NGHIEN Ciru-TRAODOI
HIEN PHAP v d l C H O QUYEN NHAN D A N
N
ghi quyk Dai hoi dai bilu t o ^ qu6c cua Dang lin thu XI xac dinh; 'T/e/?luc ddy manh viec xdy dung va hoan thien Nha nudc phdp quyen xa hoi chu nghTa, bdo ddm Nha nudc ta thuc su la ciia nhdn ddn, do nhdn ddn va vi nhdn ddn...". DS hien thuc hoa yeu cau nay can '^khdn trucmg nghien cuu, sica doi. bd sung Hiin phdp ndm 1992 phii hap v&i tinh hinh mdi".^^^ Tu tuong chi dao ciia Dang cho thay moi quan he chat che giua Hien phap vai quyen lire nhan dan, giiia yeu cau sua doi, bo sung Hien phap nam 1992 vol viec phat huy dan chu, bao dam quyen luc thuoc ve nhan dan.
Khong chi hien nay, ma trong nhieu nam qua, tren cac dien dan khoa hoc phap li, thuat ngu "chu quyen nhan dan" it duac nhic toi (neu khong muon noi la hau nhu khong duoc dk cap), n^u co thi thucmg lien quan d€n ,"chu quyen quoc gia", dac biet trong b6i canh gia tang cang thang a bien Dong lien quan den chu quyen cua Viet Nam ddi vai hai quin dao Hoang Sa va Truang Sa. Vay chu quyen qu6c gia la gi?
Chu quySn qudc gia thuang duac nhSc d8n trong quan he d6i ngoai voi tinh each la thupc tinh phap li khong the tach rai cua mpt qu6c gia dpc lap - chii the ciia luat phap quoc te, co chu quyen toi cao doi voi lanh tho ciia minh.
TS. VU H6NG ANH *
Ben canh pham tru "chu quyen quoc gia", trong phap luat quoc te con hi?n dien pham tru "chu quyen dan tgc". Chu quyen dan tpc duac hiSu la quyen tu quyet cua dan tpc trong quan he doi npi va doi ngoai, tuc la su to^n quyen ciia moi dan tpc dOc lap quy8t dinh che dp chinh tri-xa hpi, hinh thuc t6 chuc cua nha nuac minh ciing nhu dpc lap trong quan he doi ngoai.
Trong lich su nhan loai, pham tru "chu quyen nhan dan" dupc de cap tu kha som.
Tuy nhien, chi den giiJa the ki XVIII, "chu quyen nhan dan" moi tro thanh hpc thuyit.
Hpc thuyet "chii quyen nhan dan" dupc sang lap boi nha tu tuarig nguai Phap J.J.
Rousseau. Theo quan diem ciia Rousseau, chii quyen o day khong phai cai gi khac ma la y chi chung cua cpng dong xa hpi duac hinh thanh tir nhiJng ca nhan rieng le. Khi dat dupc y chi chung thi toan the cpng dong xa hpi dupc gpi la nhan dan.*^^ Cung theo Rousseau, chii quyen toi cao khong the tir bo va khong the ph^n chia; "Ca quan quyen luc toi cao Id con ngudi lap the, nen chi minh no dgi bieu duac cho nd md Ihdi. Quyen hanh co the chuyen giao duac, nhung y chi thi khdng".'-' Rousseau
* Vi^n nghiSn c&u l§p phdp Uy ban thudng v\i Qu6c h^i
TAP CHi LUAT H O C S 6 4/2012
NGHIEN CLfU - TRAO OOI
khfing ihira nhgn lu tudng ciia cdc nh^
chinh tri phan chia quyen l\rc nh^ nudc thanh quyen I$p phdp, hdnh phdp vd lu phdp nhu nhQ-ng bp phgn tdch rdi. Theo ong, viec phan chia quyen lyc nhd nudc thanh cdc quyen ldp phdp, hdnh phdp, tu phdp chi Id bieu hi?n ben ngodi. Ve thyc chat cac bp phan quyen hdnh dupc chia tdch ra nhu v§y deu phy thupc vdo quyin iyc toi cao. deu gid dinh phdi cd y chi ldi cao. moi bd phan deu chi nhdm thyc hi?n y chi toi cao dd.*'**
Rousseau cho rdng "ldp phdp la dinh cao nhdl cua su fjoan ihi^n md sire mgnh lap the CO the dgi ldi"!- ' Trong quan ni?m ciia dng, luat ciia qudc gia la y chi cua nhan dan cd chu quyen vi vay nd phai dieu chinh nhiing van de chung nhat, lien quan den tat ca mpi ngudi, ca quan lap phdp bao gdm todn the nhan dan hpi hpp thudng xuyen.
