dan thuc sy dugc phdt huy quyen ciia minh trudc het can dugc the hi?n ngay tir khau lya chgn, gidi thi?u lap danh sach nhung ngudi dugc de cii. Hi?n nay, d Vi?t Nam, khau lap danh sdch de cii thudng thien ve quyen lua chgn gidi thipu ciia ca quan to chiic, vdi vai trd chii chot ciia Mat tran To quoc. Theo tdc gia, quy trinh nay nen dupe dieu chinh lai. Bdi le, theo Hien phdp nam 2013, Hgi ddng bau cir quoc gia
"la CO quan do Quoc hgi thdnh lap, cd nhiem vu to chirc bau cir DBQH; chi dgo va hudng dan cong tdc bau cir dai bieu Hgi ddng nhan dan cac cap" (Dieu 117). Nhu vay, ve ly thuyet ciing nhu nguyen tic, viec cong bo danh sach de cii phdi dugc chuyen cho Hgi dong bau cu quoc gia. Dieu nay giiip bao dam sy thugng tdn phdp luat, tdn trgng Hgi ddng bau cir quoc gia, bdo ddm Mat tran To qude thyc hi?n diing vai trd la
"to chirc lien minh chinh tri, lien hiep tu nguyen cua to chiic chinh tri, cdc td chiic chinh tri - xa hdi, td chiic xa hgi va cac ca
NHA .W&C VA PHAPLUATSO 7/2020
nhan tieu bieu trong cac giai cap, tang Idp xa hgi, dan tpc, tdn giao, ngudi Viet Nam dinh cu d nudc ngoai"'. Ddng thdi, day ciing la su ton trpng vd phat huy quyen bau cu ciia ngudi dan.
Mdt khia canh khac ciia tinh dai dien cung can dugc xem xet, dd la "mdt da sd cu tri se ludn cd mdt da sd dgi bieu; nhimg mdt thieu sd cir tri ciing phdi ludn ludn cd mdt thieu sd dgi bieu"'^. Tiic la ben cgnh nguyen tac "50 + 1" (nhdm da sd qua ban se thang phieu), ciing khong the bd qua quySn ctia cdc nhdm thieu so cdn lai. Nhu John Stuart Mill trong tac pham "Chinh the dai dipn" da khang dinh: "Cdc nhdm thieu sd phdi dugc dgi dien day dii, ay chinh la mgt phan mang tinh ban chat ciia nen dan chu. Khdng cd dieu nay thi khdng the nao cd dan chii thyc sy ma chi la man trinh dien gi^ ddi ciia dan chil ma thdi"". Theo tac gid, can phdi tiep tyc cd nhiing nghien cim cai tien trong ca che bau cii de bao ddm khdng chi y chi cua s6 ddng, ma cdn phdi bao ddm dugc quyen Igi, tieng ndi, nguyen vgng ciia thieu sd.
Tuy nhien, trong khudn khd bai viet, tdc gia khdng di sau vao cdc npi dung cy the ciia van de nay ma se nghien ciiu trong mpt bai viet khac.
TIT nhirng phan tich tren, tac gia cho ring, Dang va Nhd nudc can tiep tuc khang dinh va cy the hod hon nira trong dudng ldi, chinh sdch va phap luat su tdn trgng, bao dam phat huy quyen bdu cir, ling cu ciia ngudi dan, bdo dam quyen Igi ciia nhdm thidu sd, ddng thdi thyc thi ca che phdi hgp hieu qua, khoa hgc hon tren thyc te giua
Mat trgn To quoc va Hgi ddng bau cii quoc gia trong bau cii, hi?p thuong d \'ic\ Nam hien nay.
2. Ve cff che phan c6ng, phoi hgrp vi kiem sodt trong to chirc, th\rc hi^n cdc quyen Idp phdp, hanh phdp va tu phdp Hien phdp nam 2013 tiSp tyc khing dinh thyc hi$n co ch^ phan cdng, phdi hgp va kiem sodt trong td chiic, thyc hi?n cac quyen lgp phdp, hanh phdp va tu phap. Tuy nhien, vi$c lam rd ca che nay nhu the nao trong thyc te van cdn la van de can tiep tyc nghien cim.
Mgt vin de dang dugc quan tam va can dugc lam sang td hi?n nay, dd la tiep tyc lugn giai, lam ro npi ham, ranh gidi giiia phan cdng, phdi hgp va kiem soat quyen lyc giira cdc co quan lap phdp, hanh phap va tu phap a Vi$t Nam. Ngay hi thdi cd dgi, tu tudng ve "phan cdng quyen lyc" trong to chlic vd hogt dgng ciia bg may nha nudc da dugc triet gia Hy Lgp (Aristotle) nhac den khi quan ni?m rang, trong bat ky Nhd nudc nao ciing can phai cd nhung ySu td bat bugc: Co quan lam ra lugt cd trach nhiem trdng coi vi?c nudc, cac co quan thyc thi phap lugt va cac tda dn'^. Cho den nay, nguyen tac nay da dugc phat trien vd ngay cang khang dinh qua cac thdi ky lich sii nha nudc va phap lugt the gidi ndi chung va d Viet Nam ndi rieng. Ve mat ly thuyit cung nhu tren co sd hien dinh, cac co quan lap phap, hanh phap vd tu phdp d Viet Nam dugc phan cdng kha ranh mach trong thyc hien nhiem vu quyen han. Tuy vgy, tren
' Dilu 9 Hiln phap nam 2013.
'" John Stuan Mill (Nguyin Van Trpng-Bui Van Nam Son: Dich, gicri thi|u va chii thich), Chinh the dgi dien, Nxb. Tri thiic. Ha Npi, tr.242.
i ' N h u c h u t h i c h l O , t r . 2 4 9 .
'^ Aristotle (1912) (translated from the Greek by William Ellis), The Politics of Aristotle or a Treatise on Government. London & Toronto Published By J M Dent & Sons Ltd. & In New York By E. P, Dutton
& Co, nguon: https://www.gutenberg.org/ files/6762/
6762-h/6762-h.hun, truy c^p ngiy 26/5/2020.
Tl£P T^C Ddi Mdi...
thyc te hi?n nay, duong nhu nguyen tac nay dang gap phdi mdt sd vudng mac, khi ma sy
"phdi hgp" trong td chiic va hogt dgng cua bg mdy nha nudc cd ve dang dugc qud nhan manh, khien nguyen tic phan cdng hi lu md.
