7-
M O T S O V A N D E V E CACH THlTC Xlf LY KHI DlTONG Sir VANG MAT TAI PHIEN TOA
XET XlT VU AN HANH CHINH
Nguyen Hodng Yen
Tom tat: Quy dinh phdp ludt ve cdch thiec xit ly khi duang su vdng mgt tgi phien tda xet xie vu dn hdnh chinh cdy nghta quan trpng trong viec bdo vi quyin. lgi ich hgp phdp cua duang su vd bdo ddm hiiu qua xet xit vu dn hdnh chinh. Bdi viit trao ddi ve cdch thiec xu ly khi duang su vdng mat tgi phien Ida xet xie vu dn hanh chinh theo quy dinh cUa phdp lugt td tung hdnh chinh, neu mdt sd hgn che vd dua ra phuang hu&ng hoan thien phdp ludt.
Abstract: Law and regulation concerning ways lo handle situations when litigants are absent in a trial of an administrative case play a significant role in protecting their rights and legitimate interests and ensuring the effectiveness of administrative case adjudication. This article discusses such ways according to administrative procedure law and regulation and points out some shortcomings as well as direction to improve that law and regulation.
Q
uyin va nghTa vu cua duang su khi tham gia phien toa xet xii vu an hanh chinh dugc quy dinh tai khoan 6 Dieu 49 Luat T 6 tung Hanh chinh (LTTHC). Su cd mat ciia duang su tai phien tda khong chi la CO hgi de hg bao ve quyen, lgi ich hgp phdp ciia minh ma con bdo dam cho hogt dgng xet xii cua toa dn dugc tien hanh nhanh chdng, thuan lgi. Khi duang su vang mdt tai phien toa, tiiy theo timg trudng hgp cu t h i , Hgi d6ng xet xir co cac each thiic xu ly khac nhau nhu hoan phien tda, vdn tiin hanh xet xii hoac dinh chi giai quyet vu an. Quy dinh ciia phap luat to tung hanh chinh hign hdnh v i each thiic xii ly trong trudng hgfp duong sir vdng mat tgi phien tda CO bdn da bao dam yeu cdu tao dieu kign cho duang su dugc tham gia phien toa trong mgt so trudng hgp nhdt dinh, mgt mdt khong ldm can trd, tri hoan qua trinh" ThS., Truflng D^i hpc Luat TP. Ho Chi Minh.
gidi quyet vu an hanh chinh. Tuy nhien, cac quy dinh nay van con ton tai mgt so han che, vudng mac nhat dinh, tix do anh hudng den quyen, Igi ich hgp phap cua ducmg su, keo dai thdi han gidi quyet vu an hanh chinh.
1. Quy dinh cua Lu^t To tung Hanh chinh v l each thvc x v \f khi duong su- vdng mat tai phi@n toa xH xir vu an hanh chinh
Nhdm bao dam quyin dugc thara gia phien toa cua ducmg su, tda an phdi tien hdnh trieu tap hgp le cac duang su vd khi dugc trieu tap hgp le, ducmg sir phai co mat tai phien toa. Theo quy dinh hien hanh, tda an chi bdt huge trieu tap cac duang su tham gia phien tda xet xu so thdm va phiic tham vu an hanh chinh. Trong trudng hgp duang su vdng mgt khi dugc tda an trieu tap hgp le, Hgi ddng xet xii se cd each thiic xu ly khac nhau.
NHA Nu'dc VA PHAPLUATSO 5/2015
l.I. Cdch thuc xir ly khi duang su vdng mat tgi phien toa xet xir sa tham
Phien tda xet xu sa tham la phien tda xet xu vu an hanh chinh lan dau, xem xet toan dien cac yeu cdu ciia duong su, do dd, duong sir phai co mat theo giay trieu tap cua tda an. Dieu 131 LTTHC quy dinh cu the ve each thiic xii ly khi duang su dugc toa an trieu tap hgp le ma vang mat. Cu the nhu sau:
a Khi dugc Ida dn Irieu tap hgp le ldn thie nhdt
Viec toa an trieu tap hgp le lan thii nhat lam phat sinh nghTa vu co mat tai phien toa cua duang su. Chinh vi the, each thiic xir ly khi duong su vdng mat tai phien toa dugc quy dinh theo hudng tao dieu kien cho duong sir CO ca hgi tham gia phien toa d&
bao ve quyen, lgi ich hgp phap ciia minh.
