N H A N l T d C V A P H A P L U A T
NGUYEN TAC KIEM SOAT VIEC THUC HIEN CAC QUYEN LAP PHAP, HANH PHAP<
V u H f i n g A n h *
* PGS. TS. Vien Nghien ciiu Lap phap Thdng tin bai viet:
Tit khoa: kiem soat, quySn 1:
quyen hanh phap.
L}ch sir bai viet:
I phap.
Nhan bai Bien tap Duy^t bAi
20/07/2019 20/08/2019 26/08/2019
Article Infomation:
Keywords- controlling; legislative power; executive power.
Article History:
Received Edited Approved
2 0 J u L 2 0 1 9 26 Aug, 2019 26 Aug. 2019
T o m t a t :
Khoan 3, Dieu 2 Hien phap nam 2013 quy dinh "Quyen lire nha nuijc la thong nhat, c6 su phan cong, phoi hgp, kiem soat giira cac co' quan nha nuac trong viec thuc hien cac quyen lap phap, hanh phap, tu phap". De trien khai thi hanh Hien phap nam 2013, Quoc hoi da ban hanh nhieu van ban luat, trong do bao ham cac quy dinh cu the hoa nguyen tac kiem soat viec thicc hien cac quyen lap phap, hanh phap.
Thyrc tien thi hanh Hien phap nam 2013 cho thay, ben canh nhung ket qua dat dugc, ve co ban, quy dinh ciia phap luat va viec thuc hien quy djnh cua phap luat ve kiem soat viec thuc hien quyen lap phap, hanh phap chua dap irng dugc yeu cau bao dam hieu qua kiem soat quyen lire nha niroc, kiem soat giua cac ca quan trong thuc hien quyen lap phap, hanh phap Bai viet nay nghien cim, de xuat giai phap gop phan hoan thien quy dinh ciia phap luat ve quan he kiem soat quyen luc giQa Quoc hgi va Chinh phii theo quy dinh cua Hien phap nam 2013.
Abstract
Clause 3, Article 2 o f t h e Constitution of 2013 defines "The state power is unified and assigned to the state bodies under a coordinating and mutual controlling mechanism in the exercise ofthe legislative power, the executive power and the judicial power". For enforcement ofthe Constitution of 2013, the National Assembly has issued a series o f t h e normative legal documents, including provisions specifying the principles of controlling the exercise of the legislative power and executive one. In practice, enforcement of the Constitution of 2013 reveals that, besides the achievements, the enforcement of the law on control of the exercise of the legislative power and executive one has yet to ensure the effective control of the state power, controlling mechanism among the state bodies in the exercise of legislative power and executive power This article provides the studies and recommended solutions for further improvements ofthe legal regulations on power control mechanism between the National Assembly and the Govemment under the Constitution of 2013.
Bai viet co sii d(ing kSt qua nghien cihi ciia D^ tai cap Bp- "Hoan thien quy dinh cua phap lu^i ve quan hf kiem soat quyen l^^c gi&a Qu6c hpi v^ Chinh phu theo quy dinh cua H i k phap nam 2013" do PGS ,TS. Le Minh Thong lam Chii nhiem.
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NHA NtfOt VA PHAP LUAT
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hoan 3 DiSu 2 Hifa phap nam 2013 quy dinh: "QuySn liic nha nuac la thong nhat, co sir phan cong, phdi hpp. Idem scat giiia cac ca quan nha nuac trong viec thirc hien cac quySn lap phap, haiih phap, tu phap". Dd trien khai thi hanh Hien phap, Quoc hoi da ban hanh Luat T6 chiic Quoc hoi nam 2014, Lujt T6 chuc Chinh phii nam 2015, Luat T6 chiic Toa an nhan dan (TAND) 2015, Luat T6 chuc Vien kiSm sat nhan dan (VKSND) 2014, Luat f 6 chuc Chinh quyen dia phuang nam 2015, Luat Hoat dpng giam sat cua Quoc hoi va Hpi dpng nhan dan nam 2015, Luat Ban hanh van ban quy pham phap lu^t (QPPL) nam 2015, Luat Ngan sach nha nuac (NSNN) nam 2015, Luat Bau tu ccng sua doi nam 2019... NhGng van ban nay buac dau da cu the hoa quy dinh cua Hien phap nam 2013 ve nguyen tac kiem soat quyen lire nha nuac npi chung, kiem soat giua Qu6c hpi va Chinh phii npi rieng. Tuy nhien, thuc tiln chi ra chp thay, ben canh nhung kk qua dat dupc, ve ca ban, quy dinh ciia phap luat va viec thuc hien quy dinh cua phap luat ve ki6m scat viec thuc hien quy6n lap phap, hanh phap chua dap iing dupc ySu cJu bao dam hieu qua kiSm scat quyen lire nha nupc, kiim SPat quySn lire giua cac ca quan trong thuc hien quyin lap phap, hanh phap. Cu the nhu sau:Mot la, mac du Hiin phap nam 2013 b6 sung nguyen tic kiim soat giira cac ca quan trpng viec thuc hien quyen lire nha nuoc, d6ng thai khing dinh Qucc hpi la co quan thuc hien quyin lap phap, Chinh phii la CP quan thuc hien quyen hanh phap, tuy nhien, Luat T6 chiic Quoc hpi, Lu?t To chirc Chinh phu, Luat Ban hanh van ban QPPL, Luat NSNN khong co nhieu thay doi trpng quy dinh v6 nhiem vu va quyen han cua Qu6c iipi, Chi'nh phii theo nguyen tac kiem spat quyen luc.