Co quan nay cd nhiem vy ddt ra hien phdp vd luat cho qudc gia. Ca quan lap phap thanh lap chinh phii de thyc hien quyen hanh phap ciing nhu quyet dinh cdch thuc thanh lap co quan tu phap.
Nhu vdy, c6 the thay rdng, mSc du chua dat tdi muc hoan hao, phdn dnh sat thyc hi?n tupng va bdn chat ciia quyen luc nha nudc nhimg tu tudng chii dgo ciia Rousseau ve chu quyen nhan dan da ddt nen tang tu tudng CO ban cho vjec td chuc va hoat dpng bd may nha nudc ciia cdc qudc gia tren the gidi ngdy nay.
Chu qu^en nhan dan va chu quyen quoc gia Id hai pham trii khac nhau nhung khdng
doi l^p nhau. Niu nhu chii quyen nhdn dan trd ldi cho cau hdi vl quyin lyc tdi cao trong nhd nydc, Ihi chii quyen qudc gia trd ldi cho cdu hdi ve quyen Iyc toi cao ciia chinh nhd nydc dd.* * GiiJa chii quyen nhan dan vd nhd nudc cd moi quan h? ch^t ch6.
Chii quyin nhdn dan chi ton tai gdn vdi to chiic, to chiic dd Id nhd nudc. Do vay, khdng the cd chu quyen nhan dan ndm ngodi nhd nudc, md chii quyen nhdn dan duac hinh thdnh cung sy ra ddi ciia nhd nudc vd nhd nudc td cdng cy hi^n thyc hod chu quyen nhdn dan.
Do chii quyen nhan dan Id pham trii cu the, hinh thdnh cimg vdi sy ra ddi ciia nhd nudc, gdn lien vdi sy phat then ciia nhd nudc. Vi vay, giiJa chii quyen nhan dan vdi quyen Iyc nhd nudc cung cd mdi quan he gdn bd mat thiet vdi nhau. Tuy nhien, khdng the ddng nhat hai pham tni "chu quyen nhan dan" va "quyen lyc nhd nudc". Mdt mdt, chii quyen nhan dan cao hem quyen lyc nhd nudc, chi phdi quyen lyc nhd nudc, la co sd hinh thdnh va bdo ddm su thdng nhat ciia quyen lyc nhd nudc. Mdt khdc, quyin lyc nhd nudc Id bp phgn cau thdnh quan trpng ciia chil quyen nhan dan.
Ndi den chii quyen nhan dan can ldm rd phgm tru nhdn dan. NhSn dan Id ai? Tren co sd tu tudng ciia Rousseau vl phgm trii nhan dan, cd quan diem cho rdng, nhan dan Id
""loan bd cu ddn cua mot nhd nudc chiu dnh hudng cua chii quyen qudc gia ciia nhd nu&c dd"P^ Trong khi dd, hpc gia ngudi phdp Marcel Prelot gidi han phgm trii nhan
TAP CHl LUAT HOC s 6 4/2012
dan d phgm vi hep hon, khi cho rdng nhan dan Id "mot bp phgn ddn cu cua qudc gia hop thdnh tic nhirng cd nhdn du^c hien phdp trao cho quyen bdu CM-".***' Dudi gdc do bien chung lich sii, cac nhd tu tudng Mac-Lenin cho ring pham trii nhan dan khong phai la bat biln. Trong mdi qudc gia, CO sd xa hpi ciia nhan dan phu thudc vao dieu kien kinh te-xa hpi vd tuang quan lyc lupng trong cudc ddu tranh giai cdp. Theo quan diem ciia V.l. Lenin, trong mdi giai dogn lich sir nhdt dinh, d dilu kien kinh t l - xa hpi nhat dinh, pham trii nhan dan bao gdm cac giai cap, tang Idp (cdc lyc lupng) ddng vai trd tien bd, each mgng. Co sd de cho cac tang ldp, cdc giai cap thdng nhat vdi nhau la loi ich chung. C. Mdc vd Ph.
