KIEM SOAT GIU^A LAP PHAP VA HANH PHAP d HOA KY - NHlTNG KINH NGHIEM THAM KHAO CHO VIET NAM
Pham ThiPhir<mg Thdo*
Trtrcmg Thi Minh Thiiy**
Tom tat: Bdi viit ndy phdn tich su kiim sodt giiea lap phdp vd hdnh phdp a Hoa Ky, nhu: Kiim sodt qua quyin phdn bd ngdn sdch, dieu trdn, dan hgch, phu quyit lugt... Tic do, chi ra nhihig kinh nghiem tham khdo trong viec hodn thien ede quy dinh ve kiim sodt giiea lap phdp vd hdnh phdp a Viet Nam hiin nay.
Abstract: This article analyzes the control between the legislature and the executive in the United State of America, such as: control through the budget allocation, committee hearings, impeachment, veto, etc. On that basis, it draws reference experiences for improving Viet Nam's regulations on the control between the legislature and the executive.
1. Dgit van de
Khodn 1 Dieu I Hien phdp Hoa Ky quy dinh "Todn bd quyen luc lap phdp dugc thira nhan tgi day se dugc trao cho Qude hpi Hoa Ky ". Nhu vay, Qude hoi la ca quan nam giu quyen lap phdp. Theo Hien phdp Hoa Ky, Qude hoi - lap phap bao gdm Thucmg vien vd Ha vien. Co che ludng vien ndy nham dung hda loi ich giiia cdc bang Idn vd bang nhd', ban che tmh trang Qude hoi ban hdnh luat "cdu thd, hdp tdp", khdng ddm bao quydn loi cua nhan ddn^ ciing nhu tao duoc "kenh" kiSm sodt chat che ban eua lap phdp ddi vdi hanh phap d Hoa Ky.
Khoan 1 DiSu II Hidn phap Hoa Ky quy dinh: "Quyen hdnh phdp dugc trao cho Tdng thdng Hop chung quoc Hoa Ky". Nhu
•' '" ThS., Khoa Luat Hanh chinh - Nha nir6c, Tru^g Dai hpc Luat Tp. H6 Chi Mmh.
' Thugfng vien gom hai Thirang nghi si ciia moi bang (kh6ng phan bi6t dSn so, dien tich cua bang do) va Ha vien gom c^c Ha nghi sT dai dien cho cac bang theo ti le dan s6 ciia bang do va dam bao m6i tiSu bang luon dugtc co it nhat m^t Ha nghi sT.
^ Ci Hoa Ky, mot dv luat cSn phai dugc thong qua a ca hai vien.
vay, Tdng thdng la ngudi nam giu quyen hanh phdp. Mac du, HiSn phdp Hoa Ky khdng quy dinh viec thdnh lap ede Bd, Noi cac cua Chinh phu, nhung tren thuc te, de dam bao viec thuc hien quyen hanh phap, cdc Bd, dung ddu Id Bo trudng van ducfc hinh thdnh, ddng vai trd cd vdn cho Tdng thdng. Tuy nhien, ngudi quyit dinh cudi cimg vdn la Tdng thdng. Do dd, khi ndi den CO quan hdnh phdp d Hoa Ky, ngudi ta chu y6u tap trung vdo ehiic danh Tdng thdng.
Vdi viec dp dung "triet de" nguyen tac phdn quyen, lap phdp vd hanh phdp d Hoa Ky cd su dpc lap nhdt dinh vdi nhau ve cdch thdc hinh thanh, ca cdu td chdc va boat dpng, lam nin tdng cho viec kiem sodt giua hai nhanh quyen luc nay. Theo dd, su doe Idp nay duac the hien nhu sau:
Thii- nhdt, vh each thdc hinh thdnh, Qude hpi va Tdng thdng Hoa Ky dku do nhan ddn bdu. Khac vdi cae nude theo chi dp dai nghi, Tdng thdng Hoa Ky khdng dupe hinh thanh tren ca sd cua lap phdp, ma do ngudi ddn bdu. Theo do, Tdng thdng chi chiu trdch nhiem trudc nhan dan, khdng
NHANUdC VA PHAPLUATSO 3/2020
chiu trdch nhiem trudc Qude hdi. Ndi cdch khdc, ca Qude hdi vd Tdng thdng Hoa Ky deu ehi chiu trdch nhiem trude nhdn ddn.
Nhu vay, cdch thuc hinh thanh la mdt trong nhimg nguyen nhan tao nen tmh doc Idp cda Tdng thdng Hoa Ky so vdi Qude hdi, hmh thdnh CO sd cho su kilm sodt qua lai Idn nhau giiia hai nhdnh quyin luc ndy.
Thu hai, ve nhdn su, doan 2 khodn 6 Dilu I Hien phdp Hoa Ky quy dinh: "'Trong thai gian dugc bau lam Thugng nghi si hogc Hg nghi si, khong mot ai dugc bd nhiem vdo mpt chuc vu ddn su trong chinh quyen Hoa Ky md chuc vu dd dugc thdnh lap sau ndy hogc ed sd luang bdng dugc gia tdng trong ciing nhiem ky. Vd khdng mpt ngudi ndo dang giu mdt chuc vu trong chinh quyen Hgp chung qude dugc trd thdnh nghi sT trong thai gian edn tgi chicc".
Nhu vay, nghi sT trong Qude hdi Hoa Ky - bao gdm cd Thuang nghi sT vd Ha nghi sT ~ deu khdng dupfc ddng thdi Id ngudi 1dm viec trong ca quan hanh phap. Quy dinh nay the hien su tdeh bach nhdn su giiia lap phdp vd hdnh phdp. Day Id yen td rat quan trong trong viec tao ra su ddc lap giira lap phdp vd hdnh phdp d Hoa Ky, ddng thdi Id ti8n de ddm bao su khach quan trong boat dpng kiem soat giiia hai nhdnh quyen lyc.
Tren ea sd sy dpc lap ndy, lap phdp va hdnh phap su dung rdt nhieu phuang thuc 6k kilm sodt lan nhau, tu nhiing phuang thuc ehinh thdc, true tiep (phu quyet luat, dilu trdn, thdng qua ngdn sdch, dan bach...) din nhiing phuang thuc tam thdi, gidn tiip (cae cupe dien thoai, cac la thu, cdc cudc tiip xuc ca nhan, nhirng sy nhdn biet khdng chinh thuc thdng qua cac thdng cdo hdi thdo cua cdc liy ban, cdc cudc dieu tran va thdo ludn d nghi vien). Trong bdi vilt nay, chung tdi tap trung tim hiiu, phan tich nhung phuang thdc ca bdn nhdt duac Qude hdi vd
Tdng thdng Hoa Ky su dung dl kiem sodt Idn nhau trong qud trinh thuc hien quyen lyc nha nude, td do dua ra nhiing kinh nghiem tham khdo cho Viet Nam trong giai doan hien nay.