CP thi thiy ring, trupc nam 2013, mac di. cac Hiiri phap truoc ^6 khpng de cap din nguyen tac kiSm soat quyen lyc nha S c , n h ™ g nhihig quy dinh venhremvu.
quyin han cua Quoc hpi, Chinh phu, TAN, , VKSND cho thay da co npi dung ciia kiem soat quyin luc. Diiu nay the hien o cac quy dinh vi thim quyin ciia Qu6c hpi bau, mien nhiem, bai nhiem cac chirc vu Thii tuang Chinh phu, Chinh an TAND, Vien tnrong VKSND; giam sat boat dpng cua Chinh phii, TAND, VKSND; quy dinh to chuc va hoat dong cua Chinh phu, TAND, VKSND;
bai bo van ban ciia Chinh phii, Thu tuang Chinh phu, Chanh an TAND, Vien truang VKSND trai vai Hiin phap, luat, nghi quyet cua Quae hoi; Chinh phu, TAND, VKSND trinh du an luat truoc Quoc hpi...
Sau khi Hiin phap nam 2013 c_6 hi?u lire, cac van ban luat vi tc chirc da be sung mpt s6 quy dinh moi nhSm cu the hoa nguyen tic nay Vi du, Luat T6 chirc Quoc h^i bo quy dinh Quic hpi la ca quan duy nhat co quyin lap hiin, lap phap; bo tham quyen cua Qu6c hpi trpng quyit dinh chuang trinh xay dung luat, phap lenh hang nam; bo sung quy dinh vi Qu6c hoi quyit dinh miic giai han an tpan no quae gia, np ccng, np Chinh phu; bo sung quy dinh ve thii tuc lay phieu tin nhiem dii voi cac chirc danh dp Quic hpi bau, phe chuin; Luat ti chirc Chinh phii dat Ien hang diu nhi$m vu, quyen han ciia Chinh phu trpng ti chiic thi hanh Hien phap va phap luat; bi sung thim quyen ciia Chinb phu trpng viec de xuat, xay dung trinh Qucc hpi, Uy ban thucmg vu Qupc hpi xem xet, quyet dinh hoac quyet dinh theo tham quyen cac chinh sach, chien luac, quy hoach, ke hoach va cac chuang trinh, du an khac; chuyen doi tir Chinh phii sang cho Thii tuong Chinh phu vai tro lanh dap va chiu trach nhiem ve hpat dpng ciia he thong hanh chinh Nha nuoc, bao dam tinh thong nhat, thong suot ciia nen hanh chinh quic gia. Tuy nhien, nhirng quy djnh neu tren van chua the hi^n duac day du npi dung ciia nguyen tic kiim soat quyen lire giOa Quic hpi va Chinh phii theo tinh thin cua Hiin phap nam 2013.
Hai la. su kiim scat cua Quic hpi dii vai hoat dpng thuc hien quyen hanh phap ciia Chinh phu con nhiiu bat cap.
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NHA Nirdc VA PHAP LUAT - Sir bat cap trong hoat dong kiem scat
cua Quoc hoi doi vai viec thuc hien quyen hanh phap ctia Chinh phu the hien a tren nhieu khia canh, trudfc het la 6 khia canh t6 chuc thi hanh luat, nghi quyet trong Imh v\rc tai chinh, ngan sach. Trong nhieu nam, Chinh phu khong thuc hien diing nghi quyet vh ngan sach hang nam. Tinh trang bgi chi ngan sach dien ra nhieu nam ma chua co giai phap khac phuc^; tinh trang dau tu dan trai, nhieu du an thieu hieu qua gay thua 16, that thoat NSNN dien ciang ra kha pho bien\
- Hoat dpng kiem soat cua Quoc hoi doi voi Chinh phu trong linh vuc quan ly hanh chinh, phat trien kinh te - xa hpi, bao ve quyen con nguai, quyen cong dan cung con nhieu han che, dan den tinh trang bien che cua bo may hanh chinh nha nuac tang trong khi nguai dan van con nhieu y kien phan nan ve chat luang phuc vu cua bp may hdnh chinh''; tinh trang tang gia dien, cho thuc hien du an BOT khong qua dau thSu, lap tram thu phi BOT tuy tien gay hue xuc du luan xa hpi^; tinh trang thu hoi dat trai phap luat xam pham quyen, Ipi ich cua nguai dan diln ra kha pho bien 6 cac dia phuang din den khieu nai, to cao keo dai
nhieu nam ma Chinh phu chua co giai phap khac phuc triet de...
Ba Id, Chinh phu chua duac trao cho du quyen han de kiem soat hoat dpng lap phap ciia Quoc hpi.
