NHITNG V A N D E CO BAN VE QUYEN PHUC QUYET
1. Khdi qudt chung ve quyen phuc quyet
1.1. Quan niim ve quyin phuc quyit Khi nghien ciiu ngdn ngG thl gidi, chiing tdi nhdn thdy klidi nidm phiic quyll dudng nhu khdng phd bidn nhu khdi nidm trung cdu ddn y. Trong tidng Latin, thudt ngft plebiscitum (nghTa la "cai md ddn da ndi", thudng dugc dich la "phiic quyet") dugc xem la gan ddng nghTa vdi thudt ngft referendum (nghTa Id "dieu can phdi dugc thdng bao", ngdn ng& hidn dai djch la
"tnmg cdu dan y"). Plebiscitum cung la y kiln eiia cu tri nhung thudng Id cdc cugc tnmg cau y kien nhdn dan ve cdc van de quan trpng hem cd ddi vdi ddl nudc, nhu van de lanh thd, cac van de quoc td, cdc vdn dd lidn quan tdi cd nhan (trung cau dan y ve irng vidn duy nhit ehue vu Chu tich nudc) . Trudng hgp nay ngudi Ai Cap ggi la referendum, edn ngudi Pakistan lgi goi la plebiscitum. Thuc ra trong ngdn ng& eua nhilu nudc, hai thudt ng& nay khdng dugc phdn biet rd, nhit la cac ngdn ng& ngodi chdu Au. Ngay cd trong Hidn phdp cdc nude cung khdng su dyng thuat ng& "phiic quydt"
md chi dl cap din "trung ciu dan y". Tuy nhidn, Uong Hiln phdp mdt sd nudc, trung
' Vien Khoa hoc phap ly, Ba Tu phap.
" Dai hoc Luat Ha N0i.
' PGS.TS., Dinh Ngpe Vuong (2005), Cac mo hinh diiu chinh phdp ludl chu yiu dSi vai chi djnh trtm^
cau y ddn a cdc nudc tren thi giai. Hoi thao: "Che djnh trung ciu y dSn trong CCT ch^ th^rc hi^n dSn chu xa h6i chu nghta d Viet Nam", Hgi LuSt gia Vi^t Nami ngdy 8 thang 12 nam 2005, tr. 1.
Tru'ffng Hong Quang P ham Mai Diep cdu dan y la phuemg thftc dd thyc hipn quydn bieu quydl, quyet djnh ctia nhan dan ddi vdi mdt van dd quan Uong ndo dd sau khi da dugc CO quan quydn lue nhd nude thdng qua.
Vd nhu vgy, Hidn phdp cde nude dd cdng nhgn quydn phuc quyll - khdi niem ma cdc nha khoa hge Vipt Nam hay su dung.
Phan tich theo khia cgnh thugt ngu, vao ndm 1957 va 2000, cac tde gia Dao Duy Anh va Pham Vdn Cde trong hai cudn Tu didn Han - Vidl cua minh da giai thfch nghla ciia tft nay. Theo do, thuat ngu phuc quylt la tu Hdn - Viet, duge ghep bdi hai tft la phdc va quyit: phiic cd nghia la "lat lai, xet ky";
quyit cd nghia Id "quydt dinh"^. Nhu vay, cd thd hidu pbiic quyel Id vide dua mdt van dd da dugc quydt djnh (bdi co quan nhd nudc cd thim quyin) ra dd bidu quyet lai.
Trong ljch su he thdng phdp luat eua nudc ta, thugt ngu phiic quyet rat it khi dugc su dyng, chiing ta chi cd thd thiy thudt ngu ndy dugc su dyng trong Hidn phdp nam 1946 vd Uong mdt sd vdn ban vd td chuc chinh quyin dja phuang vdo cung thdi didm dd. Trong Hiln phdp nam 1946 ed quy djnh:
"Nhung vide quan he din van mdnh qudc gia se dua ra nhdn dan phiic quylt, ndu hai phin ba tdng sd nghj vien ddng y" (Dieu thii 32); "Nhdn ddn cd quydn phiic quylt vd Hiln phdp va nhQng viec quan he den van mdnh qudc gia..." (Dilu thu 21); vide sfta
^ Dio Duy Anh (1957), Hdn - Viet tic diin, Truong - Thi xudt ban, Sai Gon, tr. 136 va Pham Van Cdc (2000), Tir diin Tir Hdn • Vi^i, Nxb. TP. H6 Chf Minh, TP. H6 Chi Minh, tr. 334.
MIA M'OC VA PIIAP LUAT SO 10/2012
ddi Hien phap phai tuiin theo quy djnh:
"Nhftng dilu (ba>' doi khi tlfi dugc Nghj vicn img thuan ihi pliai dua ra toan dan pliiic quyel" (didm c. Didu ihd 70). Tioiig Sac ldnh sd 63-Sl. ni;;iy 23 ihang 11 nam 1945 ciia Chit tich Chinh phii lam ihdi nudc
\'icl Nam Dan chii cong hda quy dinir "Ndu mgl phan ba (1/3) sd hgi \icii llpi ddng nhdn dan xa ydu cau pluic qu\cl Uy ban hanh chinh xfi thi Uy ban hdnh chi'nh xd phai trieu tap ngay Hgi ddng nhdn dan xd de ho phieu tin nhipm" (Didu thir 18) .