Khoan 1 Diiu 131 LTTHC quy dinh: "Tod dn trieu tap hpp le ldn thie nhdt, duang sie hodc ngu&i dgi dien cua hp, ngu&i bdo ve quyin vd lgi ich hpp phdp cua duang su phdi cd mat; Iru&ng hap cd ngu&i vdng mat thi Hpi ddng xet xit hodn phien tod, trie Iru&ng hap ngu&i dd cd dan de nghi xel xir vdng mdt". Nhu vdy, khi dugc toa an trieu tap hgp le lan thir nhdt, duong su phai c6 mat, trudng hgp cd ngudi vang mat thi Hgi dong xet xir hoan phien toa ma khong dat ra yeu cau co ly do chinh dang hay khong. Ben canh hoan phien toa, trong trudng hgp duong s\r vang mat nhung co ngudi dai dien tham gia phien toa hoac duang sir, ngudi dai dien cua duong sy vang mat tai phien toa nhung CO don de nghi Toa an xet xii vang mat, tda an vdn tien hanh xet xu vu an .
Khoan 1,2 Dieu 132 Luat To tung Hanh chinh.
b. Khi dugc tda dn triiu tap hgp le ldn thie hai
Khi toa an trieu tap hgp le lan thii hai ma ducmg su vdng mdt khdng vi su kign bdt kha khang, theo quy dinh tai khoan 2 Dieu 131 LTTHC, duong su se phdi chiu cac hau qua phap ly nhu sau:
- Doi vdi ngudi khdi kien, ngudi dai dien theo phap ludt md khdng co ngudi dai dien tham gia phien toa thi bi coi la tir bo viec khdi kien va toa an ra quyet dinh dinh chi gidi quyet vy an ddi vdi yeu cau khdi kien cua ngudi do, trir trudng hgp ngudi do CO dan de nghi xet xir vdng mdt.
- Ddi vdi ngudi bi kien, ngudi co quyen lgi, nghTa vu lien quan khong cd yeu cau dgc lap ma khong cd ngudi dai dien tham gia phien toa thi toa an tien hanh xet xu vang mat hg.
- Doi vdi ngudi cd quyen lgi, nghTa vy lien quan co yeu cau dgc Igp ma khong co ngudi dai dien tham gia phien toa thi bj coi la tir bo yeu cdu ddc lap cua minh va toa an ra quyet dinh dinh chi viec giai quyet vy dn doi vdi ySu cdu dgc lap cua ngudi do, trir trudng hgp ngudi do co don dS nghi xet xii vang mat. Ngudi cd quyin Igi, nghTa vy li6n quan co yeu cau dgc lap co quyin khdi kien lai doi vdi yeu cau dgc lap do, niu thdi hieu khdi kien van cdn.
Nhu vay, khi da dugc tda an trieu tgp hgp le den lan thii hai ma cac duong sir vang mdt khdng vi su kien bat kha khang, Hgi ddng xet xu se khdng hoan phien toa md se cd cac each thiic xir ly khac nhau tiiy thuoc vdo tu each ciia duong su vdng mdt.
Quy dinh nay hoan todn hgp ly nhdm bao dam qua trinh gidi quyet vu an hdnh chinh khdng hi tri hoan, bao ve quyen, lgi ich hgp phap cua cdc duang su khac trong vu an hanh chinh.
MQT so VANDE VE CACH THU'C.
1.2. Cdch thirc xu ly khi duffng su vdng mat tgi phien toa xet xit phuc thdm
Phuc thdm la thii tuc xet xu lai ban an, quyet dinh cua tda an cap so tham chua co hieu lye phap luat bi khdng cao, khang nghi.
Day la cap xet xu thu hai nen sy cd mat cua cdc duong sy dugc dat ra khong kem phdn quan trgng so vdi thii tuc xet xir sa thim.