Theo quy dinh hien hanh, vai tinh chat la CO quan thuc hien quyen hanh phap, Chinh phii hoach djnh va de xuat chinh sach, Tuy nhien, quy trinh lap phap hien hanh khong tao cho Chinh phu kha nang bao ve chinh sach den ciing. Dieu nay dan den tinh trang CO nhiJng van ban luat ban hanh ra chua co hieu luc phai sua doi. Vi du, Bp Iuat Hinh su nam 2015, sau khi dupc Quoc hpi thong qua da phat hien nhieu sai sot dan den phai dinh chi hieu lire de sua doi, bo sung. Ben canh do, quy dinh hien hanh cung khong bao dam cho Chinh phu chu dpng dupc ke hoach hoach djnh chinh sach, phap luat. Dieu nay cung lam giam kha nang kiem soat cua Chinh phii doi vai hoat dpng lap phap ciia Quoc hpi.
Theo chung toi, nguyen nhan ciia han che, bat cap tren day la do chung ta chua nhan thuc day du tinh than ciia Hien phap nam 2013 trong qua trinh cu the hoa nguyen tac kiem soat quyen luc nha nuac.
Theo B^o cao quyet toan can d6i ngan sach nam 2015 ban hanh kem iheo Quyet djnh so 1557/QD-BTC ngay 29/8/2017 cua Bo tnrong Bg Tai chinh, nam 2015 du toan thu NSNN la 998,217 ty dong, chi NSNN la 1265,625 ly d6ng; thirc hien la: thu 1291,342 ty, chi 1502,189 ty.
Theo Bao cao quyk toan can dfii ngan sach nam 2016 ban hanh kem theo Quygt dinh so 1280/QD-BTC ngay 6/8/2018 ciia Bo tnrong Bp Tai chinh, nam 2016 du toan thu NSNN la 1107,351 ty dflng, chi NSNN la 1295,661 ty dflng, thirc hien la. thu 1407,572 ty, chi 1574,448 ty
Trong sfl 12 du an thua 16 nang nk, kem hieu qua thi co 4 du dn ciia T^p doan Hoa ch&t Viet Nam (Vinachem), Tap doan Dilu khi Viet Nam (PVN) c6 5 dir an, 2 dir an co "bong dang" cua Tflng cong ty Thep Viet Nam (Vnsteel). Ngufln https://vieinamnet.vn/vn/kmh-doanh/dau-tu/l2-du-an-ngan-ty-thua-lo-ong-lon-dau-khi-hoa-chat-vo-dich-347764
Kk quii khao sat chi sfl hai long vS su phuc vy hanh chinh (SIPAS) nam 20l7cho thdy tinh trang cflng chiic gay phien hi, sdch nhiiu, ggi y nop thSm phi trong qua trinh cung ung dich vu hanh chinh cong vin diln ra a tat ca 63 tinh, thdnh trong ca nuoc. Ngufln https:/^aomoi.com/slpas-20l7-van-con-can-bo-sach-nhieu-khong-xin-loi-nguoi- dan/c/25878663.epi. Ngay 3/5/2018
Nam 20!7 UBTVQH thanh lap Doan gi^m sat cdc cong trinh giao thong duoc xay dung bdng hinh thiic EOT. Ngay 15/8/2017 Doan gidm sat da bdo cao kk qua tnrctc UBTVQH, trong d6 nhdn manh: Viec tnen khai cdc chign lucre, quy ho?ch phdt tn^n kit cdu ha ting chua co nguyen lie vd thii lu uu tien dau tu; cflng tdc lap, tham dinh, phfi duySt di; an con nhifiu bdt c|p, viec lua chgn nhd ddu tu con nhieu kho khdn, ndng luc nha dau tu con han che; cong tdc tham dinh, phe duy?t thiil k6, du toan chua chat che theo quy djnh phap ludt; viec chpn nhd thdu, thi cong xay dung du an, nghiem thu con sai sot; viec xac dinh phuang dn tdi chinh cua du an vln con chua hop ly; cong tdc gidi phong mat bang con nhieu vuong mdc, chua dflng bo, gay kho khan trong qua trinh thi cong; viec thu phi sii dung dich vu (6n tai nhieu bat cap; chua ldm r5 duoc trach nhiem ciia ca nhan, tap the din d^n nhirng sai pham, ton tai tren.
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NHA mac VA PHAP LUAT 1. Nh^n thirc vl nguydn t3c kiim soit quyen lyc sifra Quoc h^i va Chinh phu theo tinh than cua Hien phap nam 2013
Co the thay rang, lan d4u tien Hi§n phap nam 2013 xac l|p nguyen tic ki^m soat quyen lire giua cac ca quan nha nuac trong thuc hien quyen luc nha nuac. Bihn nay c4n dupc nhan thiic mot each ro rang a mot s6 khia canh sau day:
Mot la, quy dinh nay khSng dinh, trong thuc hien quyen luc nha nuoc, giiia cac ca quan thuc hien quyen lap phap (Qu6c hoi), ca quan thuc hien quyen hanh phap (Chinh phii), ca quan thuc hien guyen tu phap (TAND) co su kihm soat lan nhau.
