BAN VE Dir AN LUAT
MOT SO Y KIEN VE LUAT BAN HANH VAN BAN QUY PHAM PHAP LUAT
Nguyen M i n h D o a n *
* GS..TS.Trudng Pai hoc Luat Ha Noi.
Th6ng tin bai viit:
Tir khoa: Luat Ban hanh van ban quy pham phap luat; Hien phap nam 2013
Lich su bdi viet.
Nh^bai : 04/07/2019 Bientap : 20/07/2019 Duyetbai : 01/08/2019
Tom tat:
Ban hanh van ban quy pham phap luat la viec lam thucmg xuyen, khong the thieu cua bat ky mot nha nuoc hien dai nao khi coi van ban quy pham phap luat la ngu6n_ phap luat chu y^u. Van ban quy pham phap luat dupc coi la hinh thuc the hien khoa hpc, ch^t che, chinh xac, co nhieu uu diim nhat cua phap luat. Tuy nhien, moi qu6c gia khac nhau lai quy dinh viec ban hanh chung khac nhau va trong mpt quoc gia ciing thuang ton tai nhieu loai van ban quy pham phap luat nen moi loai cung co thu tuc ban hanh khac nhau.
Article Infomation:
Keywords: Law on Promulgation of Legal Normative Documents;
the Constitution of 2013 Article History.
Received Edited Approved
04 Apr. 2019 20 Jul. 2019 01 Aug. 2019
Abstract
Promulgation of legal normative documents is a common and indispensable activity of any modem govemment once the legal normative documents are considered as a major source of laws. Legal normative documents are known a scientific, coherent and accurate promulgation manner with the most advantages of laws. However, the countries regulate the promulgation of the legal normative documents in different manners, and there are different types of legal normaUve documents in each country, so each type of legal normative documents is issued in different procedures.
S
au khi Hign phap nam 2013 cd hieu lyc, dg chi tiet hda Hien phap va khic phuc nhiing ban chg, bk cap ciia cac Iuat ban hanh van ban quy pham phap lu?t {VBQPPL) trudc day, Luat Ban hanh VBQPPL nam 2015 da dugc Qudc hgi thdng qua. Sy ra ddi cua Liiat Ban hanh VBQPPL nam 2015 da danh d4u mdt budc phat trign mdi trong qua trinh hoan thien phap luat de xay dung (ban hanh) cac VBQPPL khac.Ke tir khi Luat Ban hanh VBQPPL ra ddi.
cdng tac xay dung phap luat dan di vao ng ngp, chat lugng cac VBQPPL dugc nang cao, gdp phSn tich cue vao viec on djnh trat tu xa hdi, phat trign dat nudc ve mpi mat.
Tuy nhign, sau mot thdi gian thyc hien, Luat Ban hanh VBQPPL nam 2015 da bdc Id nhirng ban chg, bat cap can dugc tiep tuc hoan thien nham dap irng yeu cau ddi hdi ciia sy phat trign d§t nudc trong digu kien xay dyng nha nudc phap quygn, hpi nhap qudc td.
, NGHIEN Cini I QE Sai5(391)T8/2019 V L A P P H A P I ' "
BAN VE Dir AN LUAT
1. Trudc hgt, khdng ngn dat ten luat la Luat Ban hanh VBQPPL. Bdi le, Luat nay khdng quy dinh vg trinh ty, thii tuc ban hanh tat ca cac VBQPPL {mdt sd van ban cd dky dil cac dau hieu ciia mpt VBQPPL nhimg lai khdng dugc quy dinh trong Luat nay. Chang ban, Hign phap, quy che...). Do vay, cd thg dat tgn la Luat Ban hanh luat, nghi quygt cua Qudc hgi, Nghi dinb ciia Chinh phii,.. Nhu vay, chi nhiing van ban nao can phai quy dinh chat che vg trinh tu, thu tuc ban banh thi mdi quy dinh trong Luat nay
Khong dinh nghia VBQPPL trong Luat (Digu 2). Trong cac Luat Ban hanh VBQPPL da ban hanh trudc day, mdi van ban lai cd dinh nghTa vg VBQPPL khac nhau. Tham cbi cd thdi ky, trong Luat Ban hanh VBQPPL cdn ddi hdi VBQPPL phai
"digu chinb cac quan he xa hdi d dia phucmg theo dinh hudng XHCN" (Dieu 1 Luat Ban hanh VBQPPL cua Hdi ddng nhan dan va Uy ban nhan dan nam 2004). Ma dinh nghia nao cung chua phii hgp ngn da lam khd cho viec giai thich va giang day ve VBQPPL.
