CO CHE KIEM SOAT QUYEN LlTC NHA NlTdC VA M Q T SO KIEN GIAI LAP HIEN TRONG GIAI DOAN XAY DITNG
NHA NirdC PHAP QUYEN VIET NAM
Dat van de
Tai Dai hdi Ian thir XI (ndm 2011) ding vdi cbii truong ^''Nghien cdu. sica ddi, bd sung Hien phdp phii hap vai tinh hhih mdi "
thi ciing la Idn dau tien sau 20 ndm (kl tir khi cd Cuang ITnh nam 1991 'Te xdy dung ddt nuac trong thdi f^ qua dp tien len chii nghTa xd hdi"), Dang da dua ra ludn diem mang tinh chi dao mdi rat quan trpng la:
"Nghien cicu xdy dung, bd sung cdc thiet che vd ca che van hdnh cu the de bdo dam nguyen tdc tdt cd quyen luc nhd nude thupc ve nhdn dan...; co suphdn cdng, phdi hap vd kiem sodt giua cdc ca quan trong viec thuc hien quyen lap phdp. hdnh phdp vd tuphdp"
va '^Khdn tncang nghien cicu. sica ddi, bd sung Hiin phdp ndm 1992..."\ Vi vay, trong qua trinh siia ddi Hiln phap (SDHP) ndm 1992 (lin thii 2) ciia giai doan xay dyng Nhd nude phdp quyin (NNPQ) Viet Nam bien nay, viec nghien ciiu ve mat ly luan nhihig vdn dl kilm soat quyen luc (KSQL) nha nude kit hgp vdi viec phan tich thuc trang ciia cac quy pham hien dinh tuong ung, tir do dl xuit vdi Uy ban Du thao sua ddi Hien phdp nhCcng kiin gidi lap hien (KGLH) e\i thi tuang icng vai ticng vdn de dicac nghien ciru cd y nghTa chinh tri - xa hpi va phdp 1^, ciing nhu y nghia khoa hpc-thue tiin rat quan trpng tren mpt loat cac binh dien sau ddy:
' GS.TSKH., Truofng B6 mon T u phap Hinh sir, Khoa Lu^t - Dai hgc qu6c gia Ha Nol.
" van phong Qu6c hpi.
' Dang Cpng san Viet Nam.Van kien Dai hpi dai bieu toan quoc \ln thii XI. Nxb. Chinh trj quoc gia. Ha NOi, 2011, tr. 247.
Le Van Cam Vu Vdn Hudn"*
Ve mat lap phdp, 5 ndm trudc day, mdc dii dd cd luan diem tien bd vd dan chii ciia Dai hpi Dang Ian thii X ve xay dyng ca chi bdo ve hien phdp (BVHP) bing nhanh quyin luc tu phap (QTP) dl KSQL nha nude - bing su xem xet cua tda an (trpng tai) de dua ra phdn quyet cudi ciing ve mat phap ly, nhung den nay, trong he thdng cdc van bdn phdp luat (VBPL) hien hanh ciia Viet Nam (ke cd trong Hien phdp nam 1992 hien hanh) vdn chua cd bat ky quy pham phap luat (QPPL> nao ghi nhan mot ca che tu phdp doe lap de KSQL nhd nu&c dung vdi nghia ciia no - sy kiem tra Hien phap (KTrHP) bang mpt ca quan td tung tu phdp.
Ve mat thuc lien., chinh sy bat cap ciia viec khong cd co che KSQL nhd nude da dan den thuc trang nhu TS. VU Due Khien, nguyen Chu nhiem Uy ban phap luat ciia Quoc hpi, Uy vien Uy ban Thudng vu Quoc hpi khda X (1997-2002) va khda XI (2002- 2007) da khing dinh: "... trong nhiing ndm qua, Qude bdi da thdng qua mgt sd luat cd ndi dung khdng phu hgp vdi quy dinh ciia Hiln phdp nam 1992", "tir cdc quy djnh nay cd cau hdi dat ra la, ca quan nao gidm sat boat dgng ciia Quoc hgi, nhat la boat dpng lap phap (?)", ddng thdi TS. Vu Due Khiin cung da dua ra mgt loat cdc ddn chiing cu thi dl minh boa sy '•khdng phii hgp vdi Hiln phap" (ma thuc chat la vi hien) do la: cdc dilu 13-14, 16-17 va khodn 2 Dilu 19 Ludt Kilm toan nha nude nam 2005, Dieu 19 Ludt Hoat dgng gidm sat ciia Qude hdi ndm 2003, cdc dilu 19 va 49 Luat Td cbiic Qude hdi nam 2001 vd Nghi quylt sd 28/2008 ngay 15/11/2008 ciia Qude hgi khda XII Vi
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NHA NUdc VA PHAP LUAT sd 6/2012 thuc hi^n thi diim khong td chuc H$i ddng nhdn ddn qudn, huy?n, phu&ng & m0t so dia phuang (md "khdng to chiic" thyc chit Id
"giai tan" H0i d^ng nhSn ddn d 199 qu$n, huy^n va 483 phudng) Id trdi vdi cdc dilu
118 vd 123 Hiln phdp ndm 1992^
vi mgt ly ludn, cho den nay trong khoa hgc phdp \^ (KHPL) nude ta vSn chua cd nghien ciiu chuy6n khdo ndo dl c$p rieng den vi?c phSn tich vl mat ly lugn nhiing van dl KSQL nhd nude de kit hgp vdi vi^c phdn tich thyc trang cua cdc quy pham hiln djnh tuong ling, tir dd dua ra nhiing KGLH cu thi ddi vdi vi^c sua ddi, bo sung cdc quy dfnh trong Hien phdp d cdc muc d$ khdc nhau co lien quan din co chi KSQL nhd nu&c dung v&i nghTa ciia n& nhim gdp phan dua cdc luan dilm chi dao rit tiin bp vd ddn chu neu tren cua Ddng vdo cugc song, 1dm cho su van banh cua bg may quyin luc (BMQL) nha nude vd boat ddng cua cac quan chiic trong cdc ca quan cdng quy6n thugc tat ca cac nhdnh quy6n luc nha nude dugc trien khai theo diing quy dao cua Hien phdp vd phap luat, ddng thdi bo trg cho sy nghiep xay dyng thdnh cdng mdt NNPQ dich thuc ciia ddn, do ddn vd vi ddn d Viet Nam.