Ranh gidi giiia phan cdng va phdi hgp ddi khi khdng that minh dinh. Mat khac, ndi ham cua khai niem "phdi hpp" cho den nay van cdn nhieu diem chua dugc ro rang, gay nen nhiing lung tiing nhat dinh. Vi du nhu:
Li$u sy phoi hgp cd ddi hdi trong bat ky hogt dgng nao cung phai cd sy tham gia cua day du dgi dien cua cac co quan thugc ba nhdnh quyen lyc lap phdp, hdnh phdp va tu phdp? Hay don cir, trong boat dgng ciia timg Uy ban ciia Qude hgi, gidi hgn su tham gia, phdi hgp cua cac dai di?n tir cac dan vi khdc din dau? Dudi cac hinh thiic nao, ngoai su tham gia trong cdc cupc hgp?
"Hi$n nay, da sd cdc thanh vien cua Hdi ddng dan tdc vd cac Uy ban hoat ddng theo chl dg kiem nhiem, cdng tdc d nhieu co quan va dia phuang khac nhau trong ca nudc, trong khi dd, khdi lugng cdng viec ma Hdi ddng dan tgc va cdc Uy ban phai gidi quylt Igi rit Idn va da dgng"'^ Nhirng thanh vien hogt dgng chuyen trach la nhung ngudi thupc bd phan Thudng true vdi bdn din nam nguoi (Chu nhiem va phd Chii nhi$m) va mpt sd dai bieu hogt dpng chuyen trdch. Tuy nhien, vdi mat dp cdc cupc hpp day dgc d Qude hgi, viec khong du cdn bg dl tham du diy du tit cd cdc cudc hop cua cdc CO quan la dieu khdng the tranh khdi.
Vi?c td chlic thao lugn, tham gia y kien ve cdc du dn lugt, phdp lenh vdi cdc Uy ban
khdc thudng "khdng co thai gian"^^ va ciing chi CO mdt sd thanh vien trong Thudng tryc cd the tham gia mdt cdch khdng day dii vi cung mdt liic phai thyc hien cdng viec khdc ciia Uy ban.
Trong kiem sodt quyen lyc, ciing can nhac Igi rang, viec kiem soat quyen luc khdng chi dimg Igi d vi?c kiem sodt giua cdc ca quan thyc hien ba quyen lap phdp, hanh phdp vd tu phdp, ma mgt ngi dung khdng kem phan quan trgng, dd la vi$c kiem sodt tu trong chinh cdc ca quan ndy.
Tdc gid cho rang, trong thdi gian tdi, chung ta can cd su chu trpng han nua trong viec xay dung vd hoan th!?n ca che kiem sodt theo chieu dpc trong npi bp cdc co quan nhd nudc mpt each hieu qua, minh bach hon.
Ben canh dd, mpt cau hdi hdi khac dupe dat ra, dd la lieu rang thyc sy da cd co che kiem sodt hiiu hieu, hgp ly va khoa hgc tu phia hanh phdp va tu phap - vdn la nhirng ca quan phdi sinh tir Qude hgi - doi vdi co quan thuc hien quyen lap phdp (Qude hdi) hay chua? Hay tren thuc te mdi chi cd su dgc lap tuang ddi giira cdc co quan nay doi vdi Qude hgi? Nhu da biet, quyen lap phap la quyen dai dien cho nhan ddn the hien y chi chung cua quoc gia. Do dd, trong thiet ke bd mdy nha nudc XHCN, Qude hdi Id co quan quyen luc nha nudc cao nhat ciia nudc Cgng hda XHCN Viet Nam (Dilu 69 Hien phap nam 2013). Dieu nay ddng nghia vdi viec, cdc ca quan khdc (hanh phap, tu phap) la CO quan phai sinh ciia Qude hdi, chju trach nhiem trudc Quoc hgi ma khong cd co chl ngupc lai. Nhu vgy, ly thuyet ciing nhu thyc tiln da va dang dat ra mpt van de khd '^ Tham khao: Lich su Qu6c hpi: Ca cdu, tS chuc
cua HQI dong dan tpc, Uy ban ctia Quoc hoi. Nguon:
http://quochoi.vn/70qhvn/lichsuQHVN/Pages/to-chu c-hoat-dong-quoc-hoi.aspx?itemID=30502, tmy cap ngay 26/05/2020.
'^ Ky yeu Tong kit nhi?m ky Quoc hgi khoa XI (tai ky hpp thu 11, Qu6c hpi khoa XI), Ha Npi, 2007, tr.
154.
\HA SCdC VA PHAPLVATSd 7/2020 thdi sy: Neu (Judc hgi mic sai lim (tao ra mpt dao luat bi vi hien hay cd nhiing sai sdt, nhu trudng hop sai sdt cua Bd luat Hmh sy nam 2015) thi thiet che nao se kiem soat Quoc hdi va van de trach nhiem ciia Quoc hgi dugc dat ra nhu thi nao?
Mdt sd van de ciing da va dang dugc dgt ra, ddi hdi phdi tiep tyc dugc nghien ciiu, lam sang td lien quan den vi?c thuc hi?n ca che phan cdng, phdi hgp va kiem soat quyen luc ndi chung ciing nhu trong thyc hi$n quyen lap phdp ndi rieng, vi dy nhu: Gid tq phdp ly cua kit lugn giam sat, phgm vi va phucmg thiic giam sat ciia Qude hgi, ca che trach nhi?m (phan cdng va phdi hgp ciia cdc chii the tham gia vao quy trinh lap phdp khi chat lugng cua lugt khdng dgt yeu cau)...
Thiet nghT, can sdm xay dyng mgt md hinh khach quan, "vugt len tren" dl "nhdt quyin lyc vao long co chl". Trong dd, thilt che bao hien, tai phdn hien phdp la mpt hudng di thyc sy can thiet de giai quylt nhirng vudng mac trong ca che phan cdng, phdi hgp, kiem sodt quyen lyc d Viet Nam hien nay. Day ciing la viec tdn trgng nguyen tic phdp quyin, bao dam thyc fci Hiln phdp, ma cy thi Id khoan 2 Dilu 119 Hiln phdp nam 2013.
Can khang dinh yeu cau sdm cd sy cy thi hod ndi dung "co chl bao ve Hiln phap do luat dinh", nham bao dam co chl kilm soat quyen luc, hogt dpng ciia bd mdy nha nudc ndi chung cung nhu hogt ddng cua Quoc hdi ndi rieng trd nen hieu qua, trach nhi?m va chuyen nghiep hon. Tac gia cho ring, trong tinh hmh thyc tien d Viet Nam hien nay, ciing khdng nhat thilt phai thanh lap han mgt ca quan chuyen trach mdi. Tuy nhien, can tim chpn mot md hinh co che
bdo hien phu hgp, ro rang va toi iru trong to chlic va hoat dpng ciia bg mdy nha nugc.
