MOT SO Y TUONG VE HIEN PHAP NHAN DIP TOAN DAN THAO LUAN, GOP Y KIEN CAC VAN KlfN TRINH
DAI HOI DANG LAN THU XI
Dan nhap
Gan mgt thap ky cua the ky nay da sap trdi qua. Thdi gian du de nhin lai trong gan 10 nam qua, Hien phap Viet Nam cd nhflng bude tien trien nhu the nao va ggi md cho vien canh cua nd. Dieu nay lai dae biet can thiet khi Dai hgi lan thfl XI ciia Dang Cgng san Viet Nam sap dien ra va kha nang ro rang cua vide sua ddi Hien phap sau do. O Viet Nam, nhung tien trien eiia Hien phap gan ket mat thiet vdi dudng ldi ciia Dang Cgng san, tuang lai eiia ehu nghTa hgp hien d Viet Nam phu thuge khdng nhd vao nhung dinh hudng eiia Dai hgi Dang sap tdi. Bang vide nhin lai gan mgt thap ky dien tien cua Hien phap Viet Nam. bai viet nay ggi md nhung y tudng cho tuang lai eiia nd. cd tinh chat tham khao cho viee thao luan, gdp kien kien xay diing cac van kien trinh Dai hgi Dang lan thu XI.
Thap ky dau tien ciia the ky nay ehung kien nhflng dien tien eua Hien phap d Viet Nam tren ba phuang dien: Tu tirdng hien phap, the che hien phap va quyen lye eua hien phap.
LTu tuong hien phap
Dac diem quan trgng nhat eiia dien bien tu tudng hien phap d Viet Nam trong thdi gian nay la khong cd nhflng thay ddi can ban thye sy mac du da cd nhu cau ve ddi mdi tu tudng hien phap. Dieu nay dugc the hien rd nhat trong cai each hien phap hdi dau thap ky d cam ket ve xay dyng Nha nude phap quyen va phan cdng ba quyen lap phap, hanh phap, va tu phap trong Dieu 2 ciia Hiln phap sfla ddi.
Trudc tien, can ndi ve tu tudng Nha nudc phap quyen. Lien quan din mdi tuang
ThS. Khoa Luat - Dai hgc qu6c gia Ha Ngi
Biii Ngoc Son^
quan gifla quyen lire va luat phap, tu duy ciia nhflng nam ddi mdi la "phap che xa hgi chii nghTa", theo dd luat phap thanh van duge de eao nhu mgt phuang tien ehinh yeu de Nha nudc quan ly xa hgi, mgt dau hieu dang mflng cho thay mgt khuynh hudng doan tuyet vdi loi quan tri dira tren khau du, chi tieu, menh lenh. Tu duy nay can thiet cho viec chuyen ddi tfl mgt nen kinh te tap trung, bao cap sang mgt nen kinh te thi trudng dinh hudng xa hgi ehii nghTa. Bude vao the ky XXI, sau gan 20 nam phat trien nen kinh te thi trudng, va do tae dgng ciia lan sdng toan cau hda. Viet Nam doi dien vdi nhflng thach thfle mdi lien quan den mdi tuang quan giua quyen lye va luat phap. khdng chi xa hgi ma ban than quyen lye cung phai dugc hgp ly hda bang luat phap. Nhu cau hgp ly hda quyen lye bang eac phuang tien phap ly nay sinh tir nhu'ng quan ngai ve nhflng rui ro nhu tham nhung, lam quyen ma kinh te thi trudng va toan cau hda cd the ^ay ra khi quyen lye duge tha long. Chinh dieu nay dan den cam ket manh me ciia Viet Nam ve xay dyng mgt Nha nudc phap quyen. Phai ndi ngay rang xu hudng xay dyng Nha nudc phap quyen d Viet Nam da cd tu the ky trudc, nhirng dau the ky nay nd trd nen manh me hon khi eae nha thao hien quyet dinh dua cam ket ve Nha nudc phap quyen vao chinh van hien phap.
The hien mong mudn dya vao tu tudng Nha nude phap quyen de hgp ly hda quyen lire, cae nha thao hien eho thay mgt dau hieu quan trgng rang tu duy "phap che xa hgi chii nghTa" khdng the thda man tat ca cac vdn de lien quan den quyen lye va luat phap. Tuy nhien. tir khi Dieu 2 ciia Hien phap sira ddi dugc thong qua nam 2001 cho den nay, ngi dung thye sy ciia "Nha nudc phap quydn xa
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hdi chu nghTa" khong duge lam ro. "Nha nudc phap quyin xa hgi ehii nghTa" cd gi khac vdi "phap ehi xa hgi chii nghTa"?
Trong khi nhan manh ring: "Nha nudc phap quyen xa hgi ehii nghTa" quan ly diia tren phap luat. sy khae biet cua nd vdi "phap ehe xa hgi chu nghia" that sy khdng rd rang.
Thye te van hanh quyin luc eCing cho thay sy map md giua "Nha nude phap quyen xa hgi chil nghTa" va "phap che xa hgi chii nghTa". Trong nd lye xay dirng "Nha nude phap quyen xa hgi chii nghTa", thay vi xae lap cac ca che phap ly kiem scat quyen lye.