2. Kilm sodt giira lap phdp va hanh phap d Hoa Ky
2.1. Kiem sodt cua lap phdp ddi v&i hdnh phdp of Hoa Ky
Nhu da phdn tich, d Hoa Ky, hdnh phdp khdng duge thdnh lap tren ca sd lap phdp, khdng chiu trdch lihiem trudc l$p phap va eiing khdng bi lap phdp gidi tdn khi khdng cdn su tin nhiem cua lap phdp. Vdi dae tnmg ndy, kiem sodt cua lap phdp ddi vdi hdnh phdp d Hoa Ky cd nhiing khdc biet nhat dinh so vdi cdc nude dai nghi. Theo dd, sy kiem soat cua lap phdp ddi vdi hanh phap d Hoa Ky khdng tdn tai viec bd phieu bdt tin nhiem hay chat vdn de quy ket trdch nhiem. Tuy nhien, dieu nay khdng 1dm
"ngheo nan hda" su Idem sodt eua lap phdp ddi vdi hanh phdp. Tren thyc tl, lap phdp van su dung rdt nhieu phuang thiie de kiem soat hanh phdp. Cu the nhu sau:
2.1.1. Kiem sodt cua lap phdp ddi vdi hdnh phdp thdng qua quyen phdn bd ngdn sdch
Theo nhieu nha nghien eiiu, n6u vai trd cua lap phdp ddi vdi hdnh phdp trong ITnh vyc ngdn sdch d cdc nude dai nghi mang tinh chdt hdu ki6m thi vai trd ndy cda lap phdp trong chirih the cpng hda tdng thdng la tiln kilm^ Theo do, khoan 9 Dilu I Hiin phdp Hoa Ky quy dinh: "Khdng mdt khodn tien ndo dugc phep rut ra tie ngdn khd, md phdi la kit qud cua nhimg ke hogeh phdn bd dugc phdp ludt quy dinh". Su kilm sodt eua
^ D6 Minh Khoi, Uy ban lam thai - nhimg vdn di ly thuyit vd thuc tiin. Tap chi Nghien ciiu lap phdp. s6 17 (249), 201? *^ "^^
KIEMSOAT GIUA LAPPHAP..
lap phdp thd hi§n qua ehu trinh ngan sdch nhd nude d Hoa Ky. Theo dd, ehu trinh ngdn sdch Lien bang Hoa Ky bao gdm ba budc ca bdn: Lap va thdng qua du todn ngdn sdch nha nude, chap hanh ngdn sdch nhd nude, kiem toan vd bao cdo ngdn sdch nhd nude'*.
Budc I: Lap vd thdng qua du todn ngdn sdch nhd nude
Budc nay gdm hai giai doan: Giai doan thd nhdt, hdnh phdp xdy dung va de trinh dy todn ngdn sdch nhd nude len hai vien cua Qude hdi trong khoang 10 thdng^. Ban dy toan ndy duac trinh bdy theo tung chuang trinh, tung Bp, ngudn vdn vd khodn chi, kem theo ban thuyet minh chi tilt din tung hang muc chi cu the. Ngoai ra, thuyet minh du todn cdn kem theo ke hoach cung cdp hang hda, dich vu cdng cpng (sd lugng, muc do cung cap, ddi tugng thu hudng...)^. Sau khi dy toan dugc xay dung, Tdng thdng se trinh dy todn len hai vien. Giai doan thu hai, Thugng vien va Ha vien xem xet va thdng qua du todn ngan sach. Hai vien se cd khodng 08 thdng (tu thang 2 den thdng 9) de xem xet dy toan trudc khi thdng qua^. Cy the, du toan dugc hanh phap trinh len Qude hpi se dugc chia thanh tdng gdi de chuyen den cdc tieu ban cua hai vien. Cdc tieu ban ndy se chdt vdn cae Bp thudc thdm quyen cua minh ve ngdn sach cua Bd do. Ddc biet, Quoc hpi Hoa Ky cd mpt ca quan ngdn sdch rieng (CBO). CBO se thdm tra dy toan cua Tdng thdng bang viee ddi ehieu vdi mpt bdn dy toan dpc lap ma ca quan nay lap ra. Dieu nay giup cho viee thdm tra dugc khdch
'' Nguyen Ngoc Hi6u, Mpt so ddc tnmg ve td chirc ngdn sdch cua Hoa Ky vd Viet Nam, Tap chi Nghien cihi lap phap, s6 20 (300), 2015, tr. 60.
^ Nguyin Nggc Hi^u, tldd, tr. 56.
^ Nguyin Ngoc Hi?u, tldd, tr. 56.
' Nguyen Ngoc Hieu, tldd, tr. 56.
quan, chuyen nghiep, tu dd ddm bdo hieu qud trong viec kiem sodt cua lap phdp ddi vdi hanh phap trong linh vyc ngdn sdeh^
Sau khi dy todn dugc hai vien thdng qua, Tdng thdng ky ban hanh va bdn dy toan ngdn sdch se trd thanh Ludt Ngdn sach Li6n bang cua nam, dugc thi hanh trong nam ngan sdch tiip theo.
Buac 2: Chdp hdnh du todn ngdn sdch nhd nude
Cdc Bg se thu, ehi ngdn sdch tren ca sd cac quy dinh cua Luat Ngdn sdch Lien bang da dugc thdng qua. Viec thu, chi ndy duge kiem sodt tap trung thdng qua Kho bac Lien bang^.
Budc 3: Kiem todn vd ddnh gid ngdn sdch nhd nude
Co quan kiem toan Lien bang (GAO) chiu trach nhiem chinh trong viec kiem todn. Ca quan nay se bdo cao ket qua kiSm todn de Quoc hdi xem xet. Ndi dung kiem todn gdm: Kiem todn tai chinh (ddnh gid viec tuan thu ngan sdch, chinh sdch, dinh mue, tinh hinh tudn thu che dp bdo cdo tai chinh... cua don vi dugc kiem todn) va kiem toan boat dpng (ddnh gid hieu qud chi tieu ngdn sach, phdt hien cac khodn chi khdng hieu qua...)'°.
Qua nhung phan tich tren cd the thdy, su kilm sodt cua lap phap ddi vdi hdnh phdp thdng qua quyen phdn bd ngdn sach the hien rd nhat d budc Idp va thdng qua dy toan ngan saeh. Vdi mdt khodng thdi gian du ddi dl hanh phdp lap dy toan, lap phap tham tra, xem xet dy todn vd vai trd quan trgng cua CBO - ca quan ngdn sach cua Quoc hdi, chdt lugng cua cdc dy toan ngdn sdch dugc thdng qua diu dugc dam bao tdt, tu do ndng
^ Nguyin Ngoc Hieu, tldd, tr. 60.
' Nguyin Ngoc Hieu, tldd, tr. 61.
"^ Nguyen Ngoc Hieu, tldd, tr. 61.
NHA NUCfC VA PHAP LUATS6 3/2020
cao hieu qud kilm sodt cua Qude hdi trong phuang thuc nay.
2.1.2. Kiem sodt cua lap phdp ddi vdi hdnh phdp thdng qua diiu tran
Dilu trdn la hoat dgng dugc tiln hanh tai phien hpp cua Uy ban cua Qude hdi, thudng la cdng khai, dl thu thap thdng tin, y kien ve mpt dy luat, phe chuan mdt chuc danh dupe Tdng thdng gidi thieu hoac de tien hanh dieu tra ve mot vdn de thdi sy nao dd^^ Dieu trdn da dugc dp dung d Qude hdi Hoa Ky ke tu khi Quoc hdi bat dau tdn tai'^
vd dupe ddnh gia la mot phuang thuc quan trpng de lap phap kiem sodt hdnh phap d Hoa Ky. Qude hpi Hoa Ky cd ban 100 Uy ban va tiiu ban. Tat ca ede Uy ban nay deu cd quyin td chdc dieu tran^^. Dieu trdn cd nhieu dang, nhu: Dieu tran lap phdp, dieu trdn phe chuan, dieu trdn dieu tra, dieu trdn thdng bao'''... Trong do, dieu tran phe chudn va dilu trdn dilu tra la phuang thuc hiiu hieu dl lap phdp kiem soat hdnh phap. Cu thi, d Hoa Ky, nhiiu chuc danh do Tdng thdng chi dinh phdi nhdn dugc phe chudn cua Thugng vien. Nhung trudc khi Thugng vien tiln hdnh bd phieu, cdc dng vien phdi
'' Nguyin Biic Lam, Diiu trdn tgi Uy ban: Nghien cieu khd ndng dp dung a Viet Nam (phdn I), Tap chi Nghien cuu lap phap, s6 105, 2007,_tr. 22.