Cd the tham khdo md hinh ca quan bao ve hiln phdp dat trong (Juoc hgi (thgm chi, c6 the nghien ciru kha nang trao thim quyen nay cho Uy ban phap lugt ciia Quoc hpi khi ca quan nay hien nay vfin dang thyc hi?n vai trd gidm sat, bdo ddm tinh hgp hien, hgp phdp trong cac van ban phap lugt cua cdc ca quan nha nudc thugc linh vyc Uy ban phy trdch'^).
3. Bao ddm tinh nhdn dan trong boat d$ng cua QuSc h$i
J.J.Rousseau, trong tac phim "Khe udc xa hpi", khi bdn vl chii quyen nhan dan da khing dinh: "Cac dgo lugt la nhung van ban ciia y chi chung, nhd vua khdng thi cao hon dan chiing. Dan chii va ty do chi cd the d nai nhan dan la ngudi lap phdp. Chi van ban dupe nhan dan nhit tri true tiep thdng qua mdi trd thanh lugt"'*. Bh bao dam y chi, nguyen vpng ciia nhan dan dugc phdn anh day dii trong cdc dgo luat, viec bdo dam tinh nhan dan trong hogt dpng ciia Qude hgi la mpt nguyen tac vd cung can thiet can dugc ghi nhan vd khang dinh. Nguyen tdc nay the hi?n dudi nhieu hinh thiic nhu da dgng hda cac hinh thiic lay y kien nhan dan vdo cdc du thao luat, cac hoat dgng tiep xiic cu tri, cdng tac dan nguyen cua Quoc hgi, ciing nhu su giam sdt, tiep can thdng tin ve cdc hoat ddng ciia Qude hdi (tryc tiep qua tilp xiic cu tri, qua van ban, qua cdc each thiic lien lac bing phuong ti?n di?n tu, trang web...).
'5 Dilu 70 Luat T6 chuc Quoc hpi nim 2014.
'* Khoa Luat - Trucmg D^ hgc Tong hpp H^ N^j_
Lich su cdc hpc thuyit chinh trj tren the gim, Nxb' Chinh tri quoc gia. Ha Npi, 1993, lr.291.
8
TltPT{JCDdlM&I...
Nhin chung, trong quy trinh xay dyng, ban hanh luat, p h ^ l?nh hien nay, phap !ugt da quy djnh rd Mat tran To quoc Viet Nam vd cac td chlic thanh vien, td chiic khac, co quan nhd nudc, dan vi vii trang nhan dan vd ca nhan cd quyen tham gia gdp y kien ve dy thao van ban quy phgm phdp luat. Dong thdi ciing quy dinh ca quan, td chiic chii tri soan thdo trong qua trinh sogn thao phdi liy y kiln CO quan, td chiic hiiu quan vd ddi tugng chiu sy tac dpng tryc tilp ciia van bdn; dang tai toan van du thao tren Trang thdng tin di?n tii cua Chinh phii hogc ciia ca quan, td chiic chii tri sogn thao trong thdi gian it nhat Id sau muoi ngay de cdc co quan, td chiic, cd nhdn gdp y kien; cd trdch nhi?m tdng hgp, nghien ciiu, tiep thu cdc y kien gdp y. Tuy nhien, qua thyc tien thyc hi?n cho thay, cdc quy dinh nay chua hoan toan bao dam phan anh dupe day du y chi ciia ngudi dan, quyen Ipi ciia cac nhdm Igi ich trong xa hdi trong qua trinh xay dyng, ban hdnh phdp luat. Bdi le, tuy ngudi dan, cdc nhdm Igi ich dugc tham gia ddng gdp y kien, nhung chua cd co che thuc su bdo ddm de CO quan, to chiic soan thao, co quan tham tra "lang nghe", "tranh luan" vdi cdc y kien tham gia nay*^. Thyc te nay da dan den tinh trgng cdc khau gdp y, soan thdo, tham tra, chinh ly trd nen rdi rgc. Ca che phdi hgp liic nay can dugc phdt huy thi dudng nhu Igi khdng hieu qua.
Tgi ky hgp thii chin vira qua, Quoc hgi khda Xrv da thdng qua Luat sira ddi, bd
" Xem: "Be xudt sua doi quy djnh vi tiip thu, chinh ly, hoan thi?n d\r dn lugt trong Lugt sua doi, bo sung Lugt Ban hdnh van bdn quy phgm phdp lugt", ngu6n:
http://quochoi.vn/UseiControls/Publishing/News/Bin hLuan/pFomiPrint.aspx?UrlListProcess=/content/tint uc/Lists/News&IteniID=41637, tiuy cap ngay 27/6/2020.
sung mdt sd dieu cua Ludt Ban hdnh van ban quy phgm phdp lugt'^, trong dd, cd nhin mgnh vai trd phan bien xa hgi ciia Mat tran Td qude'^. Tuy nhien, vdn cin phdi cd them thdi gian de ddnh gid tdc dpng ciing nhu thyc tiln thuc thi Lugt mdi. Mgt khdc, cdn rat nhieu van de khdc trong vi$c liy y kiln nhan dan ddi vdi cdc du thao lugt, phap lenh van chua dugc de cap den. Do do, tdc gid cho rang, van can tiep tuc nghien ciiu va tim ra cdc giai phdp huu hi?u, cd tinh khd thi hem nira trong hogt ddng lay y kien nhan dan, phdt huy vai trd ciia nhan dan trong hoat dgng ciia Qude hgi.
De phat huy quyen lam chu ciia nhan dan, bdo dam hoat dgng cua Quoc hpi phdn dnh dugc day dii y chi cua ngudi dan, quyen Igi ciia cdc nhdm Igi ich trong xa hgi, theo tac gid, cdc chii truang ciia Ddng vd phdp lugt ciia Nha nudc can chii y mgt so ngi dung sau:
Thir nhdt, phai xay dung tdt ca che phdn tich chinh sdch, gidm sat, phan bi?n xa hdi, lay y kien chuyen gia trudc, trong va sau quy trinh lap phdp.
Thit hai, tiep tuc bdo dam thyc thi va hoan thien han niia co che lay y kien nhan dan trong qua trinh xay dyng lugt, phap lenh. Can cd cdc quy dinh va thyc hi?n tdt khau td chlic de nhan dan thuc hi?n hieu '^ Nguyen Hoang, Thong qua Lugt sua doi, bo sung mot so dieu cua Lugt Ban hdnh vdn bdn quy pham phdp lugt. Nguon; http://baochinhphu.vn/Thoi-su/
Thong-qua-Luat-sua-doi-bo-sung-mot-so-dieu-cua-L uat-Ban-hanh-van-ban-quy-pham-phap-luat/398391.
vgp, truy cap ngay 27/6/2020.