Viet Nam da ban hanh mgt khdi lugng ldn eac van ban phap luat lien quan ehii yeu den viee quan ly ddi song dan sy. "Nha nude phap quyen xa hgi chii nghTa" gan nhu dugc hieu la ed nhieu luat de quan ly xa hgi. Sy thire nay eho thay. sy khae biet eiia nd vdi
"phap ehe xa hgi ehii nghTa" khong nhieu.
Trong gan mgt thap ky trd lai day, "Nha nudc phap quyen xa hgi chii nghTa" duge nhac den nhieu han "phap ehe xa hgi ehii nghTa", nhung tren thire te "phap ehe xa hgi chil nghia" van la tu duy can ban chi dao viec dieu hanh eong quyen.
Trong eac nen dan ehii phuang Tay, phap quyen va phan quyen la nhung ngudi anh em khdng the tach rdi. 0 Viet Nam, cung vdi viec chii truang xay dyng Nha nudc phap quyen. nhflng dj ung vdi mo hinh chinh quyen theo kieu Montesquieu eung giam di: "chiing ta khdng xay dyng Nha nudc ta theo ly luan ve tam quyen phan lap.
nhung ed tham khao va tiep thu nhan to hgp ly ciia ly luan do"'. "Hat nhan hgp ly" cua hgc thuyet phan quyen duge "tham khao va tiep thu" cd le la sy phan cdng trong lao dgng quyen lye. Dieu nay dan den viec hien phap hda tu tudng phan cdng quyen lye d
ldn sua ddi nam 2001. Dieu nay la mgt dau hieu tich eye cho thay nhflng tu tirdng ve
"tap trung dan chii" hay "tap quyen xa hgi ehu nghTa" khdng hoan toan giai duge cae bai toan hien phap trong mgt Nha nude phap quyen. Tuy nhien, cQng tuang tir nhu sir Id md giua "Nha nudc phap quyen xa hgi chii nghia" va "phap ehe xa hgi chii nghTa", du rang dua vao hien phap ba khai niem "lap phap", "hanh phap", va "tu phap", nhirng
"phan edng quyen lye" khac vdi phan quyen nhu the nao khong duge lam ro ve tu tudnjj va khdng dugc trien khai eu the ve mat the che. Mgt nghien eu'u ly giai rang sir phan cong ranh mach ba quyen "la yeu td nen tang quy djnh rd tham quyen va td chfle cua ca quan lap phap, hanh phap va tu phap, dong thdi la ca sd de xae lap tinh dge lap tuang doi cua moi mgt nhanh quyen lye trong moi quan he tuang tae vdi nhau"'.
Trong bat cu chinh the dan chu hien dai nao td chflc bg may nha nudc theo kieu phan quyen phuong Tay, thi ba quyen lap phap, hanh phap. va tu phap eung duge "quy djnh ro tham quyen va to ehue". "dge lap tuang doi". va "quan he tuang tae vdi nhau". Sy khac biet thye sy gifla "phan edng quyen lye" va "phan ehia quyen lire" la gi?
Cd le vi sy map md giua "nha nudc phap quyen xa hgi chii nghTa" va "phap che xa hgi chu nghTa". giua "phan cong quyen lye" va "phan chia quyen lye" ma TS.
Nguyen Dinh Loe, mgt chuyen gia hang dau ve hien phap. nguyen Bg trudng Bg Tu phap de nghj rang: "de sieu Hien phdp phdi thay doi houc xuc dinh cho ro han chii thuyet cuu chimg tu ve hien phdp. ve quyen liec nhu medv'"\ Bai toan ve "ehii thuyet hien phap"
ma TS. Nguyen Dinh Loe dat ra se phai la ganh nan" eua hang the he hien phap hgc nudc nha . Tuy nhien, trude mat, de lam tien
Dao Duy Tiing. Qua trinh hinh thanh con duong di len chii nghTa xa hgi o Viet Nam, Ha Ngi. Nxb.
Chinh tri qu6c gia, 2004, tr.209. DSn theo: Le Minh Thong, "Nhung yeu cau ciia Nha nuoc phap quyen xa hoi chii nghTa doi voi viec doi moi mo hinh bg may nha nuoc" (2010) Tgp chi Nghien cim lap pliap, s6
16, tr.l0.
" Le Minh Thong. Tai lieu da dan, tr. 10 -11
•' Xem: -'Viec nuoc ma dan khong biit thi khong thi dan chii dugc": http://\v\vw.tuanvietnam.net/2010-09- 02-tranii-paae
Cac the he hgc gia khac nhau ciia Luat Hiin phap a My cung dang loay hoay tim dap an cho "sir khiing
NHA NUdc VA PHAP LUAT SO 10/2010
dl cho nhflng sfla ddi hien phap tiep theo, Dai hgi Dang ldn tdi day can phai xae djnh mgt each rd rang ban quan niem ve "Nha nudc phap quyen xa hgi chfl nghTa" va "phan cdng quyen lye."
Nha nudc phap quyen va phap che xa hgi chfl nghTa la nhung tu duy khae nhau, nhung khdng phai bat kha dung hgp. Tu duy phap che xa hgi chu nghTa van cd the tiep tyc dugc sfl dyng d mgt mfle do nhat djnh trong viec Chinh phfl quan ly xa hgi, nhung tu duy Nha nudc phap quyen can phai thdng trj trong viec Chinh phfl quan ly ban than minh.