'^ Van phong Qu6c hpi (2010), Biiu trdn tgi cdc Uy ban ciia Nghi vien va khd nang dp dyng a Viet Nam, http ://www. undp.org/content/dam/vietnam/docs/Publ ications/31173_Dieutran-kha_nang_ap_dung_tai_V N.pdf, truy cap ngay 12/06/2018.
'^ Van phong Qu6c hoi (2010), Diiu trdn tgi cdc Uy ban cua Nghi vien vd khd ndng dp dung a Viet Nam, http://www.undp.org/content/dam/vietnam/docs/Publ ications/31173_Dieutran-kha_nang_ap_dung_tai_V N.pdf, truy cap ngay 12/06/2018.
'•* Xem them' Vi sao quan chicc My phdi dieu trdn, https://tuoitre.vn/vi-sao-quan-chuc-my-phai-lien-tuc- dieu-tran-1331460.htm, truy cap ngay 12/06/2018;
va Nguyin Diic Lam, Diiu tran tgi (jyban- Nghien cihi khd ndng dp dung a Viet Nam (phdn 1), Tap chi Nghien ciiu lap phap, so 105, 2007, tr. 22.
nhdn duge su chdp thudn cua cdc Uy ban tuong ung tai Thugng vien thdng qua vi$c dilu trdn trudc Uy ban dd'^ Ddy Id hinh thdc dilu trdn phe chudn. Chdng han, vao nam 2017, trudc khi dugc Thugng viSn bd philu phe chudn'^ Thdm phan Tda an tdi cao Hoa Ky - dng Neil Gorsuch da phdi dilu trdn trudc Uy ban Tu phdp cua Thugng vien'"' Trong phien dilu trdn ndy, dng Gorsuch da phai trd Idi cau hdi cua cdc Thugng nghi si thudc Uy ban Tu phdp ve nhiiu vdn dl. Nhu vay, vdi phuang thuc dilu trdn phe chudn, Thugng vien cd the ddnh gid vl trinh do, ndng luc, phdm chdt eua dng cu vien do Tdng thdng gidi thieu de tiln hanh bd philu phe chudn. Cdn vdi dieu trdn dilu tra, Uy ban cua Ha vien va Thugng vien Hoa Ky cd quyen tien hanh cdc cudc dieu tra ddc lap vdi Cue dieu tra Lien bang Hoa Ky (FBI). Hoat ddng nay nhdm hd trg Qude hdi trong viec thu thap, xdc minh cdc chiing cu lien quan den nhirng sai pham cua hanh phdp. Dong thdi, day ciing la ca hdi dl Qude hdi dat cdu hdi, Idng nghe sy ly giai tu nhiing quan chuc ndy doi vdi sai pham md hp dang bi cdo budc. Vi du, phien dilu trdn vao nam 1973 v6 vu Watergate do Uy ban Thugng vien v8 cdc hoat ddng chiin dich tranh cu Tdng thdng do Thugng nghi sT Sam Ervin cua Bang
'5 Vi sao quan chicc My phdi diiu trdn, https://tuoitre.vii/vi-sao-quan-chuc-my-phai-hen-tuc- dieu-tran-1331460.htm, truy cap ngay 12/06/2018.
'* Theo khoan 2 Dilu 2 HiSn phap Hoa Ky nam 1787 thi: "Theo thoa thudn vd su dongy cua Thupng vien - vai 5H- nhat tri cua 2/3 s6^ Thu(mg_ nghi si co mdt, Tdng thdng co quyen ky ket cdc dieu uac. Vd ciing theo thda thudn, ddng y cua Thugng viin. Tdng thdng se bo nhiem cdc dgisu, cdc cong sie. Idnh su, cdc quan toa cua Toa dn toi cao vd nhung quan chirc khdc cm Hoa Ky".
" Diiu trdn phi chudn thdm phdn Tda toi cao My, https://tuoitre.vn/dieu-tran-phe-chuan-tham-phan-toa -toi-cao-my-1283633.htm, truy c^p ngay 12/06/2018.
KIEM SOAT GlfA LAP PHAP..
North Carolina diing ddu tiln hdnh^^. Sau cudc dieu trdn nay, vdi sy suy gidm niem tin cua ngudi ddn va nguy ca bi ludn tgi, Tdng thdng Richard Nixon da td chiic. Hay gdn ddy nhdt, vdo nam 2017, cyu Gidm ddc Cue dieu tra lien bang (FBI) Jamse Comey'^ vd Bp trudng Bd Tu phdp Hoa Ky Jeff Sessions^" da phai dieu trdn trudc Uy ban Tmh bdo Ha vien Hoa Ky ve nghi an Nga can thiep bau cu Hoa Ky.
Mdt trong nhiing yen td tao nen hieu qua cua cac phien dieu trdn tai Uy ban cua Qude hdi Hoa Ky chinh la tinh cdng khai vd thdnh phan cua nhung phien dieu trdn nay.
Theo do, viec dieu trdn phai dugc td chuc cdng khai, tru trudng hgp cd da sd nghi sT bd phieu tdn thanh yen cdu td chuc dieu trdn kin theo nhung ly do dugc ludt le cua Qude hpi Hoa Ky quy dinh^^. Ngodi ra, bien ban phien dieu trdn cung dugc cong khai de ngudi dan biet vd theo doi. Nhirng bien bdn cua hau het ede phien dieu tran dugc in vd phat hanh rpng rai hoac duge dang tdi tren Internet. Han nua, phan Idn bien ban dieu tran va cac tai lieu khac su dyng trong phien dieu trdn dugc xudt ban sau do sdu thdng den mdt nam. Chi mot sd tai lieu dieu trdn khdng dugc xuat ban rdng rai trong vdng 20
'^ Ngdy 17/05/1973: Bdt dau phien diiu trdn vu Watergate, http;//nghiencuuquocte.org/2017/05/17/
bat-dau-phien-dieu-tran-vu-watergate/, truy cap ngay 12/06/2018.
'^ Giam doc FBI tdi Quoc hoi dieu tran, htQ]s://tuoi tre.vn/giam-doc-fbi-toi-quoc-hoi-dieu-tran-1283477.
htm, truy cap ngay 12/06/2018.
^^ B6 truong Tu phap My dieu tran truac Quoc hoi, https://tuoitre.vn/bo-truong-tu-phap-my-dieu-tran-tru oc-quoc-hoi-1331289.htm, truy cap ngay 12/06/2018.
^' Van phong Quoc hoi (2010), Diiu Iran tai cdc Vy ban ciia Nghi viin vd khd ndng dp dung a Viet Nam, http ://www.undp. org/content/dam/vietnam/docs/Publ ications/31173_Dieutran-kha_nang_ap_dung_tai_V N.pdf, truy cap ngay 12/06/2018
den 30 nam^^. Ben canh do, thdnh phdn tham dy cac phien dieu trdn mang tinh
"md", tuc la bat ky ai lien quan din ndi dung phien dieu tran diu cd thi dugc mdi tham dy. Hg cd the Id nhirng quan chuc hdnh phdp, cac chuyen gia, chu doanh nghiep, giang vien, luat su hay thdm phdn.
Gan ddy, Quoc hpi Hoa Ky cung da thu nghiem phuang thuc dieu tran tu xa qua hpi nghi truyen hinh, cd nghia la ngudi lam chiing CO the gidi trinh cac van de can trinh bay trudc mpt Uy ban tir mdt nai khdc qua phuang tien nay^^. Tmh chdt cdng khai cung vdi sy da dang ve thdnh phdn tham du cac phien dieu trdn Id ea sd de cdc Uy ban cua Qude hdi tiep cdn nhdng thdng tin ve sai pham cua cdc quan chuc hanh phap theo hudng da chieu, thuc te han.
