^jip, Q, kiin tAa dSl 76ihifikdp.
86 2 (251)-2013
QUTEN LAP H | ! N VA QUYEN LAP PHAP
at Mi. ti _ i i £ - . _ S - I GS.TS. NGUYEN DANG DUNG 'S
iia ddi Hien phdp, trudc het chiing ta phai phan biSt dugc sy khac nhau giiia quyen lap hien vd quyen lap phdp. Rd rdng la giua quyen lap hidn va quyen lap phap cd sy khac nhau. Quyen lap hiin Id quyen lap quyen, nd phdi khdc vdi quyen lap phap, hanh phdp va tu phap, tuc la nd phai khac vdi nhung quyen ma van thudng dugc ggi la tam quyen, nhirng quyen ma quyen lap hien da thanh lap ra. Quyen lap hien nhu la cai quyen goc, nd khac vdi cdc cdnh quyen la con nd va do nd sinh ra. Quyen lap hien phdi Id quyen cao hem cac quyen lap phap, quyen hanh phdp va quyen tu phap. Trong mpt nhd nudc dan chii, quydn lyc nha nudc thudc ve nhan dan, chi cd nhan ddn radi cd quyen lap hien.Quyen tien khdi thdnh lap ra Nha nudc dung tren cdc quyen khac. Quyen nay ve nguyen tac xuat phdt tir nhan dan, dugc hinh thanh nhu Id mpt ban khe udc xa hpi, quyen thanh lap ra Nhd nudc. Quyen lap phdp, hdnh phap va tu phdp nhu Id cdc quyen td chirc nhd nudc, chiing phdi phy thudc vao quyen lap hien. Co quan ldm hien phdp thudng dugc ggi la Qudc hgi lap hien, nd khdc vdi Qudc hdi lap phdp - lam ludt, vd khi lam ludt phdi tuan thu cdc quy dinh cua Hien phap. Khi lam sai hoac khdng
man thii cdc quy dinh ciia Hien phap, Qudc hpi Idp phdp cd the bj xet xir d Tda bdo hien nhu la mdt hdnh vi vi hi§n.
Tren co sd nghien ciiu 160 Hien phap cac nudc khac nhau h:en the gidi, B.O. Nwabueze, mdt chuyen gia Hien phdp vidt: "Neu Hien phap la ngudn hinh thanh ra quyen lyc ciia chinh quyen, thi duong nhien chinh quyen khdng the lara ra nd. Logic ndy rdt de hieu neu chiing ta mudng tugng nhan dan Id mdt cdng ddng chinh tri lan dau tien cd nhu cau xay dyng mdt md hinh chinh quyen cho hp. Hien phdp ciia mdt cdng ddng nhu vdy khdng the la mgt hanh ddng cua mdt chinh quyen, cai dugc hinh thanh tir Hien phap. Cai gi chua dugc xay dyng, va chua tdn tgi thi khdng the hanh dpng.
Nhu rapt hdnh ddng xay dyng khudn khd chinh quyen cho nhdn ddn, vi the la mdt hanh dgng nguyen thuy. Vi vgy nhan dan la chu the ciia quyen lap hiSn, la ngudi chdp thudn vd thdng qua Hien phap"'.
Qudc hpi lap hien cd nhiem vu duy nhat (hogc nhiem vy chu yeu) Id soan thdo vd thdng qua Hien phap. Qudc hdi lap hien do cu tri bdu ra theo nguyen tac bau cir phd thdng, binh dang, ti-yc tiep va bd phieu kin. C o quan ndy cham diit hoat dgng sau khi thdng qua ban
* Khoa Ludt, Dgi hpc Quoc gia Hd Npi
Ddn chCi & Phdp ludt I
^j6ft (^ kiln ujta dii Wun. pkAp. 86 2 (251)-2013
Hien phdp.
Nhu vgy quyen lap hien Id quyen nguyen thiiy phdi thupc ve nhan dan. Thay vi nhan dan rdt khd Idm vdn dc nay, thudng la iiy quydn cho mdt Qudc hgi lap phdp cd quyen lap hien.
Trong trudng hgp khdc, cd the dy thdo Hien phap do Qudc hdi lap phdp thyc hien, vd ban du thdo Hien phdp dugc Qudc hdi lap phap thdng qua phdi qua cdng doan toan ddn bd phidu phiic quyet.