Ndi each khac, trong viec xae djnh tu tudng ve Nha nude phap quyen d Viet Nam, can phai minh djnh nhflng quan diem lam ca sd cho viee hgp ly hda ve mat phap ly quyen lye nha nudc. Neu trong gan mgt thap ky qua, Nha nudc da quan tam eung cap luat phap eho xa hgi, trong thdi gian tdi day, Nha nudc se phai quan tam nhieu hon den viee cung cap luat phap cho ban than minh de hgp ly hda cau triic va boat dgn^ cua ban than Nha nude. Sy hgp ly hda quyen lye bao dam rang quyen lye duge xay dyng tren nen tang phap ly va nhflng nen tang nay dugc rflt ra tren ca sd tu duy duy ly, hay tfl nhung ly do ehinh dang ma ly tri eon ngudi quan niem duge. Theo nghTa dd, hgp ly hda quyen lye la phan de cfla lam quyen.
"Phan cdng quyen lye" va "phan chia quyen lye" ve mat tu tfl, ed the chi la nhung ky ty ngdn ngu khac nhau phan anh nhflng thye the gidng nhau. Tuy nhien, di vao thye te, each phan bd quyen lye d Viet Nam ed sy khac biet so vdi cac nen dan chu phan quyen phuang Tay d chd bao luu tinh chdt he edp cfla quyen lye: Qude hgi la djnh ehe quydn
hoang nhan thuc luan" ve hien phap a My, chii yiu lien quan den viec xem xet lai tinh chinh dang cua quyen bao hien cua Toa an toi cao Lien bang. Xem:
Grahma Walker, /^oral Foundations of Constitutional Thought (Princeton, New Jersey: Princeton University Press, 1990); H. Jefferson Powell, Tiie Ivtoral Tradition of American Constitutionalism (Duke University Press,
1993); Robert Lowry Clinton, God and Man in Law:
The Foundations of Anglo-American Constitutionalism (Lawrence, Kansas: University Press of Kansas. 1997).
Iyc nha nudc tdi cao, ed quydn giam sat eac nganh quyin lye cdn lai, trong khi cac nganh quyen lye cdn lai chju trach nhiem, bao cao trirdc Qude hdi va khdng dugc trao quyen kiem tra Qude hdi. Trong mgt chinh the nhu Viet Nam, tinh chdt he cdp quyen lye khd cd the thay ddi, nhung sy phan cdng quyen lye can tiep tyc dugc triln khai. Neu thye sy cd sy phan cdng quyen luc ranh mach, Qude hgi khdng hanh xfl quyen hanh phap va tu phap, Chinh phfl khdng hanh xfl quyen lap phap va tu phap, va tda an khdng hanh xfl quyen lap phap va hanh phap.
2. The che hien phap
The che hien phap trong mgt thap ky qua khdng cd nhieu thay ddi, ve ca ban van la md hinh chinh quyen dugc tao dung tfl dau thdi ky doi mdi, mac dfl cd nhung dieu chinh ve chi tiet. Xu hudng cai each nam 2001 the hien mong mudn cd nhiing ddi mdi ve the chi khi chu truang xay dung Nha nudc phap quyen va phan cdng quyen lye, nhung mong mudn nay khdng trd thanh hien thye khi cac dilu khoan cu the trong hien phap ve ca cau chinli quyen khdng trien khai them va cac luat td chflc, duong nhien, do phu thugc vao Hien phap, khdng the di xa hon. Tuy nhien, dieu thay ddi de nhan thay nhat la viec bd chflc nang kiem sat chung cfla vien kiem sat trong sfla ddi hien phap nam 2001 va su bo sung chflc nang kiem soat van ban cfla Bg Tu phap hai nam sau dd bang mgt Nghj djnh cua Chinh phu. Ngoai ra, viec Qude hgi cd khuynh hudng md rgng cac Uy ban va Chinh phfl cd khuynh hudng thu hep cac Bg the hien nhflng thay ddi mang tich chat ky thuat to chu'c the che han la nhung thay ddi ve the che tren phuong dien hien phap.
Nhflng gi eac nha thao hien dau the ky mong mudn (Nha nudc phap quyen, phan cdng quyen lye) can phai dugc cu the hda trong vide sfla ddi hien phap trong tuang lai.
Lien quan den Nha nude phap quyen, Hien phap can cu the hda tu tudng hgp ly hda quyen lye bang phuang tien phap ly bdi le Hiln phap la cdng cy quan trgng nhdt dl hgp ly hda quyen lye, xay dyng nhflng phan de
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cho kha nang lam quyin. Khi Dilu 2 ciia Hidn phap da chinh thflc cam kit xay dyng Nha nudc phap quydn. cae quy djnh ve td chflc chinh quyen cdn di xa han trong viec rang bugc phap ly ddi vdi quyin lye.
Neu cai each the che hien phap theo hudng dd, xae lap mgt chd do bao hien hieu qua va phu hgp vdi dieu kien Viet Nam se la van de trgng tam tren ban nghi sy cfla cac nha thao hien tuong lai. Tu nam 2005, Van phdng Qude hdi da td ehflc mgt hgi thao kha quy md ve "ca che bao hien"\ Mgt nam sau do. Dang Cgng san Viet Nam trong Dai hdi X chinh thflc dua ra chfl truang: "yidy dung ca che phdn quyet ve nhieng vi phgm Hien phdp trong hogt dgng lap phdp, hdnh phdp vd tu phdp"^. Dieu nay phan anh sy quan tam eua hge thuat ddng thdi kich thich hgc thuat phat trien nhieu hon cae nghien ci'm ve ehe do bao hien va tai phan hien phap. Cac ca sd dao tao luat da td chflc nhieu hgi thao ve chu de nay^.