Nhu vay, su phdn tich y ngbia chinh trj- xa hdi vd phdp ly, ciing nhu ;y nghia khoa hpc-thuc tien ciia vipc nghien ciiu nhiing vin de da neu khdng chi cho phep khing dinh tinh cip bach ciia chiing, md cdn Id ly do luan chiing cho tSn gpi ciia ngbiSn ciiu ndy cua chiing tdi. Tuy nhien, do tinh chat da dang, phiic tap vd nhieu khia canh ciia nhiing vdn di ve KSQL nhd nu&c trong bdi cdnh SDHP cua giai doan xdy dimg NNPQ (vi ngay mSi vin de cd lien quan din tSn gpi dl tdi nay ciing cd the trd thdnh nhiing doi
^ Xem cu thi hem: Va B&c Khiin, Sira (l6i HiSn phap
\k vdn de xay dimg Nhi nu(Sfc phip quyin, KJ y^u Hpi thSo khoa hpc do Khoa Hinh chinh-Nhi nude cua Tni&ng Dgi hpc Lu^t H4 N0i t6 chiirc vdi chii dl;
"Swfl Aoi, bo sung Hien phdp ndm 1992 dap ung yeu cdu xdy difltg Nhd nu&c phdp quyin vd hgi nhgp qude tt (Ha NOi, 29/11/2010), tr. 23-24.
tugng nghien ciiu khoa hgc rieng bipt va dugc dl c^p trong nhilu cuon sach chuyen khdo kbdc nhau), nen trong bdi vilt nay, chiing tdi chi ed thi dl c^p din nhiing van dl ndo md theo quan diem cua chiing toi la chik yiu vd quan trpng hem ca.
1. Khdi ni^m v^ cdc d^c diem cff ban cfia ca chi kiim sodt quyen luc nha nuo'c trong Nha nud*c phdp quyen
Vi^c nghien cim Ijch sir va thyc tien t^
chiic BMQL nhd nude d cdc NNPQ Id cdc nude vdn minh vd phdt triln cao cho phep dua ra khdi ni$m nhu sau: Ca chi KSQL nha nude (ndi chung) trong NNPQ Id tdng thi cdc phuong thuc, khd ndng vd quy tdc dupe ghi nhdn trong Hien phdp vd ludt nhu la nhiing ca sa phdp ly de mpt sd ca quan tuang icng ciia BMQL nhd nuac thupc tdt cd cdc nhanh quyin luc (chu khdng phdi chi co nhanh quyin luc rieng biet ndo) duoc trao nhiing thdm quyen nhdt djnh dua vdo do triin khai hogt ddng BVHP cua minh nhdm hgn che cdc nguy co vi pham Hiin ^hdp, ngdn ngica nhiing hdnh vi long quyin vd chuyen quyen, nhuac quyen vd ddc dodn, quan lieu vd tity ti$n cua ca quan cdng quyin vd cua cdng chicc nhd nuoc, cung nhu bdo ddm cho qud trinh to chire, thuc hiin vd KSQL nhd nu&c duac tudn thu theo diing cdc quy dfnh ciia Hien phdp vl lai ich chung cua nhdn ddn vd xa hpi ddn su (XHDS), ddng thai bdo v^ mpt cdch hOu hieu nhiing ca s& cua chi dp hiin dinh, cdc quyen vd tu do cua eon nguai vd cua cdng dan v&i tu cdch Id cdc gid tri xd hpi cao quy nhdt dupe thica nhdn chung cua nin vdn minh nhdn hgi. Nhu vay, tir khai ni$m ndy cua ca che KSQL bing nhanh QTP trong NNPQ cho thay ban chat tien bg va dan chu cua no thdng qua mgt sd dac diem (dau hieu) co ban dudi ddy: 1) Ld tdng thi cdc phuang thuc, khd ndng vd quy tdc dugc dilu chinh trong Hiin phdp vd cdc dgo ludt khac vdi tu each la nhiing ca sa phdp ly de mdt s6 ca quan tuang ling ciia BMQL nhd nude thugc tit ca cdc nhanh quyen luc (chii khong phai chi co
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nhanh quyen luc rieng biet ndo) thim quyin nhat dinh dya vao dd triln khai boat dpng BVHP; 2) Han che cac nguy ca vi pham Hien phap, ngan ngira nhiing hanh vi Ipng quyen va chuyen quyen, nhugc quyen va dpc dodn, quan lieu va tuy tipn ciia cdc co quan cdng quyen va ciia cdng chiic nhd nude; 3) Bao ddm cho qua trinh td chiic, thyc hien vd KSQL nha nude dugc tuan thii theo diing cdc quy dinh ciia Hien phdp vi Igi ich chung ciia nhan dan va XHDS; 4) Gdp phan tgo ra ca che kiem tra vd cdn bang ciia cdc nhanh quyen luc nhd nude nham loai trir su Ian at ciia nhanh quyen lye nao dd ddi vdi mpt/nhieu nheuih quyen luc kia; 5) Va nham bao ve mpt each biiu hieu nhiing co sd ciia chi dp hiln dinh, cdc quyen vd ty do ciia con ngudi vd cua cdng dan vdi tu each la cdc gid tri xa hpi cao quy nhat dugc thiia nhan chung cua nen van minh nhan loai.