" Xem: Du thdo Lugl sira doi, bo sung mpt so dieu cda Ludt Ban hdnh vdn bdn phdp ludt ndm 2015, ban ngay 20/5/2020, ngu6n: https://thuvienphapluat.vn /van-ban/Bo-may-hanh-chinh/Lual-Ban-hanh-van-ba n-quy-pham-phap-luat-so-80-2015-QH13-sua-doi-40 2074.aspx+&cd=2&hl=en&ct=clnk&gl=vn, truy cap ngay 27/5/2020.
.\HA Mdc VA PHAPLVATSd 7/2020 qua quyen dan chii true tiep cua minh. Da dgng hda cac hogt ddng lay y kien nhan dan (vi dy bang phuang phdp bd phieu true tuyen, cdc dich vu hogt ddng tham dd du luan...). Mat khdc, tiep tuc day mgnh, tao dieu ki?n de nhan dan tham gia y kien tryc tiep hogc thdng qua cac td chiic doan the cua minh, trudc het la Mat trdn Td quoc Viet Nam ddi vdi cdc du thdo lugt truac khi trinh Quoc hgi thdng qua.
Thir ba, phat huy vai trd cua ngudi dgi bieu nhan dan, d dd, DBQH khdng chi la nhiing chuyen gia lap phap, md tnrdc het, phdi Id nhimg ngudi dai bieu tan tuy ciia nhan dan, tich cyc thyc hi?n vai trd dgi di?n trong cac hogt ddng tiep xuc cir tri, thyc hien vai trd ciia minh tgi nghi trudng.
Thir tu, can phai day manh va da dgng hda cdc hoat dpng tuyen truyen, phd bien phdp luat, thdng tin cdng chiing, dua phdp ludt vao cudc sdng de nhan dan thuc hien vd nang cao trinh dp hieu biet phdp luat, y thiic cdng ddn hem niia.
4. Doi mdi cdch thirc to chirc vd nang cao hi^u qua hoat ddng cua Quoc hgi, trudc het la cai tien quy trinh Idp phdp, cdi tien hinh thirc va chat lugng cac ky h9p ciia Quoc hgi
Lien quan den ky hgp va quy trinh lap phap, hien nay Qude hgi da cd nhieu cd gang nang cao chat lugng thong qua viec chuan bi tdt npi dung cac vin dl trinh ra Qude hdi; giri tai lieu trudc de cac dai bieu nghien cim trudc khi den hgp, tgo dieu kien cho dgi bieu chuan bi sau nhiing vin de thugc ndi dung ky hgp, nhiing dy an luat se dupe thdng qua. Nhirng tinh hudng nhu dai dich Covid-19 da dgt ra yeu cau phat huy nen tang cdng nghe sd trong hoat ddng cua Qude hgi, dem cu nhu viec dp dung hpp tryc
tuyen dang trd thanh mgt xu the men ^ nhilu uu dilm vl tilt ki?m chi phi va hi?u qua^o.
Tuy vay, vin dgt ra yeu cau tiep ^^
tien, nang cao chat lugng hogt dgng ^ DBQH ndi rieng, hoat dgng cua Quoc hgi ndi chung, tir chit lugng cdc ky hgp cua Qude hgi, chit lugng chat vin. hoat dgng tiep xuc cu tri, hogt dgng lgp phap.-
Cin cai tiln quy trinh, cdch thurc thdng qua mgt dy dn luat viia bdo dam de dgi bieu phdt bilu sau vl nhiing vin de thupc npi dung dy dn, nhung Igi khong bi sa da vao cdc vin dl ky thuat qud cu thi. Hien nay, thdi gian thuyit trinh vl dy an, de dn, trinh bay bdo cdo khdng qua 15 phiit, trir trudng hgp theo quylt dinh cua Qude hgi dugc ghi trong chuang frinh ky hgp Qude hdi^ . Trong phien hgp toan thi, "DBQH phdt bieu tap trung vl npi dung cua phien thdo lugn;
khdng phdt bilu qua hai lin vl ciing mgt ngi dung. Thdi gian phdt bilu lin thir nhat khdng qud 07 phut, lin thir hai khdng qud 03 phut"^^. Ddi vdi hogt ddng chit vin, DBQH neu chit vin khdng qud 02 phut.
Ngudi bi chit vin trd ldi chat van cua mgt dai bilu khdng qua 05 phiit. Tnrdng hgp cin thilt, Chu tpa quyet dinh viec keo ddi thdi gian tra ldi chit vin^^ Cdc gidi hgn ve thdi gian nay la hgp ly vd can thiet, the hien cdch lam viec chuyen nghi?p, khoa hoc cua
^° Quic hpi hpp trvc tuyin: Mo hinh thich hpp cho tuang tai? Ngu6n: https://vov.vn/chinh-tn/quoc- hoi/quoc-hoi-hop-truc-tuyen-mo-hinh-thich-hop-cho- tuong-lai-105 3602.vov, truy cap ngay 27/6/2020.
' ' Khoan 3 Di^u 15 Nghi quyet so 1 0 2 / 2 0 1 5 / Q H ] 3 Qgay 24/11/2015 v^ Npi quy ky hpp Quoc hpi.
22 Di^m d khoan 2 Dieu 16 Nghj quyet s6 102/2015/QH13 ngay 24/11/2015 ve Npi quy ky ^^p Qabc hpi i i ,«-. ,^„
2' K h o ^ 2 Dieu 17 Nghi quyet so 102/20 1 5 / Q H 13 ngjiy 24/11/2015 v6 Npi quy ky hpp Quoc hpi.
10
Tllkp TlJC Ddi Mdi...
Qude hgi; nhung mat khac, ciing la mdt thdch thirc idn ddi vdi dgi bieu trong thyc hdnh ky nang phdt bieu the hien chinh kien ciia minh dam bao neu bat dugc van de mdt each hdm siic, ngan ggn va trgng tam nhat.
Ben cgnh dd, theo tac gid, trong mdt sd trudng hgp ngogi le, dgc biet trong hogt dgng chat van, nen chang cd sy linh hogt, mem deo hem niia ve gidi han thdi gian gidi trinh, tra Idi chat van cua ngudi bi chit vin.
Bdi cau hdi chat van can ngan ggn, du y.
Tuy nhien, viec trd ldi chat van, dau khdng the ddi ddng, lan man, nhung nhieu ITnh vyc, van de can cd nhieu thdi gian de giai trinh, chii khdng the chi dua ra nhiing cau tra ldi dang "cd/khdng" de cd the lam ro dugc cdc ndi dung can cdng khai, minh bgch trudc Qude hdi, trudc cir tri, trudc nhan dan.