Cac tap chi khoa hgc chuyen nganh nhu Nghien cieu lap phdp, Nhd nuac vd Phdp ludt, Lugt hgc cung dang tai nhieu nghien efln ve bao hien va tai phan hien phap . Trong xu
Ket qua cua hgi thao dugc phan anh trong: Dang 'Van Chien (chu bien), Ca che Bao hien (Nxb. Tu phap. Ha Ngi, 2005).
Dang Cgng san 'Viet Nam, Van kien Dai hgi Dai bieu toan quoe lan thu X, Nxb. Chinh trj qu6c gia. Ha Noi, 2006, tr.l27.
Co le 'Vien Nha nuoc va Phap luat hoat dgng soi noi nhat ve van de nay voi viec to chiic khoang 7 hgi thao ve tai phan hien phap. Ket qua ciia mgt trong so cac hoi thao da dugc xu§t ban. Xem: GS.TSKH. Dao Tri Uc va PGS.TS. Nguyen Nhu Phat (chii bien), Tai phan hien phap va vdn de xdy dimg mo hinh lai phdp hien phdp & Viet Nam":, Nxb. Cong an nhan dan. Ha Ngi, 2007. Ben canh do. Van phong Qu6c hgi cung co nhieu quan tam den chu de nay. Ngoai hgi thao to chuc a Vinh nam 2005. gin day nhit, nam 2009 tai Tp. H6 Chf Minh, Van phong Qu6c hgi phoi hgp voi JOPSO to chuc mgt Hgi thao qu6c te ve bao hien. Xem: Van Phong Quoe hgi va JOPSO, Ky yeu Hoi ihdo quoe tS ve" Bdo hiin Ha Ngi: Nxb. Thoi dai, 2009.
^ Mgt s6 bai viit tieu biiu: Le Minh Tam, "Bao hiin, CO chi bao hiin va co che bao hien o Viet Nam" Tgp chi Ludt hoc, s6 4 nam 2005, tr.32; Dao Tri Lie, "Tai phan hiin phap va xay dung tai phan hiin phap a Viet Nam", Tgp chi Nhd nuac vd Phdp lugl, S6 10 nam
hudng nay, hgc thuat trong nude da thao luan cae mo hinh bao hien tren the gidi va kha nang ap dyng cho Viet Nam . Cac nghien cflu cho thay khuynh hudng hge thuat flng hg viec thanh lap mgt tda an hien phap d Viet Nam.
Neu Dai hgi Dang XI tiep tue iing hg viee doi mdi ehe do bao hien, eae nha thao hien tuang lai can phai cd cau tra ldi cu the.
Theo hudng Nha nude phap quyen, cac ca che giam sat Chinh phu se can phai dugc tang cudng. Trirdc tien, gan mgt chyc nam nam im trong Hien phap, ca che bd phieu tin nhiem dugc trang bj cho Qude hgi tfl nam 2001 da den lue can phai dugc xem xet lai.
Cd the ed nhung ly do ve van hda hai hda quyen lye anh hudng tfl van hda chinh tri truyen thdng, nhung sy map md cfla Hien phap ve ca ehe bd phieu tin nhiem eung la mgt ly do cho sy khdng boat dgng cfla ca che nay: Bd phieu tin nhiem la mgt ca che tham dd mflc do Qude hgi tin nhiem Chinh phii hay la mgt cdng cu giam sat cfla Qude hdi ddi vdi Chinh phii? Sfla ddi Hien phap trong tuong lai can phai dtit khoat van de nay. Neu theo tinh than ciia Nha nude phap quyen, mgt ca che bd phieu bat tin nhiem (thay vi tin nhiem) ddi vdi Chinh phu (ca ca nhan va tap the) can phai dugc tinh den.
2005, //-.3; Tran Nggc Duong, "Ban ve chuc nang, nhiem vu, quyen han ciia co' quan tai phan hien phap 6 Viet Nam", Tgp chi Nghien cim lap phdp, so 10 nam 2007; Truong Dac Linh, Co che giam sat hien phap theo cac hien phap Viet Nam va van de xay dung tai phan hien phap a nuoc ta Tgp chi Nhd meac vd Phdp ludt, so 1 nam 2007, tr.3; Bill Xuan Due:
"Ban ve mo hinh Bao hien o Viet Nam: tir giam sat boi Quoe hgi chuyen sang tai phan bang Toa an hien phap", Tgp chi Lugt hoc. so 8 nam 2007, tr. 10.
' Van de bao hien o Viet Nam cijng thu hut su quan tam ciia mgt so hgc gia nuoc ngoai nhu Mark Sidel 6 My (Dai hgc Iowa) hay John Gillespie o Uc (Dai hgc Monash). Xem: Mark Sidel, The Consliliilion of
Vietnam (U.S.A and Canada: Hart Publishing, 2009) (phan 9. Enforcing the Constitution: The Debate over 'Constitutional Protection' and a Constitutional Court', pp 183-210); John Gillespie, "Juridification of State Regulation in Vietnam" in John Gillespie and Albert Chen (eds). Legal Reform in China and
Vietnam (New York: Routledge, 2010), p. 87.