Cdc nghien cim tir trudc LICII nay da chi ra rang, chit the ciia qu\cii phitc quydt cd the la toan dan hay la mgt bg phan hpp hon (ngudi dan cita mdt dia phuong nao dd);
cdn pham vi van dd dua ra phiic quyet co the la mdt \'an dc quan trong nhu Hidn phap. mgt dao lual hode euiig cd the la mgt van de quan trgng. anh hudng ldn den loan dan hodc mdi/mpt sd dja phuemg nhat djnh.
Tren ca sd nay, quydn phiic quydt cd the chia ra lam cac logi sau day:
Phuc quyel ve Hien phdp Day la trudng hgp nhan dan bidu quyet thdng qua mdt Hien phap nidi hoac cac ngi dung da sua ddi, bd sung ddi vdi Hien phap hien hdnh (ban Hidn phdp mdi hodc cac npi dung sira ddi da dugc Ngin vicn/Quoc hpi thdng qua Irudc dd). Cd the nhan thay. day Id loai hinh phiic quyel quan trong nhal ciia quydn phiic quyel, bdi Hien phap la ndn lang phdp ly, can cd chit dao ddi vdi \icc ban hanh loan bd cac vdn ban phap 1\ khac eiia Nha nudc, la co sd dinh hudng hoat dgng ciia tit ca cac CO quan nha nudc, cac Id chire chinh tri - xd hdi cung nhu hanh vi va y thirc phap iudt ciia cdng dan. Do do, 1 lien phap la van
ban cd gia trj phdp Iy cao nhat, tat cd cac
\'uii nan khac deu phdi phii hgp vdi Hiln phap. Do tinh chat phdp ly ddc biet do ma Hidn phap cd linh on djnh cao nhat so vdi lil ca cac vdn ban plu'p ly khac. Vi vay, viec ban hanh, sira ddi llicn phap Iudn ddi hoi nhfrrii' thii lyc chdt chd nhal, bao dam sir than trpng nhal"', trong dd, vice thyc hien quydn phiic quydt chinh la mot giai doan hk sue quan trpng ddi vdi quy trinh lap hiln ciia bal ki qudc gia nao. Mdi qudc gia deu cd Hidn phap, ban Hien phap dd dai dienva phuc vu Igi ich ciia dai da sd quan chting.
Neu Mien phap khdng dugc phiic quyel, cung cd nghTa Nha nudc tu ddt ra nhihig thudc do, chuan mye, gidi ban phdp ly cho cliinh minh".
- Plu'ic quyel ve mdt dgo ludl quan ironf^, cd tdm dnh liu&ng sdu rpng ddc biel irOn lodn quoc. Oa> chinh la viec phiic quydt ve dao luat da dugc Qudc hgi thdng qua hoac vd sang kicn cua nhan dan de nghj ban hanh mgt dao luat. Trdn thd gidi, Hien phap mdt sd nudc qu\' djnh cu the mot so dao luat trong ITnh virc nao can phdi diroc nhan dan phiie quyet (\i du nhu an mnh qudc phdng. thud, tham nhung, kiem toan nha nudc...).
Phiic quyC'i ve mpt so vdn de qrnn trgng. dnh hu&ng lan den phgm vi lodn quoc hodc mpt so dia phuang nhdt dinh.
Cac van dd cd lam dnh hirdng den ca nirdc dugc ke dC'ii nhu an ninh qudc phong, cae chinh sdch dat dai. tham gia dieu ude quoc Id. C ac \ :in de ed dnh hirdng den mdt hoac
Chu tich Chinh phii lam thtri nuoc Vi?t Nam Dan chu Cpng hoa (1945), Sdc lenh so 6i-SL. nga^' 2i ilidng II nam 1945
* GS"rSKH.,_D^o Tri Uc, Hien phdp Irong ddi song xd hpl vd quoc gia. Tap chi Nghien ciiu lap phip, so 17(178), thang 9/2010, ngu6n: ndp ore, vn.
^ TS. NguyenSy Phuong (Cpng hoa Lien bang DiJc), Tif pluic quyel Hien phdp den trung cdu chinh sach, nguon: chuneta com, cap nh^t ngay 03/09/2010.
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NHUNGVAN Meo BAN ...
mpt sd dia phirong nhit djnh cd thl dl cap ddn Id: chia, tach, sap nhdp, dilu chinh hode nhftng thay ddi khdc vl dia gidi hdnh chinh lanh thd cua mdt sd dja phuong; quy hogch/du an cdng trinh ddu tu xay dung lien quan den lgi ich chung ciia cgng dong dan cu nai tidn hanh dy an...
Nhu vay cd the thay, phiic quylt cd nhieu loai, trong do ndi bat vd dugc nhic den chil yeu la phiic quylt Hiln phdp. Ddi vdi hai logi hinh phue quyet cdn lgi chinh Id nhiing hinh thuc md rgng cua quydn phuc quydt, thudng dugc dp dyng d nhftng qude gia cd nen dan chii tien tidn va phat huy tdi da quydn lam chii cua nhan dan.