Nhieu tai Heu coi Hdi nghi lap hien ciing Id mpt dang Qudc hgi lap hien. Vdi nghTa dd, hinh thuc nay dugc td chiic ddu tien d My dudi ten ggi Id Hdi nghj lap hien Philadelphia de soan thdo vd ban hdnh Hien phdp nam 1787 cua Hgp chimg qudc Hoa Ky. Hien phdp Italy nam 1947, Hien phdp Bd Ddo Nha nam 1976, Hien phap Rumani nam 1991, Hien phdp Estonia nam 1992, Hien phdp Campuchia...
deu dugc sogn thao vd ban hdnh theo each dd.
Cdn dung vdi nghia Qudc hdi lap hien thi hinh thiic nay Ian dau tien dugc ap dung d Phdp nam 1789, va sau nay dugc dp dyng nhieu d chdu Au, A, My Latin. CJ chau A, An Dp la nudc ddu tien cd Qudc hpi lap hien vao nam 1950, tiep sau dd Id Nepal nam 1951. O chau Phi thudng thanh lap Uy ban soan thdo Hien phap, nhung vdo nam 2004, Tda an Kenya da tuyen, chi cd mdt Qudc hdi lap hien do nhdn dan trye tiep bdu ra mdi cd quyen xdy dyng Hien phdp mdi-.
Hien phdp nam 1946, Hien phap ddu tien cua Nha nudc Viet Nam dudi su lanh dao true tiep cua Chil tich Hd Chi Minh cd su phdn djnh raeh rdi giiia Qudc hpi lap hien va Qudc hpi lap phap. Giira quyen lap hien vd quyin lap phap
ciia nhiing Hien phdp nay cd sy khdc nhau.
Chinh Qudc hgi thdng qua Hien phdp dupe ggi la Qudc hgi lap hien cd nhiem vy lam Hiin phap, chi ldm nhidm vu lap phdp trong trudng hgp cdp bach trong khodng thdi gian ldm Hien phdp. Nhung trong diiu kipn dgc biet cua chiin tranh dang lan rdng nen: "Viec bau Nghi vien nhdn dan theo quy djnh ciia Hien phdp chira the td chiic dugc. Qudc hgi chua het nhiem vu ma can phai tiep tyc hoat dgng cho den khi bSu ra Nghj vien nhdn ddn"^.
Nhu vay, trong dieu kidn khd khan cua chien tranh, chiing ta da lay Qudc hdi lap hien thay cho Qudc hgi lap phdp, quyen lap hi§n kiem cd quyen lap phdp. Quyen lap hien bao gdm sang quyen lap hien vd cdch thiic sira doi Hien phap dugc Hien phdp nam 1946 quy djnh thanh mgt chuong ridng dugc ggi Id Chucmg VII Siia ddi Hien phap. Dieu 70 quy djnh:
"Sira ddi Hien phdp phdi theo cdch thiic sau day:
a. Do hai phan ba tdng sd nghj vien yeu cau, b. Nghj vien bau ra mdt Uy ban dy thao nhirng dieu thay ddi. Nhiing dieu thay ddi da dugc Nghj vien ung chuan thi phai dua ra toan ddn phiic quyet".
Quyen lap phdp dugc Hien phap nam 1946 quy djnh Nghi vien nhdn ddn d Dieu 23:
"Nghj vien nhdn dan gidi quyet mgi van de chung cho todn qudc, dgt ra phap ludt, bieu quyet ngan sdch, chuan y cdc hiep udc ma Chinh phil ky vdi nudc ngodi".
Nhu vdy d day cd sy phdn biet giiia lap hien vd lap phap. Qudc hdi lap hidn cd chiic nang lam Hien phdp vd Qudc hgi lap phdp cd chitc nang chi lap phdp vd dugc ggi la Nghj vien
E 3 Ddn chCi & Phdp ludt
Q4p. g. kien idu dii ICiht fikdfi
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nhan dan.
Viec quy djnh Qudc hdi cd quyen lap hien chi cd tir Hidn phdp nam 1959. Dieu 50 cua Hien phap nam 1959 quy djnh:
"Qudc hdi cd nhirng quyen ban sau day:
1. Lam Hien phap va siia ddi Hien phap.
2. Ldm phdp ludt".
Hien phap nam 1959, Hien phdp nam 1980 vd Hien phdp nam 1992, khdng nhirng quy djnh Qudc hgi cd quyen lap hien, ma cdn khang djnh rd Qudc hdi Id co quan cd quyen lap hien vd lap phap. Nhu vgy, trong trudng hgp nay Hien phdp cua chung ta da nhap quyen lap hien vdo quyen lap phdp. Quyen lap hien nhu Id mdt quyen di theo cua quyen lap phdp.