Bdi VBQPPL khdng phai chi cd Viet Nam sir dung ma cac qudc gia tren thd gidi ciing ddu sir dung. Do vay, the nao la VBQPPL phai dugc dinh nghia cho phii bgp chung vdi tdt ca cac nudc trgn the gidi chii khdng thg chi rieng cho Viet Nam. Theo chiing tdi, trong Luat Ban hanh VBQPPL khdng ckn djnh nghia thd nao la VBQPPL. Sd di chiing tdi dua ra quan diem trdn vi cac djnh nghia thudng dugc dua ra bdi nhiing ngudi lam khoa hgc nham phuc vu cho cdng tac nghien cuu va giang day.
Chung tdi cho rang, dg bao dam tinh chat che trong xac djnh hieu luc va trinh ty sira ddi, thdng qua VBQPPL, Luat Ban hanh VBQPPL ngn tap trung quy djnh thii tuc ban hanh doi vdi mdi loai van ban phap luat.
2. Chiing tdi cho ring, quy dinh: "Van ban cd chira quy pham phap luat nhung dugc
ban hanh khdng diing thim quyen, hinh thirc, trinh tu, thu tuc quy djnh trong Luat nay thi khdng phai la VBQPPL'" la khdng chinh xac. Bdi le, ndu mdt van ban cd day dil cac diu hieu cua VBQPPL thi nd phai la VBQPPL, cdn ngu nd khdng dugc ban banh theo dung thim quydn, hinb thirc, trinh ty, thii tuc theo quy dinh ctia phap luat thi viec ban hanh van ban dd bi coi la trai phap luat va nd se khdng cd hieu luc tbi hanh. Cac td chirc, ca nhan cd trach nhiem kigm tra, giam sat viec ban hanh VBQPPL dd phai chan van ban dd lai, tuygn bd van ban dd khdng cd hieu lyc thi hanh, bi dinh chi thi hanh hoac bi huy bd. Vi vay, chimg tdi dg nghi sua lai quy dinb trgn theo hudng: "Van ban cd chiia quy pham phap luat nhung dugc ban hanh khdng dung tham quygn, hinh thiic, trinb ty, thii tuc quy dinh trong Luat nay thi khdng cd hieu lyc thi hanh, bi dinh chi thi hanh hoac phai bi htiy bd".
Ben canh do, dg tang cudng trach nhiem ctia co quan cd tham quyen ban hanh VBQPPL, bao ve quygn, lgi ich chinh dang, hop phap cua cac td chirc, ca nhan, Luat Ban hanh VBQPPL can bd sung quy dinh cho phep td chirc, ca nhan khidu nai, td cao, tham chi la khdi kien ddi vdi VBQPPL dugc ban hanh khdng diing tham quygn.
Ngoai ra, bgn canh quy dinh vh thii tuc de cac td chirc, ca nhan cd sang kien, gdp y, phan bien ddi vdi dy thao VBQPPL, Luat Ban hanh VBQPPL can bd sung quy dinh vh thu tuc, td chuc, ca nhan dg nghi xem xet lai ddi vdi quy dinh ciia du thao van ban hoac quy dinh ciia van ban da dugc thdng qua (ky ban hanh) nhung ndi dung khdng hgp hidn, hgp phap, hgp Iy.
3. Ve nguygn tic xay dyng, ban hanh VBQPPL. Luat Ban hanh VBQPPL cin quy dinh day dii cac nguyen t4c trong xay dyng, ban banh VBQPPL ca vg mat xa hpi vk ca vg mat ky thuat. Luat Ban hanh VBQPPL
Di^u 2 Luat Ban hanh VBQPPL nam 2015.
261
L A P P H A P ^ So15(391)T6/2019BAN VE Dlf AN LUAT mdi chi tap tning dg c|ip den cac nguygn tac
mang thih chat ky thuat ma chua ndi dgn cac nguyen tic xa hpi nhu viec ban hanh VBQPPL phai cd sy tham gia cua nhan dan, cd sy lanh dao ciia Dang, nguyen tfic khach quan, khoa hpc, nguygn tac chuygn nghigp trong xay dyng phap luat, nguygn tac hai hda hda phap luat trong xay dung, ban hanh phap luat... Cac nguyen tac do cd anh hirdng rit Idn ddn chat lupng cac VBQPPL duac ban hanh.
4. Vg ndi dung mdi loai VBQPPL.
Chiing tdi cho rang, Luat Ban hanh VBQPPL khong nen quy dinh liet ke van ban do ca quan A, hay B ban hanh dung dd quy dinh nhiing gi (ndi dung ciia van ban), bdi le, VBQPPL ciia co quan A dugc quy dinh nhiing ndi dung ^\ la phy thudc tham quyen (nhiem vu, quygn han) ctia co quan do da dugc Hign phap va luat td chiic ca quan do quy dinh. Do do, viec quy dinh ndi dung cua mdi loai van ban trong Luat Ban hanh VBQPPL la khdng cin thigt (tao ra ^ua nhieu quy pham phap luat trong he thdng phap luat). Chua ke la viec c[uy dinh ddi khi l|i khdng thdng nhat vdi Hign phap va Luat to chiic.