2. Ban chat cua cff che kiem soat quyen luc nha nirdc trong Nha nvrdc phap quyen
Viec nghien ciiu lich sir td chiic BMQL nhd nude tir cd dai den duong dai tren thd gidi da vd dang minb chiing bdn chat tien bd va ddn chii cua ea chi KSQL nhd nu&c dich thuc tren cdc binh dien sau day:
2.1. Vdn dl KSQL nha nude chinh la udc vpng cua nhan loai tien bg vd J.Locke vd Montesquieu da dl xudng ra nguyen tac phan cong quyin lye vdi mong mudn xay dung nen mgt nha nude trong dd, cac quyen va ty do ciia con ngudi dugc bao dam thyc sy dl xa hgi khdng cd nhiing bit cong, phi ly, cung nhu su long quyen va bao hanh do nhiing ngudi nim quyin luc gay ra nhd vdo CO chi KSQL ngay trong BMQL nha nude.
Tuy nhien, luan diem tien bp, day tinh nhan vdn va dugc thira nhan chung trong KHPL hang tram nam qua la, viec KSQL nhd nuac dich thuc chi cd the d^t dugc tren CO sd nguyen tdc phdn cdng quyin luc thanh ba nhdnh: quyin lap phdp (QLP), quyen hanh phdp (QHP) va quyin tu phap (QTP) vdi tu cdch la nguyen tic ca ban dugc thica
nhan chung quan trgng nhat ciia NNPQ. Va ro rang Id, chi cd tren ca sd thyc hien mgt each thuc su nghiem tiic vd khoa hpc (chii khdng the chi Id hinh thiic) nguyen tac ndy, mdi c6 the bdn den su phan cdng, phdi hgp KSQL thuc su, vd ddng thdi mdi cd thi tao ra dugc sy kiim tra vd cdn bdng giiia cdc nhdnh quyen lye nhd nude.
Vi tren ca sd su thong nhat v§ quyen lye nhd nude & chii thi cao nhdt (nhan dan), chinh nguyen tic phdn cdng (chii khdng phan chia) quyin luc trong NNPQ se tao nen dugc su cdn bdng quyen luc giiia cdc co quan cdng quyin thudc cdc nhanh quyen luc nhd nude diing vdi nghTa tich cue cua nd, tiic la su kiem tra vd che udc Ian nhau giiia cdc nhanh quyin luc do; vi d day can phdi iiieu diing nghia tich cue cua ca che ""kiern tra vd cdn bdng" vdi tu cdch la hai yeu td cdu thanh rit chat che vd khdng kbit, bien cbiing va thdng nhat, tdc dpng qua lai mpt each biiu co va khdng the tdch rdi nhau (chii khdng phai "kim ham hoac kiem che" va
"ddi trpng" khi cbua cd dugc sy nhan thiic khoa hoc, diing din ve ca che nay, lam cho mgt sd ngudi khong hieu diing bdn chat cua ca cbl tiin bg vd dan chii ay).
2.2. Bdn chit dich thyc ciia hai pham trii
"kiem tra" vd "can bdng" la d cho: 1) "Kiem tra" (hoac ciing cd cdch gpi chua chinh xac Id "kim ham" bay "kiem che") do la bao dam cho viec td cbiic vd thyc hien moi nhdnh quySn luc dugc thyc thi cd bieu qua trong thuc tiin ddi song, nhung sy kiem tra ndy khong bao gid Id tuyet doi ma ludn bi kiim tra lai (kilm che) bdi bai nhanh quyen luc kia dl cho ca quan cong quyen ciia mdi nhdnh va cdc quan chiic ciia mdi co quan tuong img thugc timg nhdnh tuan thii, chap hanh nghiem chinh Hiln phap vd phap luat trong hoat dgng ciia minh, ndi mgt cdch khdc, do ching qua chi la tao ra ranh gi&i trong qua trinh td chiic vd thuc hien quyin luc cdng; 2) "Cdn bdng" hay "chi udc" (cdn ggi chua diing Id "ddi trgng") la sy phan cdng mgt cdch ro rdng, ranh mach quyin luc
NHA NUdc vA PHAP LUAT sd 6/2012 (cdc thim quyin, chire ndng vd trdch nhipm) tuang xiing vdi cdc co quan cdng quyin thupc cdc nhdnh quyin iyc nhd nude dk trdnh sy lam quyin, tire Id bdo ddm sy cdn bing quyin lye giiia cdc ca quan thu0c cdc nhdnh quyin lye ndy vd khdng m^t nhdnh ndo cd du CO hgi, khd nang dl lin dt nhdnh quyen luc kia.
2.3. Tuy nhien, Ijch sir vd thyc tiin t^
chiic BMQL trong mpt logt cdc nhd nude eye quyin tren thi gidi dd cho thay, nlu nhu sy phan cdng gidi ban va pham vi ciia vi$c to chiic quyen Iyc nhd nude khong minh bgch va khong chat che. thi khdng the ndi den ca chi KSQL nhd nude m0t cdch dich th\rc.
Chi cd bdng ca chi KSQL nhd nu&c m0t cdch thuc su theo dung nghTa cua no (tire Id bing nhanh QTP ddi vdi cac nhanh quyen luc kbdc), thi toan bg boat dpng ciia BMQL vd cdc quan chiic ciia bd mdy dd mdi cd the ty giac van banh theo diing qu^ dao cua Hiln phdp va phap luat, mdi cd th6 trdnh dugc su tha hoa quyin lire v&i nhiing nguy ea khong the chap nhdn duac trong mpt NNPQ dich thuc.
Sy tha hoa quyen lye chii yeu Id do khdng CO ca chi KSQL nhd nuac theo diing nghia cua nd, md ddc biet la thieu sy kiem tra vd cdn bdng giiia cac ca quan cdng quyin thudc tit ca cdc nhdnh quyen luc trong sudt qua trinh td chiic BMQL nha nude.
2.4. Cudi ciing, ndi ham ciia ca che KSQL nhd nude dugc nghien ciiu d day cin dugc hilu theo diing nghia hep ciia vdn de.