Angghen cho rang chinh loi ich chung da tgo thdnh cdng ddng xa hpi nhat djnh, trong dd cd nhan dan.
N h u da d l cap tren day, ngdy nay tu tudng chii dao ciia hoc thuyet chu quyen nhan dan da dupc thira nhan rdng rai d hau h i t cdc nudc tren the gidi. Hien phdp ciia cac nudc, dudi cdc hinh thirc khac nhau deu k h i n g dinh nhan dan Id ngudn gdc ciia mpi quyen lyc, trong dd cd quyen lyc nhd nudc.
Trong nha nudc, chu quyen nhdn dan (quyin lyc tdi cao cua nhdn dan) dupc the hien trudc het d vai trd cua nhan dan ddi vdi bdn h i l n phdp. Hien phdp vdi tinh chat la van bdn phap luat chu dgo ciia mdi qudc gia, hien phdp hpp thiic hod ve mat phdp li quyen lyc nhd nudc, vi vdy ndi dung ciia h i l n phap phdi the hien y chi chung cua
todn the nhan dan. Do dd, viec thdng qua hien phdp phdi dupc sy chap thuan ciia nhdn dan. Lich sir han 200 ndm Igp hien ciia nhan logi cho thay, nhdn dan cd the tryc tiep thdng qua hien phdp bdng cupc trung cau dan y ho^c thanh lgp Id chirc lgp hien (hpi nghi, qudc hpi) de thdng qua hien phap.
Ban hien phap dau tien ciia nhan loai - Hien phdp Hop chiing qudc Hoa Ky ndm 1787 dupc thdng qua bdi Hpi nghi lap hien.
Hien phdp nam 1946 ciia nudc Vi?t Nam dan chii cpng hod cung dupc thdng qua bdi Qudc hpi lap hien. De khang dinh chii quyen nhan dan, trong ldi ndi ddu cua hien phap thudng ghi nhgn viec thdng qua hien phdp Id dupc su chap thuan bdi nhan dan hogc viec thdng qua hien phdp phii hpp vdi y chi cua nhdn dan. Ldi ndi dau cua Hien phdp Hoa Ky nam 1787 tuyen bd: ''Chung tdi nhdn ddn Hap chiing guoc Hoa Ky, v&i muc dich xdy dung mot Lien bang hodn hdo han, thiet lap cdng li. duy tri an ninh trong nu&c. tao dung phdng thu chung.
thitc day su thjnh vuang chung. giir virng nen tu do cho bdn than va con chdu chung ta. quyet dinh thiel lap Hien phdp ndy cho Hap chiing quoc Hoa Kf-^'' Ldi ndi dau ciia Hien phap nudc Viet Nam ddn chii cdng hod nam 1946 khang dinh: "Dufrc qudc ddn giao cho trdch nhiem thdo bdn hien phdp ddu tien ciia nu&c Viet Nam ddn chu cong hoa. Quoc hoi nhgn thdy hien phdp Vi^t Nam... phdi xdy dung tren nhiing nguyen tdc dual day: Dodn kit todn ddn, khdng phdn biet giong noi, gai trai. giai
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NGHIEN Ci;u - TRAO DOI
cap. ton gido;Ddm bdo cdc quyen lu do ddn chii; Thuc hicn chlnh quyen mgnh mi vd sdng sudl ciia nhdn ddn". NhiJng quy djnh tuong ty CO thl tim thiy trong hiln phdp ciia nhilu nudc khdc. chdng han Idi ndi diu ciia Hien phdp Lien bang Nga nam 1993 tuyfin bo: "'Chiing ldi. nhdn ddn da sdc IQC Lien bang Nga. cung chung so ph^n iren mdnh ddt ndy. khdng dtnh quyen vd tu do cua con ngu&i. hoa binh vd ddng ihudn xd hoi. gn7 gin su thdng nhdt ddt nu&c lir bao J&i nav chdp ihugn thdng qua bdn Hien phdp ndy"
Trong nhd nudc. chii quyen nhdn dan cdn dupc the hi$n d vai trd ciia nhan dan ddi vdi td chuc quyen luc nha nudc, td chirc vd hoat ddng ciia bd may nhd nudc.