1.2. Bgc diem vd bdn chat cua quyen phuc quyet
Vdi each hidu, quan nidm vd quydn phiie quyet nhu trdn, ed thd nhdn thay nliiJng dac diem vd ban chat eiia quydn nay nhu sau:
Thir nhdi. phiic quyit Id mpt quyen dac biit trong he ihdng quyin ca bdn cua cdng ddn. Cd mgt sd y kidn timg cho rang, phtie quyet khdng phdi Id quyen ma chinh la nguydn tac co ban ve chinh trj cua mdt Nha nudc. Tuy nhidn, nlu xel trdn binh didn y nghTa eung nhu ndi dung cua cdc Cdng ude qude tl vd quydn con ngudi (lien quan ddn quyin dan sy - ehinh trj) thi ndu xem phiic quylt Id mgt quyin, thdm chi Id mdt quydn chinh Ui co ban eung cd tinh hgp ly nhat
; djnh. Bdi vi, chi khi xem xet phue quydt dudi gidc do la mdt quydn thi Nha nude mdi thyc sy cd eo sd dl xay dung cdc co chd dam bdo thyc thi trdn thyc tl. Trong Tuyen ngdn dge lap do Chu tjeh Hd Chi Minh dpc ' ngdy 02/09/1945 thanh lgp nudc Viet Nam ' Dan ehu cdng hda da ghi nhgn lu tudng ldn : trong Tuydn ngdn nhdn quyin cua ndn lap ' hiln Hoa Ky vd nln lap hiln Cpng hda
Phdp: "'Tdt cd mgi ngu&i sinh ra binh dang, tgo hoa cho hg nhitng quyen khdng ai cd thi xdm phgm dugc, do Id quyin song, quyen tie do vd quyen muu cdu hgnh phiic ". Gan day, mgt sd hdi thdo qudc le ve Hidn phdp da xudl hien khdi nipm "chti nghTa hidn phdp"
dugc hidu la qud trinh chinh tri cua mdi nude, tren co sd cua Hiln phdp (ed the Id Hidn phdp thanh van hodc khdng thdnh van). Qua trinh dd Id qua trinh tdn trgng vd bao vd gia trj, quydn cua con ngudi. De bao ve gid trj dd, chii nghTa hidn phdp cho rang:
Con ngudi ngoai vide tham gia vdo chinh quyen, hp cdn phai tham gia vao viec an djnh nh&ng gidi han eiia chinh quyen^. Hau hdt Hidn phap cdc nudc ddu ghi nhdn quydn con ngudi thdng qua ehd dinh vd quydn va nghTa vy cua cdng dan. Cd the ndi, phuc quyel la mdt trong nhung yeu td cdu thdnh quydn dan chii eiia cdng dan, chi cd phuc quyel Hien phdp bdi cdng dan thi mdi cd the gidm sdt dugc bd mdy nhd nude va dua Hidn phdp den gdn vdi eude sdng hon.
Ddng thdi gdp phdn giup cho bd mdy nhd nudc them vijng mgnh, thuc sy cua nhan dan, do nhan ddn vd vi nhan dan. Quyen phiic quylt dugc thidt lap tuc la xac lap cho ngudi ddn quydn dugc tham gia, trye liep quylt dinh cdng vide cua Nhd nudc vd bidn nd thdnh quydn ca ban cua edng ddn. Didu dd cung gdp phin hoan thien hem he thdng cac quydn ciia cdng dan. Ngudi ddn se sir dung phdp ludl vd quyin phiic quyet nhu mpt phuong tidn, cdng cy dd ydu edu ca quan nha nude phdi td chuc hogl ddng phiic quylt, cho phep minh dugc tham gia vao
^ TS. Nguyin VSn Thao (1995), ph t^i cap Nha nudc ma s6 KX-05-07: "Nguyen idc Id chuc vd hogt dong cua bo mdy lgp phdp. hdnh phdp, lu phdp nudc ta vdi nhi4m vu xdy dung Nhd nu&c phdp quyen xa hoi chu nghia", tr. 65.
NHk NUdc vk PHAP LUA T s610/2012
qud trinh ddng gdp y kiln trong vi^c xdy dyng, sfta ddi Hiln phdp. Khdng ehf dirng lgi d vipc ghi nhgn quyen phuc quylt dl ngudi ddn tham gia trye lilp trong vi§c quyll dinh cdc edng vi$e ciia Nhd nudc nhu mdt quyin ca bdn ciia cdng ddn, md Nhd nudc edn phdi tgo ra co ehl bdo ddm dl ngudi dan duge thye hipn quyen ndy trdn thue te. Khi quyin luc ciia nhdn ddn dd giao cho Nhd nudc ndm vd thye hidn, cin cd co che vd cac hinh thuc dl nhdn ddn nhan bilt dd la Nhd nudc eiia minh (Nhd nude eiia dan). Vd mpt trong nh&ng hinh Ihue co bdn chinh Id thuc hipn dan chii trye tilp bdng quyen phue quylt Hien phdp. Khi dd, quyin phuc quydt cung trd thdnh mpt quydn chinh trj - phdp ly co ban cua nhan ddn dd nhdn dan tham gia qudn ly nhd nudc vd xd hpi.
Thic hai, phuc quyit Id mpl bieu hi^n cua tinh ddn chit true tiip trong xd hpi.