Theo quy dinh tai Diiu 195 LTTHC, khi dugc tda an trieu tap hgp le ldn thii nhdt, ngudi khang cdo, ngudi c6 quyen lgi, nghTa vu lien quan den viec khang cao, khang nghi phai co mat, trudng hgp co ngudi vang mat thi Hgi ddng xet xu phdi hoan phien toa. Khi dugc toa an trieu tap hgp le ldn thii hai, ngudi khdng cdo phai cd mat, neu vdng mat khong vi sy kien bdt kha khang ma khong CO ngudi dgi dien tham gia phien toa thi bi coi id tir bo viec khang eao va tda dn ra quyet dinh dinh chi viec xet xii phiic thdm bdn an, quyet djnh hogc phan ban an, quyet dinh cd khang cao cua ngudi khang cao vdng mat. Doi vdi ngudi co quyen lgi, nghia vu lien quan den khang cao, khang nghi idii dugc toa an trieu tap hgp le lan thii hai ma vang mdt thi toa an tien hanh xet xii vang mat hg. Ngoai ra, trong trudng hgp duang su co dom de nghi xet xu vang mat thi toa an tien hanh phien toa xet xii phiic tham vdng mat hg.
2. Mot so han che va phuomg hudng hoan thi^n phap luait ve each thirc xu ly khi duong su* vang mat tai phien toa xet xuvu an hanh chinh
Sy cd mat cua duang sy va each thiic xir ly khi duong sy vdng mat tai phien tda xet xir vy an hanh chinh da dugc LTTHC quy dinh kha cu the, qua do gop phdn bao dam quyin, lgi ich hgp phap ciia duang sy va hieu qua xet xOr vu dn hdnh chinh. Tuy
nhien, co the nhgn thay, cdc quy dinh nay van cdn tdn tgi nhirng diem chua that sy phu hgp vd mgt so ngi dung can thiet, quan trgng khong dugc phdp luat quy dinh.
Thu nhdt, viec duong sy vdng mat tgi phien tda khi dugc toa an trieu tap hgp le den lan thii hai co the lam anh hudng den hogt dgng xet xir ciia toa an va quyen lgi cua cac duang su khac, do do, trong trudng hgp nay duang sy se phdi chiu cac hdu qua phap ly bat lgi theo khoan 2 Diiu 132 va khodn 2 Dieu 195 LTTHC. Tuy nhien, ciing theo cdc quy dinh tren, sy vang mat ciia duang sy khi dugc Tda an trieu tap hgp le lan thli hai chi co the bi xii ly theo quy dinh khi duang su vang mat khong vi su kien bdt kha khang. Neu duang sy vang mat vi sy kien bat kha khang, Hgi dong xet xir cd the hoan phien toa. Tren thuc te, rat nhieu trudng hgp Hgi dong xet xu da hodn phien toa, nhung hien nay, nhiing trudng hgp nay khong dugc quy dinh la mgt trong nhimg can Cli hoan phien toa tai Diiu 136 va Diiu 201 LTTHC.
Vi du, ngay 30/10/2013, Toa an nhan dan TP. Ha Ngi thu ly vu an ong Hoang Xudn Que khdi kien Quyet dinh sd 4674/QD-BGDDT ngay 11/10/2013 cua Bg trudng Bo Giao due va Dao tgo ve viec thu hdi bang Tien sT nganh kinh te. Ngay 28/7/2014, Toa an nhan dan TP. Ha Ngi dd hodn phien toa do dgi dien theo uy quyen cua ngudi bi kien vang mat. Ngay 04/8/2014, ong Que co dem xin hoan phien toa vi Iy do siic khoe va toa an da ra quyil dinh hoan phien tda .
" http://vietnamnet.vn/vn/giao-duc/190541/tiep-tuc- hoan-xu-vu-tien-sv-bi-thu-hoi-bang-kien-bo-truonp- bo-gd-dt.html. truy c|p ngay 04/01/2015.
.\7/.-i ,Vt'OC VA PHAP LUAT so 5/2015 Viec Hgi ddng xet xii hodn phien toa la hoan toan hgp ly, tuy nhien, van de dgt ra la each thuc xir ly tren cd bi xem la vi pham nghiem trgng vi thii tuc to tung vi khong thuge cac trudng hgp hoan phien toa theo quy dinh ciia phap luat? Chinh vi the, chiing toi nhgn thdy, can bo sung trudng hgp duong su vang mat tai phien toa khi dugc toa an trieu tap hgp le lan thOr hai, vi sy kien bat kha khang la can cii hoan phien toa tai Diiu 136 vd Diiu 201 LTTHC.