NHA NUdc VA PHAP LUAT SO 10/2010
Nha nude phap quyen va phan cdng quyen lye di lien vdi nhau. Dii rang Hien phap cam ket phan cdng quyen lire, cac quy djnh ve Qude hgi, Chinh phii, tda an ehua thye sy the hien tu duy nay, dieu dang mong chd cac nha thao hien tuang lai bd khuyet.
Trudc tien, phan edng quyen lye cd nghTa la Qude hgi khdng nen hanh xfl quyen hanh phap. Quy djnh cua Hien phap hien hanh ve quyen lap phap khong cho thay rd sy phan biet ciia nd vdi quyen hanh phap. Cd hai lan Hien phap cua Viet Nam de cap den khai niem "quyen lap phap". Tai Dieu 2, khi dien giai nguyen tac thdng nhat quyen lye, Hien phap da ghi nhan sy "phan cdng va phdi hgp gifla eac ca quan nha nudc trong viec thye hien cac cpiyen lap phdp, hanh phap, va tu phap". Den Dieu 83, khi xae djnh vj tri phap ly cfla Qude hgi, Hien phap cung quy djnh: "Qude hgi la ca quan duy nhat cd quyen lap hien va Icip phap"". Sau do, Dieu 84 quy djnh ve tham quyen cua Qude hgi, trong do cd tham quyen "Lam ludt vd sica doi lugt'\ Nhu vay, can cfl theo Hien phap, chi cd the hieu quyen lap phap la quydn lam luat va sfla ddi luat.
Nhflng quy pham nay khdng cho phep nhan thflc dugc ban chat cira quyen lap phap. Qude hgi la ca quan duy nhat lap phap cung cd nghTa la Qude hgi la ea quan duy nhat lam luat. Hien phap khdng chi rd \dm ludt Id gi. Neu hieu lam luat la tat ca nhflng hoat dgng de xay dyng nen mgt dao luat thi Qude hgi khdng phai la ca quan duy nhat lam luat, vi mgt nfla edng doan lam luat d Viet Nam (cung nhu d nhieu nudc khac) la soan thao cac dy an luat thugc cdng viec chfl yeu cfla Chinh phu'". Quan niem lap phap tflc la lam luat trong Hien phap phan anh dau an cfla tu duy tap trung quyen lye. Qude hgi lap phap dugc ddng nghTa vdi (^udc hgi lam luat, tflc la mgt Qude hgi cd the dam duang ca nhflng cdng viec thugc cdng doan cfla
Ve van de phan biet giua cong doan Qu6c hgi va cong doan Chinh phii trong quy trinh lap phap, xem:
Nguyen ST Dung, The sie - Mot goc nhin, Nxb. Tri thuc. Ha Ngi, 2007, Chuong II: Chuyen lam luat.
Chinh phfl trong quy trinh xay dyng nen mdt dao luat. Khdng phan cdng, phan nhiem rd rang se lam cho cdng vide khdng hieu qua, cac chfl thd se khdng bidt dau la phan sy chinh ylu cfla minh. Tren thye te, tu duy ddng nhat giua lap phap va lam luat da lam cho Qude hgi ddi khi sa da vao nhung cdn^
viee vdn khdng phai la lap phap, cdn van de thye chat cfla lap phap thi cung cd ddi khi ehua dugc quan tam. Hien tugng "lam van tap the" ma trirdc day nhieu ngudi ndi den thay vi tranh luan ve chinh sach la mgt minh chflng rd net nhat. Nhu vay, nen tiep tuc phan cdng quyen luc, Hien phap can xae djnh thye chat cfla quyen lap phap. Ly luan vl quyen lap phap ndi chung cung nhu thuc tien d Viet Nam eho thay lap phap thye chat la mgt boat ddng thdng qua chinh sach, thdng qua luat tren ca sd thao luan va phe binh ban la mgt boat dgng tao dyng chinh sach hay lam luat. Dieu nay can phai dugc phan anh trong Hien phap.
Viec tiep tuc trien khai tu duy phan cdng quyen lire ve mat the che cflng ddi hdi phai phan cdng ranh mach gifla quyen lap phap ciia Qude hgi va quyen lap quy cua Chinh phfl. Quyen lap phap d Viet Nam khdng cd pham vi cy the. Vdi mgt quy djnh rang:
"Qude hgi quyet djnh nhflng chinh sach co ban ve ddi ngi va doi ngoai, nhiem vy kinh te - xa hdi cfla dat nudc, qude phdng, an ninh cua dat nude, nhung nguyen tac chu yeu ve td chflc va boat dgng cua bg may nha nudc, ve quan he xa hgi va boat dgng cfla cdng dan" (Dieu 83), thi ngudi ta cd the hieu quyen lap phap gan nhu khdng cd gidi ban.
Vdi mgt Qude hgi gdm da sd cac dai bieu kiem nhiem ma quyen lap phap khdng co pham vi cy the thi rat khd cd the dam bao tinh thirc te trong boat ddng cfla Qude hgi.
Mgt Qude hgi vdi nhung quyen lye dugc phan cdng rd rang ddi hdi phai cu the hda nhflng "chinh sach ca ban" nao, nhiing
"nhiem vy kinh te-xa hgi" nao, "nhflng quan he va boat dgng cfla cong dan" nhu thi nao thi thugc pham vi quyen lap phap. Mgt khi quyen lap phap dugc xae djnh, quyin lap quy cfla Chinh phfl cflng cd ca sd rd rang de thuc
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hidn. Ke khai pham vi eiia quyin lap quy la mgt tham vgng bdi sy nang dgng ciia Chinh phu cflng vdi sy biln chuydn khdng ngflng cfla xa hgi khd cd thd eho phep lam dieu nay.