2.1.3. Kiim sodt cua lap phdp ddi v&i hdnh phdp thong qua thu tuc ddn hgch
Viee tien hanh thu tuc dan hach la dac quyen cua Quoc hdi Hoa Ky. Ndi cdch khdc, Qude hpi la ca quan duy nhdt cd quyen ddn bach Tdng thdng, Phd Tdng thdng vd cae quan chdc nha nude cua Hoa Ky.
v l can cii tien hanh ddn hach, theo khoan 4 Dilu II Hien phdp Hoa Ky, Tdng thdng, Phd Tdng thdng vd cac quan chuc nhd nude cua Hoa Ky se bi each chuc theo kit qua cua cudc ddn hach hoac ket dn vdi cdc tdi danh phan bdi td qude, nhdn hdi Id hoac nhung tdi nghiem trgng khac. Nhu vay, can cd dl Qude hgi tien hanh mdt cudc dan hach la tdi danh phdn bdi to qude, nhdn hdi Id vd nhung tpi pham nghiem trgng khdc.
v l thu tuc, ddn hach dugc tien hanh theo hai budc:
^^ Nguyin Due Lam, Diiu trdn tgi Uy ban: Nghien ciru khd ndng dp dung a Viet Nam (phdn I), Tap chi Nghien cixu lap phap, s6 105, 2007, tr. 25.
^^ Nguyin Diic Lam, tldd, tr. 25
NHA NUdc vA PHAPLUATSO 3/2020 Buac 1: Budc tdi d Ha vien. Ha vien la ca quan duy nhdt cd quyin soan thao va thdng qua (bdng biiu quyit da sd) cae bdn budc tdi. Trong do, ban bupc tdi chi ra viee Tdng thdng hoac nhan vien hdnh phdp cd vi pham mdt trong sd cdc tpi tren. NIU ban huge tdi khdng dugc thdng qua thi viec dan hach se chdm dut. Ngugc lai, niu bdn bupc tdi nay duge da sd thdnh vien Ha vien thdng qua thi se dugc chuyen din Thugng vien dl xet xu.
Budc 2: Xet xu d Thugng vien. Thugng vien la ca quan duy nhdt dua ra phdn xet cudi cung. Theo khodn 3 Dieu I Hiin phdp Hoa Ky, trudng hgp xet xu Tdng thdng, chu tga phien tda se Id Chdnh an Tda an tdi cao cua Hoa Ky. Quy dinh ndy nham dam bdo tinh khdch quan trong qud trinh xet xu. Bdi le, thea doan 4 khodn 3 Dieu I Hien phap, Phd Tdng thdng Hoa Ky Id Chu tich Thugng vien va la ngudi ddng ddu trong danh sdch k§ vi Tdng thdng. Ndi cdch khdc,
"viec Thugng viin kit tpi Tdng thdng se lam cho Phd Tdng thdng trd thdnh Tdng thdng thay thf^^
Ve hdu qud phdp ly, theo khoan 3 Dieu I Hien phdp Hoa Ky: "Khdng mot ai bi xem Id cd tpi neu khdng cd su ddng y cua hai phdn ba cdc Thugng nghi si cd mat... Mice dn dp dung trong nhimg vu budc tpi ndy khdng vugt qud su cdch chuc vd tudc quyen cita bi cdo dang ddm nhan mdt chicc tudc danh du, cd Igi tiec hodc co Igi Idc trong chinh quyin Hgp chung qude Hoa Ky, tuy vay hp vdn cd the bi truy td, xet xu, kit dn vd trimg phgt theo ludt dinh". Quy dinh nay cd nghia la, mdt ngudi hi dan hach chi bi kit tgi khi cd su ddng y cua hai phdn ba
Thugng nghi sT cd mat. Tuy nhien, cdn lini y rang, viec ddn hach cua lap phap ddi vai hdnh phdp chi dinh doat xem ngudi bi dan hach cd pham tdi hay khdng. Trong trudng hgp ngudi ndy pham tdi thi se bi cdch chdc.
Sau dd, tda dn cua nganh tu phdp se dinh doat vl hinh phat ddi vdi ngudi nay nhu mdt vu dn thudng^^. Ndi each khdc, thu tuc dan hach chi dinh doat vl quyen lyc va chuc vu cua ngudi bi dan hach, ehii khdng dinh doat ve tdi sdn vd tinh mang cua ngudi dd.
Mae du ed vai trd quan trpng trong vi^c kiem soat cua lap phdp ddi vdi hdnh phdp d Hoa Ky, nhung ddn hach duge ddnh gid la
"mdt cdng cu thd sa, kho dieu khiin de bdi miin ede quan chiec vi nhimg sai phgm trdm trpng nhdt"^^- Trong lich su Hoa Ky, viec huge tdi thudng duge de nghi dp dung, song chi cd 15 phien xet xd cua Thugng vien tung dien ra vd chi cd bdy cd nhdn (deu la Thdm phan) bi kSt an^^; cdn ba vi Tdng thdng tung liSn quan den thu tyc nay deu khdng bi kSt dn^^. Cy thi, mpt Id, Tdng thdng Andrew Johnson bi Ha vien huge tgi vi pham Dao ludt nhiem ky giii chiic vi dng da cdch chdc mdt vi Bd trudng chien tranh, nhung dng khdng hi Thugng vien ket tgi vi thiiu mdt phieu. Hai Id, nhu da trinh bay, Tdng thing Richard Nixon tu chdc sau khi Uy ban Tu phdp cua Ha vien da bd philu tren mdt sd dieu khodn ludn tdi lien quan din vy be bdi Watergate (tuc la Tdng thdng Nixon da tu chuc sau khi Uy ban Tu phdp cua Ha vien chinh thuc dl nghi luan tdi dng
" Bo Ngoai giao Hoa Ky, Hiin phdp Hgp chung qude Hoa Ky vd chu thich. An phSm ciia Chucmg trmh Thong tin Qu6c tl, Nxb. H6ng Diic, Ha Ngi, 2004, tr. 27.
^^ Alexander Hamilton, James Madison, John Jay, Ludn vi Hiin phdp Hoa Ky, Nguyen Htmg Vugng dich, Nxb. Nhu Nguyen, 1959, tr. 136.
^^ Roger H. Davidson, WaUer J. Oieszek, QuSc hoi vd cdc thdnh vien, Tran Xuan Danh, Tr^n Huong Giang, Minh Long dich, Nxb. Chinh tri qu6c gia, 2002, tr. 32.
^•' Roger H. Davidson, Walter J. Oieszek, tldd, tr. 33.
2^ Roger H. Davidson, Walter J. Oieszek, tldd. tr 31
8
KIEM SO AT GIUA LAP PHAP. ..
vd trudc khi hi Ha vi6n ludn tdi). Ba Id, Tdng thdng Bill Clinton bi Ha vi|n budc tpi khai man va cdn trd cdng ly, nhung cung khdng bi Thugng vien kit tdi.