Trong nhieu trudng hgp, cde bidu hien cu the eiia ddn ehu trye tidp trong mdi quan he gifta Nhd nudc va ea nhan dugc quy vd cdc quydn co bdn ciia cdng ddn, dde biet la cdc quydn vd chfnh trj: vi dy nhu quydn bau cu, img cu, quyen tham gia quan ly cac edng vide Nhd nude, quydn khidu ngi, td edo; hay dugc quy vd trdch nhipm cua cdc ea quan cdng quydn nhu che dp bao cao trudc dan, chd dp edng khai, ehd dp phe vd ty phd binh... Trong hinh thuc dan chii trye tilp cdn cd trung cdu dan y va phuc quylt, ngudi dan dugc trye tidp quydt dinh mgt sd cdng vide eiia Nhd nudc. Nhftng quyin nay dd cho thdy nhdn ddn cd vai trd vd cimg quan trpng trong vide quylt djnh nhimg vin dl lien quan sdt sudn den lgi feh eua ban than minh vd ty xay dyng dugc y thftc trong viec tham gia xdy dyng Hidn phap, ehinh sach va phap lugt. Quydn lap hien, lap phap cung
dugc phdn ehia rd rang'.
Thic ba, quyin phuc quyit c6 bdn chdt khdc v&i cdc hlnh ihuc idy y kien khdc nhu tnmg ciu ddn y^, lay y kiln cii tri,... Trong h§ thing phdp lu^t, hlnh thuc dan chd trye lilp dugc hiiu Id "cdc kdnh", "ede phuong thftc" thyc hi§n ddn chii trye tilp nhu: chi dg biu, bdi mien dai bilu Quoc hgi vd H^i dong nhdn ddn cdc cip; cbi djnh trung ciiu ddn y, cde hogl dgng gdp y kiln vdo cdc chti truong, ehfnh sdch, cdc dy thdo phdp ludt, hiln phdp... Quyen ty quydt djnh cde v3n dl quan trgng cua qudc gia thd hien quylo hien djnh cd tinh nhat qudn trong ljch su % hidn cua quoc gia dd. Tnmg eau dan y vA phiic quylt giing nhau d diem deu la hinh thuc dua mpt van dl ra cho nhan ddn lua ehpn ddng y/khdng ddng y. Didm khdc biet rd nhdt gifta hai quyen ndy la: ddi vdi quyen phiic quylt, sau khi cdc co quan nhd nudc cd tham quydn da quyet djnh mdi dua ra nhan dan thyc hipn vipc bieu quyet (gid trj bit bupc); doi vdi trung ciu ddn y, sau khi lay y kiln bidu quydt cua nhan dan (gid tii tham khdo hodc bit bupc) thi ca quan co tham quyen mdi dua ra quyll djnh cuoi cung. Nhu vdy, tnmg cau ddn y cd tinh ch^
bit bupc Id phuong thuc dd thuc hipn quyen phuc quylt, nhung phiic quylt khdng ddng nhat vdi trung cau dan y. Chinh vi cd sydan xen nay ndn trong uudng hop dua ra loan ddn phuc quyet ve cdng vipc cua Nha nudc ho^c eiia dja phuong, ngudi ta cung gpi do la trung eiu dan y (chdng hgn nhu Thyy Si, vipc sua ddi Hiln phap mdc du da dupc Qudc hpi thdng qua nhung dl ed hi^u luc thi ban Hien phap sira ddi do phdi dugc da
' Truemg Hing Quang (2011), Bdn vi quyin phit quyit Hien phap. http://hon gtauang.wordpress.conL ng^y 5/7/2011.
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NHUNG VANDicOBAN...
sd ngudi dan tan thanh thdng qua trung ciu dan y). Va cung bdi vdy, phuc quylt vd trung cdu dan ^ ed mdi quan he rit mat thilt vdi nhau.
Thic tu, chu thi tham gia thicc hi$n quyen phuc quyit bao gdm Nhd nu&c vd nhdn ddn. Nhd nude ddng vai trd Id ehu the ma dgi dien eu thd la mgt co quan nhd nudc cd thim quydn. Nhan dan se la trung tdm cua hogt ddng tnmg eau dan y nhdm phiie quydt mdt vin dd ndo dd. Cdc vin dd duge dua ra phiic quydt ludn la cde van dl quan trgng cua qudc gia. Cae qudc gia khde nhau se cd nhthig quy djnh khac nhau nhung diu ed mdt didm chung Id ddy deu la nhftng vdn de cd tinh he trgng ddi vdi moi qudc gia.
Trong dd, ddi tugng dugc dua ra trung ciu ddn y dugc nhidu nudc ghi nhan rdng rai va phd biln nhdt phai kd ddn la vide ban hdnh Hidn phap va sua ddi Hiln phap. Vi dy nhu d Phdp, Italia, Thuy ST,... Kdt qua cua qua trinh phuc quydt cd gia tri bdt bude cac co quan nhd nudc phai chap nhan theo y kiln da sd cua nhan dan.
Nhiing van dd can phdi dua ra Uimg cdu ddn y dd thuc hidn quydn phuc quydt cd thd dugc quy dinh ey thd trong Hidn phdp hodc trong cdc dgo luat, huge co quan nhd nudc cd thdm quyen phdi td ehue trung edu dan y, nhu d Thyy ST phap lugl quy djnh vide sfta ddi Hidn phap lidn bang bat bude phdi dua ra trung cau dan y, neu dugc da sd ddng y thi mdi cd hieu lue (khoan 1, Didu 123 Hien phdp Thyy ST); nhung eung ed trudng hgp eo quan nhd nude dugc phep lya chpn, cd thl Id chftc hoac khdng td chftc trung ciu dan y, nhu d Phap phap luat quy djnh Tdng thdng ed quyin dua mgt du dn luat hay mOt dilu ude qudc td ra dl tnmg cau dan y ndu nhu cd db nghi cita Chinh phu hodc de nghj ctia hai vidn, Thugng nghi vidn vd Hg nghi
vi^n (Dieu 11 cua Hiln phdp COng hda Phdp ndm 1958). 6 nudc ta, phdp lugt hidn hdnh khdng quy djnh cu thl vd cdc vin dl dua ra trung cdu ddn y vd Hidn phdp chi quy djnh giao cho Qudc hdi thdm quyin quydt djnii vi^c trmig cdu ddn y.