Ndi mdt cdch klidc, d day chung tdi chi dl cap din CO che KSQL nha nude tir ben trong. tire Id ngay trong bdn thdn bp mdy quyin luc nhd nuac vd bdng chinh hogt dpng kiem tra. gidm sdt Idn nhau ciia cdc ea quan cong quyen thupc ba nhdnh quyen luc nhd nu&c trong NNPQ md khdng bdn ve ca chl KSQL nha nude tic ben ngoai (nhu cdc ca chl KSQL nhd nude ciia dang cam quyin, ciia cac td chiic, doan the xd hpi, cua nhdn dan,...).
3. M6i quan h^ thong nhat va bi^
chihig cua cAc nhdnh quyen ly-c trong qu trinh thu-c thi ca che kiem sodt quyin lu nhd nvd'c trong Nha nude ph^p quyen J Qud trinh KSQL nhd nuac trong NNP{
dugc dilu chinh mgt cdch chat ch6 va r rdng theo diing trinh tu do luat dinh. Chin, ban, neu nhu cdc VBPL (nhu: quy php hiln djnh vd cdc QPPL khdc) dugc ban hm bing hogt d§ng cua nhdnh QLP, dugc % dung trong thuc tien ddi sdng xd hdi b3n|
boat dpng ciia nhanh QHP, thi vi?c gio, thich vd kiim tra tinh hprp hien cua c4 VBPL dd dugc thyc hipn bing boat dpng ti tyng (tdi phdn) ciia nhdnh QTP (tda an).
vi chuc ndng ciia ca chl KSQL n£
nude trong NNPQ. Tir dinh nghTa khoa hpi cua khdi ni?m ca che KSQL nbd nude nfii tren, ddng thdi tren co sd nghien ciiu thui tiin td chiic BMQL nha nude trong Hili phdp ciia mdt sd NNPQ dich thuc tren tW gidi duang dai"* cho phep chiing ta co thi dinh nghia: Chicc nang cua ea che KSQl nhd nuoc vai tu cdch Id ca chi BVHP Iron}
NNPQ la quyin hgn vd nhiem vu do Hii\
phdp vd lugt quy dinh md mpt so ea qtiui nhdt djnh trong BMQL nhd nu&c thupc Id cd cdc nhdnh quyin li^c thuc hien. Chdnj ban, CO che KSQL nhd nude bdng nhdn) QTP (tda an) trong NNPQ thuc hien mot si chire ndng nhu: 1) Gidi thich cdc quy phan do Hien phdp quy dinh; 2) Bdo ve cdc quyei vd tu do hien dinh ciia con ngudi yd cut cdng dan; 3) Xem xet tinh hap hien (ha, khong) cua cdc VBPL do nhanh QLP VJ nhdnh QHP ban hdnh, tire la kilm tra o.^
nhanh QTP ddi vdi hai nhanh quyen \i
^ Xem cy th€ hon: Cac Hien phip cOa cic nuoc ngoi Dong Au, Tip bai giang va tra ciru, Nxb. Normi Infra, Matxcova, 1996; Cac Hiln ph^p ciia c^c nirf ngoai: H?p chiing qu6c Hoa Ky, Virang qu6c M^
Phap, Diic, Italia, T5y Ban Nha, Hy Lap, NhSt m Canada (XuSt ban Ian thijr 2 c6 sua ddi va b6 suM Nxb., BEC. Matcava, 1997; Rene David, KiuM JauffretSpinosi, Cac h^ thfing phap luSt duong | Nxb. Quan h^ quic te, Matcava, 1996. 1
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gay trong chinh hi thdng quyin luc nhd uac, nbdm bao dam cho ca che kiim tra va an bang mpt each thuc sy giiia cac nhdnh uyen luc trong mot NNPQ dich th^c cua 'an. do ddn vd vi ddn;...
Vai trd ciia co cbl KSQL nhd nude :ong NNPQ cd thi nhan thdy rdt nhilu, bung d ddy chi neu ra mdt sd binh dien ca idn va quan trgng nhu sau:
Mdt la, gdp phan lam cho qud trinh td hiic va thuc hien quyen lye nha nude dugc Lian thu theo diing cdc quy dinh va trong gidi lan cua Hien phap va phap lugt, cung nhu tao len su phan cdng, phdi hgp mgt each ddng ip cac tham quyen, chiic nang tuang ling vdi idi nhanh quyen lye nhd nude.
Hai Id, bao ve mdt each hiru hieu tinh 'hap chi cao nhdt cua Hien phdp nhim tao len khudn khd phap luat cho boat ddng cua dc nhdnh quyen luc trong NNPQ vi Igi ich hung ciia nhan dan va XHDS, dong thdi ido ve mgt cdch viing chac nhicng ca sd cua hi dp hien dinh. cdc quyin vd tu do cua con 'gudi vd cua cdng ddn vdi tu each Id cdc gid ri xa hdi cao quy nhat dugc thira nhan hung cua nen van minh nhan loai.
Ba Id, gdp phan khang dinh ba dac tinh ien bg dugc tbira nhan chung cua nen van linh nhan loai ddi vdi nha nude va phap jat trong NNPQ, dd Id: nhdn ddn, ddn chii, hphdp quyin. Cd the thay rang, ba dac tinh ay da dugc ITnh hgi trong tu tudng nhan an Hd Chi Minh ve mdt nha nude vd mdt en phdp luat kieu mdi (bao gom cd Hien hap) chinh Id dilu ma Ngudi mong mudn dy dung d Viet Nam sau Cdch mang Thdng /1945 vd da dugc thi hien rat rd trong Hiln hdp Vi6t Nam nam 1946*.