Td chuc quyen lyc nhd nudc, td chirc bd mdy nhd nudc Id van de trpng tam ciia mdi bdn hieri phap. Vdi tifih chat la vdn ban
"khe ude" giira nhan dan vdi nha nudc, hien phap phai dgt dupc muc dich cdn bdn Id gidi hgn quyen luc nhd nudc, nhdm bdo dam chii quyen nhan dan. Ve nguyen tdc, vdi tu cdch Id ngudi mang chii quyen, nhan dan la chii the ciia quyen lyc nhd nudc.
Tuy nhien, de thyc thi quyen lyc nhd nudc, cdn phai cd sy hi?n dien ciia bp mdy hodn hao vdi dpi ngu nhan vien chuyen nghi?p dam nhan cdc chiic ndng ciia quyen luc nhd nudc. Bp mdy dd chinh Id nhd nudc vdi cac bp phgn lap phap, hdnh phdp, tu phdp. Bk ngdn ngira su lgm quyin, thao tiing quyin lyc ciia nha nudc ndi chung, cdc co quan nha nudc ndi rieng vi?c td chiic bd may
nhd nudc cin dupc xdy dyng sao cho khdng m^t co quan nhd nudc ndo ndm todn bO quyin lyc nhd nudc.
(!) cdc nudc trfin the gidi hien nay, cdn cii theo quy djnh ciia hiln phdp, to chiic quyin lyc nhd nudc cd the chia thdnh 2 mo hinh ph6 biln Id md hinh phan quyin vd md hinh t§p trung quyin.
Md hinh phdn quyen dupc van dung 6 da so cdc nudc ircn the gldi. Trong md hinh ndy quyin lyc nhd nudc duoc thuc hien bdi ba CO quan lgp phdp, hdnh phdp, tu phdp.
Moi CO quan thyc hi^n mpt chirc ndng eua quyen lyc nhd nudc tuang ddi dpc lap. Ben cgnh dd, de bdo ddm ngdn chdn su lgm quyen, giCia ba co quan ndy cd co che kiem sodt lan nhau.
Md hinh phdn quyen dupc chia thdnh 2 logi Id phan quyen cung vd phan quyen mem. Phan quyen cimg la logi md hinh giOia lap phdp vd hdnh phdp cd sy phan dinh kha rdnh mgch ve tham quyen. Tuy nhien, giiia cdc CO quan ndy cd sy kiem sodt lan nhau trong thyc hi^n quyen lap phap va hdnh phdp. Tdng th6ng do nhan dan bdu ra ddng thdi Id ngudi dimg dau bp may hdnh phdp (chinh phli); Tdng thdng khdng cd quyen sdng quyen lap phdp nhung cd kha ndng tdc dpng den hogt dpng lap phap thdng qua quyfin phii quyet (veto). Nghi vien cung do nhan ddn bau ra ndm mpi quyen lap phdp nhung hogt dpng lap phdp ciia nghi vien thudng cdn cii vdo chuang trinh hogt dpng thudng nifin ciia co quan hdnh phap do tdng thdng dfi xuit. Bdi vi, trong trudng hop
TAP CHi LUAT HOC S6 4/2012
nghi vifin thdng qua luat khdng phii hpp vdi dirdng l6i, chinh sach ciia co quan hdnh phdp thi tdng thdng sS su dung quyin phu quyit dl bdc bd dgo luat. M$c dii nghj vien khdng cd quyin ddt van dfi gidi tdn chinh phii nhung nghi vi?n ciing cd khd ndng tdc ddng dfin hanh phap thdng qua quyfin quyet dinh ngan sach, phdn bd ngdn sach; quyen phe chuan difiu ude quoc tfi do chinh phli ki; quyin phfi chuin cdc thdnh vien trong bd mdy hdnh phdp do tdng thdng dfi trinh. Ngodi ra nghi vi^n cdn cd quyfin phfi truat tdng thdng theo thii luc luan tdi (impeachment) dupc thyc hien bdi cdc thdnh vien ciia nghi vifin. Co che gidi quyet tranh chap giiia lap phap va hdnh phap Id thdng qua ddi thogi, thuang luong vd thdng qua cudc bdu cir.