Thu ndm, phuc quyil Hiin phdp chinh Id mpt phgm vi quan trgng ciia quyin phiic quyit. Vipe ghi nhdn phuc quylt Hiln phdp dong nghTa vdi vipc lap hiln thudc vl nhdn ddn. Quydn lap hidn Id quyin nguyen thuy vi the hipn mpt each toan didn nhil ehu quyen qudc gia, vi quyin lap hiln chung quy la qudc gia lu in djnh cho minh quy tdc td chftc vd dilu hanh^. Nhilu bdn Hidn phdp trdn thd gidi chiing minh dugc ring, cac Hien phdp deu coi nhdn dan Id chii thl cua quyen lap hidn. Cd the ndi, bdng quydn lap hidn thi nhan ddn da Irao cho Nha nude thuc hien cac quydn lap phap, hdnh phap vd tu phap. Didu ndy dugc ghi nhdn trong Hidn phdp cua nhieu qudc gia, thl hidn rd tu tudng chil quyen cua nhan dan ddi vdi Nhd nudc. Trong chd dp Hiln phdp thua nhdn quyen lap hien eua nhan dan, nhan dan se su dyng quydn lap hien bang hai cdch: Mot la Qudc hdi lap hidn vd hai la phuc quydt.
Cdch thftc dd thyc hidn cd the Id trye tidp phuc quyet trong loan bd qua trinh soan thdo Hidn phdp, hoac Uao quydn phue quydt cho nhdn dan. Nhan dan se quyet dinh vide ed phd chudn hay khdng nhirng didu khodn sua ddi dd, hoac mot bdn Hidn phdp hodn todn mdi. Didu nay nham myc dfch thidt lap mpt chi'nh quydn "cua dan, do dan va vi dan". Nhdn ddn mdi la chu the co bdn ban hdnh Hidn phap, bdi ndu ngudi ddn chi the hidn quydn lyc cua minh thdng qua Qudc
Nguyen V5n Bong (1967), Ludl Hien phdp vd chinh trf hgc, Sii G6n, tr. 51.
NHk NUdc VA PHAP LUAT Sd 10/2012
hpi vd Hpi dong nhdn dan cdc cip thi sy tham gia ciia nhan ddn vdo qudn Iy nhd nudc chi mang tfnh hinh thftc. khdng dugc thyc hipn tri^t dd. Vdi ddc diem ndy. nhdn ddn s5 Id ngirdi bieu quylt thdng qua Hien phap (Hidn phdp mdi/cde npi dung sua dli).
Chinh nhan dan sd Id ngudi liip ra Hien phdp ehft khdng phdi Quoe hpi/Nghj vipn.
Ihdng thudng, vipc dua ra nhdn ddn bilu quyet se duge tidn hdnh sau hai trirdng hgp:
dd dugc Quoc hpi/Nghj vipn thdng qua, hodc trong npi bg Quoc hgi/Nghj vidn cdn nhieu quan diem trdi chieu nhau. Thye sy, quyen lap hidn ndn vd phai Id quyin cua nhdn ddn xuit phat tft tdm quan trpng eiia vdn ban Hien phdp. Thye chdt quydn phuc quyel Hien phap Id bieu hipn rd ndt nhat cita nguyen tde "lat ca quydn Iyc nhd nudc thupc vd nhdn dan" da dugc ghi nhgn tgi Didu 2 ciia Hidn phap 1992 (sua ddi nam 2001).
Vdi quyen ndy, nhan dan cd quydn trye tidp quydt djnh cdc chfnh sdch, ehu truong lien quan Iryc tiep den ehinh ban than minh, gdp phdn tao ndn mdt xa hgi ddn chu ngay tft
"luat gdc" ndy .
Phiie quydt Hien phdp ngay nay da trd thdnh nguyen Iy bat di bat djch trong ly thuydt td chftc nha nudc ddn ehu, dugc dua vao cd chuong trinh phd thdng, khdng edn la ddi tugng dd ban cdi, md tidn mpt budc cao hon xem lieu cac didu khodn bd sung, sua ddi Hidn phap cd can vd phai phiic quyet hay khdng? Xa han, cac vdn ban lap phdp cd can phuc quydt nhu Hidn phdp hay khdng? Thyc Id eho thay, npi dung cua quydn phuc quydt Hidn phdp hidn nay dd md rpng hon rat nhidu dudi nhieu gdc dg khae nhau (nhu da ndu d phdn quan niem vl
quyen phdc quyet)
Thi^ sdu, v&i nhitng dpc diim vd bdn chdt nhu trin nen dii quyin phuc quyit mang linh chinh danh rdl cao (nhdn ddn lr\cc tiep quyet dinh chinh sdch ca bdn), nhung ciing co nhirng thdch ihuc khd l&n: ,
- Kdt qud cua vi^c thyc hipn quyin phiic quylt ehfnh Id quylt djnh cua mpt tap thl ral Idn: nhdn dan. Tgp thl ndy cd tinh tl ehue khdng cao, khdng tap trung nhu mpt CO quan nhd nudc. Thanh phdn tap thd nay cQng rat da dang, moi ngudi moi y; khdng cd nhieu diem ehung do xudt phat tir cac Idng kfnh lgi fch khdc nhau. Hon n&a, dl cd dugc mgt quyet dinh thyc chdt (theo Iy thuyet hdnh ehinh cdng bao gdm hai yeu td:
ngudi ra quydt djnh phdi cd thdng tin, hieu duge lgi, hai eua quyet djnh, cdn nhde kT, va phai cd du ndng lyc xu ii thdng tin dd) la van dd khd, khdng hi gidn don. Vi vdy, ddi khi quydn phuc quyet cd tfnh cdm tfnh ldn, chua hdn la giai phap tdi uu.