2.2. Kiim sodt eua hdnh phdp Si vdi lap phdp dHoa Ky
Sy kilm sodt cua hanh phap ddi vdi lap phdp d Hoa Ky dugc th6 hien qua nhieu phuang thdc khdc nhau:
2.2.1. Kiem sodt cua hdnh phdp ddi vdi lap phdp thdng qua quyen phu quyit lugt cua Tdng thdng
Doan 2 khoan 7 Dieu I HiSn phap quy dinh: "Mdi du lugt dd dugc thdng qua tgi Hg vien vd Thugng vien diu phdi de trinh len Tdng thdng Hoa Ky trude khi trd thdnh lugt". Trong vdng 10 ngdy sau khi du ludt dugc de trinh len Tdng thdng, neu ddng y, Tdng thdng se ky cdng bd dy ludt; neu khdng ddng y, Tdng thdng se gui tra du ludt ve cho Thugng vien hoac Ha vien, nai da de trinh kem theo van bdn phdn ddi de yeu cdu Qude hpi xem xet lai. Chi khi cd tren 2/3 sd Nghi si cua mdi vien tdn thdnh thi dy ludt mdi trd thanh luat. Nhu vay, quyen phu quyet eua Tdng thdng cd gia tri bang 1/6 quyen luc bieu quyet thdng qua dy ludt cua Qude hdi, tuc Id tuang duang 89 nghi sT^^
Ben canh do, Hien phap cdn quy dinh, neu Tdng thdng khdng gui tra lai dy ludt trong vdng 10 ngdy (khdng ke chu nhat) thi dy ludt coi nhu dugc thdng qua, tni trudng hgp thdi han ndy khdng bi gidn doan bdi sy ket thue ki hgp eua Qude hdi. Dieu nay cd nghia la, dy luat dugc chuyen din Tdng thdng trong 10 ngdy cudi ki hgp vd bi giCr lai chua ky, khi Qude hdi ngdng hpp thi dy luat bi loai bd vd khdng dugc chuyin sang
xem xet d ki hgp tiip theo. NIU Qude hdi vdn mudn tiep tuc giu nguyen vdn dl trong dy ludt da bi phu quyit thi phai vilt lai dudi dang mdt dy ludt mdi, tuc la bdt ddu lai tir ddu qud trinh lap phap. Ddy dugc coi la quyen phu quyet ngam "phu quyit bd tui"
ma Tdng thdng thudng su dung ben canh quyen phu quyet tuong ddi neu tr^n. Quyin phu quyit ndy edn dp dung vdi cac menh 16nh, nghi quyit va quyit dinh da dugc hai vien thdng qua^**.
Quyen phu quyet la cdch thuc dl Tdng thdng ngan ngua Quoc hgi ban hdnh ludt
"vdi vdng, hdp tap". Ben canh dd, Qude hgi giir quyen lap phdp n6n thudng cd khuynh hudng su dung quyen nay anh hudng den cdc nhdnh quyen lyc cdn lai, dac biet la hdnh phap. Quyen phu quyet eua Tdng thdng nhu mot cdch thuc "ty ve" eua hdnh phap. N8U khdng cd quyen ndy, Tdng thdng se dan dan bi tudc het cac quyen lyc bang cac dao luat hoac bang mpt cudc bieu quyet eua Qude hgi.
Tren thyc te, Tdng thong su dyng quyen phu quyet khd phd bien va thanh cdng. Tinh td nam 1789, khi dng George Washington trd thanh Tdng thdng dau tien cua Hgp chiing qude Hoa Ky cho den nay, da cd 37 ddi Tdng thing su dyng quyen phu quyet tdng cpng 2.574 Idn, trong dd cd 1.509 Idn phu quyit thudng, 1.067 lan phu quyit bd tui, nhung Qude hdi ehi cd 109 Idn vugt qua
^^ Nguyin Anh Hung, Quyen phu quyet d mpt sd qude gia vd ciia Tdng thong Hoa Ky, Tap chi Quan ly nha nu6c, (221), 2014, tr.98.
'" Doan 3 khoan 7 Dilu 1 Hiin phap Hgp chiing quoc Hoa Ky: "Tdt cd cdc minh lenh. nghi quyet hodc biiu quyit cdn su nhdt tri cua Thugng vi^n vd Hg vien (trie truang hgp Nghi viin nghi hpp), deu dugc d? trinh len Tdng thdng Hoa Ky, vd trudc khi cd hieu luc, chung phdi qua su phi chudn cua Tdng thdng.
hodc niu Tdng thing khdng chdp thudn, cdn phdi co su chdp thudn Idn thir hai cua hai viin vai su nhdt tri cua hai phan ba thdnh vien cua mdi vien, theo dung cdc quy chi vd gidi hgn dugc quy dinh cho cdc trucmg hgp vi du ludt".
NHA NUOC VA PHAP LUATSd 3/2020
quyen phu quyit cua Tdng thdng^'. Vi Tdng thdng su dung quyen phu quyet nhieu nhdt la Franklin D. Roosevelt (1933-1945) vdi tdng cpng 635 lan va Qude hdi da vugt qua quyen phu quyet nhieu nhdt la 15 lan vdo thdi ki 1865-1869 khi Andrew Johnson 1dm Tdng thdng^^. Nhin chung, cac du luat bi Tdng thdng phu quyet se khdng the trd thanh luat vi thdng thudng sd ngudi cung ddng vdi Tdng thdng ung hd quan diem cua Tdng thing chiim mdt ty le nhdt dinh trong Qude hpi Hoa Ky. Hai vi Tdng thdng gan ddy nhdt cua Hoa Ky la George Bush va Barack Obama deu cd sd ngudi cung dang chiim tren 40% cac thdnh vien cua mdi vien^^, do do cdc Tdng thdng de ddng dat dugc 1/3 sd nghi sT ling hd va Qude hdi khd ed thi vugt qua quyen phu quyet. Tuy nhien, tren thyc tl, vdn xay ra trudng hgp Quoc hgi vugt qua quyin phu quyet cua Tdng thdng vd du luat da trd thdnh luat. Dan cu cho trudng hgp nay la viec Qude hdi Hoa Ky bd philu chdng lai quyet djnh phu quyet cua Tdng thdng Barack Obama ddi vdi dy ludt
"Cdng ly chdng tdi trg khung bd". Du ludt ndy vdn dugc dua ra de md dudng cho gia dinh cac nan nhdn cua vu tdn cdng khung bd ngay 11/9/2001 khdi kien Chmh phu A Rap X6 Ut tai cac Tda dn Hoa Ky. Tai Ha vien, cd 348 Ha nghi sT bd philu chdng trong khi chi cd 77 philu ung hg dng Obama. Thupng vien ciing cd kit qud dp dao vdi 97 phieu chdng va chi 01 philu ddng y vdi Tdng thdng. Kit qua nay vugt xa muc 2/3 sd nghi
^1 https://vmw.senate.gov/reference/Legislation/Veto es/vetoCounts.htm, truy cap ngay 25/6/2017.
" https://wvAV.senate.gov/reference/Legislation/Vet oes/vetoCounts.htm, truy cap ngay 25/6/2017.
" http://www.presidency.ucsb.edu/data/vetoes.php, truy cap ngay 25/6/2017.
sT eua moi vien dl bde bd quyet dinh phu quyet dy ludt cua dng Obama-''*-
2.2.2. Kiim sodt eua hdnh phdp ddi vdi lap phdp thong qua quyen trieu tap ky nop cua Quoc hdi
Khodn 3 Dilu II Hiin phdp quy dinh:
"Trong trudng hgp cdn thiit. Tdng thdng cd quyin trieu tap hai vien hogc mot trong hai vien". Nhu vay, Tdng thdng co quyen dieu tap ky hgp eua cd Thugng vien va Ha vien hodc rieng timg vien. Tuy nhien, Tdng thing chi cd thi thyc hien quyin nay trong nhiing trudng hgp edn thiit, nhdt la khi eo vdn dl anh hudng din an ninh qude gia.