Trong md hinh phan quyen mem, khdng cd su phan chia rdng mach ve tham quyen.
Nghi vien do nhan dan bau ra la co quan lap phdp nhung chinh phii-co quan hanh phap do nghi vien thdnh lap van cd sdng quyfin lap phdp. Ddc biet d nhiing nudc ma dang chifim da sd ghe d nghi vien dimg ra thdnh lap chinh phii thi vai trd quan trong ciia chinh phii ddi vdi hogt dpng lap phap cua nghi vien cdng trd nfin ro rang hon. Chinh phii do nghi vifin thanh lap thuc hien quyin hdnh phdp. Tuy nhien, nghi vien vin cd khd nang tdc ddng dfin hoat dpng cua chinh phu thdng qua quyin bifiu quyit khdng tin nhifim chinh phu vd bilu quyet tir chdi tin nhifim chinh phu. Trong trudng hpp ndy hoac chinh phii phdi tir chiic hodc chinh phii
yfiu ciu ngudi dung diu nhd nudc gidi tdn nghi vi^n, Co chi gidi quyit tranh chip giiJa nghi vi^n va chinh phii Id thuong lupng vd thod thu^n, trong trudng hpp khdng dgt dupc sy thod thu§n thi vin dl sg dupc dua ra dl nhfin ddn quyfit djnh thdng qua cudc bau cii.
Md hinh tap trung quyen dupc xay dyng theo quan diem cua cdc nhd tu tudng Mdc- Lenin. Trfin co sd quan difim ciia C. Mdc ve Cdng xd Pari nhu la "tap the hdnh dpng"
vira lap phdp, vira hdnh phdp, V.I. Lenin da xay dyng mo hinh td chirc bd mdy nha nudc Xd viet kieu mdi, theo dd co quan dgi di?n nhan dan Id co quan quyfin Iuc cao nhdt ndm giii quyen luc nhd nudc. Cac co quan nha nudc khdc do co quan dai dien nhan dan thdnh lap ra vd chiu trdch nhiem trudc CO quan ndy. Tu tudng ciia Mac-Lenin da trd thanh ca sd de xay dung td chirc bp mdy nhd nudc d cdc nudc xa hdi chu nghTa trong dd cd Vifit Nam. Tir khi nha nudc xa hpi chu nghTa dau tifin ra ddi (nam 1917) cho den nay, nham ddp iing ddi hdi ciia thuc tifin, each thiic td chiic bp may nhd nudc theo md hinh tap trung quyen da trdi qua qud trinh phdt trien vd hodn thifin. Tuy nhifin, md hinh quyfin luc nhd nud'c tap trung vao co quan dai dien nhan dan ciia Mac-Lenin van Id tu tudng chii dao trong td chiic bd mdy nhd nudc. Trong mo hinh ndy, vdi tu cdch Id co quan do nhan dan tryc tifip bau ra, dgi dien cho y chi vd nguyfin vpng ciia nhdn dan, co quan lap phdp dupc xdc dinh id ca quan quyfin lyc
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NGHIEN CifU - TRAO DOI
nhd nudc cao nhal. cd quyin I§p hiln, I^p phdp. quyet dinh cac vin dl quan trpng ciia dat nudc, thdnh lgp ra cdc ca quan hdnh phdp, tu phdp va cd quyin kiem tra. gidm sdt hogt dpng ciia cdc ca quan ndy. Ngupc lgi, CO quan hdnh phdp vd tu phdp khdng cd quyen gidm sdt hogt dpng cua ca quan lgp phdp. ma phdi bdo cdo ve hogt dOng ciia minh trudc co quan nay.