- Vide td chuc tnmg cau ddn y de thuc hidn quydn phuc quyet thyc td cd chi phi rdt tdn kem. Ndu khdu td chuc khdng edn than rdt de bj cdc nhdm lgi fch Igi dyng, phat sinh tidu eye...
2. Nguon goc ctia quyin phiic quyet"
De tim hidu ve ngudn gdc quyin phuc quylt ed Id trudc het cdn dl cap ddn ngudn gdc eiia dan chu trye tilp. Khdi niem dan chii trye tidp dd tdn tgi hang the ky va dugc the hipn r5 nhat trong x3 hgi Hy Lgp - La
^ Truemg H6ng Quang (2011), Bdn ve quyin phiic quyet Hiinphdp, tidd
'" Truem§ H6ng Quang (2011), Bdn ve quyen phuc quyel Hiinphdp, tIdd.
PhSn niy c6 tham khfio tai Ii?u dugc dich tii:
http://www.mcpeorge.edu/Research Centers and In stitutes/Capital Center for Public Lawand Policy Home/Publicatlons/Caiifomia Initiative Review/G'"
alifomia Initiative Review Reports/DirectDemocr acv.htm
42
NHUNG VAN Di CO BAN ., Ma CO dai. Nhidu n l n van minh cd dai da
thye hidn hinh thde dan ehu trye tilp bdng each cho phep ddn chiing tham gia vdo vide xay dung vd thuc thi lugt phdp. Thdi Hy Lgp cd dgi, su sach da ghi lai ring lap hgp nam edng dan cua Athens, dugc coi nhu mgl hpi ddng ridng re, phe duypl va khdi xudng nhflng didu lual cho thanh phd ciia hg. Vide phd duydt vd khdi xudng nay. v l bdn chat eung chinh la c a sd cho ngudn gdc hinh thdnh qujcn phuc quydt trong nhftng the ky tiep tlieo.
Ngoai ra. d Rome (Y) uii cd ede nam cdng dan dugc tham gia bd phieu trye tidp d mpt trong bdn hgi ddng da dugc thidt lap cho mue dfch lap phdp. Ngudi ddu tidn sang lap ra hinh thuc dan chu trye tidp la eyu Thugng nghj sT Mike Gravel cua Hoa Ky.
Dd la vao cudi nhung nam 80 vd ddu nhimg nam 90 cita the ki XX, khi mgt phong trdo quan chiing nham thidt lap mdt quy trinh de xudng ludt Id qudc gia do Gravel tidn hanh.
Thugng nghj sT nay da thanh lap hai td chftc, trong dd cd mgt td chuc ten la Ddn chu trye tidp. Ly thuydt vd mdt ndn ddn chu trye tilp da dugc tridn khai vd thyc hidn bdi nhftng ngudi Hy Lap vd La Ma cd dgi, va da dugc thyc hidn d mdt sd bang ciia Hoa Ky vao cudi nhftng nam 1800.
Dan chu true tiep trong cac giai doan ndi trdn dugc hidu la mdt hinh thuc ddn chu, trong dd Hgi ddng lap phdp phai do todn dan lap ndn va edng dan trye lidp tham gia vao chi do lu trj cua chinh hp. NghTa la mgt chinh quyin do ngudi dan ty didu hanh, khdng cdn bau ra dai didn dd didu hanh ehfnh quydn ndy. Didu dd nhan mgnh khia cgnh quyen va nang luc cua cdng dan trong vide quydt djnh cdc chinh sach qudc gia, cdc quy ehl, phap luat, hidn phdp. Ngudi dan hodn loan cd quydn ydu cau Chinh phu phai
chu ddng td chftc tnmg cdu dan y ve nhftng van dd quan trgng dd ngdn chdn nhung quyel dinh vgl vdng cua chfnh quydn. Vi dy:
mgt sd nude chdu Au quydt djnh td chftc Irung eau dan ^ vd cdng ude thanh lap hidn phdp ehdu Au trong nhftng ndm 2005 2006. 0 ciic nudc nhd, sd cdng dan it thi cd nhidu khd ndng thue hipn ndn ddn chu trye tiep hon. Nhan dan nam quydn lyc vd iryc tiep thyc hidn quydn lyc; su phdn biel giua ngirdi dgi didn cam quydn vdi cdng dan Id khdng nhidu; cdng vide ciia ddt nudc ddu hgp cdng dan lgi quyet dinli. Nen ddn chu trye tiep gan gui vdi quan didm cua C.Mac ve sy tieu vong dan cua Nha nudc, lien tdi mpt xd hdi ty quan, nhan ddn ly qudn Iy.
