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N G U Y E N T A C QUYEN LlTC NHA NU^dC T H O N G N H A T , C O S i r P H A N C O N G , P H O I HQfP VA K I E M SOAT GltTA BA Q U Y E N T H E O T I N H THAN CUA H I E N P H A P NAM 2013
Nguyen Ddng Dung Tdm tat: Quyen lire nhd nudc la thong nhdt, nhimg vdn co su phdn cong, phdn nhiem, phoi hap giUa 3 quyen: lap phdp, hdnh phdp va tuphdp. Su thong nhdt va kiem soat quyen lire ndm ngay trong su phdn cong vdphdn nhiem, tire Id phdn quyen. Cho du viec to chuc nhd nudc theo mo hlnh phdn quyin nao, thi hanh phdp vdn can thiep sang linh vuc lap phdp, thgm chi lap phdp Id nhu cdu cua hdnh phdp.
Abstract: State power is unified, but assigned, coordinated and controlled among three branches: legislative, executive, and judicial. Power unification and control is expressed by power assignment, i.e. power separation. Despite of whatever model of power separation for state organization being followed, the executive branch has always
intervened into the legislative, and the legislative even becomes the need of the executive.
1. Sy phan quyen
Hoc thuyit phan quyen ke tu khi ra ddi cho din khi dupc Montesquieu nang cap Ien trong thdi ky Khai sang, nhung nam dau tien cua Cach mang tu san Phap, da trd thanh xuong sdng cua viec td chuc quyen IIIC nha nudc khip noi tren thd gidi. Phin quyen nhu la mdt doi hdi cua dan chu, mpt k npi dimg chinh eua hien phap. O dau khdng led phan quyin thi d do khdng cd hidn phap.
I Trong nhung nam cua co chd tap trung, I chiing ta khdng thua nhin su ap dung hpc I thuyit phan quydn. Hpc thuyit phan quyin
ddi vdi chiing ta la rit xa la: hiu nhu khdng bilt hoac bilt rit it vd hpc thuyit, cung nhu su ap dung cua hpc thuyet nay tiong td chQc CO cau cua nha nudc tu san.
Ben canh Vlec nhan thQc nhu tren, ngudi ta cdn cho ring td chQc quyin luc
GS.TS.,Vi?n Chinh sSch, luat va phat men.
Bai vi^t dugc Ihirc hien \6i su tai trg cua QuS NAFOSTED,
nha nudc tu sin khdng cd su thdng nhat.
Lap Iuan nay dupc cung cd bang nhan dinh:
xi hdi tu ban duac td chQc dua tren cac giai tang, giai cap co nhung quyen va lpi ich khdng thing nhat, tham chi mau thuan vdi nhau... Viec hieu va nhan thQc nhu vay la qua don gian. Trong mot xa hdi din chu, le ducmg nhien khdng the cd su thdng nhat mdt each gian dan mpi quyen va Ioi ich mpi nhdm ngudi, mpi giai tang khic nhau. Viec thuc hien tdt cac chuc nang lap phap, hanh phap va tu phap da tao nen su thdng nhat quydn luc nha nudc. Su thdng nhat nay nam ngay trong su phin quydn giQa lap phap, hanh phap va tu phap theo quy dinh cua hiln phap. Nhu cau cua su phan chia, theo J. Locke va Montesquieu deu xuat phat tu su tap trung trd thanh chuyen che dgc tai cua chl dp chinh tri phong kien. Theo diing tinh thin cua hpc thuyet, quyen luc cua mpi nha nudc deu duac phan chia thanh 3 quydn: Lap phap, hanh phap va tu phap.
Nhung tren thuc ti cua viec td chQc quyin
.\H.A Ntfdc VA PHAP LUAT SO 3/2015 Iuc chd dp dan chu tu sin, trpng tam eua van de phin quyen la Chinh phii, chu the cd nhan Iuc, cd tai san va ngan sach phai chiu traeh nhiem chinh cho su phat trien va tan lui ciia qudc gia.
Su phan quyen ndi tren tao thanh md hinh tl chQc nhi nudc duac gpi la chi'nh the, chu yeu dua vao each thQc td chQc va boat dpng ciia lap phap va hanh phap ma khdng dua vao tu phap. Chinh su khdng phu thudc nay tao nen tinh ddc lap cua tu phap.
Mgt sd nha nudc duac td chuc khdng nhQng tren co sd phan quyen, ma cdn day den mQc kim che vi ddi trgng. Chinh su phan biet nay tao nen su thdng nhat cua quyen Iuc nha nudc: Thdng nhat trong su minh bach, dung dan, khdng phai thdng nhat trong lam dung va vu Ipi cua quyen Iuc nha nudc.