Thic hai. nhu d§ dugc phan tich, khi ducmg su dugc toa an trieu tap hgp le den lan thli hai ma vang mat do sy kien bat khd khang, Hgi dong xet xii khong the xu ly theo khoan 2 Dieu 131 \ a khoan 2 Dieu 195 LTTHC. Tuy nhien, su kien bdt kha khang la sy kien xdy ra mgt each khach quan khong the ludng trudc dugc, nen duong sy kho CO the thong bao cho toa an biet ve ly do sir vdng mat cua minh. Trong trudng hgp do khong nhan dugc thong bao tir duang su, Hgi dong xet xii da xii ly theo quy dinh cua phap luat (dinh chi giai quyet vu an, dinh chi xet xu yeu cdu dgc lap, xet xir vdng mat duong sy) gay anh hudng rat ldn den quyen, lgi ich hgp phap cua ducmg su. Hien nay, pliap Iuat to tung hanh chinh chua quy djnh cu the each thiic xir Iy trong trudng hgp Toa an khong nhdn dugc thong bao ve sy kien bat kha khang ldm cho ducmg sy khong the CO mat khi dugc trieu tap hgp Ie.
Trong to tyng dan sy, van de nay da dugc quy dinh cu the tai khoan 3 Dieu 28 Nghj quyit s6 05/2012/NQ-HDTP ngdy 03 thang 12 ndm 2012 ciia Hgi dong Tham phdn Toa an nhdn ddn toi cao ve viec hudng dan thi hdnh mgt sd quy dinh trong Phan thli hai "Thu tuc giai quyet vu an tgi toa an cap so tham" cua Bg lugt To tung Ddn sy,
da dugc sua d6i, b6 sung theo Lugt sira ddi, bo sung mgt sd diiu cua Bd lugt To tung Dan su. Theo quy dinh nay, trudng hgp duong su da nhdn dugc quyet dinh dua vu an ra xet xir, da dugc toa an tong dat hgp le gidy trieu tap phien toa theo quy dinh va duang sy da chuan hi tham gia phien toa xet xir vu an, nhung do sy kien bat kha khang xay ra doi vdi hg vdo trudc thdi diem toa an md phien toa hoac ngay trong thdi diem hg dang tren dudng den toa an de tham gia phien toa (do thien tai, dich hga, bi tai nan, dm nang phai di benh vien cap ciru, ngudi than bi chet,...) nen hg khong the CO mat tai phien toa theo giay trieu tap ciia tod an, thi toa an cung hoan phien toa.
Trudng hgp do toa an khong nhgn dugc thong bao tir phia duang su nen van tien hanh xet xir vu an vang mat hg, neu sau khi ban an, quyet dinh ciia toa an co hieu luc phap Iudt, duong sy co khieu ngi va chiing minh dugc viec hg vang mat tgi phien toa la do sy kien bat kha khang, thi khieu nai cdn dugc xem xet theo thu tue tai thdm.
Vi the, nham bao ve quyen, Igi ich hgp phap cua duong sy, phap luat to tung hdnh chinh can quy dinh cu the each thuc xir ly trong trudng hgp tda an khong nhan dugc thong bao tir phia ducmg su vi sy kien bat kha khang nen da dinh ehi giai quyet vu an, dinh chi xet xu yeu cau hodc tien hanh xet xir vang mat duong sy.
Thie ba. LTTHC quy dinh each thiic xu ly khi duong su vang mat tgi phien toa dugc xac dinh dya vao so lan toa an trieu tap cac duong sy. So vdi quy dinh trudc day ciia Phap lenh Thu tuc giai quyet cac vy an hanh chinh nam 1996 (sua ddi, bd sung nam 1998 va ndm 2006), quy dinh each thiic nay da khde phuc dugc tinh trang nhimg ngudi
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MOTSO VANDE VE CACH THU'C..
dugc trieu tap luan phien vdng mat Iam keo dai vu an hanh chinh^. Tuy nhien, quy dinh hien hanh vdn chua that sy chat che va de gay nham lan khi ap dung.