Ciing cdn xac dinh ro va nang cao trach nhiSm ciia timg chii the tham gia quy trinh xay dyng, ban hanh lugt, phdp lenh. Mdi khau, mdi cdng doan phai xdc dinh ro dugc nhi?m vy ciia timg chu the tham gia, ddng thdi phdi xdc dinh rd dugc chii the ndo phai chiu trach nhiem chinh trong trudng hgp khdng bdo dam chat lugng va tien do cdng viec. Nhirng sai sdt gan day trong cdng tac lgp phap^** dat ra nhieu van de lien quan den viSc xac dinh ro vai trd cua timg chu the trong tiing khau ciia quy trinh lap phap. Van la cac van de mudn thud can dugc khac phuc: O hai khau sogn thao va tham tra, can phdn dinh rd trach nhiem va vai trd cua cdc chii the trong moi cdng dogn ciing nhu sy phdi hgp giiia cac chu thi d cdc khau nay vdi nhau. Mat khac, can cd nhiing quy dinh
cu the hem ve trdch nhiem bao cao giai trinh, thuyet minh khoa hpc cho cac vin dl trong dy thdo luat.
5. Tang cuomg nang lyc va tinh chuyen nghiep ciia Dai bilu Qu6c hgi
Viec cdi tien, nang cao tinh chuyen nghiep cho DBQH can tilp tuc dugc nghien cuu de tim ra nhung giai phdp kha thi vd phii hgp nhat trong bdi canh Viet Nam.
Hien nay, Quoc hgi dang hudng tdi tang cudng sd lugng dgi bieu chuyen trdch. Tuy nhien, tac gid cho rang, viec tang sd lugng dai bieu chuyen trdch mpt cdch hiiu ca chua giai quyet dugc can cdt ciing nhu nang cao dugc chat lugng cua DBQH vd hoat dgng ciia Qude hdi hien nay. Van de quan trgng d day la phai quan tam den chat lugng dai bieu, tiic la tinh chuyen nghiep cua DBQH.
Cau hdi "DBQH chuyen trdch hay chuyen nghiep", lam sao de nang cao tinh chuyen nghiep cua DBQH lau nay van ludn dugc ban thao soi ndi ma chua cd hdi ket.
Nhu chung ta da biet, dai bieu kiem nhiem d nudc ta la mdt truyen thdng chinh tri - phdp ly tir lau, ciing tuong tu nhu md hinh cac nudc XHCN trudc day. DBQH d nudc ta hoat ddng trong dieu kien Qude hdi hogt ddng khdng thudng xuyen. Hien nay, DBQH chuyen trach ddng vai trd ndng cdt trong hogt ddng chung. Theo thdng ke, mdi nhiem ky Qude hdi nudc ta cd khoang 30%
DBQH khda tnrdc tai cir^^ Tir Quoc hgi khda X trd Igi day, mdi nhiem ky Qude hdi, sd DBQH chuyen trdch chiem khoang 30%, gin 70% con lai la cdc DBQH boat dpng
" BQ lugl Hinh sir sai sot nghiem trpng, ai chfu trdch nhi^m? Nguon: https://tuoitre.vn/bo-luat-hinh-su-sai- sot-nghiem-trong-ai-chiu-trach-nhiem-1126033. htm, truy C9P ngay 26/5/2020.
' ' Ngu6n: Trin Van Thuan (chti nhiem), De tai cap Bp. Tieu chi danh gid hogt dpn^ ciia Dgi bieu Quoc hpi trong nhd nirac phdp quyen xa hpi chii nghia Viet Nam: Ca sa ly ludn vd thuc tien, Vien Nghien cmi lap phap - Uy ban Thuong vu Quoc hpi chii tri, H a N p i , 2016-2017,tr.22.
11
NHA NLdC VA PH.4P LUAT sd 7/2020 kiem nhifm^^. Svr khac biet ve dieu kien, che dp va tinh than giua DBQH chuyen trach vcri DBQH kiem nhiem, gifta DBQH chuyen trach a dia phuong voi DBQH chuyen trach 6 trung uong dan den su khac nhau ve muc dp, tinh chat hoat dpng va tam anh huong, hi$u I\rc, liieu qua hoat dpng cua moi dai bieu.
Hon niia, tuy dupe coi la chuyen trach, nhimg cac dai bieu cua ta van bj danh gia la '^chua chuyen nghiep", vi hp dupe phan cong nhi^m vp do co cau chii khong xuat phat tir tam nguyen, tir su chu dpng cua chinh hp. Ben c ^ do, cac dai bieu van chua CO nhirng ky nang chuyen nghiep trong ho^t dpng d^i bieu, chua co dupe nhiing chien lupc cy thj trong hoat dpng ciia minh.
Khi thao lujn, thong qua du an lujt, nhi8u dai bieu van sa da ve thao luan cau, chir, doi luc bi bio chi gan cho ten gpi "hien tucmg lam vdn tap the". Hp cung khong c6 nhieu thoi gian de nghien ciiu truoc cac du an lu|it, phap Ipnh, tiep xuc cir tri va thao luan o cac Doan d^i bieu. Chua noi den kha nang dupe tiep c^n cac nguon thong tin, cap nhat cac kien thirc trong nuoc va the gicri lien quan den cac d\r an luat, phap lenh, cac dilu ki$n bao dam tinh chuyen nghiep (nhat la ve bp may giiip vi?c) van con ban ch8.
Do d6, tac gia de nghi Du thao Bao cao chinh tri Dai hpi XHI ciia Dang cSn chii y d6n npi dung nang cao tinh chuyen nghiep Cila DBQH. Thift nghi, diju quan trpng khong phai la tang so luong dai biSu chuyen trach, ma dieu cot yeu la can chti trong htm nira den tinh chuyen nghiep ~ tuc la chdt lirgrng - cua DBQH, bit diu tii cong tdc biu cir, l\ra chpn ngucri dai bieu xiing dang cua nhan dan, cho den nang cao nang luc dai
bieu, cung co va hoan thi?n bg may & ^ vi(c CO chuyen mon cao. Can phai o&
tiinh, boi so DBQH chuyen trach lien q"^
toi cac ch6 dp phy c4p va mpt lo^t c^c v de v6 t6 chuc, hoat dpng, ngan sSch, c <:
diSu kipn bao dam chit lupng, tint chuyen nghiep cua DBQH, nhit la cac hojt dpng bdi duong chuyen mpn nghiep vy, ky nang cho DBQH, cung c6 va phit triSnh? thong chuyen gia va bp may giip vipc ho ttC cho host dpng ciia DBQH". Do ib, can c6 nhung tinh toan, do luong, iV bao cp the trong van dS nay.