Hay ndi mot each nhe nhang hon, khdng cd sy phdn biet giiia lap phap va lap hien. Dieu 82 cua Hien phap nam 1980 quy dinh: "Qudc hdi Id CO quan dai bieu cao nhat ciia nhan dan, co quan quyen lyc nha nudc cao nhdt cua nudc Cdng hod xa hpi chu nghTa Viet Nam. Qudc hdi la CO quan duy nhat cd quyen lap hien vd lap phdp...'
Diiu 83 cua Hien phdp nam 1992 hien hanh cung quy djnh tuong tu. Rdt tide rang, Dy thao siia ddi Hien phap nam 1992 cung di theo con dudng nhu vdy. Dieu 74 Dy thdo sira ddi Hien phap nam 1992 sua ddi, bd sung Dieu 83 ciia Hiin phap nam 1992 vilt: "Qudc hdi Id co quan dgi bieu cao nhdt ciia nhdn ddn, co quan quyen lyc nha nudc cao nhdt ciia nuoc Cdng hod xa hgi chii nghia Viet Nam. Qudc hdi thuc hien quyen lap hien, quyen lap phdp, quyet dinh cdc van de quan tigng ciia ddt nudc vd gidm sat tdi cao ddi vdi hogt dgng ciia Nha nudc"'^
Vice quy djnh nhu vay da kc thira quy djnh ciia Hiin phap nam 1959, nam 1980, vd ndm 1992, the hien dugc vj the ciia Qudc hgi vdi tinh chdt Id ca quan duy nhdt gdm cac dgi bieu do cir tri ciia toan qudc bdu ra, ddng thdi the hien dugc chirc nang quan trgng dugc nhdn dan uy quyin cho Qudc hdi. Dd Id ban hdnh Hiin phap, ban hdnh lugt, quyet djnh nhiing van dc quan trpng ciia ddt nudc, thidt Igp nen cac CO quan hien djnh trong bd may nhd nudc, gidm sdt tdi cao boat dgng cua todn bp cac co quan nha nudc. Viec quy dinh bd dogn "duy nhdt cd quyen", td rd cd nhdn thirc diing dan vi tren thuc te cd sy tham gia tich eye ciia cdc co quan hanh phap - Chinh phii va cac bd vao quy trinh lap phap vd lap bien nhu hien tai, tdi hon 80% tdng sd dy an ludt dugc Qudc hdi thdng qua do Chinh phu trinh dy thdo.
De the hien ro tinh chat, vi tri vai trd ciia Qudc hdi, tren co sd ciia Hien phdp nam 1992, Hien phap sira ddi Ian ndy cd the quy dinh theo hudng Qudc hoi la co quan dgi bieu cao nhdt ciia nhdn ddn, co quan cao nhat ciia quyen luc nha nudc, thyc hien quyen lap phdp. Quy djnh nhu vay Id ke thua Hien phdp nam 1946, chi ro mdi quan he quyen lyc cua cdc co quan trong bd may nha nudc va the hien Qudc hdi la co quan chii yeu thyc hien quyen lap phdp theo Nghj quyet Dgi hdi dai bieu Dang Ian thir mudi mdt. Cdch the hien ndy khdng lam thay ddi vi tri, dnh chat ciia Qudc bdi, ma the hien chinh xac, diing dan hem ban chat cua Qudc hdi la co quan lap phap trong mdi quan he giiia cac co quan nhd nudc trong viec thuc hien quyen lap phap, hanh phap va tu phdp^. Nhung y kien ndy van khdng dugc chap nhdn. Dy thdo sua
Ddn ch£i & Phdp ludt El
0j6fi ^ kiin idu dii 76i^ phdp.