Theo quy dinh tgi Dieu 131 va Dieu 195 LTTHC, khi toa an trieu tap hgp le ldn thii nhdt ma duong sy vang mat, Hgi dong xet xu phdi hoan phien tda trir trudng hgp ngudi do CO don de nghi xet xir vang mat.
Neu vang mat khi Toa an trieu tap hgp le lan thli hai, Hgi dong xet xii se xu ly theo khodn 2 Dieu 131 va khodn 2 Dieu 195 LTTHC. Quy dinh nay cd the dan den each hieu la duong su chi dugc toa an trieu tap hgp Ie t6i da hai ldn. Tren thuc te. rat nhieu trudng hgp ducmg sy dugc toa an trieu tap hgp Ie han hai ldn do Hgi dong xet xu hoan phien toa nhieu lan theo quy djnh ciia phap lugt (ngudi tien hanh to tung vdng mat khong CO ngudi dy khuyet tham gia tir dau, ngudi phien dich vdng mat khong co ngudi thay the ngay...).
Ben canh do, vdi each quy dinh nay, doi vdi trudng hgp duong sy dugc toa an trieu tap hgp le tu ldn thii ba trd di ma vdng mat khong vi su kien bat khd khang, neu dp dung khoan 2 Diiu 131 vd khoan 2 Dieu 195 LTTHC di xii Iy la kho thuyit phuc, bdi le, cac quy dinh ndy chi ap dung trong trudng hgp "Tda dn trieu tap hgp le ldn thu hai". Chinh vi thi, di dam bao tinh chinh xac va chat che trong quy dinh phap Iuat, chiing toi cho rdng khoan 2 Diiu 131 va khoan 2 Diiu 195 LTTHC nen b6 sung ngi dung nhu sau: "Tda dn triiu tap hop li tit ldn Ihu- hai. duang sie hogc ngu&i dgi dien ciia hg, ngu&i bdo v? quyin vd lgi ich hgp
^ Khoan 2, 3, 4 Dieu 43 Phap Ifnh Thii tyc giai quyet cac vv an hinh chinh nftm 1996 (sua dfli, bfl sung nam 1998 va nam 2006) cSn cu vAo sfl lln vSng m^t ciia ngudi dugc trifu t§p dk quy djnh each thirc xii ly.
phdp cua duang su phdi cd mdl, neu vdng mat khdng vi su kien bdt kha khdng ihi xie ly nhusau:...".
Thie tu, trong qua trinh giai quyet vu an hanh chinh, duong sy co the tu minh hoac iiy quyen cho ngudi khac tham gia to tung.
La chu the thay mat duong su thyc hien cac quyen va nghia vy to tung, su co mat cua ngudi dai dien theo uy quyen co y nghia quan trgng trong viec bao ve quyen, lgi ich hgp phap cho duong sy. Tuy nhien, hien nay, phap Iudt td tung hdnh chinh khong quy dinh each thiic xir ly trong tnrdng hgp ngudi dai dien theo uy quyen cua ducmg sy vdng mat khi dugc toa an trieu tap hgp le lan thli hai cung nhu su co mat ciia chu the nay tai phien toa xet xii phuc thdm.
Ngudi dai dien theo iiy quyen cua duong sy phai dugc toa an trieu tap tham gia phien toa. Theo quy dinh tai Dieu 131 LTTHC, khi dugc toa an trieu tap hgp le, ngudi dai dien ciia duong su phai co mat.
Niu ving mat khi dugc tda an trieu tap hgp le Idn thli nhdt, theo khoan 1 Diiu 131 LTTHC, Hgi d6ng xet xu se hodn phien toa trir trudng hgp ngudi do co dan de nghi xet xir vdng mat. Trong trudng hgp ngudi dgi dien theo uy quyin cua duang sy dugc tda an trieu tap hgp le ldn thii hai md vdng mat vi su kien bdt kha khang, LTTHC khong quy dinh each thiic xii Iy. Khoan 2 Dieu 131 chi quy dinh hdu qua phap Iy khi duong su, ngudi bao ve quyen va lgi ich hgp phap cua duong su vdng mat khong vi sy kien bat khd khdng. Tren thyc ti, co rat nhieu trudng hgp do 6m dau, tai nan, di cong tac xa dot xudt... lam ngudi dai dien theo iiy quyen cua duong sy khdng the co mat khi dugc toa an trieu tap hgp le. Day la nhitng sy kien xay ra mgt each khach quan lam cho ngudi
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NHA Nu'dc VA PHAPLUATSO 5/2015
ddn dau cimg cue ttong khi ngudi ta can duge giai thoat cung la mgt sy nhdn tara".