Pham vi cua ddn chu trye tidp dugc the hidn qua ba quydn ca ban do la: quydn dd xudng, quydn trung eau dan y vd quydn bai midn. Cd ba quydn nay dugc hidu la nhung bidu hien thuc lien cua hinh thftc dan chii true tidp. Quydn de xudng Id khi cdng dan dua ra nhihig de xudt eiia minh vd cde chinh saeh, quy djnh, luat, hoae sfta ddi Hien phap ra bd phiiu todn dan. De ldm duge vide dd, cdng dan phdi thu thap mdt sd lugng ehu ky nhit djnh tft cac cdng dan khdc vd chinh cdng dan se quyet djnh chdp thuan hay bac bd dd xuit nay. Vi du nhu mdt sd bang ciia My da cdng nhgn quydn nay hay d Thyy ST da thyc hien quyin ndy tft hern 100 nam nay.
Quydn bai mien la cho phep ngudi dan bai mien quan chftc hoac dgi bidu thdng qua hinh thftc bd phiiu. Quydn bai midn la quydn tuong duang vdi quydn bdu eft. Bidu hidn eudi cimg cua hinh thiic dan chii hue tilp la hoat ddng trung cau dan y. Trung cau dan y dugc coi Id phuang phap phd bidn cua dan chu trye tiep. NghTa la cdng dan se bd phiiu ddng y hoae bae bd cdc ludt, chinh saeh hay cdc sfta ddi Hidn phdp da dugc co
NHA NUdc vk PHAP LUAT sd 10/2012
quan lap phdp, eo quan ctia Chfnh phii thdng qua'^
Ben cgnh dd, cd thl thiy ddn cIiQ trye tilp Id mdl trong nhftng bilu hi§n dl ngudl ddn thl hidn quyin ndng ciia minh trong ITnh vyc chfnh trj. Quyin phuc quylt cung Id mpt quydn chinh trj cda ngudi ddn - m^t trong nhQng quyen co bdn cda quyin eon ngudi. Quyin con ngudi dugc ghi nh$n trong hp thdng phdp lu§t ciia m6i quic gia va cd phdp Iudt qudc td. Quydn con ngudi Id nln tdng, Id didu kipn dk con ngudt tilp nhdn cdc quyin kinh tl, xd hdi, vdn hda, gido dye... Dd Id nhthig gid trj cao cd cin dugc tdn trpng vd bdo vp irong mpi xd hpi va trong mpi giai doan ljch sft. Nlu nhu quyin con ngudi cd cdc thupc tfnh Id: tinh phd biln, tfnh khdng thl tudc bd, tinh khdng thd phdn chia, tfnh lidn he vd phy thupc lan nhau, thi quydn ehinh trj cung cd cdc ddc tinh rieng biet. Dd Id quyin tuyet ddi, nghTa Id dugc tdn trpng vd bao ddm ddi vdi mpi ca nhan trong mpi hoan canh; chu the eua quyen duge tu do hanh dpng (tru mdt vdi quydn thudc logi cd dieu kipn nhu quyin bdu eft, ung eir); mgt sd quyin chfnh tri cd the bj han che nhu quyin tu do ngdn ludn, quydn tu do bilu tinh...
Quyen vd nghTa vy chinh trj cua cdng ddn gdn lien vdi quydn ty quylt eiia ddn tpc, dd la quydn khdng thl bj tudc dogt. Cung vdi chd do chinh trj, thl ehl chinh trj cda qudc gia, vdi chd djnh vd quyin lyc nhd nudc thi quyin va nghTa vu chfnh trj eua cdng ddn la bp phdn khong thl thilu trong Hiln phap. Cung vdi thdi gian, cdc Hiln phdp tren thl gidi ngay cdng ghi nhdn cdc
quyin con ngudi m^t cdch rdng rdi vd cu thl hon, trong dd cd quyin phuc quylt.
Mdt ndi dung ca bdn eua quyin phdc quylt chfnh Id phdc quyll Hiln phdp.
Quyin ndy xuit phdt tu nguydn tie chii quyin nhdn ddn. Tu dd dd sinh ra quan nidm Hiln phdp Id bdn khi ude xd hpi, nhQng cdng vi^c eo bdn cua edng ding nhdn ddn phdi cd tieng ndi cuoi ciing cua chfnh hp de quyet djnh cdc ehfnh sdch quan trpng. Dilu dd thl hi$n nhan ddn cung id chu cua Nhit nudc vd xd hpi. Nguydn nhdn sdu xa ctia su xuit hipn quyin phuc quylt Hiln phap den nay dd dugc xdc nhdn rd rdng. Hiln phdp \i mpt vdn bdn phdp ly cd hieu lye cao nhit, nhung myc dich chfnh ciia Hien phdp la di hgn che quydn lyc cua cdng quyin, dilu chinh hogt dgng cua Nhd nude, nhdm bdo v?
quydn ty do ciia con ngudi. Dd mdi Id muc tidu cao nhdt cua Hien phdp (ndn Hiln phap la hien thdn ciia phap quyen). Bdi vi quy^
lye ciia Nha nudc Id vd cimg to Idn, nen cdn phai cd CO chd dl hgn che, ngdn khdng cho xdm hgi tdi ty do chinh ddng cua nhan dan.