Neu \cm xfit md hinh Irfin trong m6i quan he vdi chu quyen nhan dan thi cd sy khdng thdng nhit giiia nguyen tdc quyen lyc nhd nudc thupc vl nhdn dan vdi vj tri phdp Ii cua quoc hOi Id co quan quyin lyc nhd nudc cao nhat. We nguyfin tdc. Id chii thfi ciia quyen lyc nhd nudc, nhan dan phdi Id ngudi ndm quyen luc tdi cao. Nhd nudc do nhan ddn lap ra. Id cdng cu md thdng qua nd nhan ddn thyc thi quyen luc tdi cao dd. Qudc hpi Id co quan nhd nudc dupc thdnh lap de thuc hien mpt trong nhumg chirc ndng ciia quyen Iyc nha nudc - chirc nang lap phdp nfin qudc hpi khdng thfi Id CO quan quyen lyc nhd nudc cao nhat. Vdi tinh chat Id co quan dai bieu cua nhdn dan.
dgi difin cho y chi cua nhdn ddn, do nhan dan bau ra nfin qudc hpi cd thdm quyen lgp phdp, quyen gidm sdt va quyfin quyet djnh nhirng van de quan trpng ciia dat nudc.
Tuy nhien, thdm quyen cua quoc hpi ciing can cd gidi hgn. Su gidi han nay khdng nhiJng bao ddm cho chinh phii va cdc co quan tu phdp chii ddng thyc hicn nhi?m vy, quyfin han hien dinh md cdn de bdo ddm nhiJng van de quan trpng lifin quan dfin v^n
m^nh qu6c gia, tac dpng sau rOng den ddi song xd hdi phdi dupc dua ra de nhdn dan quyet djnh. Cd nhu vgy mdi bdo dam chii quyen nhdn dan trong nhd nudc phdp quyin xd hOi chu nghTa.
Hi?n nay, trong b6i cdnh Viet Nam dang tien hdnh sira ddi. bd sung Hifin phdp ndm 1992, vi?c xem xfit nhin nhdn diing ddn tu tudng chil quyen nhan ddn cd ^ nghTa d$c bi?t quan trpng. Nd sfi gdp phan day mgnh phdt huy dan chu, dpng vifin nhan ddn tich cyc tham gia vdo cdc hogt dpng sira ddi, bd sung I hen phdp, bdo ddm cho vi^c sura ddi, bd sung Hien phdp Idn ndy phdn dnh ddy dii y chi, nguydn vpng ciia nhdn dan, the hi^n day dii tu tudng chii quyin nhan dan trong npi dung Hien phdp sira ddi./.
(l).Xem. V^n ki^n Dgt HQI dgi bieu loan quoc Idntiitt XI cua Dang, Nxb. Chinh trj qu6c gia, H4 Ngi, 2011.
tr. 246 - 247.
(2).Xem. J.J. Rousseau, Bdn vi khe u&c xd h^i. Nxb.
Thinh ph6 H 6 Chi Minh. 2004. tr. 70 - 72.
(3).Xem: J.J. Rousseau, sdd. tr. 79.
(4) Xem: J J Rousseau, sdd. tr 8 1 - 8 3 . (5).Xem: J.J. Rousseau, sdd. tr. 100.
(6). EjuiuneK r. 0 6 m e e yMCHMe o rocyiiapcTBe = Allgemeine Staatslehre / flepeBOii non pea. B. M, reccena H JI. B. lilanjiaHja. — Cn6.,: lOpMflHiecicHfi UCHTp npecc, 2004, ctp. 442 - 443.
(7).Xem: B.L Chicherin, Ve dgi di^n nhdn ddn (Tiing Nga), Matxccrva, 1866, tr. 19.
(8).Xem: M.Prelot, Ludt hien phdp Cpng hod Phdp, (Ti^ng Nga), Nxb Van h o i phdp U, Matxccrva, 1957, tr. 376.
{9).Xem: Van phdng Qu6c hOi, Trung tSm thdng tin, thu vi^n vk nghi€n cdu khoa hQC, Tuyen igp hiin phdp mpt so nudc iren the gi&i, Nxb. Th6ng kfi, H^
N§i, 2009.
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