86 2 (251)-201 ddi Hiin phdp nam 1992 vdn di theo hudng cuquy dinh ro Qudc hpi cd chuc ndng lap hien vd lap phap, chi cd dieu khdng khdng djnh nhu ciia Hiin phdp ndm 1980 vd cua Hiin phap hien hdnh nam 1992 Id co quan duy nhat cd quydn lap hiin va Igp phdp. The chl hda ro hon ve nhiem vu quyen hgn ciia Qudc hpi, Dieu 75 (sira ddi, bd sung Diiu 84) Dy thdo sira ddi Hien phap nam 1992 quy dinh Qudc hpi co nhirng nhipm vy vd quyen hgn sau day:
"1. Ldm Hien phdp vd sira ddi Hien phdp;
ldm ludt vd siia ddi ludt;
2. Thyc hien quyen gidm sat tdi cao viec tuan theo Hien phdp, lugt vd nghj quyet cua Qudc hdi; xet bao cdo cdng tdc cua Chu tich nudc, Uy ban Thudng vy Qudc hgi, Chinh phu, Toa an nhan dan tdi cao, Vien kiem sat nhan dan tdi cao, Hdi ddng Hien phdp, Hdi ddng biu cir qudc gia, Kiem toan Nhd nudc va cdc co quan khdc do Qudc hpi thdnh lap;
3. Quyet dinh myc tieu, chi tieu, chinh sach vd nhiem vy co ban phdt triin kinh tl - xa hgi cua ddt nudc;
4. Quyet dinh chinh sach tai chinh, tidn te qudc gia; quy dinh, sira ddi hoac bai bd cac thii thue; quyet djnh nguyen tdc phdn chia cdc khodn thu vd nhiem vu chi giiia ngdn sach trung uang va ngdn sdch dja phuong; quyit dinh miic gidi hgn an todn ng qudc gia, ng cdng, ng chinh phu; quyit djnh dy todn vd phdn bd ngan sach trung uong; phe chudn quyet toan ngdn sach tiling uong; xem xet bao cao tdng hgp du toan vd quyet todn ngan sach nha nudc;
5. Quyit dinh chinh sdch dan tdc, chinh sach tdn gido cua Nha nudc;
6. Quy dinh td chiic vd hoat ddng ciia ()ui hpi, Chu tich nudc, Chinh phu, Toa dn M dan, Vien kiim sat nhan dan, Hdi ddng Hii phdp, Hgi ddng bdu cir qudc gia, Kiem toa Nhd nudc, chinh quyen dia phuang vd cac o quan khdc do Qudc hgi thdnh lap;
7. Bdu, mien nhiem, bai nhiem Chu ticl nudc, Phd Chu tich nudc, Chu tjeh Qudc hoi cdc Phd Chii tich Qudc hgi, cac iiy vien U;ybai Thudng vy Qudc hpi, Chii tich Hgi ddngidai tpc, cac Chii nhiem Uy ban cua Qudc hdi, Tiii tudng Chinh phii, Chdnh dn Tod dn nhan di tdi cao, Vien trudng Vien kiem sdt nhan dan tfli cao, Chii tjch Hdi ddng Hien phdp, Chii tiei Hdi ddng bdu cii qudc gia, Tdng Kiem toan Nha nudc, ngudi dung dau co quan khac do Qudc hdi thdnh lap; phe chuan viec bd nhiem, mien nhiem, cdch chuc Phd Thu tudng. Bo trudng vd cdc thdnh vien khdc cua Chinh phi, Thdm phdn Tda an nhan dan tdi cao; phe chuan danh sdch thanh vien Hpi ddng qudc phdng va an ninh, danh sach thdnh vien Hdi ddng Hien phap, Hpi ddng bdu cir qudc gia;
8. Ldy phieu tin nhiem, bd philu tin nhiem ddi vdi ngudi giii chuc vu do Qudc hpi hau hoac phe chuan;
9. Quyet dinh thanh lap, bai bd bd, co quan ngang bg ciia Chinh phu; thdnh lap mdi, nhap, chia, dieu chinh dia gidi hanh chinh tinh, thanh pho true thugc trung uong; thdnh lap hoacgi^
the don vi hanh chinh - kinh tl dgc biet; thanli lap, bai bd co quan khdc theo quy djnh ciii Hien phdp va lugt;
10. Bai bd van ban quy phgm phdp luat cua Chil tich nuac, Uy ban Thudng vu Qudcihpi, Chinh phil, Thii tudng Chinh phu, Toa dn nhSf
E H Ddn chO & Phdp lu$t
}Ap, g. kiin. ij&u dii '^Unpk&p 86 2 (251)-2013
an tdi cao, Vien kiem sdt nhdn ddn tdi cao trdi di Hien phdp, luat, nghi quyet cua Qudc hgi;
11. Quyet dinh dai xd;
12. Quy dinh ham, cdp trong lyc lugng vii
•ang nhdn ddn, ham, cdp ngoai giao va nhirng dm, cdp nha nudc khac; quy dinh hudn huong, huy chucmg vd danh hipu vinh dy nhd ludc;
' 13. Quyet djnh van de chien tranh vd hod inh; quy dinh ve tinh trang khdn cdp, cac bien ihdp dac biet khdc bdo ddm qudc phdng vd an
|inh qudc gia;
1 14. Quyet djnh chinh sdch co ban ve ddi
;gogi; phe chudn hogc bai bd dieu udc qudc te [6 chien tranh vd hda binh, cdc vdn d l Hen lUan den chu quyen qudc gia, quyen vd nghTa
u CO ban ciia cong dan, tu each thdnh vien cua .'iet Nam tgi cdc td chiic qudc te vd khu vyc, jiuong mgi qudc te;
, 15. Quyet dinh trung cau y dan"^.