Gdn ddy nhdt la viec Tdng thing My Donald Trump trieu tap todn bd 100 Thuang nghi sT hpp bdt thudng tai Nha Trdng chilu ngdy 26/4/2017 (gid dia phuong) dl thao ludn ve Trilu Tien trong bdi canh cac chuang trinh ten Ida vd hat nhdn cua Binh Nhuang ngdy cdng tang eao.
Ngodi ra, "trong trudng hgp bdt ddng giiea hai vien ve thdi gian hodn hpp, Tdng thdng se quyit dinh vi thdi gian cupe hpp se hoan din bao gid md Tdng thdng cho Id thich hgp" (Khodn 3 Dilu II Hiin phdp).
2.2.3. Su kiim sodt cua hdnh phdp ddi vdi lap phdp thdng qua viec ban hdnh van bdn quy phgm phdp lugt
Cdc dao luat dugc Quoc hpi ban hanh cdn thiit phai dugc cu the hod de di vao thyc thi. Hdnh phdp, thdng qua hoat ddng cua Tdng thdng ban hanh cdc loai van bdn DJIU lenh thda hdnh, quy tac, quy chi, kl hoach cdi td... dl triin khai, thyc thi cdc dao luat cua Quoc hpi. Trong dd, lenh thua hanh la van ban ddng vai trd chinh. Cac van bdn nay Id van ban dudi ludt, nhung tren
''' http://thanhnien.vn/the-gioi/quoc-hoi-my-lan-dau- vo-hieu-hoa-quyen-phu-quyet-cua-tong-thong-obam a-749582 html, truy cap ngay 23/6/2017.
10
KIEMSOAT GIUA LAPPHAP..
thuc te chung ngay cdng chiem uu the ban so vdi ede luat do Qude hdi ban hdnh.
2.2.4. Sir kiim sodt cua hdnh phdp ddi vai lap phdp thdng qua viec Chu tich Thugng vien ddng thdi Id Phd Tdng thdng
Theo doan 4 khodn 3 Dilu I Hien phdp Hoa Ky thi Chu tich Thugng vien Id Phd Tdng thdng Hoa Ky, khdng cd quyen bd phieu tru trudng hgp sd philu ngang nhau khi bieu quyet. Nhu vay, nhanh hdnh phap cd the thdng qua vai trd Chu tich Thugng vien cua Phd Tdng thdng de tdc ddng tdi boat ddng lap phap cda Quoc hdi, dac biSt trong trudng hgp sd phieu cua cdc Thugng nghi si bang nhau thi la phieu cua Phd Tdng thdng cd y nghia quySt dinh. Dan cu cho quy dinh ndy Id vdo nam 1789, Phd Tdng thdng John Adams bd Id phieu quyet dinh Tong thdng cd the cdch chuc cdc thanh vien Npi cac md khdng edn sy phe chudn cua Thugng vien^^.
3. Kinh nghifm tham khao cho Vift Nam
Tu nhiing phdn tich tren, chiing tdi rut ra mdt sd kinh nghiem tham khao sau cd the dp dyng de hoan thiSn quy dinh phdp ludt ve kiem sodt giua Idp phdp vd hanh phdp d Viet Nam:
Thu nhdt, kiem sodt cua lap phdp ddi vdi hdnh phdp thdng qua quyen phdn bd ngdn sdch. Nhu da phdn tich, d Hoa Ky, hdnh phdp cd khodng 10 thang de lap dy todn ngdn sdch vd Idp phdp cd khoang 08 thdng dl thdng qua dy toan. Khoang thdi gian nay se giup bd mdy cua Tdng thdng cd du thdi gian dl chudn bi dy todn ngdn saeh, ddm bdo chdt lupng ban dy todn ciing nhu
giiip Qude hdi Hoa Ky cd dilu kien xem xet, thdm tra vd dua ra quyit dinh phe chudn.
Ddng thdi, dy todn dugc trinh len hai vien ciing rdt ehi tilt va dugc kem theo cac ban thuyet minh cu thg. Trong khi do, d nude ta, theo Dieu 44 Ludt Ngdn saeh nha nude nam 2015 thi dy todn ngdn sdch dugc chudn bi trong khoang 04 thdng (tu thdng 5 din thdng 9), Uy ban Thudng vu Qude hdi cd khodng 01 thang de xem xet, cho y kiln va Qude hpi cd khodng 01 thang dl xem xet, thdng qua tai ky hgp cudi ndm (thdng qua trudc 15/11 hang nam)^^. Nhu vay, trong dilu kien thdi gian lap va thdng qua dy todn ngdn nhu tren, kha nang dam bao chat lugng va mue do ehi tiet cua du toan cung nhu dilu kien dl thdm tra va xem xet toan dien ddi vdi dy todn la mpt "bdi todn khd". Ddy Id vdn de cdc nha lap phdp cdn can nhac de thiet ke lai thdi gian cho viec lap va thdng qua dy todn ngan sdch ciing nhu miic do chi tigt cua ede dy todn ngdn sdch.
Thu hai, kiim sodt cua lap phdp ddi vdi hdnh phdp thdng qua dieu trdn. Nhu da phan tich, dieu trdn ddng vai tro quan trpng trong kiem soat cua lap phdp ddi vdi hdnh phdp d Hoa Ky. Ddy la each thuc hiiu hieu de lap phap thu thdp thdng tin, hinh thanh ca sd ddnh gid cdc sai pham cua hdnh phdp, giup "xoa diu" tinh hinh cang thdng trong ddi sdng chinh tri ciing nhu tang tinh minh bach trong boat ddng cua Quoc hdi, Tdng thdng. Q nude ta hien nay, mac du phdp ludt khdng quy dinh ve dieu trdn, nhung mpt hoat dpng tuang ty dieu trdn cung da dupe ghi nhan va da diin ra tren thyc tl. Do chinh Id cac phien giai trinh trudc Hdi ddng ddn tpc, Uy ban cua Quoc hpi. Din nay,
^^ B6 Ngoai giao Hoa Ky, Hien phdp Hgp chung quSc Hoa Ky vd chu thich. An pham cua Chuong trinh Th6ng tin qu6c tl, Nxb. H6ng Diic, Ha Ngi, 2004, tr.26.
'^ Nguyin Nggc Hi^u, Mot so ddc trung ve td chicc ngdn sdch cua Hoa Ky va Viet Nam, Tap chi Nghien cmi lap phap, s6 20 (300), 2015, tr 56.
11
NHA NUdc VA PHAPLUATSd 3/2020 nhieu phien gidi trinh da dugc tien hanh vdi cac chu de duge cu tri quan tdm, nhu: Quan ly gid thude^', viee thuc hien chinh sach hd trg ve nha d ddi vdi ngudi cd cdng vdi cdch mang^^, viec ban hanh vdn bdn quy dinh chi tiet vd hudng dan thi hdnh Ludt, Phdp lenh^^, ve thyc trang vi pham hdnh ehinh va cac gidi phdp khac phye trong linh vyc giao thdng, van tdi dudng bd''*'... Tuy nhien, quy dinh ve trinh ty, thu tyc tien hdnh cdc phien gidi trinh vdn cdn rat it, chua cd tinh he thdng vd thyc te thyc hien cac phien gidi trinh vdn cdn tdn tai nhieu bat cap. Do do, nhung kinh nghiem ve hoat ddng dieu tran d Hoa Ky cdn dugc tham khao de hoan thien phap ludt v6 cdc phien giai trinh d nude ta hien nay. Theo dd, nhiing kinh nghiem tham khdo sau cd the dugc nghien ciiu va tiep thu: Mdt Id, ve thdi gian tien hanh, d nude ta, cdc phien gidi trinh dugc dien ra trong thdi gian khd ngan. Chang ban, phien gidi
^' Philn giai trinh nay dugc Uy ban ve cac van de xa hgi tiln hanh vao thang 10/2010. Xem thgm: tly ban Ve cdc vdn di xa hpi nghe gidi trinh qudn ly nhd nuac vi gid thudc, http://quochoi.vn/tintuc/pages/tin- hoat-dong-cua-quoc-hoi.aspx''ItemID^3898, truy cap ngay 14/06/2018.