Dieu nay co nghia la giua Quoc hoi, Chinh phu, TAND, trong qua trinh thuc hien nhiem vu, quyen han duac nhan dan uy quyen, co su kiem tra, giam sat Idn nhau. Sir kiim tra, giam sat giiia cac ca quan nhSm muc dich ngan ngira tinh trang lam dung quy^n luc cua Quoc hpi, Chinh phii, TAND trong qua trinh thuc thi quyen han duac giao nham bao dam quyen luc nha nuac thupc ve nhan dan.
Co the noi rang, nguyen tSc nay da dupc diic ket tir thuc tien 70 nam xay dung va phat trien Nha nuac Viet Nam dan chii. Cac Hiin phap ciia nuac ta deu khang dinh, quyen luc nha nuac thupc ve nhan dan. Dieu 1 Hien phap nam 1946 quy dinh: "Tat ca quyen binh trong nuac la cua toan the nhan dan Viet Nam, khong phan biet noi giong, ^ai trai, giau ngheo, giai cap, ton giao"; Dieu 4 Hien phap nam 1959 quy djnh: "Tat ca quyen luc trong nuac Viet Nam dan chu cpng hoa deu thupc ve nhan dan. Nhan dan sir dung quyen lire ciia minh thong qua Quoc hpi va Hpi dong nhan dan cac cap do nhan dan bau ra va chiu trach nhiem truac nhan dan"; Dieu 6 Hien phap nam 1980 quy djnh:
"d nuoc Cpng hoa XHCN Viet Nam, tit ca quyen luc thupc ve nhan dan"; Dieu 2 Hiin phap nam 1992 quy dinh: "Nha nuac Cpng hoa XHCN Viet Nam la Nha nuac cua nhan dan, do nhan dan, vi nhan dan. Tat ca quyin lire Nha nuoc thupc ve nhan dan ma nen tang la lien minh giai cap cong nhan vai giai cap nong dan va tang lap tri thuc". Tiep tuc kl thira va phat trien cac Hien phap Viet
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1 NCHitN eu« , I LAP P H A P ^ S6 16(392) T8/2019Nam, Khoan 2 Dilu 2 Hiin phap nam 2013 khang dinh: "Nuac Cpng hoa XHCN Viet Nam do Nhan dan lam chii; tat ca quyen luc nha nuac thupc ve Nhan dan ma nen tang la lien minh giira giai cap cong nhan vdi giai ckp nong dan va dpi_ ngu tri thirc". Nhiing quy dinh tren cho thiy, cac Hien phap Vi?t Nam diu nhit quan khing dinh quyen luc nha nuoc thupc vl nhan dan. Nha nuoc, cac CO quan nha nuoc dupc thanh lap ra de thuc hien quyin luc ma nhan dan trao cho. Nhan dan uy quyin cho Nha nuac, cac co quan nha nuoc thuc hien quyen lire nhan dan, d6ng thai thiit lap ca chi kiim soat vi6c thuc hien quyin luc nha nuoc de bao dam quyin luc nha nuac dupc sii dung diing muc dich, khong bi tha hoa, bien chat. Ca che kiem scat viec thuc hien quyen luc nha nuoc duac cac Hiin phap Viet Nam thiet lap duac thuc hien thong qua cac phuang thiic kiem soat ben trong, kiem soat ben ngoai.
Phuang thijrc kiem soat quyen luc nha nuoc tir ben ngoai la each thiJC thuc hien hoat dpng kiem soat gan vai chu the kiem soat la cac thiet che xa hpi (phi nha nuoc), nhu Dang va cac to chiic dang. Mat tran to quoc Viet Nam, cac to chirc chinh tri - xa hpi, cac phuong tien thong tin dai chiing, doan the nhan dan, nhan dan....
Phuang thiic kiem soat quyin lire nha nuac ben trong npi bp bp may iiha nuoc la each thiic thuc hien hoat dpng kiim soat gin vai chii thi co th4m quyin theo hiin dinh va luat dinh la cac thiet chi quyin lire nha nuoc, nhu Qu6c hpi, Chinh phii, TAND.
Truoc nam 2013, khi Hien phap chua hien dinh nguyen tic kiim soat giua cac ca quan trong thuc hien quyen luc nha nuac, phuang thiic kiim soat quyin luc nha nuac tir ben ngoai dugc chu trpng day manh, con phuang thirc kiim soat quyen luc ben frong bp may nha nuoc chua thtrc su dupc chu trpng dling muc. Hpat dpng kiem soat quyin lire nha nudc chu yiu dupc thuc hien tir mpt phia - Quoc hpi. Quoc hoi vai tinh chSt la CO quan quyin luc nha nuac cao nhdt, kiim soat boat dpng cua co quan nha nuoc khac 6 chiiu ngupc lai, cac co quan nha nu6c khkc
khong CO tham quyen kiem soat hoat dpng cua Quoc hpi.