6. Trich nhi^m cia Qu6c h^i vi Dai biiu Qu6c h$i
LiSn quan den co che danh gii, giam sat, theo tic gia, mpt ySu td quan trpng quySt dinh tcri tmh chuyen nghiep cua Quoc hpi va DBQH lau nay chua duoc quan tam mpt cich diing miic, do li trach nhiem cua DBQH, the hien o hai dang: Trich nhiem chinh tri vi trich nhiem phap ly. Trach nhiem chmh tri lien quan mat thiet den su tin nhipm cua cii tri doi voi dai bieu va nghieng nhi§u hon ve khia canh dao diic.
Trach nhiem phip ly la hau qui phap ly bat loi cua DBQH tnioc phip luat khi c6 nhung vi pham. Thiic tk hoat dpng cua Qu6c hpi va DBQH Viet Nam cho thiy, cac truang hpp xil ly vi pham va chiu trich nhiem phap ly cua DBQH Viet Nam la kha han hiiu'*. Cac hucmg hop DBQH vi trich nhiem chlnh trj, mit uy tin chinh tri ma til chuc li chua tiing CO tien le.
" Tran Van Thuan, Md, tt.23.
12
" Tham kliao: Phan Thanh Hi, Tinh chuyin nghim cua Bfi biiu Qu6c hpi * Kf, N ™ */f" ™^, Tap . ^ Nha nu6c vJ Phip 1 * , so 11/2018 tt.20-36 M Vi ii> cac micing hgp bic tu cich dai bicu ciia one Trinh Xuan Thanh, ba Nguyen Thi Nguy?i Huimg Nguon: https://tuoitre.vn/nit-kinh-nBhiem-vu.<,„ ^^
„h-xuan-thanh-ba-nguyen-lhi-nguyel-huong-li35j_l 7.htm, truy cSp ngiy 26/5/2020.
TIAPT^C Ddi Mdi..
Dudi khia canh tich c^rc, dieu nay phan nao dd th6 hi?n ehdt lugng ciia DBQH Vi?t Nam, nhung mat khdc, lai cho thay mgt th\rc trgng, dudng nhu co che gidm sat, danh gia DBQH cua chiing ta hien nay van cdn thieu hieu qud. Dau dd van cdn s\r ne nang, d6 dai trong cdng tdc td ehuc can bg.
Do dd, tdc gia kiSn nghi viec can nhac them cdc ngi dung trong Du thdo Bdo cao chinh hi trinh Dai hdi XIII eua Ddng lien quan den yeu eau ndng cao trdch nhi^m chinh tri ^^ trdch nhi^m phdp ly eua DBQH ndi rieng, Quoe hgi va cae co quan nha nudc ndi chimg, vdi mgt sd giai phap cu the sau:
- Ban hdnh Bg Quy tac ung xu hoae Quy tac dao dire ciia DBQH nham bao dam tinh chinh ddng, tang cudng hon nira y thirc, nghia vg va trach nhiem ciia ngudi dai bieu nhan dan.
- Cdi tien cdch thuc ddnh gia chat lugng, uy tin, do tin nhiem cua DBQH. Dgc bi$t, trong cdch thirc ddnh gia tin nhiem dgi bieu, can tien hdnh thuc chat hon, manh dgn thuc hien phuong thiic bo phieu tin nhi^m (bat tin nhiem) khi can thiet, hgn che dp dyng each thuc lay phieu tin nhiem (vdi 3 miic: Tin nhiem thap, tin nhiem, tin nhifim cao) nhu hien nay. Vi theo tdc gia, tren thuc te, viec lay phieu tin nhiem nhu vgy chi mang tinh chat tham khao, chu khdng dan tdi he qua phap ly va khdng anh hudng gi tdi trdch nhiem chinh tn - phap ly cua dgi bieu.
- Xay dung Bd tieu chi danh gia hogt dgng eiia DBQH va tign hdnh danh gia hoat dgng cua DBQH thudng xuyen. Viec danh gia nay chu yeu tac ddng d^n uy tin cua DBQH va cd gia tri tham khdo, nham thuc day, khuyen khich hogt dgng ciia DBQH.
7. Doi mdi sy lanh dao ciia Bang doi vdi hoait dong cua Quoc h$i
Trong dilu kien xay dung NNPQ, tdng cudng dan chii trong mgi mat ddi sdng xa hdi, mgt mat can bao dam su tanh dgo ciia Dang ngay tir khau the che hda dS chii truong, quan diem ciia Ddng dugc th^ hi?n day dli trong phap lugt, ddng thdi cdn nghien cuu cdi tien phucmg thirc lanh dgo eiia Dang de bdo dam tinh dan chii, khoa hgc, phdn bien trong hoat ddng cua Qude hgi.
O bat ky Nha nudc ndo, sg chi phdi, dnh hudng cua chinh tri ddi vdi hogt dgng quyen luc nha nudc hoan toan la mgt quy lugt khach quan cua xa hgi. Dgc thii Ddng Cdng san la lyc lugng lanh dao duy nhdt trong ddi sdng chinh tri la yeu td khdeh quan va cd tac ddng ddng ke tdi hogt dgng cua Qude hgi va DBQH d nudc ta. Dieu 4 Hien phdp nam 2013 quy dinh: "Ddng Cgng sdn Viet Nam, dgi tien phong cua giai cdp cong nhdn, dgi biiu trung thdnh quyen Igri cua giai cdp cong nhdn, nhdn ddn lao dgng vd cua cd ddn tgc, theo chu nghia Mdc - Lenin vd tu tuang Ho Chi Minh, la luc lugng lanh dgo Nhd nuac vd xd hgi..."
Vdi tu each la lyc lugng lanh dgo Nha nudc vd xa hgi, Dang de ra cac chii truang, dudng ldi lanh dgo ddt nudc. Cac ehu trucmg, dudng ldi ndy dugc the che hda trong Hien phdp va phap luat. Hoat dgng lap phap d nudc ta la mdt hinh thiic co bdn de th6 che hoa chu tnrang, dudng ldi ciia Dang, thdng qua do, bao dam su lanh dao thdng nhdt ciia Dang dugc dung dan, kip thdi. Sy lanh dgo cua Dang khdng chi dugc the hien d yeu cau the che hod cdc cuong ITnh, dudng ldi chi dao chung ciia Ddng, ma nd cdn dugc the hien cu the d sy lanh dao ciia Ddng trong timg khau, tung giai doan
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NHA Nirdc VA PHAPLL.ATSd 7a020
hogt dgng cua cac co quan nha nudc thdng qua cac td chiic ciia Dang va cac Dang vien - vdi tu each la cac can bg, cdng chiic hogt dgng trong cac co quan nha nudc, cac DBQH va quan chiing nhan dan.