Xem eg thi hon: HS Chi Minh, Tokn tap. Tap 2, xb. Chinh trj qu6c gia. Ha Npi. 2002, tr.270; Tap 4, xb. Sg- that, 1984, t r . l 5 - I 9 ; Toan tap, T§p 7, Nxb.
hinh trj qu6c gia. Ha Noi, 2000, tr.35-36; Tap 1, xb. Chinh trj qu6c gia. Ha Noi, 2002, tr.438; Pliam gpcAnti, Quan niem ciia H6 Chi Minh v^ vj tri, vai i) cua phap luSt trong quan ly xa hpi. T?p chi Ly an chinh trj, s6 5/2011, tr.5; Nguyiit NSng Nam,
4. Thu-c trang cdc quy djnh co lien quan den to chuc bp may quyen iyc nha ntrdc trong Hien phap 1992 hi^n hanh
Khi nghien ciiu cac quy dinh nay trong Hien phdp Vi?t Nam ndm 1992, cdc nhd ludt hpc cd thi dl dang nhan thay nhiing ban che (ve tinh logic phdp ly. su chat che ve mat ky thudt lap phdp vd tinh chinh xdc vi mat khoa hpc) ma a cdc muc dp khdc nhau cd lien quan den vi0c td chire BMQL nhd nude de trong qud trinh sua ddi Hien phap nam 1992 (lan thii 2) chiing ta can khdc phuc. Chang han nhu:
- Chua thuc sy bao dam tinh chinh xac ve mat khoa hoc kbi trong dao luat ca ban ciia mpt nha nude va cd hieu lye phap ly cao nhat trong he thdng phdp luat qude gia nhung khdng cd ranh gidi ro ret giua cdc ca quan thudc cdc nhdnh quyen l\rc nhd nude khdc nhau, vi Chuang X chi cd ten ggi Id
"Tda dn nhdn ddn vd Vien kiim sdt nhdn ddn" vd quy dinh cd hai he thong co quan ndy (tda dn nhan dan vd vien kiem sat nhan dan) nhung lai khdng quy dinh rd rdng cdc ca quan tuphdp la nhiing ca quan ndo; trong khi dd, Nghi quyet sd 49-NQ/TW ve cai cdch tu phap de cap den ca cac ca quan dieu tra va ca quan thi hdnh dn.
- Vdn cdn thieu cdc quy dinh de cap den CO che KSQL nha nude ndi chung ngay trong chinh ndi bp be thdng BMQL nhd nude cd the tao nen dugc co che kiim tra vd cdn bdng giua cdc ca quan cdng quyen thudc cac nhanh quyen luc nhd nude. Ddy chinh la vdn de ca bdn nhdt tgo ra kS h& cho su tuy tien. hi$u qud thdp vd ndng luc qudn ly nhd nude yeu trong hogt ddng cua cdc ca quan cdng quyin. Vd cd le chinh tir nhiing kg hd
Trjnh Vuffng Cu&ng, Tu tucrng Ho Chi Minh ve thuc hanh dan chu trong xa hpi. Tap chi NghiSn ciru lap phap, so 9, thang 5/2011, tr.6; Hoang VSn NgltTa, Minh tri€t Hd Chi Minh ve dan chii, T^p chi Nghien curu l?p phap, s6 10, thang 5/2011, tr.9; Tlidi VTnh TliSng, Tim hieu triet hpc phap quyen cua Chu tich Ho Chi Minh, Tap chi Nghien cuu leip phap, so 2+3, thang 1+2/2011,'tr. 25-28;...
NHA NUdc vA PHAP LUA T sd 6/2012 nay md TS. Phgm Vdn Hung dd canh bdo:
"vipe sii dung quyen lye nhd nude cung ludn tilm in kha ndng lam dyng quyen Iyc, xdm ph^m din quyen vd Igi ich chinh ddng ciia nhan dan", "bp mdy nhd nude cQng da b^c 1$
nhilu ylu k6m vd dS xuit hi^n nhieu cdnh bdo ve nguy co tir phia cdc eg quan nhd nude"'.
Quy trinh Igp hiin vd hi?u lye ciia Hi6n phap mdc dii cung Id phin rat quan trgng le ra can phdi dugc di6u chinh cy the va cdng khai timg cdng doan dl todn thi nhan dan dugc biet nhu: scan thdo, sira doi, bd sung, thdng qua vd cdng bd Hien phdp nhu thi ndo, nhung Id trong Hien phdp ndm 1992 van cdn cbua de cap den bdn cdng doan dau, md chi mdi ghi nhan rat so sdi mot cdng doan sau ciing la khi ndo thi Hien phap dugc "sica ddi" (Dieu 147).
-Mgt loat cac quy dinh khac trong Hien phap nam 1992 a cdc muc dp khdc nhau e&
lien quan den viec KSQL nha nude cung cdn nhiing ban che nhu:
1) Cdc quy pham ve cac chi dp hiin djnh ciia mdt ddt nude Id rat quan trgng vd 15 ra phai cd it nhat 03 che dinh vdi cac ITnb vuc chu yeu can dugc diSu chinh ve mat lap hien, nhung Hien phdp ndm 1992 mdi chi quy djnh cd 02 che djnh Id "Che dp chinh tri" va "Chi dp kinh te" vdi 48 dieu vd thieu bin mgt chS dp hien dinh ca ban Id "Chi dp xa hdi" vdi sy dieu chinh chua day dii hoac bd sdt nhieu ITnh vyc lien quan dgn ddi sdng xa hdi ciia mgt qude gia vd cdc Igi ich thiet thyc cua nhan dan nhu: bdo vi mdi trudng, cCing nhu mgt loat cdc ddi tugng yeu the trong xa hdi nhu:
thuang hinh, eicii chien binh,...