Tuy nhien, khi Hien phap nam 2013 da hien dinh nguyen tac kiem soat giiia cac CO quan trong viec thuc hien cac quyen lap phap, hanh phap, tu phap thi can bao dam giira Quoc hpi (co quan thuc hien quyen lap phap), Chinh phu (ca (juan thuc hien quyen hanh phap), TAND toi cao (co quan thyc hien quyen tu phap) can co co che kiim soat lan nhau. Dieu nay co nghTa la, khong chi Quoc hpi co tham quyen kiem soat hoat dpng thuc hien quyen hanh phap cua Chinh phii, hoat dpng thuc hien quyen tu phap cua TAND, ma Chinh phii, TAND cung co tham quyen kiem soat hoat dpng lap phap ciia Quoc hpi.
Thu hai, kiem soat viec thuc hien quyen luc nha nuac giiia cac co quan lap phap, hanh phap, tu phap chi thuc sy co hieu qua khi cac ca quan nay co vi tri dpc lap. Vi tri dpc lap ciia cac co quan trong thyc hien quyen luc nha nuac, mpt mat, bao dam su phan dinh ranh mach chuc nang, nhiem vu, quyen han ciia timg co quan trong ca cau bp may nha nuoc; mat khac, bao dam m6i ca quan dpc lap thyc hien nhiem vu, quyen han cua minh. Dieu nay dupc bao dam boi quy djnh ciia Hien phap ve vi tri, chiic nang, nhiem vu va quyen han ciia Quoc hoi, Chinh phii, TAND toi cao. Theo do, Quoc hpi la ca quan dai bieu cao nhat cua nhan dan, ca quan quyen luc nha nuac cao nhat, thuc hien quyen lap phap; Chinh phu la ca quan hanh chinh nha nuac cao nhat, thuc hien quyen hanh phap; TAND la co quan xet xir, thuc hien quyen tu phap. M6i co quan nha nuoc, trong pham vi chiic nang, dpc lap thyc hien nhiem vu quyen han duoc giao ma khong co sy can thiep ciia cac co quan nha nuac khac.
Tuy nhien, viec moi co quan dpc lap thyc hien quyen lyc nha nuoc de dan den tinh trang lam dung quyen lyc. De ngan ngira su lam dung quyen lyc, doi hoi su kiem soat tir phia cac ca quan nha nuac khac. Sy kiem
NHA NlfdC VA PHAP LUAT soat nay dupc thyc hien thong qua phuang thuc trao cho moi co quan kha nang tac dpng den CO quan khac trong thuc hien quyin lyc nha nuac. Vi vay, mac dii Quoc hpi la co quan thuc hien quyin lap phap nhung Chinh phil CO kha nang tac dpng din hoat dpng lap phap ciia Quoc hpi thong qua quyen hoach dinh chinh sach, trinh dy an luat; Chinh phu thyc hien quyen hanh phap nhung Quoc hpi CO kha nang tac dpng den viec thuc hien quyen hanh phap ciia Chinh phu thong qua quyen giam sat, quyen thanh lap Chinh phu, bo phieu tin nhiem, bai nhiem cac thanh vien ciia Chinh phu, bai bo van ban do Chinh phii ban hanh trai Hien phap, luat, nghi quyet cua Quoc hpi. 6 day can phai noi them rang, su tac dpng khac vai sy can thiep. Quoc hpi khong the true tiep can thiep vao hoat dpng hanh phap cua Chinh phu, nguoe lai Chinh phil ciing khong co tham quyen can thiep tryc tiep vao hoat dpng lap phap Quoc hpi.
Mac dil Chinh phu co quyen trinh du an luat, tuy nhien, quyen quyet dinh co thong qua dy luat hay khong lai thupc tham quyen cua Quoc hpi. Dieu nay cho thay tinh dpc lap cua moi co quan trong thyc hien chiic nang, nhiem vy dupc giao.
Thir ba, viec kiem soat giiia cac co quan nha nuac trong thuc hien cac quyen lap phap, hanh phap, tu phap chi co hieu qua khi quan he giira cac ca quan nay la quan he can bang. Ro rang, khi mpt co quan phu thupc vao ca quan khac thi, chua noi den tinh hieu qua, CO quan nay khong the kiem soat ngupc lai CO quan do.
Truoc nam 2001, tren dien dan khoa hpc van ton tai quan diem cho rang, quyen luc nha nuoc tap trung vao Quoc hpi''. Theo do, Quoc hpi dupc nhan dan iiy quyen nam toan bp quyen lyc nha nuoc. Cac co quan khac cua Nha nuac do Quoc hpi thanh lap ra, chiu sy kiem tra, giam sat cua Quoc hpi.
Do vay, gi&a cac co quan nha nuoc khong ton tai quan he kiem soat lan nhau trong thuc hien quyen lyc nha nuac.