5. Vg trinh ty soan thao cac loai VBQPPL. Luat VBQPPL chi ngn quy dinh trinh ty soan thao cho cac van ban luat la nhiing van ban cd ndi dung quy dinh nhirng van dg quan trpng, hieu luc phap luat cao, can CO trinh ty, thii tuc ban hanh chat che chinh xac; ddi vdi nhihig VBQPPL dudi luat khac, chi ngn guy dinh nhirng van de mang tinh chi tiet, td chuc thi hanh cac van ban luSt khong can phai quy dinh thii tuc soan thao qua chi tigt, chat che.
6. Vg van ban quy dinb chi tigt. Khoan 2 Digu 11 Luat Ban hanh VBQPPL nam 2015 (juy dinh: "Dy thao van ban quy dinh chi tiet phai dugc chuin bi va trinh ddng thdi vdi du an luat, phap lenh va phai dugc ban hanh de cd hieu lyc cung thdi diem cd hieu lyc cua van ban hoac didu, khoan, digm duac quy dinh chi tilt". Tuy nhien, thyc tg
cho thay, rat it khi ca quan soan thao dy an luat ddng thdi soan thao dy thao van ban quy dinh chi tiet. Ly do ciia tinh trang trgn cd thg la:
- Do sue ep vg thdi gian ddi vdi tign dp soan thao dy an luat hoac cd qua nhigu quy dinh cua du an luat can dugc quy dinh chi tigt ngn cac co quan chiu trach nhiem soan thao khdng cd dii thdi gian soan thao du thao van ban quy dinh chi tigt;
- Hien tugng nhigu quy dinh cua dy an luat sau khi trinh bi Qudc hgi sua ddi va nhu vay du thao cac van ban quy dinh chi tiet dugc soan thao cimg du an luat cung khdng cdn gia tri ngn cac ca quan cd trach nhiem thudng de Qudc hdi quyet dinh xong (thdng qua du an luat) rdi mdi tign hanh soan thao dy thao van ban quy dinh chi tigt.
Chinh nhirng ly do neu tren da lam cho tren thyc tg dy thao van ban quy dinh chi tiet cac dieu, khoan cua van ban luat thudng khdng dugc chuan bi va trinh cimg ddng thdi vdi dy an luat. Tuy vay, Qudc hgi chi chii ygu quan tam tdi dy an luat, it quan tam dgn dy thao van ban quy dinh chi tigt ngn van thdng qua dy an luat va "cho ng" du thao van ban quy dinh chi tigt. Viec khdn§ ban hanh kip thai van ban quy dinh chi tidt vd hinh chung da lam vd hieu mdt sd quy dinh (nhirng quy dinh cua lu|t can quy dinh chi tigt) cua luat tren thyc tg, gay khd khan, liing tiing cho co quan cd trach nhiem td chiic thi hanh, ap dung doi vdi cac q^uy djnh dd cua luat, lam anh hudng den quygn, lgi ich ciia td chirc, doanh nghiep, ngudi dan trong trudng hgp cd lien quan den quy djnh chi tigt do. Dg khic phuc tinh trang trgn chiing tdi ggi y giai phap sau:
Trudng hgp tdt nhat, Qudc hdi va cac CO quan khac phai thi hanh nghiem chinh quy dinh cua Didu 11 Luat Ban hanh VBQPPL la chudn bi vd trinh ddng thdi du thdo vdn bdn quy dinh chi tiet vdi du dn lugt.
phdp lenh vd phdi ban hdnh vdn bdn qtAy dinh chi tiit di cd hieu luc cung thai diem cd hiiu luc ciia vdn bdn hoac dieu. kbodn,
S615(391)T8/2019 V LAP P H A P I * '
BAN Vl DlT AN LUAT
diem duac quy dinh chi tiet. Neu ca quan firinh chua chuin bi, chua trinh dugc dy thao van ban quy dinh chi tigt thi Qudc hgi se khdng thdng qua du an luat, Oy ban thudng vu Qudc hdi (UBTVQH) khdng thdng qua du an phap lenh.