2) Cdc quy pham ve cac che dinh quyin con nguai vd quyen cong ddn cung la m^t trong nhiing gia tri xa hdi cao quy nhit dugc thira nhan chung ciia nin van minb nban loai
Pluiin Van Hitng, Su cin thi^t phai thira k^. b l sung CO che to chCrc quy^n Igc trong Dg thao Cirong linh. T^p chi Nghien cilru l|p phap, s6 19, tiling 10'2010. tr 12.
trong cdc NNPQ 16 ra can phdi dugc dl cap rieng bi^t trong mpt phan ciia Hien phdp, nhung Hiln phdp nam 1992 chi quy djiih trong mpt Chuang V "Cdc quyin vd nghTa vu ca bdn cua cdng ddn" vdi mgt sd nhupc diim rdt co bdn vd quan trong la: a) Ngay ten ggi ciia Chuong cung chua chinh xdc vi mdt khoa hpc vd chua dgt ve mdt ky thugl Idp hiin khi khdng su dung tbuat ngQ "con ngudi" (vi cdc quyen con ngudi Id khac vin quyen cong ddn); b) Neu chi quy djnh cac quyin "ca ban" vay thi cdc quyen "khdng co bdn" la cac quyin ndo vd khdng dugc ghi nli^n trong Hiln phdp hay sao; c) Thieu hoan todn cdc quy ph^m ve cdc ca che phdp ly (ca quoc gia vd quoc te) de bao ve cac quyen bien dinh nay vdi tu each la k6 hd "chet ngudi" ciia Hien phap, vi nd 1dm cho cac cdng dan khdng cd kien thuc ve phdp ludt rat khd ty bdo ve dugc cdc quyen bien djnh ciia minh khi bj xam ph^un (nhat id khi sy xdm pham dd xuat phat tir phia cdng quyen); d) Trong Chuang nay le ra phdi ghi nhdn day du cac quyen ty nhien md bat ky mgt ngudi nao sinh ra deu duang nhien duoc hudng vol tu each la cdc gia tri xa bdi cao quy nhat dugc thira nhan chung ciia nhan loai tien bo da dugc ^hi nhan trong Bp ludt qude te ve nhdn quyen vdi ba vSn ban ndi tieng: Tuyfin ngdn the gidi "Vi cdc quyin con nguaf^ (gpi tdt Id "nhdn quyen") ndm 1948, hai C6ng udc Lien hgp quoc " Vi cdc quyin chinh Iri vd ddn su" vd "Vi cdc quyin kinh te, van hoa vd xd hpi" nSm 1966 md Vi?t Nam vd hau nhu cac quoc gia thdnh vien Lien hpp qude dd ky vd cam ket thuc hien, nhimg trong 33 dilu ciia Chuang ndy thi cd din 30 lan xudt hi^n tbuat ngii "Nhd nude" (vi m§t khi dd la quySn ty nhien ciia con ngudi thi duong nhien dugc hudng cbii khdng the la
"qua tang" ciia Nhd nude bay bat cii phdp nhan, ban lanh dao hay cd nhan ngudi cdm quyen ndo).
5. Nh^n xet
Tir sy phdn tich thyc trang ciia cac VBPL cd lien quan, cung nbu tren ca sd
nhiing ban chl, bit cap ciia cdc quy dinh vl td chire BMQL nhd nude (bao gdm cd td chiic QTP) d Vipt Nam biSn nay, chiing ta cd the di den mgt sd nhan xet chung tren ba binh dien nhu sau:
v l mat Igp phdp, he thdng cac VBPL hien hdnh d Viet Nam da ghi n b ^ nhiing cdn cii phap ly cho ca che gidm sdt ciia nhdnh QLP ddi vdi hai nhdnh quyin luc khac (QHP vd QTP), chii bodn toan chua thi ggi Id ca chi KSQL nhd nu&c bdng quyen luc cong diing vdi nghia dich thuc ciia nd, vi theo Hiln phap ndm 1992 hien hdnh thi "Qude hpi thuc hiin quyin gidm sdt tdi cao doi vdi todn bp hogt ddng cua Nhd nuac" (khodn 4 Dieu 83), nen rd rang la trong viec td chiic BMQL hien nay d nude ta khdng he cd ca che KSQL nha nude dich thuc {ndi chung).
Ve mat thuc tien, cung khdng the cd dugc mdi quan he hihi ca ciia ca che KSQL nha nude giua cac nhdnh quyen luc nhd nude (ma ban chat phap ly ciia mdi quan he ndy Id thiet lap dugc sy hdi hoa, sy tuang hd qua Igi va tinh bien chung giiia cdc nhdnh quyen luc dd trong Nhd nude nhu da phan tich tren day, n6n ve ca bdn, d Viet Nam hien nay mdi chi cd sy kiem tra, giam sdt mpt chiiu (tir phia chu the Id nhdnh QLP va ddi khi la nhanh QHP ddi vdi khach the Id nhdnh QTP), vd thyc chat la chua cd ca che BVHP. Vd chinh dilu ndy da ddn din thyc trang: "Hinh thiic kiln nghi ciia cdc ca quan cua Qude hdi chua thuc su dem Igi hi^u qud"^; boat ddng giam sat cua Qude hdi ddi vdi cdc van bdn QPPL do cdc ca quan quyin lye nha nude d trung uang ban hdnh "cdn kem hieu luc vd hiSu qua"
* GS.TSKH., Bdo Trf Uc, PGS.TS., Nguyin Nhu Phdt (D6ng chu bien), Tai phan Hiln phap va vSn dfi xay dung mo hinh tai phan Hi6n phap a Vilt Nam (Sach chuyen khao), Nxb. Cong an nhSn dan. Ha N$i, 2007, tr. 24.