Tuy nhien, khi quydn lap phap da dugc cu the hda, nhflng gi khdng thuge pham vi lap phap cd the thugc pham vi lap quy.
Phan cdng quydn lye cung ddi hdi Quoe hgi se khdng hanh xfl quyen tu phap. Neu vay, cac quydn luc mang tinh chat tu phap cua Qude hgi va Uy ban Thudng vy Quoe hgi nhu giam sat hien phap va giai thich hien phap, luat cung can xem xet lai.
Lien quan den Chinh phu, phan cong quyen lye ddi hdi Chinh phu nen duge eoi la CO quan hanh phap. Mac du tai Dieu 2 cfla Hien phap Viet Nam quy djnh "cd sy phan cdng phdi hgp giua cae ca quan nha nudc trong viec thye hien cac quyen lap phap, hanh phap, va tu phap", nhirng Chinh phu, theo Hien phap Viet Nam lai khdng dugc quy djnh la ca quan hanh phap ma la "ca quan hanh chinh nha nude cao nhat cfla nudc Cgng hoa xa hgi chu nghTa Viet Nam"
(Dieu 109). Hanh phap (executive) va hanh chinh (administration) la nhflng khai niem khac bidt. Khai niem hanh phap dung de chi boat dgng hoach djnh va dieu hanh chinh . sach qude gia. Khai niem hanh ehinh dung de chi- boat dgng chap hanh chinh sach cua cac cdng chfle. Hoat dgng cfla Chinh phii la boat dgng hoach djnh, dieu hanh chinh sach, gan lien vdi vai trd cua cac chinh khaeh - nhflng nha boat dgng chinh trj nhu Thu tudng, cae Bg trudng, chfl khdng phai la nhflng boat dgng chap hanh chinh sach thuan tuy cfla cac cdng chflc. Hien phap can xae dinh lai vj tri cfla Chinh phfl. Chinh phii la ngudi tryc tiep dieu hanh xa hgi. Mudn dieu hanh xa hgi dugc chfl dgng, linh boat, Chinh phfl phai la ngudi cd vai trd hoach djnh va dieu hanh chinh sach qude gia. Trong bdi canh toan cau hoa hien nay, sy thang tram cfla mgt dat nudc phu thugc chfl yeu vao vai trd eua Chinh phfl - ngudi tryc tiep cheo lai con thuyen dat nudc. De Chinh phii cd the dilu banh tdt dat nudc trong bdi canh phat
tridn kinh tl thj trudng va toan can hda, Hien phap can xae djnh vai trd ciia Chinh phu la ca quan hanh phap efla qude gia.
Neu Chinh phfl la ca quan hanh phap, nd can phai cd day dfl nhung quyen hanh phap can thiet, tfl viec hoach djnh chinh saeh qude gia cho den viec truy td tgi pham nhu mgt cong cu de bao dam thi hanh chinh sach.
Dieu nay ddi hdi Hien phap xae djnh vai trd hoach djnh chinh sach cua Chinh phu chfl khdng ehi gian dan la ca quan chap hanlr, thye thi ehinh sach. Ngoai ra, Hien phap eung can xae djnh quyen truy td tgi pham eiia Chinh phu, mgt loai quyen quan trgng trong qua trinh dieu hanh va thye thi chinli sach. Ve mat cau true, mgt vien cdng td thugc Chinh phu thay cho mgt he thdng vien kiem sat dgc lap vdi Chinh phii la mgt giai phap can xem xet. Phan eong quyen lye cung ddi hdi Chinh phu khdng hanh xfl quyen tu phap. Neu Chinh phfl khdng nen hanh xfl quyen tu phap, quyen giam sat van ban efla Thfl tudng Chinh phu, mgt loai quyen mang tinh nghiep vy eua eac tham phan. nen dugc phan cdng cho tda an. Theo dd, cac Tda hanh chinh nen dugc trao quyen giam sat tinh hgp hien, hgp phap cac van ban quy pham phap luat eua eac Bg va chinh quyen dja phuang.
Van de the ehe eudi cung la sy trien khai tu duy phan cdng quyen lye lien quan den tda an. Tda an can phai dugc coi la mgt ca quan tu phap va dugc phan cdng nhflng quyen lye can thiet cua mgt ca quan tu phap hien dai.
Mgt ca quan tu phap trong mgt Nha nudc hien dai khac vdi cac quan tda cfla Nha nude phong kien d cho khdng chi xet xfl cac tgi pham hinh sir va cac tranh chap dan sy. Nd cdn la mgt dinlr che xet xfl nhung vi pham cfla cac ca quan cdng quyen, dugc giai thieh nhung gi nd dugc ap dung de xet xu.