6 Truong Dai hgc Luat Ha Noi, Gido Irinh Luat Hien phap, Nxb Congan nhan dan ndm 1995.
NGHIEN CUU
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NHA NlfOfC VA PHAP LUAT
Hien phap nam 1992, sira doi nam 2001 tiep nhan quan diem moi khi khang djnh: "Quyen luc nha nuoc la thong nhat, CO sy phan cong, phoi hop giua cac co quan nha nuac trong viec thyc hien cac quyen lap phap, hanh phap, tu phap". Nguyen tac hien dinh nay co siiy cho quan diem quyen lyc nha nuac la thong nhat vi co nguon goc tCr nhan dan. Nhan dan la chii the cua quyen lyc nha nuoc, uy quyen cho cac co quan nha nuoc thyc hien qu^en lyc nha nuac. O day, su phan cong phoi hop dupc thiet lap bai Hien phap va luat. Hien phap phan cong cho Quoc hpi thuc hien quyen lap phap, phan cong cho Chinh phii thyc hien quyen hanh chinh, phan cong cho Toa an thuc hien quyen xet xir. Cho dii Hien phap nam 1992 (sita doi nam 2001) mai xac dinh ca quan thyc hien quyen lap phap la Quoc hpi, ma chua xac dinh dupc cy the co quan nao thyc hien quyen hanh phap, co quan nao thyc hien quyen tu phap. Tuy nhien, viec khang dinh quyen luc nha nuoc gom cac quyen lap phap, hanh phap, tu phap la mpt buoc phat trien moi trong nhan thiic cua chiing ta v l ban chat cua quyen lyc nha nuoc. Quan diem nay, trong mpt chimg myc nhat dinh, da vupt qua dupc "mac cam" ye ban chat tu san ciia hpc thuyet tam quyen phan lap d6i lap vai nha nuoc XHCN. Vi chinh hpc thuyet nay da dat ten cho cac chiic nang ciia quyin luc nha nuac (lap phap, hanh phap, tu phap). Viec thira nhan quyen lyc nha nuoc g I m ba quyin (ba chirc nang hay con gpi la quyin nang) lap phap, hanh phap, tu phap cho thSy sy t i n tai khach quan cua cac co quan thyc hien cac quyen lap phap, hanh phap, tu phap.
Do cac quyin lap phap, hanh phap, tu phap la nhiing bp phan ciu thanh ty nhien ciia quyin luc nha nuoc, ton tai khach quan khong phy thupc vao y chi ciia giai c i p cam quyin, nen v l mat ly thuyit, cac co quan thuc hien quyin lap phap, hanh phap, tu
. . . • • ^ 1- rfAc lap thuc hi?n phap o VI the ngang "hau dpc •^'^^^^ ^ ^ ^ cac chuc nang cua quyen ly- . . ; i nhien, tren thuc ti. do y chi cua g.ai cap c ^ quyfc, CO thdi ky quygn hanh phap tro nen ian at quydn lap phap, tu pWp- ^ o la mm ky nha nuoc ciiu no, phong kien, khi ngiroi dling dku nha nuoc n i m trong tay toan bp quyen luc nha nuoc, thS hien t&p trung a quyen hanh phap. D6n nha nuoc XHCN, quyen lap phap dugc dS cao voi quan niem cho rang, quyen lap phap thS hien day du nhat y chi ciia nhan dan, co quan l^p phap do nhan dan true tiep thanh lap ra, dugc nhan dan iiy quyen thuc hien quyen luc nha nuac.
Vi vay, trong mgt giai doan phat trien nhSt dinh cua nha nuoc XHCN, ca quan lap ph^p dugc xac dinh la co quan nam toan bp quyin luc nha nugc^. Nha nuoc tu san co each nhin khach quan hon ve vai tro cua cac ca quan trong to chuc bg may nh^ nuac. Theo do, moi eg quan, khong phu thugc vao chirc nang, co vi tri can bang vai cac ca quan khac trong c a cau quygn luc nha n u a c l Vi tri can bang bao dam cho cac c a quan kha nang kiem soat lan nhau trong thuc hien quyen luc nha nuoc.
Hien phap nam 2013 da bo sung nguyen tac kiem soat giua cac co quan trong thuc hien cac quySn lap phap, hanh phap, tu phap. D6ng thoi, Hien phap xac dinh cu the Quoc hgi la co quan thuc hien quyen lap phap, Chinh phu la co quan thuc hien quyen hanh phap, Toa an la co quan thuc hien quyen tu phap. Day chinh la co so phap ly bao dani tinh dgc lap cua cac eg quan thuc hien quyen lap phap, hanh phap, tu phap va VI the can bang cua cac eg quan trgng eg cau quyen luc nha nuoc. Ben eanh dg, dg bag dam eho nguyen tac kiem soat quygn lue nha nugc dugc van hanh trono thuc tiln cac CO quan thuc hien quygn luc ^ha nuoc can dugc trao tham quyen kigu, s -t i, t dgng ciia cac co quan khac ciia nh ' Day chinh la digu kign ma Hi^n „i,^ "trgc.
"™ phap nam
Hien phap nam 1936, nam 1977 cua Lien Xo VB H i k phap nam 1980 ciia ViSt Nam HiSn phap nam 1787 cua My, nam 1949 cua Biic, 1958 ciia Phap, 1978 ciia Tay Ban Nha...
NGHIEN eini . LAP PHAP J S4 16(392) T8;2019
NHA Nirdc VA PHAP LUAT 2013 chua the hien mpt each ro rang hoac
dang de ngo^. Nhirng khiem khuyet nay cua Hien phap can duac hoan thien bai quy dinh cua luat trong pham vi hien dinh.