' GS.TS., Tran Ngpc Dtedng, (GS.TSKH., Ddo Tri Uc, Ngayin Nhir Phdt (D6ng chii bien)), Tai phan HiSn phap va vSn d l xay d^mg mo hinh tai phan Hiln
Va vl mdt ly ludn,^ dudi gdc dp KHPL (bao gdm cd ly luan vl NNPQ mdt khi dd khdng cd ca che KSQL nhd nude ndi chung (trong dd bao gdm cd ca che KSQL lap phap), cd nghia la kbi QLP khdng dugc kiem sodt bdi ca quan chuyen trdch thu^c nhanh quyin lye khdc md "ty minh kilm sodt boat ddng ciia chinh bdn thdn minh", thi rd rang la hodn todn khdng phii hgp vdi nhiing ddi hdi (yeu cdu) ciia mgt NNPQ dich thuc, vi quan dilm dugc tbira nban chung cua n6n vdn minb nhan loai va cung Id ciia tit cd cdc ludt gia tiin bp tren thi gidi Id NNPQ phdi la nhd nude md trong dd quyin luc vd chinh tri phdi bi kiim sodt bdi phdp ludt (diing nhu each dien d^t ciia nhd triet hpc Diic ndi tieng LKant). Bdi le, trong NNPQ khdng the cd tinh trang mdt co quan ndo dd trong BMQL nhd nude "vira dd bdng, viia thdi coi", vi da la NNPQ dich thyc thi dieu kien vd tien quyet Id khdng thi cd bit ky mdt ea quan, td chuc, nhom ngu&i hogc cd nhdn ngudi co chiic vu ndo co thi dung tren. diing ngoai phdp lugt hay duac phep tu cho minh cd quyen luc cao nhat", "quyen gidm sdt tdi cao" bode tu quy dinh cho minh bat ky tham quyen nao. Cdn ngugc lai, thi do chi Id "NNPQ" duprc tuyen ngdn tren gidy bode khau hieu hd bdo ciia cdc chinh tri gia cam quyen de danh lira du luan nhu nude Diic quoc xa nhung nam 1933-1937^.
6. M$t s6 kiln giai l^p hiln cu the ve co' chl kiem soat quyen Iyc nha nude trong boi canh sua ddi hien phap ciia giai doan xay dung Nha nirdc phap quyen Viet Nam
Trudc het, can phai khdng dinh rang, ca che KSQL nha nude dugc the hien trong rat nhieu quy dinh (nhu: ve chinh the hgp hiSn,
phap or Vi?t Nam (Sach chuyen khao), Nxb. Cong an nhan dan. Ha Npi, 2007, tr. 86.
" Xem cy the han; Wiltiam LShirer, Sy troi day va suy tan cua D^ ch^ thtr ba-Ljch sir DCrc quoc \a, (Diep Minh Tam djch tir tiSng Anh), Nxb. Tri ihCrc, Ha Npi, 2007; Voxkobtova L.E. Y nghTa va cac chitc nang ciia quyen tu phap, trong sach: Cac cong trinh khoa hpc ciia Hoc vi^n phap ly quoc gia. Matccfva, 2006.
NHA NUdc VA PHAP LUAT sd 6/2012 QLP, QHP va QTP,...) trong cdc bdn Hien phdp ciia cdc NNPQ. Tuy nhifin, trong pb^m vi ciia nghien ciiu ndy chiing tdi chi de c$p din mpt sd KGLH cd li6n quan din co chl kilm sodt quyin lye nhd nude, cy the Id:
trong Phdn thie nhdt "Nhicng ea sd hiin djnh cua chi dp chinh tri.chi d0 kinh te vd che dp xd hpi" cua Hien phdp sica ddi, mpt so quy dinh vl ca chl KSQL nhd nude vl ca bdn sS thudc Chuang I "Chi d0 chinh tri" vd c4n phai bdo dam tinh ki thica tie hai bdn Hien phdp thai dgi Hd Chi Minh. Dudi ddy chung tdi chi dl cap din vi^c ghi nh^n ngi dung ciia KGLH ddi vdi hai dilu (1-2) trong Chuang I nay theo hudng nbu sau:
- Ghi nhan lai todn bg ndi dung ciia Dieu 1 Hiln phdp ndm 1946 vd Dieu 2 Hiln phdp ndm 1959, ddng thdi thdng nhat npi dung Dieu 1 va Dieu 2 ndy vdi ndi dung Dieu 1 cua Hiln phap nam 1992 va dat ten gpi cho Dieu 1 m&i nay trong Hien phdp sira ddi (chi ddt sd thir tu trudc cdc dogn tbdnb cdc khodn de bdo ddm tinh khoa hpc va thay, sira ddi mpt sd tir cho phii hgp vdi giai doan hipn nay). Cdn nhd rdng, ndi dung cua Dieu 1 Hien phap ndm 1946 vd Dieu 2 Hien phdp nam 1959 da duoc Bdc Hd-Ldnh lu kinh yeu cda todn ddn tdc suy ngdm rdt ky cdng vd thdu dao v&i tdm tdt cd vi To qude vd nhdn ddn de ghi nhan nd vao ban Hien phdp dau tien ciia Viet Nam sau Cdch mang nen vi vdy, thiet nghi khdng ai dugc quyen bo di ngi dung 2 dieu nay trong hai ban Hien phdp nay.
- Nang cap dogn 2 Dieu 2 Hien phdp ndm 1992 len thdnh mgt khodn rieng bi^t trong mdt Diiu m&i cd tin gpi c{i the, ddng thdi thay dau phay (,) = tir "va" d giiia cdc tir
"phdn cdng" vd "phoi hpp", ddng thdi bd sung cdc tir "vd kiem sodt" (theo diing tinh than chi dao ciia Dai hgi Ddng lan thii XI) vdo sau tir "phdi hpp" va dat ten ggi cho Dieu m&i cd lien quan den ndi dung nay trong Hien phap siia ddi.