Ndu chap nhan thdng qua dy an luat, phap lenh khi chua cd dy thao van ban quy dinh chi tigt thi thdi gian cd hieu lyc ciia van ban luat, phap lenh cu thg dd can tinh ddn ca thdi gian ban hanh van ban quy dinh chi tiet, hudng dan tbi hanh, NghTa la phai dy trii kg tir khi du an luat, phap lenh dugc thdng qua cho dgn khi cd hieu lyc thi hanh thi co quan cd trach nhiem ban hanh cac van ban quy dinh cbi tiet, hudng dan thi hanh (neu cd) cd dii thdi gian chuan hi va ban hanh chiing dg bao dam van ban luat, phap lenh va van ban quy djnh chi tiet do deu cd hieu luc ciing mgt thdi diem.
Neu van ban luat, phap lenh da dugc thdng qua can phai cd hieu lyc sdm, chua thg ban hanh kip thdi van ban quy dinh chi tigt thi cd the quy dinh phuong an tam thdi de giai quyet van dg cd lign quan den quy dinh ciia luat, phap lenh can quy dinh cbi tiet. Ddng thai, Qudc hdi, UBTVQH cung ngn xac dinh ro thdi gian ca quan cd trach nhiem phai ban hanh dugc van ban quy dinh chi tigt ddi vdi trudng hgp dd.
7. Vg viec ban hanh phap lenh cua UBTVQH. Chiing tdi cho ring, can han chg, tign tdi loai bd viec ban hanh phap lenh cua UBTVQH bdi cac ly do sau day:
- UBTVQH chi la mdt trong nhiing co quan ciia Qudc hpi, nhimg lai ban hanh phap lenh, la mot loai VBQPPL cd gia tri gin nhu luat (xet ve tham quygn hinh thiic thi khdng cd van dg gi, nhung xet ve tham quyen npi dung thi ngi dung dd phai thudc tham quygn quygt dinh ciia ca Qudc hdi). Trong trudng hgp ban hanh phap lenh, UBTVQH da lin san sang tham quygn cua Qudc bdi.
Ndu trudc day Qudc hpi chi hpp trong thdi gian khoang 7 dgn 10 ngay, sau nay tang len 15 dgn 20 ngay ngn khdng cd
didu kien xem xet va thdng qua nbieu dy an luat dugc thi viec quy dinh cho UBTVQH Ik CO quan boat ddng thudng xuygn ciiapudc hdi ban hanh phap lenh, rdi sau do Qudc hdi hpp va xem xet nang len thanh luat la hgp ly.
Hien nay, mdi ky hpp ciia Qudc hdi da dugc keo dai ngi dung cac vin dd cin giai quyet tai ky hpp, Qudc bdi da cd dii thdi gian den xem xet thdng qua cac dy an luat thi khdng cin phai cd tmh hudng "chua chay" bang phap Idnh nfta. Bgn canh dd, Chinb phii da dugc trao thim quygn ban hanh nghi dinh dg digu chinh nhting quan he mdi phat sinh chua dugc digu chinh bdi luat.
8. Luat Ban hanh VBQPPL cin lam ro mdi quan he giiia Qudc hdi vdi cac co quan, ca nhan trinh dy an luat trudc Qudc hdi. Digu 84 Hign phap quy dinh:
"1. Chti tich nudc, UBTVQH, Hpi ddng Dan tdc, Uy ban cua Qudc hpi, Chinh phu, Toa an nhan dan tdi cao, Vien kiem sat nhan dan tdi cao, Kiem toan nha nudc, Uy ban trung uong Mat tran Td qudc Viet Nam va CO quan trung uong ciia td chiic thanh vign ciia Mat tran cd quygn trinh dy an luat trudc Qudc hgi, trinh du an phap lenh trudc UBTVQH,
2. Dai bigu Qudc hdi cd quygn trinh kign nghi vg luat, phap lenh va du an luat, dy an phap lenh trudc Quoc hdi, UBTVQH".
Vdi tinh thin cua Didu 84 Hidn phap thi dy an luat trinh Qudc hdi, dy an phap lenh trinh UBTVQH, nhung Muc 4 (cac didu 70, 71, 72) lai quy djnh: UBTVQH cd the xem xet, cho y kien vi du dn lugt, du thdo nghi quyet cua Qudc hdi mot hoac nhiiu lan.
Tren casdykiin cua UBTVQH. caquan, td chirc, dgi bieu Qudc hoi trinh du dn lugt. du thdo nghi quyet cd trdch nhiem nghien ciru, tiep thu de chinh ly dir dn, du thdo.... Quy dinh nay da trao cho UBTVQH quygn kidm soat ho^t dpng lap phap ciia cac ca quan cua Qudc hdi, dai bigu Quoc hgi. Digu nay khdng phil hgp vdi tinh thin ciia Digu 74 va 84 Hign phap nam 2013 •
ILAP P H A P - / S615(391)T8/2019