3. Quyen luc cua hien phap
Theo each nhin truyen thdng ciia cac hge gia phuang Tay. "trong nen van hda hien phap xa hgi chu nghTa, Hien phap klidng tdn tai nliu mgt gidi ban ddi vdi Nha nudc, cung klidng phai la mdt ngudn cd y ngliTa doi vdi
NHA NUdc VA PHAP LUAT SO 10/2010
eae quyen ca nhan"". Dieu nay la vi hien phap xa hgi chti nghTa khong phai la mgt van ban cd quyen lye trye tiep ddi vdi xa hgi va Nha nudc. Thay vi la mgt van ban duge ngudi dan vien dan de kiem soat sy lam quyin efla Nha nude, hien phap dugc coi nhu mgt cong cy cua Nha nudc de eung ed quyen lye va djnh hudng xa hgi. Nhung, nhflng gi dien ra ddi vdi Hien phap Viet Nam trong nhung nam gan day cho thay tu duy truyen thdng ndi tren khong cdn hoan toan thich hgp trong viee giai thich vai trd cua cae hien phap xa hgi chu nghTa dang chuyen ddi.
Quyen lye cua hien phap trong xa hgi Viet Nam trong gan mgt thap ky qua cd nhung thay doi rd net va tieh eye. Cach tiep can cdng cu cd the thich hgp de giai thich vai trd cfla Hien phap Viet Nam trong the ky trude; the ky nay can mgt each tiep can khae ban khi Hien phap da dan dan sdng thuc trong ddi sdng xa hgi. Ndi mgt each ngan ggn, Hien phap d Viet Nam da dan dan la mgt "Hien phap sdng." Hien phap da dugc vien dan trong cae thao luan ve chinh sach va da bude dau td ra cd quyen lire thire sy, mac du sy vien dan do khdng phai bdi ea quan tu phap, ma bdi ca quan lap phap va hanh phap.
Trudc tien, nhung nam gan day da chflng kien viec cae nha lap phap dya vao Hien phap de thao luan eae chinh sach ciia Chinh phfl. Ndi each khac, Qude hgi da xem xet eac chinh sach ctia Chinh phu tren phuang dien hgp hien va mgt sd chinh sach da khong dugc trien khai vi nghi ngd tinh chat bat hgp hien cfla nd. Mgt diln hinh cfla dieu nay lien quan den De an thi dilm bd Hgi ddng nhan dan cap huyen va bau trirc tiep Chu tjeh xa. Tai dien dan Qude hgi, tinh chat hgp hien cua De an nay duge dat ra.
Cuoi Cling, viec thi diem bd Hgi dong nhan dan cap huyen dugc chap nhan. Tuy nhien, nhung no lye ap dung dai tra viee bd Hgi ddng nhan dau cap huyen da khong dugc
chap nhan vi ly do khdng phfl hgp vdi Hien phap. Cung can dl cap din dy an Luat Thii do. Trong phien hgp hdi thang 2 nam 2010 cfla Uy ban Thudng vu Qude hgi, tinh chat hgp hiln efla dy an Luat nay da dugc dat ra.
Trudng Ban dan nguyen Trdn The Vugng cho rang Hien phap khdng cd dieu khoan nao ndi rang cd quy djnh rieng cho thfl do .
Nhiet tinh ban, Bg tu phap vdi chflc nang giflp Thfl tudng Chinh phu trong viec thuc thi quyen bao hien, da lien tyc vien dan Hien phap de "tuyt cdi" (nhu each ndi dan da cua bao gidi) cac chinh sach cfla cac Bg va chinh quyen dja phuang. Chi xin dua ra mgt vi du lam dien hinh: Giua thang 8 Bo Tu phap da phan bac de xuat cfla Bg Giao thdng-van tai ve viec cho phep Ha Ngi va Tp. Hd Chi Minh dugc phep tang mflc xfl phat vi pham giao thdng gap ddi do mau thuan vdi Dieu 52 cua Hien phap ve quyen binh dang ctia mgi cdng dan trudc phap luat.
Bg Tu phap giai thich rang: ''Dieu 52 Hien phdp quy dinh, mgi cong ddn deu binh ddng truac phdp lugt. Nguyen ldc binh ddn^ ndy doi hoi ca che dp dung ludt thong nhdt tren todn quoe, trdnh viec eiing mgt hdnh vi vi phgm nhung moi nai lgi bi dp dung quy dinh xic phut khdc nhau'"^^. Hai ngay sau khi Bp Tu phap gfli van ban kien nghj len Van phdng Chinh phfl, Bg Giao thdng-van tai da rflt lai de xuat tren.
Khi chinh sach cam dang ky xe may dugc loai bd, cac quy djnh phap luat ve hg khau duge dieu chinh vi ly do anh hudng den eac quyen ca ban cua cdng dan trong Hien phap nhu ty do di lai, sd hiiu tu nhan, thi kho ed the tiep tuc quan niem rang Hien phap
"khdng la ngudn cd y nghTa ddi vdi cac
Ruti Teitel, -'Post-Communist Constitutionalism: A Transitional Perspective" in Wojciech Sadurski(ed) Constitutional Theory (Aldershot, England:
Ashgate/Daitmouth, 2005), p 168.