Tuy nhien, nguy ca cita an tir ty nguyen chii dgng" la ehii the dl tir bo y chi trong khi hg van cdn hy vgng, thdm chi tu muon cham diit mgng song cua chinh rainh trong khi van con co the co gang. Vi vay, phap Iuat cdn quy dinh that r5 rdng, chi tiet dieu kien de chdp nhan quyen dugc an tir ciia mgt ca nhdn.
- Quyin dugc chet khdng ldm xdi mon quyen ca bdn Id dugc sdng. Ngudi benh nan y d giai dogn cudi chiu nhieu dau ddn, myc dich cua quyen dugc chet la ldm cho hg khong phdi sing dau ddn keo dai va do la myc dich nhan dgo. Hg khong ch6i bo
quyen dugc sing ma vi hg khong con du dieu kien dam bao sy sdng.
- Quyin dugc chit cUng khdng mdu thudn v&i quyin sdng da dugc hien dinh. Lya chgn "eai chit em ai" la quyen cua b$nh nhdn. Day la mgt quyin nhdn than eo diiu kien, chi dp dung ddi vdi mdt so it ca nhan ttong xa hgi va chi cdn ghi nhgn ttong phap Iuat ddn sy. Trong khi do, quyen song dugc ghi nhdn nhu mgt quyen co ban ttong Hiin phap dugc dp dung cho tdt cd mgi ngudi.
- Quyin dugc chit cUng khong lam gia tdng lu lu, vi de cd duge quyen nay phai dap ling rdt nhieu dieu kign, vd phdi co sir tham gia cua bac sy, co sd y ti, Hgi dong giam dinh. Quyen dugc chet la m6t quyen CO dieu kien.
"^ "Bat phai sing nhifiu khi la nhln tam", ngu6n: http://kienthuc.net,vn. ngiy 27/11/2012.
Bfinh con du Iy tri, tinh tao de dua ra quyfit djnh xin dupc chfit hoac tru6c khi rai vao giai doan cu6i cua bfnh t|t cfl chuc thu y ti xin dupc chit nfiu nhu roi vko tinh tr^ng khong cihi chOa dugc.
(Tiep theo trang 11 -Mptso van de vi ...)
dai dien theo uy quyen ciia duong su khfing the tham gia phien toa nhung khong dugc LTTHC quy dinh Id mgt trong nhiing cdn cii hodn phien toa tgi Dieu 136. Vi the, nham bao dam quyen va lgi ich hgp phap cua duong su, LTTHC can bo sung trudng hgp ngudi dai dien cua duong su dugc toa an tri?u tap hgp le Ian thii hai vang mat vi su kien bdt khd khdng la mgt ttong cac cdn cii hoan phien toa tgi Dieu 136.
Ben cgnh do, viec iiy quyen tham gia td tyng CO the dugc thyc hien trong giai dogn xet xii phuc thdm, tuy vdy, Dieu 195 LTTHC khong quy dinh vi sy co m^t cua
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ngudi dai didn cua duong su n6i chung ciing nhu cdch thiic xir ly khi chii the nay vang mat tgi phien toa xet xu phiie tham.
Thieu sot tt6n cd the ddn din khd nang niu duong su liy quyen cho ngudi khac tham gia to tyng va ngudi nay vang mat, H6i dong xet xOr se khdng co co sd de xu 1^ va ngudi dai di^n theo uy quyfin khong nh|n thiie dugc trdch nhiem cua hg phai co mat tgi phien toa khi dugc Tda an trifiu tap.
Chinh vi vdy, khoan I va khoan 2 Diiu 195 LTTHC cdn bd sung "ngu&i dgi diin" vao thanh phan phai c6 ragt khi dugc tda ^ trieu tgp hgp le ldn thii nhat va ldn thii hai.