Dac biet, mgt giai doan ciing het siic quan trgng trong hogt dgng lap phap cua chung ta Id giai dogn xm y kien Bg Chinh tri ve cac dy an luat, phap l?nh. Tuy day khdng phai la mdt cdng dogn dugc quy dinh chinh thirc trong lugt, nhung tren thyc te, day la mpt ngi dung rat quan trgng trong quy trinh lap phdp d nudc ta.
Quy trinh vd thii tuc xin y kien cua Bd Chinh tri dugc thyc hi?n theo Cdng van ngay 3/12/1988 ciia Ban Bi thu, theo dd:
"Bg Chinh tri cho y kiin doi vai lugt vd phdp I4nh md ngi dung cua no chua co duang loi, chu truang. chinh sdch ro rdng cda Ddng: nhimg quan diim, chu truang l&n cua du lugt vd phdp linh: nhung y kiin con khdc nhau, nhimg vuang mdc trong quy trinh thdo ludn".
Trong giai dogn xin y kien ciia Bg Chinh tri, cac Ban ciia Dang, theo chirc nang ciia minh, cd trach nhiem phdi hgp chat che vdi cac co quan xay dyng phap lugt ngay tir ddu, giup Ban Bi thu xem xet cac dy dn lugt, phap lenh ngay trudc khi trinh Bg Chinh tri. Nhimg noi dung trinh Bg Chinh tri cho y kiln diu dugc chuan bi ky tren co sd trao ddi y kien giiia eac co quan cd lien quan va dudi sy chi dgo cua Dang doan Qude hgi.
"Hau hit cdc du dn ludt, phdp lenh tru&c khi trinh Uy ban Thuang vu Quoc hgi xem xet vd Quoc hgi thdo ludn de thong qua deu duac bdo cdo de Bg Chinh trj cho y
kiin"^^. Tuy vay, vi?c xem xet, cho y kien ciia BO Chinh tri. Ban Bi thu ngay cang dugc ddi mdi. Theo dd, Bg Chinh tri, Ban Bi thu chi cho y kiln chi dgo ddi vdi nhung vdn dl dgc bi?t quan trgng, nhgy cam "hogc con CO y kiin khdc nhau giira ca quan trinn, ca quan thdm tra vd Uy ban Thuang vu Quae hgi thugc ngi dung cua du an
"Cdc van de khdc Ddng dodn Quoc hgi. Uy ban Thudng vy Quoc hgi chi dgo vd tu chiu trdch nhi$m"^^.
Cd thi thiy, sy lanh dgo cua Ddng Id mgt yiu td quan trgng, tdc dgng khong nhd tdi tinh chuyen nghi?p ciia DBQH. Nen chang, can cd nhimg nghien cuu cai tien sy lanh dgo eiia Ddng nhdm phat huy dan chO, tang cudng hon nira chdl lugng, hi?u qud hogt dgng ciia Qude hgi vd DBQH, tien tdi mgt Quoc hgi chuyen nghi$p.
Tdc gia cho rang, can cd sy minh dinh ro hem trong lugt ve sy tham gia ciia Ddng trong quy trinh lgp phap cung nhu cac hogt dgng cua Qude hgi, nhdt Id trong nhirng van dl can xin y kiln ciia Ddng, Doan Qude hgi.
Dieu ndy giiip bdo dam sy minh bgch, khoa hgc vd chgt che hon trong quy trinh hogt dgng ciia Qude hgi, DBQH dudi sy lanh dgo ciia Ddng. Thiet nghT, ddy ciing Id mgt ngi dung can dugc Dang va Nha nudc quan tam nham phat huy dan chii, tilp tyc xdy dyng NNPQ XHCN d Vi?t Nam hien nay.
" Van fihong Quoc hpi, Tran Ngpc Dirang (chu bien), Dot max vd hodn thi^n quy Irinh lap phdp ciia Quoc hpi. Nxb. Chinh trj quoc gia, Ha Npi, 2004, tr.l07.
^ Van phong Qu6c hgi, tldd, U-.107.
^' Ky yeu Tong kit nhi^m ky Quoc hpi khoa XI {Xa.\
ky- hpp thii II, Qu6c hpi khoa XI), Ha Npi, 2007, tr.50.
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Tl£P T^CBdi Mdi...
8. Bao dam nguyen tac cong khai, minh batch, tr^ch nhiem giai trinh
Mgt ndi dung quan trgng md tdc gid kien nghi dua vdo Dy thao Bao cdo chinh tri trinh Dgi hdi Dang sdp tdi, do la dua yeu cau bdo ddm tinh cong khai, minh bach, trdch nhifm gidi trinh trd thdnh mgt nguyen tac trong td chiic va hogt dgng cua Qude hgi ndi rieng vd cua cdc co quan nhd nudc ndi chung. Lien quan chat che den tinh chiu trdch nhi$m ciia cac ca quan nha nudc Cling lihu ciia Qude hgi vd DBQH, do la yeu cdu bdo dam tinh cdng khai, minh bach va trdch nhi?m gidi trinh. Day la mdt van de mang tinh thdi sy ndng bdng, nhat la dat trong bdi cdnh cdng cuge dau tranh phdng chdng tham nhiing, xay dyng bg may nha nudc hi6n dgi, liem chinh, tiep tuc xay dung va hodn thien NNPQ XHCN d Vi?t Nam hiSn nay. Cd the thay, viec thiet lap cac ca che kiem tra, giam sat, bao dam sy minh bach, hi^u lyc hieu qua trong td chiic va hoat ddng ciia bd may nhd nudc van cdn nhieu bat cap. Theo Chi sd cdm nhan tham nhiing nam 2015 (CPI 2015) ciia Td chiic Minh bach quoc te (Transparency Intemational TI), Viet Nam dgt 33/100 diem, xep hgng 117/180 qude gia va vimg lanh thd dugc khdo sdt. Tham nhiing trong khu vuc cdng d Viet Nam van dugc cho la rat nghiem trgng^^.
Trong hogt ddng eua Qude hdi, van de cdng khai, minh bach, trach nhiem giai trinh cang phai dugc de cao. Dieu nay khdng chi bdi dac thu trong hogt dgng cua Quoc hgi cd nhiing ngi dung li6n quan din cac vdn dl rudng cgt cua nudc nhd vdi nhirng phien
" Theo Chi so cam nhan tham nhung nam 2018.
Ngucin: https://towardstransparency.vn/cpi-vietnam- 2018/, tniy cap ngiy 20/06/2020.
chat van, dieu tran, gidi trinh..., md cdn bdi bdn chdt nhan dan, tinh dgi dien ciia Qude hgi vd vai trd ngudi dgi bieu nhan dan cua cdc DBQH. Tat cd nhung dilu tren ddi hdi su quan triet sau sac nguyen tac nay ngay tu khau lua chgn, lap ra ngudi dgi bieu (bdu cir) cho den cac hogt ddng khac ciia Qude hdi vd DBQH (tiep xiic cir tri, hogt ddng nghi trudng, cdng tdc ddn nguyen...).