^^ Phien giai trinh nay dugc Uy ban ve cac van dS xa hpi tiln hanh vao thang 10/2016. Xem them: Phien hpp gidi trinh viec thuc hien chinh sdch ho trg ve nhd d doi vai ngudi co cong voi cdch mang cua Uy ban vi cdc vdn de xa hpi ngdy 19/10/2016, http ://quochoi .vn/tintuc/Pages/phiengiaitrinh. aspx?It emID=32166, truy cap ngay 14/06/2018.
^' Phien giai trinh nay dugc Uy ban Phap luat tien hanh vao thang 12/2012. Xem them: Phiin gidi trinh cua Uy ban Phdp lugt vi viec ban hdnh vdn bdn quy dinh chi Hit vd huang dan thi hdnh Lugt, Phdp lenh, http://quochoi.vn/tintuc/Pages/phiengiaitrinh.aspx7It emlD=27999, truy cap ngay 14-/06/2018.
''"' Phien giai trinh nay dugc Uy ban Phap luat tien hanh vao thang 04/2012. Xem them: Phien gidi trinh cua Uy ban Phdp lugt vk_ thuc trgng vi phgm hdnh chinh vd cdc gidi phdp khdcphgc trong linh vuc giao thdng vdn tdi dudng bp, http://quochoi.vn/tintuc/
Pages/phiengiaitrinh.aspx?ItemID=27998, truy cap n g i y 14/06/2018.
trinh eua Uy ban Phdp ludt vl thye trang vi pham hdnh chinh vd cac gidi phdp khac phyc trong ITnh vuc giao thdng, van tdi dudng bd chi diin ra trong mdt ngay (ngdy 24/4/2012)'", phien gidi trinh cua Uy ban Phap luat vl viee ban hanh van ban quy dinh ehi tilt vd hudng ddn thi haiJi Ludt, Phap lenh chi diin ra trong mdt budi (budi sang ngdy 24/12/2012). Vdi nhimg cM dl phuc tap nhu tren thi thdi gian mdt budi hay mpt ngay cdn Id khd ngdn dk Qude hdi cd thi Idng nghe, tim hiiu thdng tin cung nhu xem xet dugc nguyen nhdn va dua ra gidi phdp cho vdn dl giai trinh. Trong khi do, d Hoa Ky, nhiing phien dieu tran ve nhung vdn dl phuc tap thudng dien ra trong thdi gian ddi. Chdng ban, phien dieu trdn ddi vdi Ngoai trudng Hillary Clinton vao nam 2015 (vl vu tdn cdng lanh sy qudn My d Benghazi nam 2012 khiln 4 ngudi My thi^t mang) da keo dai 11 tilng tu sdng den d8m.
Hay phien dilu trdn ph8 chudn dng Neil Gorsuch vdo vi tri Thdm phdn Tda an tdi cao Hoa Ky diin ra trong vdng 3 ngay tai Thuong vien My''^. Do do, ddi vdi nhung vdn dl phuc tap, thiet nghi, phdp luat nude ta nen quy dinh thdi gian gidi trinh dugc keo ddi tu hai den ba ngdy. Hai la, vB thanh phan tham dy cdc phien gidi trinh. Theo Dilu 43 Luat Hoat dgng gidm sdt cua Quoc hgi va Hdi ddng nhan dan nam 2015, ngodi cac chuc danh trong bp mdy nhd nude, thdnh phdn cua phien giai trinh cdn bao gdm
•" Phien giai trinh nay dugc Uy ban Phap luat tiln hanh vao thang 04/2012. Xem them: Phien gidi trinh cua Uy ban Phdp ludt vi thuc trgng vi phgm hdnh chinh vd cdc gidi phdp khdc phuc trong iTnh virc giao thong van tdi dudng bo, http://quochoi vn/tintuc/
Pages/phiengiaitrinh.aspx?ItemID=27998, truy cap ngay 14/06/2018.
^^ Diiu trdn phe chudn thdm phdn Tda tdi cao My https://tuoitre.vn/dieu-tran-phe-chuan-tham-phan-toa -toi-cao-my-1283633.htm, truy cap ngay 12/06/2018.
12
KIEM SOAT GICA LAP PHAP..
cd nhdn cd lien quan"-*. Tuy nhien, tren thyc t6, thdnh phdn cua mot sd phiSn gidi trinh chu yiu Id dai dien cdc Bd, ngdnh, cdc cd nhdn cd li^n quan lai khdng duge mdi tham du. Dien hinh Id, tai phien gidi trinh ve gia thudc do Uy ban ve Cdc van de xa hdi td chuc vao thang 10/2010, nhiiu ca nhdn, td chiic quan trpng, lien quan nhung khdng dugc mdi den cung cdp thdng tin nhu: lanh dao cae b?nh vien, cac bde sy, dugc sy, cdc nhd nhdp khau thudc, cdc nhd sdn xudt thudc d Viet Nam (ke cd mpt sd hang duge nude ngodi), ngudi tiSu dung*"... Trong khi do, y kien cua nhirng chu th§ ndy cd thi giup Uy ban cd th6m nhieu thdng tin da didn. Mac du ve mat phdp ly, nude ta da ed nhdng quy dinh tien bd nhu phdp ludt Hoa Ky ve thdnh phdn "md" cua cdc phien dieu trdn. Tuy nhien, ve mat thyc te, ede Uy ban cdn cd sy chudn bi chu ddo hon trong viec mdi cdc thdnh phdn la ed nhdn lien quan tham dy cdc phien gidi trinh.
Thu ba, kiem sodt cua hdnh phap ddi vdi lap phdp thdng qua quyen phii quyet ludt. Nhu da phdn tich, quyen phu quyet la mdt phuang thuc quan trgng va hieu qud de Tdng thdng kiem sodt boat dpng lap phap eua Qude hdi Hoa Ky. Tuy nhien, d Viet Nam, Hien phdp lai chua trao quyen phu quyet luat cho Chu tich nude. Dieu nay xuat
''^ Khoan 1 Dieu 43 Luat Hoat dgng giam sat cua Qu6c hgi va H6i dong nhan dan nam 2015 quy djnh:
"Cdn cu vdo chuang trinh gidm sdt. Hdi dong ddn tpc, Uy ban cua Qude hpi yeu cdu thdnh viin Chinh phti. Chdnh dn Toa dn nhdn ddn tdi cao, Vien trudng Vi^n kiim sdt nhdn ddn toi cao, Tdng Kiem todn nhd nude gidi trinh vd cd nhdn co lien quan tham gia gidi trinh vdn de thudc iTnh vuc Hgi ddng ddn t^c, iiy ban cua Qude hgi phu trdch".
*• Van phong Qu6c hgi (2010), Diiu tran tgi cdc Uy ban cua Nghi vien vd khd ndng dp dung a Viit Nam, http://www.undp.org/content/daTn/vietnam/docs/Publ ications/31173_Dieutran-kha_nang_ap_dung_tai_V N.pdf, truy cap ngay 12/06/2018.
phdt tu nhiing ly do sau: Mdt Id, nguyen tdc td chuc vd boat ddng eua bd may nhd nude.