'" Du thao Luat Thii do vuong Hiin phap, xem:
http://tuoiti-e.vn/Chinh-tri-Xa-hoi/3635l4/Du-thao- Luat-thu-do-vuong-hien-phap.html. Co thi xem nhung binh luan ve tinh chk hgp hiin ciia du thao nay trong mgt bai viit dang tren Tap chi Nghien ciiu lap phap ciia Van phong Quoe hgi: Nguyin Hoa Nam, "Vi tinh hgp hiin trong Mgt s6 quy dinh cua du an Luat Thii do", http://www.nclp.org.vn/
ban ve du an luat/van-hoa-xa-hoi/ve-tinh-hnp-hjpn- trong-mot-so-quv-11 I inh-cua-du-an-luat-thu-11 lo
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quyen ca nhan". Khi cac chinh sach bj phan bac tren ca sd Hidn phap, thi cflng khd cd the tiep tyc quan niem rdng: "Hiln phap khdng tdn tai nhu mgt gidi ban ddi vdi Nha nudc."
Da den Iflc Hien phap phai dugc xem nhu nhung rang bugc phap Iy eua nhan dan dat len Nha nudc vi lgi ieh chung cua nhan dan.
Tuy nhien, cung khdng nen qua lac quan ve quyen lye efla Hien phap de quen di nhirng viec tiep tyc can lam. Trong khi Viet Nam chua cd ca che ap dyng Hien phap bang con dudng tu phap (va viec ap dung hien phap khdng nhat thiet phai bang con dudng tu phap), nhflng ca che khac nhau, nhirng con dudng khac nhau can phai duge khai thac de lam thugng tdn hien phap. Xa '•' Bg Tu phap phan bac Bg Giao thong, van hoi/2609/08/3BA127B0/
hdi dan sy d Viet Nam dang dan dan hinh thanh va cd the se la mgt con dudng quan trgng dl lam cho Hien phap ngy trj quyen lye. Dang tide rang xa hgi dan sy chua cd nhieu vai trd trong van de nay. Tien xa han trong viee phan bien chinh saeh, xa hgi dan sy se can phai thao luan khia eanh hgp hien cua chinh sach. Lien quan tryc tiep cd le la hgc gidi luat phap. Thao luan nhieu ban ve tinh chat hgp hien cfla khdng chi cac luat td chflc cdng quyen ma cdn cac chinh sach, cac dao luat lien quan den cac quyen eua cdng dan, luat hgc nudc nha se ddng gdp dang ke vao viec xay dyng mgt chinh quyen hgp hien d Viet Nam.
tai vi di nghi xu phat: http://vnexpress.net/GL/Xa-
t (Tiep theo trang 5 - Ddng gdp y kien du- thdo ...) sdng cd van hoa. cd tinh thdn dun tgc vd tinh
than qude te ehan chinh. Xay dyng gia dinh am no, hanh phflc .v.v." (doan tiep theo gifl lai ngi dung nhu trong dy thao).
Doan 9 cfla muc IV ve he thdng chinli trj va vai trd lanli dao ciia Dang cung de cap trach nhiem cira Nha nudc trong viec quy djnh va bao ve cac quyen cdng dan va sap xep nd cflng vdi ngi dung viet ve dan ehu xa hgi chfl nghTa.
De tang them tinh logic va tinh he thong, cd the chuyen ngi dung doan 9 viet ve trach nhiem cfla Nha nudc trong viec quy djnh va bao ve cac quyen cdng dan vao doan 6 trong phan viet ve con ngudi va quyen con ngudi.
Ddng thdi, de eho ngi dung cau van them rd nghTa va tranh sy lap lai, doan 9 nay eua dy thao Cuong ITnh** khi sap xep vao doan 6 cd the bien soan lai nhu sau: ''Nhd nuae chdm lo cho hgnh phuc, sic phdt trien tie do cita moi ngiedi. Quyen con ngiedi, quyen cong ddn dugc Hien phdp vd phdp lugt quy dinh vd dugc bdo ve. Quyen eong ddn gdn lien vai
* Doan nay c6 ngi dung nhu sau: Nha nuoc quy djnh va bao ve cac quyin cong dan, quyen con nguoi di doi voi nghTa vu va trach nhiem; cham lo hanh phuc, sir phat triin tu do ciia m6i nguoi.
nghia vu vd trdch nhiem cong ddn".
1.3.3. Ve chinh sdch doi vai dong bdo dinh cu a meac ngodi
Doan 6 dy thao Cuang ITnh ghi: "Tao dieu kien thuan lgi va hd trg dong bao dinh cu d nudc ngoai dn djnli cugc sdng, gifl gin ban sac dan toe, chap hanh tdt phap luat cac nudc sd tai, hudng ve que huang, gdp phan xay dung dat nude".
Chung toi thay rang, viec ghi nhan tao dieu kien thuan lgi va ho trg ddng bao djnh cu d nudc ngoai dn djnh cugc sdng the hien trach nhiem rat cao cua Nha nudc ddi vdi ddng bao djnh cu d nude ngoai. Tuy nhien, djnh hudng nay rat khd thye hien va khdng rd cd the thye hien bang each nao. Nen chang, ngi dung dy thao Cuang ITnh viet ve ehinh sach ddi vdi ddng bao djnh cu d nudc ngoai chi dimg d mflc do va sfla lai, bo sung nhu sau: "Nhd meac hdo ve eong ddn Viet Num dang sinh song, ldm viec a meac ngodi: khuyen khieh, tgo dieu kien thudn lgi vd ho trg dong bdo dinh cu a meac ngodi ddu tie ve meac, gop phun^ xuy dimg ddt meac. giic gin vd phdt huy
truyen thong tot dep vd ban sdc ddn tgc, huang ve que huang, hudng ve eoi nguon vd chdp hdnh lot phdp ludt cim meac sa tgi".