Mpt vdn bdn quan Ugng nhu Hiln phap khdng thl ehi do ban than nha nudc, ban than cdng quyen lap ra dugc. Han hit, Hien phdp cdn sy ddng thugn cua nhdn dan nhu la mgt cdch de nhdn ddn cdng nhgn rdng, quyen lyc nhd nudc da dugc dilu chinh du dl no khdng cdn cd thd ty y xam hai tdi nhan quyin vd ddn quyin. Ndi mpt cdch hinh tugng, nd nhu mgt khe ude gifta cdng quy&i vdi nhan dan md de cdng nhdn khi ude do ein sy ddng thugn eua cd hai, ddc biet la su dong y cua nhan ddn, vi bdn chit efta khS ude la bdo v^ quyin lgi, quydn ty do cho nhdn ddn. Do vdy, quyin phiic quylt Hien phdp bit ngudn sau xa tii ddy'^
Tran Thj Thanh Nhan (2006), Xay dung vd hodn thi^n phdp lugl vi trung cdu ddn y, Lu§n vSn Thac si Lu^t hpc, Hpc vifn Chinh trj quic gia Hi Chi Minh.
'^ Tmong H6ng Quang, "Bdn vi quyin phuc quyet Hiin phdp", Md.
44
NHUNG VAN DE CO BAN ..
3. Y nghia chinh tri - phap ly cua quyen phiic quyet
Phuc quylt Id mpt quyin quan trpng vd tiln bp da dugc ghi nhan vd thyc thi d nhilu qudc gia trdn thl gidi. Phiic quylt Id quyin cho phep ngudi dan tham gia vao mgt s6 cdng vide quan trpng cua Nhd nude, quyin quydt djnh cac vdn dd co bdn cua qudc gia.
NhQng quydt djnh quan trgng dd phu hgp va phdn anh dugc y chf, nguypn vpng cua nhdn dan, dam bao cho nguydn tie mpi quyin lue, ddc bidt la quyen lyc nhd nudc thudc vl nhan dan.
Phuc quyll cdn gdp phdn ndng cao y thftc Uach nhiem chinh trj eiia ngudi dan, tgo ca hpi cho nhdn ddn quydt djnh nhftng van de chung cua ddl nudc, cdng ddng;
nang cao sy hidu bidt cho ngudi ddn trong vide thuc hidn cac quy djnh phdp ludt nhdm tgo ra tinh khd thi va hidu qua cua phdp Iudt.
"Xet theo mdt gdc dp 1^ tudng, vide toan dan tham gia lam ra Hidn phap giup hp trye lidp xay dung va xdc lap tinh "phap quydn"
cho ddl nude. Khi do, thanh qud lap hidn ciia todn bp dan chung se bdo vd ndn phdp quyin hihi hidu hon nhieu so vdi mdt ban Hiln phdp bj dp dat bdi ede co quan quydn lye... Hiln phdp dugc toan dan thdng qua se gdp phdn cai thien cupc sdng cua mdi ngudi ddn vd kit qud Id ngudi dan se thiy gan bd vd mudn bdo vp Hidn phap"
Thdng qua quyin phuc quydt, nhdn dan ed thl hidu vd thyc hidn quyin, nghTa vy eua minh Uong vide tham gia, tim hidu, quylt djnh cdc cdng vide cua nha nudc, nang cao tri thftc eua minh vd cdc van dd
dugc dua ra phuc quyet, hidu rd hon cdc van de dugc dua ra phuc quylt, tu dd cd y thftc hon trong vide chdp hdnh phuong an dugc da sd ngudi dan lya chpn ridng vd cd y thftc horn trong vide el dp hdnh phap ludt ndi chung.
Ngdy nay, dpc lgi Hien phdp nam 1946 do Hd Chi Minh chu tri soan thdo, tat cd nhftng ngudi nghidn ciru vl ddn chu, du khac nhau vd tu tudng vd chinh kiln, cung ddu phdi thua nhgn rdng, tu gifta the ky XX, Vipt Nam dd dal tdi nh&ng quan nidm ddn chu, sanh ngang vdi bat cu mpt the che ddn chu ndo tren the gidi''. Ndi bat nhdt Id viec xdc nhgn vd mat phdp ly quydn ldm chu cua nhdn ddn: ''Tdt cd quyen binh trong nu&c la cda todn thi nhdn ddn Viet Nam, khdng phdn biet noi gidng, gdi trai, gidu ngheo, giai cdp. Ion gido" (Didu 1 Hidn phap nam 1946). Dd thuc hdnh quydn binh ay phai thdng qua hinh thuc dan chu dai didn va dan ehu true tidp. Nhan dan uy quydn qudn ly dat nudc cho cdc co quan dgi dipn ddm trdch. Trong sy uy thdc ay cd nguy CO cua su lam quyen va ca nhftng sai lam khi co quan dgi didn cua dan ra cac quydt sach chinh Iri va ban hanh cdc dgo ludl. Do do, nhdn dan phdi gift lgi mdt sd quyin dd quyet djnh true tiep vd tdi hgu.
Dd la quydn phiic quyit ma trudc hdt vd quan trpng nhat la xay dyng va sfta ddi Hidn phdp.
'•* David Williams, Phdp quyin vd Hien phdp, Nguon:
http://tiasang.com.vn/Default. aspx?tabid=116&Cate gorvID=42&News=4890. c|p nh5t ng^y 10/02/2012.
" Triin Dinh Huynh, Thuc hdnh ddn chU theo Tu tudng Ho Chi Minh, nguon:
http://www.xavdungdang.org.vn/Home/tutuonshochi minh/2008/1104/rhuc-hanh-dan-chu-theo-Tu-tuong- Ho-Chi-Minh.aspx. ngay 2/10/2008.