Mae du Hiin phdp ndm 2013 khdng cd dilu khoan nao quy dinh mot each minh thi ring bd mdy nha nude cua nude ta dupe td chdc vd boat dpng theo nguyen tde tap quyin xa hdi chu nghia. Tuy nhien, theo Hiin phap nam 2013, quyin lye nhd nude la thdng nhdt (Dieu 2), Qude hdi la ca quan quyin lye nha nude cao nhdt (Dilu 69), Chinh phu la ca quan chdp hanh ciia Qude hpi (Dilu 94), Qude hdi cd quyin bdu, miin nhiem, bai nhiem cdc chuc danh quan trpng trong bd may nhd nude: Chii tich nude, Thu tudng Chinh phu, Chdnh dn Tda an nhdn ddn tdi cao... (Dieu 70), ede chuc danh ndy phai chiu trdch nhiem va bao cao cdng tdc trudc Qude hdi (Dieu 87, Dieu 95, Dilu 105). Nhung quy dinh ndy cho thdy rdng, vl ca bdn, bd mdy nhd nude eua nude ta vdn dang td chuc vd hoat dpng theo nguyen tae tap quyen xa hgi ehu nghia. Vdi nguyen tac ndy, Qude hpi la ca quan quyen lye nhd nude cao nhat, Chu tich nude do Qude hgi bdu ra, chiu trdch nhiSra va bao cdo cdng tdc trude Qude hpi nen khdng the ed quyen phu quyet luat cua Qude hdi. Hai Id, theo Dieu 87 Hiin phdp nam 2013, Chu tich nude do Qude hdi bau trong sd dai bieu Quoc hgi (ddng nghTa vdi viec Chu tich nude bat bupc la dai bieu Qude hpi). Vdi quy dinh nay, Chu tich nude da dugc tham gia tryc tiip vdo qua trinh xdy dyng, thdo ludn, bieu quyit thdng qua dy thdo luat. Tuc Id Chu tich nude da cd quyen neu y kiSn khdng tdn thanh ddi vdi dy thdo luat trong qua trinh tren. Do do, ddy cd the Id mot ly do quyen phu quyit luat cua Chu tich nude khdng dugc quy dinh.
Tuy nhien, cdn luu y rdng, trong thdi gian vua qua, chdt lugng cua nhiiu dy dn luat d nude ta da mang tinh "bdo ddng" vd dugc phan dnh bdi chinh cac dai bieu Qude
13
NHA mrac vA PHAPLUATSO 3/2020 hpi d nhieu dien ddn, cdc phuang tien thdng tin dai chung''^.. Thue trang nay ddi hdi phai cd ca che hiiu hi^u de kilm sodt viec thyc hien quyen lap phdp cua Qude hdi.
Mot trong nhiing each thiic kilm sodt do la xay dyng quy dinh vl quyen phu quyit cua Chu tich nude ddi vdi cdc dao ludt cua Qude hdi. Quyen phu quySt cd thi dugc chia thanh bdn loai sau: Phu quyit tuyet ddi, phu quyet tuang ddi, phu quyit bd tui va phu quyet mdt phdn'*^. Tuy nhien, viec quy dinh Chu tich nude ed quyen phu quyit ndo trong sd bdn loai quyen phu quyit d tren vd ke thua cdc quy dinh ve quyen phu quyit cua Tdng thdng Hoa Ky nhu the nao phdi dua tren dieu kien, hodn cdnh vd nhiing dac trung trong kiem soat quySn lye nhd nude d nude ta hien nay. Cd the thdy, d nhiing qude gia da dang, bd mdy nha nude duge td chuc theo nguyen tac phdn quyen, viec kilm sodt quyin luc nhd nude diin ra rdt manh me, quyit liet. Ddi khi sy kilm soat ndy cdn gdn vdi nhiing thu doan ehinh tri, la hinh thuc
"tdn cdng" Idn nhau giiia ddng cdm quyin va ddng ddi lap"^. Trong khi do, do dac thu cda bp may nhd nude ta nhu da phdn tich, nen ve ca ban, sy kiem sodt quyen lyc nha nude d nude ta mang tinh mim deo, Imh boat ban. Tren ca sd nhiing phdn tich tren, thiet nghi, quyen phu quyet ludt eua Chu tich nude d Viet Nam nen Id quyen phu quyet
tuong ddi. Cy thi nhu sau: "Chu tich nude tu minh hoac theo dl nghi eua Chinh phu, de nghi Qude hdi xem xet lai ludt da dugc Qude hpi thdng qua. NIU ludt dd vdn duge Qude hpi biiu quyit thdng qua thi Chu tich phdi cdng bd". Thyc chdt day la ca chi "hau kilm" trong ho^t ddng Idp phap vd Chu tich nude thue hiSn vdi vai trd la ngudi thay mat cho ddt nude trong ITnh vyc ddi ndi vd ddi ngoai. Quy dinh ndy khdng ehi tao ca chi gidm sdt boat ddng Idp phdp cua Quoc hpi, ma cdn thyc hien dugc chu truang hoan thien che dinh nguyen thu qude gia trong Van kien Dai hdi XI cua Ddng Cdng sdn Viet Nam''^. Ben canh dd, quy dinh ndy se khdng lam xdo trdn thi chi vdi dieu kien khdng quy dinh quyen dung ddu va dieu hanh Chmh phu cho Chu tich nude''*.
Mat khdc, trong ddnh gid cua A. Siaroff vdi cdc quoc gia theo chinh the dai nghi, co 23 qude gia quy dinh quyin phu quyit luat cho tdng thdng vd 18 qude gia khdng quy dinh quyin nay^°. Theo ddnh gia ndy thi da sd cac quoc gia theo chinh thi dai nghi diu quy dinh quyen phu quyet ludt cho nguyen thu qude gia (23/41 qude gia). Do dd, viec quy dinh quyin phu quyit cua Chu tich nude ddi vdi ludt cua Qude hpi d nude ta cung khdng 1dm cho quy dinh ndy qua khdc biet so vdi cdc nude cung chinh thi dai nghi khdc tren the gidi.
*^ Bao Yen, Tdng cuong trdch nhiem trong bdo dam tiin dp vd chdt luang du dn ludt trinh Quoc hpi, http://quochoi.vn/tintuc/pages/tin-hoat-dong-cua-quo c-hoi.aspx?IteniID^40576, truy cap ngay 02/01/2020.
''^ Quyen phii quyet ludt ciia Tdng thdng My: Vu khi quan trpng di kiem che Nghj viin, http://tiasang.
com.vn/-dien-dan/quyen-phu-quyet-luat-cua-tong-th ong-my-vu-khi-quan-trong-de-kiem-che-nghi-vien-6 016, truy cap ngay 03/01/2019.
"^ Nguyin Mai Thuyen (2017), Hogt dpng lay phiiu lin nhiem cua QuSc hpi Viet Nam, T?p chi Khoa hoc xa hgi Viet Nam, 3 6 6 ( 1 1 5 ) , tr. 8.
•** Van kien Dai hgi XI cua Dang Cgng san Viet Nam neu ro: "Nghien ciiu xac dinh ro hon quyin han va trach nhiem cua Chii tich nuac de thyc hien d^y dii chiic nang nguyen thii qu6c gia, thay mat Nha nuoc ve d6i n6i, d6i ngoai va thing ITnh cac lire lugng vii trang; quan h^ giiia Chu tich nuoc voi cac co quan thirc hien quySn lap phap, hanh phap, tu phap".
''^ D6 Minh Khoi (chii bi6n), Chi dinh nguyin thii quoc ^ia trong cdc Hien phdp Viit Nam, Nxb. Chinh tri quoc gia, 2014, tr. 179.
'" Xem; A. Siaroff: Comparative Presidencies: The Inadequacy of the Presidential, Semi_ Presidential and Parliamentary Distinction, Ibid, p. 287-321.
14