2. Quyen lu-c nha nudc la thong nhat, cd su- phan cdng, phan nhiem va phli ket hop giira ba quyen
Vdi muc dich xay dung mot chd do xa hoi khac han vi tien bp hon xa hoi tu ban, Nha nudc xa hgi chu nghia khong ap dung nguyen tac phan quyen, ma theo nguyen tic tap quyen. Quyen Iuc nha nudc Iudn la Uidng nhat. Nhung su thdng nhit quyin luc nay cd hai each td chuc ca ban: Phan quydn va tap quydn. Cho din khi thuc hien cdng CUQC ddi mdi, md cQa, va nhit la vdi cdng cudc xay dung Nha nudc phap quydn, nhQng hat nhan hep Iy trong hge thuyit phin quydn da duac Viet Nam ghi nhan trong quy dinh ciia Bilu 2 Hiln phap nam 1992 (sua ddi, bl sung nam 2001).
"Nhd nu&c Cpng hod xd hpi chti nghta Viet Xam Id Nhd nuac phdp quyin xa hpi chii nghia cua nhdn ddn, do nhdn ddn. vi nhdn ddn Tdt cd quyin luc nhd nudc thuoc ve nhdn ddn md nin tdng Id lien minh giira giai cdp cong nhdn vdi giai cdp nong ddn
vd dpi ngd tri thuc. Quyen luc nhd nu&c la thong nhat, cd sir phan cong vd phdi hop giita cdc cff quan nhd ntrdc trong viec thuc hien cdc quyen lap phdp, hdnh phdp, tu phdp".
Quy dinh tren duac tai khing dinh bing 3 khoin rd rang han va them quy dinh
"kiem sodt" giua 3 quyen lap phap, hanh phap va tu phap tai Dieu 2 Hidn phap nam 2013:
"7. Nhd nudc Cong hoa xa hoi chii nghta Viet Nam Id nhd nuac phdp quyin xd hpi chu nghTa cUa Nhdn ddn, do Nhdn ddn, vi Nhdn ddn.
2. Nuac Cpng hoa xd hoi chu nghia Viet Nam do Nhdn ddn ldm chti; tdt cd quyen luc nhd nu&c thupc vi Nhdn ddn md nin tdng la lien minh giiia giai cdp cong nhdn v&i giai cdp nong ddn vd dpi ngfi tri thuc.
3. Quyen luc nhd nuac Id thdng nhdt, co suphan cdng, phoi hpp, kiem sodt giira cdc ca quan nhd nuac trong viec thuc hiin cdc quyen lap phdp, hdnh phdp, tuphdp".
Tu phli nhan hoan toan den thQa nhan du chi la mdt trong nhung hat nhan nhd be cua hpc thuyet la ca mot budc chuydn rat Idn trong nhan thuc cua chung ta, da den liic phai ap dung mot each tuang dli su phan quyen. TQ dd khdng it ngudi ke ci cac chuyen gia luat hoc, chinh trj hoc vi chinh khach tren cac phuang tien thdng tin dai chiing deu cd quan diem cho rang: Lap phap phai do Qudc hpi dam nhiem va hanh phap do Chinh phu dam nhiem, theo dung tinh than Idi van cua Hiln phap. Tham chi co y kien cho ring, can phai chuyen mgi hoat dong cd lien quan den lap phap, tu viec soan thdo do cdc dgi bieu vd cdc Uy ban vd Hpi dong cda Qudc hpi ddm nhiem, cho den viec bieu quyet du thao luat cua toan the Qudc hoi, Chinh phu tu nay chi tap trung
NGUYEN TAC QUYENLlfCNHA NUdC...
vao cdng tic hanh phap, tuc la didu hanh dit nudc theo quy dinh cua lap phap da duac Qudc hpi thdng qua, ma khong tham gia true tiep hoic giin tidp vao boat dgng lap phap cua Qudc hgi.
Cach hieu nay cd phan qui ta. Thuc te su phan quyen theo each ndi d cac nudc tu ban va phan cong, phan nhiem giua lap phap va hanh phap theo each noi cua Viet Nam hien nay khdng hoan toan cd nghia nhu vay. Ngupc Iai, boat dgng cua hanh phap cd anh hudng rat Idn ddn hoat dgng cua lap phap. Tham chi, Nghi vien lap phap theo nhu cau cua Chinh phu - hanh phap.
Lich sQ td chuc bg may nha nudc thdi ky can hien dai va hien dai cua cac nha nudc dien hinh da chung minh ti'nh diing dan cua nhan dinh tren. To chuc va hoat dgng cua lap phap va hanh phap tren thuc te khdng cd su phan dinh mgt each cung nhac theo dung tinh than cua hge thuyet phan quyen, ma cd quan hd mat thiSt vdi nhau.
Cac hinh thQc quan he niy tao thanh md hinh td chuc cua nha nudc mdi qudc gia. Dd la chinh the nha nudc: Chinh the Dai nghi ca cpng hda Iin quan chu; chinh the Cong hda Tdng thing va chinh the Cgng hda hdn hofp cua su pha trgn nhQng dac tinh cua hai Ioai hinh Dai nghi va Cpng hda Tdng thdng.