2. Cy the hoa nguyen tac kiem soat quyen lyc giira Quoc hdi v^ Chinh phu theo tinh th^n cua Hiin phap nam 2013
De cu the hoa nguyen tac kieni soat viec thuc quyen luc nha nuoc giira Quoc hpi va Chinh phii theo tinh than cua Hien phap nam 2013, chiing ta can vuot qua quan diem mac dinh bay lau nay - Quoc hpi la co quan nam toan bp quyen lyc nha nuoc, kiem soat hoat dpng ciia cac co quan nha nuoc khac.
Voi quan diem nay, Chinh phii dupc coi la CO quan cap duoi ciia Quoc hpi, chiu su giam sat ciia Quoc hpi nen Chinh phii kho co the kiem soat hoat dpng lap phap ciia Quoc hpi, neu co thi ciing khong hieu qua. Cho dil Hien phap nam 2013 van xac dinh Qu6c hpi la CO quan quyen lyc nha nuoc cao nhat nhung Quoc hpi khong phai la co quan nam toan bp quyen lyc nha nuoc. Quoc hpi chi thuc hien m6t chiic nang trong so ba chirc nang ciia quyen luc nha nuac - chiic nang lap phap. Quoc hpi dupc xac dinh la co quan quyen lyc nha nuac cao nhat vi Qu6c hpi do nhan dan bau ra, dai dien cho y chi va nguyen vpng ciia toan the nhan dan^ dupc nhan dan uy quyen thyc hien quyen luc nha nuoc. Tuy nhien, a day ciin^ can nhan thay la, nhan dan trao cho Quoc hpi thuc hien quyen lyc nha nuoc khong phai thong qua cupc bau cii, ma thong qua chinh ban Hien phap. Bau cir chi la mpt trong nhung phuong thiic thanh lap co quan nha nuoc.
Day la phuong thiic dan chii nhat trong so cac phuang thiic thanh lap co quan nha nuoc. Ket qua cupc bau cir khong xac dinh vi the ciia C^uoc hpi, ma xac dinh tinh chinh danh ciia Quoc hpi. Vj the cua Quoc hpi da duac xac dinh truac bai Hien phap. Hien phap xac dinh vi tri, vai tro, quy dinh ve
chiic nang, nhiem vu, quyen han ciia Quoc hpi. Chinh Hien phap ciing xac dinh vi the ciia Chinh phii, TANT>. Vi vay, viec Qu6c hpi thanh lap ra Chinh phu cung chi la yeu tl xac dinh tinh chinh danh cua Chinh phii ma khong anh huong den vi thi ciia Chinh phu.
Nhu vay, vai tinh chat la co quan thuc hien quyen hanh phap co nhiem vu, quyen han xay dyng va hoach dinh chinh sach, Chinh phii CO quyen va phai co tham quyen kiem soat hoat dpng lap phap ciia Quoc hpi. De bao dam hieu qua hoat dpng kiem soat ciia Chinh phu doi voi Quoc hpi trong thyc hien quyen lap phap, Luat To chiic Chinh phii, Luat Ban hanh van ban QPPL can xac djnh ro quyen han ciia Chinh phu trong qua trinh lap phap. Chinh phu can co nhirng quyen han CO the ngan can duac viec Quoc hpi ban hanh nhiing van ban luat khong phii hop vai thuc te, di nguoe voi chinh sach ban dau ma Chinh phu da hoach dinh hoac se lam phat sinh kinh phi thyc hien vugt qua kha nang ciia nguon NSNN... Nhirng tham quyen nay cua Chinh phii khong gay anh huong den vi tri, vai tro ciia Quoc hpi, vi vay khong trai voi Hien phap.
Voi tinh chat la co quan thyc hien quyen lap phap, quyet dinh cac van de quan trpng ciia dat nuoc; quyet dinh chinh sach co ban ve tai chinh, tien te quoc gia; quyet djnh phan chia cac khoan thu va nhiem vu chi giiia ngan sach trung uong va ngan sach dia phuong; quyet dinh muc gioi han an toan no quoc gia, np cong, no chinh phu; quyet dinh du toan NSNN ya phan bo ngan sach trung uong, phe chuan quyet toan NSNN, Quoc hpi phai co kha nang kiem soat duac hoat dpng ciia Chinh phii trong viec dieu hanh chinh sach tien te, thu chi NSNN, trong quyet dinh dau tu cac dy an, cong trinh trpng diem quoc gia co huy dpng nguon von lon tir NSNN.Vl vay, cac luat ve NSNN, dku tu cong can quy dinh cu the tham quyen
Hian phap nam 2013 xac dinh cu th^ thim quy^n ki^m soat cua Quoc hpi doi vai viec thirc hien quyen hanh phap ciia Chinh phii, quyen tu phap ciia Toa an. Tuy nhien tham quyen ktem soat ciia Chinh phu doi voi viec thirc hien quyen lap phap ciia Qu6c hpi, quygn tir phap ciia Toa an chua diroc xac dinh ro rang Hien phap cung de ngo phirong thiic kiem sodt quyen li/c nha nuoc thong qua co che bao hien.
pl9
NHA Niroc VA PHAP LUAT cua Quoc hpi kiem soat hoat dpng thyc hien quyen hanh phap cua Chinh phu trong cac ITnh vyc nay nia bay lau nay Quoc hpi thyc hien dang thieu hieu qua.