- Vay, Dilu 1 vd Dilu 2 mdi ciia Hiln phdp siia ddi trong giai doan xdy dyng Nbd
nude phdp quyin Vipt Nam sg bao gdm cdc quy ph?tm vdi ndi dung nhu sau:
PHAN THU" NHAT Nhfrng ctf s<y hien djnh ciia chl dp chinh
trj, che d9 kinh te v^ che dp x3 hpi Chuang I Chi dp chinh tri Dilu 1. T 6 qude Viet Nam
1. Td qude Vi$l Nam bao gdm giang san cua ddt nude dd dup'c cdc the h^ nhdn ddn tic hao ddi xdy dung, bdo v0 vd truyin lai cho chiing la trong mdi lien h^ chdt chS vdi lich su. truyin thdng cua ddn tpc bdng su gdn kit tinh yeu vd su kinh trpng ddi vdi cdc bdc td tien tren lanh thd quoc gia.
2. (Cdn thira ke ndi dung Dieu 2 Hien phdp ndm 1959 tai khodn 2 Dilu 2 Hiln phdp siia ddi ndy). Nude Vipt Nam ddn chii cgng bda dugc thanh lap, ciing cd, xdy dung vd phdt triln tir thdng Igi ma nhan dan Viet Nam da gidnb dugc trong Cdch mang Thdng tdm ndm 1945, la mpt nude dan chu cpng hda, ddc lap, cd chu quyen, thdng nhat va todn ven lanb thd, bao gdm cac hdi dao, them luc dia, vung bien vd vung trdi.
Dieu 2. Quyen luc nbd nude d Viet Nam 1. Nhdn ddn cdc ddn tpc tren lanh tho Vi^t Nam Id ngirdi mang chii quyen. Id ngudn duy nhdt vd chu the cao nhdt ciia quyen It^cc nhd nu&c a Vi$t Nam.
2. Quyen lire nhd nu&c duac nhdn ddn tri^c tiep thuc hi^n hogc uy quyin cho cdc ca quan nhd nude d trung uang vd a cdc dia phuang thuc hi$n. Nhiing thdm quyin cm cdc ca quan nhd nuac duprc uy quyen tu, nhdn ddn phdi do Hien phdp quy dinh. ^
3. (Can giii nguyen nhu ngi dung doan W Dilu 2 Hiln phdp nSm 1992 nhung nhdt thilt phai bd sung ba tir "vd kiim sodt" vao vj tri nhu da neu tren day cho dung vdi tinh thJln Dgi hdi XI).
(Xem tiep trang 25).
20
Viec chuyin ddi vj tri nguySn tdc Tdn rpng quyin con ngudi nhu tren se lam tdng ' nghia ciing nhu sy tac dgng cua nd ddi vdi
;ac chuong khdc ciia Hiln phdp vd ddi vdi le thdng phdp luat: dd khdng chi dan thudn a nbihig quyin ciia cdng dan md cdn Id rdch nhiem ciia Nha nude va cd he th6ng :hinh tri trong viec thyc thi va bdo vp; dd chdng chi Id muc dich ndi tai cua Nhd nude /d xd hdi, md cdn cho thay su chu dgng ciia ibiing ta trong vi§c "npi ludt hda" cdc qui linb mang tinh nguyen tdc vl quyin con igudi trong cdc cdng udc qude tl. Mdt khdc, /iec sdp dat vi tri nhu vay cdn chimg td Viet
*Jam sdn sang chap nhan nhiing luat choi
;hung trong xu th€ hdi nhap quoc tl.
Thir tu, nen bd sung qui dinh: "Viec hira nhan, tudn thii va thyc thi cdc bien phdp
;an tbiet de bdo dam cdc quyen vd ty do ciia
con ngudi Id trach nhiem ciia Nhd nude" vdo Chuang "Cdc nguyen tdc nen tang cua Hien phdp" (Chuang I cua Hiln phdp).
Thyc tien d Viet Nam vd nhieu qu6c gia tren thi gidi da cho chiing ta thdy rd: Quyin con ngudi dugc qui dinh trong Hiln phdp vd phdp luat dii cd tiin bd den mdy cung khdng cd y nghia gi, neu nd khdng dugc thuc hi$n, hoac giam y nghTa, nlu viec thyc hipn kem hi^u qua. Quyen con ngudi khdng chi la nhiing khau hipu chung chung ma can dugc hi^n huu. Qui dinh ciia Hien phap la can, nhung chua du. Viec bd sung qui dinh tren nhdm chi rd trdch nhiSm ciia Nhd nude ndi chung, cua cdc co quan nha nude trong viec xdy dung ca chl cu thi de thyc thi, chuySn hda quyen con ngudi, quyen cdng dan dugc qui djnh trong Hiln phap, luat vdo thyc tien trong cdc linh vyc ciia cudc sdng.
(Tiip theo trang 20 - Ca chi kiim sodt quyen luc...)
4. Cdc ca quan nhd nuac a trung uang
>d cdc dia phuang cd chire ndng thuc hiin rdc quyin lap phdp, hdnh phdp vd lu phdp ren lanh thd Viet Nam bao gdm:
a) Cdc ca quan thupc nhdnh quyen lap' thdp (Qude hdi), quyin hdnh phdp (Chii tich mdc vd Chinh phu), ciing nhu quyin tu
>hdp (bao gdm Tda dn Hiin phdp vd Toa dn thdn ddn tdi cao) a trung uang. Ca che iim sodt quyin luc nhd nuac duac thdnh gp di bdo vi tinh doe lap ciia cdc ca quan 'dy vdi nhau vd bdo vi Hien phdp vl lai ich ua Td qude vd nhdn ddn.
b) Cdc Hdi ddng nhdn ddn, cdc Uy ban nhdn ddn vd cdc Tda dn nhdn ddn & cdc dia phuang.
5. Viec tiim dung quyin luc cua nhdn ddn, tu quy dinh eho minh thdm quyin ndo do cua bp mdy quyen luc nhd nude, cung nhu viec edn trd, gdy sue ep hogc diing bdt ky thd dogn ndo ddi vdi cdc ca quan nhd nu&c nhdm muc dich chiem dogt quyin luc deu la su vi phgm nghiem trpng Hien phdp vd phdi bi trung tri nghiem khdc theo phdp ludt.