, Cach quy dinh nhu tren ro rdng cd sy nham in giua quyen lap hien Id quyen lap phap, tir ua phdn ciia khodn I cho den het khodn 15 ve ,0 ban deu Id nhiing hoat dgng lap phap. Trong hi quyen lap hien Id quyen nguyen thuy, noi udt phat diem thanh lap ra Nhd nudc, rdt khdc di quyen lap phdp, noi ldm ludt theo chu uong chinh sach, mdt bp phdn nhd nudc da ,ugc hinh thdnh nghieng ngira vdi quyen hanh hap thuc thi luat - dua ludt vdo cudc sdng vd uyen tu phdp - gidi thich luat thdng qua cdc pat ddng xet xii, khi cd nhiing vu viec vi
igm ludt.
Dy thdo sua ddi Hien phap nam 1992 giao adn toan chiic ndng lap hien cho Qudc hdi lap lap dam nhiem, nhu Hien phdp nam 1959,
ndm 1980 vd nam 1992. Mac du da quy djnh cho Qudc hdi cd chirc nang lap hien ben cgnh chiic nang lap phdp, nhung van nhu trudc ddy vdn phdi cd mdt Chuong rieng cua Hien phap quy dinh v l viec sira doi Hien phap gdm: Sang quyin lap hien/ sdng kien thay ddi Hien phdp, thii tyc soan thdo lay y kien nhan dan vd thdng qua Hien phdp siia ddi, thdm chi Id qua cdng dogn trung cdu y ddn ve Hien phap siia ddi.
Vi nhirng ly le da dugc phdn tich d phdn tren, nen chang d Chuong Qudc hdi khdng nen quy djnh Qudc hgi cd chiic ndng lap hien, tiic nhiem vy lam Hien phap, vi day Id phdn Hien phdp, bao gdm cdc quy djnh cua minh chi ndi ve quyen lap phdp, tuomg iing vdi cdc phdn cdn Igi la nhiing quy dinh ciia Hien phap ve cac quyen hdnh phdp vd tu phap cdn xiing tiep theo.
Ldm nhu vdy chi it ciing cd tdc dyng phdn biet giiia quyen lap hien vd quyen lap phdp, md khdng cd su lan Ion nhu hien nay •
/. Xem, B.O. Nwabueze , S.A.N. Ideas and Facts in Constitution Making. Book Limited, 1993, p. 22 vd Bui Ngpc Son, Gop bdn ve sii-a doi Hien phdp a Viet nam, Nxb, Hong Due, 2012 tr.15.
2. Xem, Le Anh: Quoc hot lap hien - muc dich ton tgi. Ngu&i Dgi bieu nhdn ddn 3/8/2012.
3. Xem. Lichsu Quoc hpi Viet Nam 1946-1960.
Nxb. Chinh tri quoc gia 1994 tr 110.
4. Xem Du thdo sixa doi Hien plidp ndm 1992 tren Cong thong tin dien tif cua Chinh phu (baodientu.Chinhphu vn).
5. Xem, Uy ban du thdo sua doi Hien phdp ndm 1992, thdng 10 ndm 2012: Bdo cdo nhiing noi dung ca bdn ve sua doi Hien phdp ndm 1992, tr. 14.
6. Xem Du thdo sira doi Hien phdp ndm 1992 tren Cong thong tin dien tic cua Chinh phu (baodientu. Chinhphu. vn).