Ve lau dai, de bao dam sy thong nhat trong nhan thiic va hanh dpng khi trien khai thuc hien nguyen tac kiem soat quyen luc nha nuac, can xac dinh lai vi tri vai tro cua cac CO quan trong co cau quyen lyc nha nuoc. Tren ca sa quan diem, quyen luc nha nuoc co nguon goc tir nhan dan, thupc ve nhan dan; Hien phap la ban ke uac cua nhan thanh lap ra Nha nuac, thong qua Hien phap, nhan dan iiy quyen cho Nha nuac, cac CO quan nha nuoc thyc hien quyen lyc nhan dan. Nhu vay, cac co quan nha nuoc chii khong rieng Quoc hoi deu thuc hien quyen nang mang tinh chat quyen lyc nha nuoc. Nhan dan khong uy quyen rieng cho Quoc hpi, ma iiy quyen cho ca Chu tich nuac, Chinh phu, TAND, VKSND thuc hien quyen luc nha nuac. Moi co quan nha nuac, theo chiic nang, deu thuc hien nhirng nhiem vy, quyen han mang tinh quyen luc nha nuoc'". Do vay, viec Hien phap nam 2013, ben canh viec bo sung nguyen tac kiem soat quyen lyc nha nuac, cung nhu xac djnh ro CO quan thyc hien quyen lap phap, hanh phap, tu phap, van tiep tuc xac dinh Quoc hpi la CO quan quyen luc nha nuac cao nhat, da gay ra nhiing tra ngai nhat djnh trong viec cu thh hoa nguyen tac kiem soat quyen luc nha nuoc trong cac van ban luat. Tinh chat "quygn lyc nha nuac cao nhat" tao ra vi the "bat kha xam pham" cua Quoc hpi, dan dhn tam ly "sa" trao cho Chinh phu, TAND tham quyen mang tmh chat kihm soat Qu6c hpi trong hoat dpng lap phap se trai voi tinh chat quyen luc nha nuoc cao nhat cua Quoc hpi. D^ khac phuc han che nay, Hien phap ckn xuat phat tir nguyen tac nguyen thiiy - quy§n lyc nha nuoc co nguon goc tir nhan dan, thupc vh nhan dan. Thong qua Hien phap, nhan dan iiy quyen cho Nha nuac thyc
hien quyen luc nha nuac. Nhu v^y, chii thS ciia quyen luc nha nuoc la Nha nuoc chti khong phai la cac co quan nha nuoc. Cac ca quan nha nuoc la nhiing bp phan hpp thanh Nha nuoc, true tiep thuc hien nhung chijc nang ciia quyen luc nha nuac. Khi thuc hien nhiem vu, quyen han dupc Hien phap trao, cac CO quan deu nhan danh Nha nuoc, quyen lyc nha nuoc (chu khong nhan danh Nhan dan, quyen lyc nhan dan). Tir day cho thiy, khong chi rieng Quoc hpi thyc hien nhiing nhiem vu, quyen han mang tinh chat quyin lyc nha nuac, ca Chinh phu, TAND cung thuc hien nhiing nhiem vu, quyen han mang tinh chat quyen lyc nha nuac. Do do, viec Hien phap xac dinh chi rieng Qu6c hpi la CO quan quygn lyc nha nuac la chua hop ly.
Chinh phil, TAND cung la co quan quyhn lyc nha nuoc (noi diing han la nhung ca quan thuc hien chuc nang cua quyin luc nha nuac). Vi vay, se hap ly hon khi Hiin phap, can cii vao chuc nang d6 xac dinh tinh chdt cua cac ca quan nha nuac. Theo do, Qu6c hpi khong con duac xac dinh la co quan quyen luc nha nuoc cao nhat nua. Viec bai bo tinh chat nay cua Qu6c hoi khong lam suy giam vj tri ciia Qu6c hoi. Qudc hoi vh la CO quan dai dien cho y chi va nguyen vong cua nhan dan, thyc hien quyin lap hiin, lap phap, quyet dinh cac vkn dh quan trong cua dat nuoc, giam sat tdi cao d6i vai hoat dong cua nha nuac. Ben canh do, viec bai bo tinh chat nay cua Quoc hpi lai co y nghia khang dmh Chmh phu, TAND cung ij , „ dugc nhan dan trao cho thuc hien cac quyk hanh phap, tu phap. Su thay d6i nay se tag eg so phap ly quan trgng cho
nguyen tac kiem soat giua ^lec cu m hoa viec thuc hien quyen luc nha ';>«: CO quan trgng
10 Khi thong qua quyet dinh thuoc thSm quySn, Quoc hoi can cu vao Hien phap, luat; khi thong qua quygt dinh thu" = quyen, Chinh phu cijng can cti vao Hi8n phap, luat; Ichi thdng qua ban an, TAND nhan danh Nha nudc Cdng hoa^xw'^'^
Viet Nam. ^^