Hien nay, chung ta da cd Luat Phdng, chdng thara nhiing ciing nhu cac quy dinh rai rac ve yeu cdu cdng khai, minh bgch, trdch nhiem giai trinh trong cdc van bdn phdp ludt khac nhau. Tuy nhien, cdc quy dinh nay khd rdi rac, thieu thdng nhat, thieu tinh he thdng. Viec quy dinh ciing khd tuy tien, chua cu the ve ngi dimg, quy trinh trong nhieu nganh, nhieu linh vuc din den thieu sy nhat quan trong thyc hien cung nhu hgn che hieu qud phdng, chdng tham nhiing va kha nang gidm sat tu phia Nha nudc, xa hgi doi vdi van de nay.
Do dd, tdc gid cho rang, cdn chu y dua ndi dung nguyen tdc cdng khai, minh bgch, trdch nhiem gidi trinh mgt each ddng bg, nhat qudn trong phap lugt ve td chuc va hogt dgng ciia bd may nhd nudc, Luat Td chiic Quoc hgi cung nhu trong cac van ban phap luat chuyen nganh cd lien quan. C6 nhu vgy mdi nang cao tinh chuyen nghiep, hieu lyc, hieu qua trong hoat ddng cua Qude hgi, cac ca quan nhd nudc, xay dung NNPQ XHCTN d Viet Nam hien nay.
9. Tang cuoTog bg may giup viec cua Quoc hoi va cac dieu kien bao dam khac
Theo tac gid, trong dieu kien Qude hgi Viet Nam hogt ddng theo md hinh kiem nhiem hien nay, mdt van de het sue quan trgng can dugc quan tam la tiep tuc cung CO, hoan thien bg may va md hinh giup 15
\HA NldC VA PHAPLlATSd 7/2020 vi?c ciia Qude hgi. Can ciing cd va da dgng hda cdc hinh thiic giiip viec cho Quoc hgi vd DBQH, lien quan den thdng tin, dilu ki?n vgt chat, nang lyc, ky nang hogt dgng dgi bieu.
John Stuart Mill, trong tac phdm "Chinh the dgi dien", da rat diing khi khang dinh:
"That dung khdng kem Id mgt Quoc hgi ddng ngudi khdng may thich hgp cho cdng vi?c tryc tiep cua cd lap phdp lan chinh quyen (...). Cdng vi?c !am lugt phap can thiet phai dugc thyc hi?n bdi cac tri me, khdng nhimg phdi dugc ren luy?n vd kinh qua thir thdch, ma cdn phdi dugc hudn luy?n lam nhi?m vy nghien ciiu ddi lau va cdn cu"^^. Ong cho rang, neu Nghj vien chi lo xii ly cdc du luat (sogn thdo ve ky thuat) thi chi rieng thdi gian phai ban rdn dd thdi da
"lam cho Nghj vien ngdy cang khdng cd khd nang thdng qua dugc dao lugt ndo"''*.
Va tu phdn tich dd, dng cho rdng, nhimg vi?c chuyen mdn nhu sogn thdo dy luat nen giao cho mdt ca quan chuyen trdch lam vice ndy (vi dy nhu, mgt Uy ban ciia Qude hgi). Theo dng, "trong lap phdp cung nhu trong cai tri, nhiem vu duy nhat ma Qude hgi dai di?n cd the cd tham quyen, dd khdng phai la lam cai cdng viec ay, md la khien cho cong viec ay dugc lam"'*. Tdc gid cho cho rang, dieu nay rat hgp ly vd ly gidi dugc van de ma nhieu ngudi cho den nay van cdn thac mac: Quoc hdi ldm luat hay chi thdng qua lugt khi tren thuc te. cdc DBQH chi thao luan va bam nut thdng qua mgt dy luat chir khdng he tham gia chap but sogn thao dao ludt do. Can phai nhan thiic rd rdng, Qude hgi nam quyen lap phap
khdng cd nghTa la Qude hgi phai uyc *'^P tiln hanh tham gia thyc hi?n mgi kha"- " 7 . cdng doan, md cdn phdi cd sy phdi hgp' trg tir nhilu chu thi khac nhau trong
" John Stuart Mill. tldd. tr. 188,
" John Stuart Mill, tldd, ir. 189.
» John Stuart Mill, Udd, tr.l92.
bg mdy nhd nudc, ciing nhu dgi ngii giup ^ y chuyen nghiep va sy tham van y kieri cu cac chuyen gia uy tin, cdc td chirc xa hgi cung nhu y kien cua nhdn ddn.
Cdn nghien ciiu xay dyng mo hinh ca quan^O phgn chuyen gia phan tich chinh sach, cd thi dgt d Bg Tu phdp - phuc vy cho Ban sogn thao va cac hoat dgng trong quy trinh lgp phdp, lap quy ndi chung, hoae dgt ngay trong cac co quan giup vi?c cua Quoc hgi, chuyen phyc vy cho cdc DBQH.
Khdng phdi ngdu nhien ma Nghi vien d cdc nudc cd bl day truyen thdng tren the gidi thudng cd ddi ngu giup vi?e hiing hdu cung cdc dilu kien bdo ddm boat dgng vdi tieu chuan, uu tien rat cao cho cac nghi si . Dilu ndy xudt phdt tir vi?c khdng cd bat ky ai cd the thdng thgo, nam vimg dugc tat ed cdc vdn de, ITnh vyc trong cudc sdng. Do do, cdc nghi sT, ben egnh td chat, nang lyc sdn cd, ludn phdi tap trung cao do ve thdi gian, tdm huyet, siic lyc de thyc hien sii menh ciia mmh. Ddng thdi, hg ciing cdn ddi ngii chuyen gia tu van cd chuyen mdn cao, cac trg ly thgo viec cimg cac bao ddm tdi uu dl thyc hien vai trd cua ngudi dgi bieu nhan ddn mgt each tdt nhat.
Yeu cdu dgt ra hien nay Id phdi lilp tuc tang cudng cdc chuyen gia, cac cdn bp gjoi, cd trinh do cho ddi ngii cdn bg, nhan vien Van phdng Qude hgi, dong thdi tang cudng cdc dilu kien lam viec tot hon cho bg may giiip viec ciia Qude hdi, nhdt la cdc chuyen gia trong hoat ddng phuc vy xay dung chinh sdch va du thdo luat.
" Tham khao: Phan Thanh Ha, tldd.
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