Thu nhdt, theo each thQe td chQc cua nha nudc dai nghi, liy Anh qudc la diln hinh, Chinh phu hanh phap va Qudc hgi/Ha nghi vien - lap phap ddu phan anh y chi cua dang cim quyen. Dang cam quyen la dang chidm da sd ghd tiong Qudc hdi tiidng qua mot cudc diu philu phd thdng biu ra nghi si Qudc hdi, cd quydn dung ra thanh lap Chinh phu. Thu linh cua Dang cim quyin se la Thu tudng Chinh phu, Cac thanh vien cua Chinh phu vl nguyen tic deu la nhihig ngudi cd chin trong ban Ianh dao
ciia dang cam quyen. Vdi nguyen tac nghi sy ciia dang nao chi dupc bd phieu cho y chi cua dang do, cgng vdi quyen trinh du an luat trudc Qudc hpi, nen gan nhu la mpt nguyen tic: mpi du luat deu xuat phat tu Chinh phu. Mpi boat dgng cua Qudc hgi va Chinh phu deu do dang cam quyen quyet dinh. Trong nhieu trudng hap, ngudi ta cdn ggi Thu tudng la Thu trudng cua ca ca quan lap phap. Qudc hpi chi con lai quyen kiem scat Chinh phu va sin sang thay ddi Chinh phu dang cam quyen ciia dang ddi lap. Theo con sd thdng ke ciia nhieu nghi vien, cd tdi ban 90% tdng sd cac du an luat duac Qudc hpi/Nghi vien thong qua la du an de trinh tu Chinh phu.
Thu hai, su can thiep thdng qua viec chu dgng de xuat cac hoat dgng lap phap cua hanh phap khdng chi the hien d cac nudc cd bg may duac to chQc theo the che dai nghi, ma cdn dugc the hien trong nha nudc cd bg may duac to chuc theo che dp Cong hoa Tdng thdng nhu d My. Neu hien phap cua cac nudc theo the che dai nghi quy dinh su can thiep cua hanh phap vao lap phap nhu quyen trinh du an luat trudc lap phap, thi trong che do Tdng thdng khdng cho phep hanh phap va lap phap co su phdi ket hgp vdi nhau. Mgt trong nhQng bieu hien nay la viec quy dinh hanh phap khdng dugc quyen tiinh du an luat trudc Qudc hgi.
Quyen lap phap cua hien phap dugc quy dinh danh rieng cho ca quan lap phap ngay tu khi cd sang quyen lap phap. Chi cac nghi sy thupng va ha Nghi vien mdi cd quyen nay. Cac ca quan hanh phap va ca ngudi dQng diu nha nudc deu khdng cd quyen trinh du an luat trudc Nghi vien. Day la mgt trong nhimg quy dinh tao nen tinh cung ran cua viec ap dung hoc thuyet phan quyen trong cac Nha nudc Cgng hda Tdng thdng.
NHA NU'aC VA PHAP LUAT SO 3/20IS
Nhung bing cac con dudng khdng chinh thQc, Tdng thing - ngudi dung diu hanh phap can thiep rat sau vao qua trinh lap phap cua Qudc hgi. Vi du, thdng diep dgc hang nam trudc Qudc hgi My (khoang thing gieng), Tdng thdng da gui yeu cau lap phap cua minh sang Qudc hgi. Hoac bang con dudng trinh du an luat cua cac dang vien cung dang, Tdng thdng can thiep vao chuang trinh lap phap cua Qudc hgi, va cudi cung bing con dudng phu quyet (veto), Tdng thdng ngan can nhiJng dao luat khong phu hop vdi y chi cua minh do co quan lap phap - Nghi vien ban hanh. Trong bai
"Quyen lap phap cua Tdng thdng", dng Stephen Wayne da viet:
"Khai niem ve mdt Tdng thdng cd quyen lap phap da dugc phd bien ke tu sau Chien tranh the gidi thQ hai. Tu dd den nay, vai trd nay da dugc thiet che hoa, dugc the hien khdng chi vi ca tinh dgc dao cua mgt vj Tdng thdng, mgt hoan canh dac biet nao, ma chinh la vi mgi ngudi, trong do CO Qudc hgi, bao chi, va cdng chiing trdng dgi dieu nay"'
Nhu vay, qua nhung phan tich d tren chiing ta nhan thay, du dugc td chuc theo md hinh dai nghi hay theo md hinh cua che do Tdng thdng, thi lap phap va hanh phap van khdng cd su phan chia tuyet ddi. Mac dli cd su phan quyen, nhung hanh phap van can thiep sang linh vuc lap phap, tham chi cac boat dgng lap phap cdn la nhu ciu cua hanh phap. Ban than Qudc hgi khong cd nhu cau ve lap phap.
Tai sao lai nhu vay? Tai sao ndi din ca cau td chuc nha nudc ngudi ta ndi ddn phan quyen nhu la mgt ddi hdi tit ylu khach
quan cua mdt nha nudc dan chu? Va ciing tai sao trong cdng cugc ddi mdi hien nay, sau mgt thdi gian dai tuyet ddi khdng ap dung nguyen tac phan quyen trong td chiic hoat dong nha nudc xa hdi chii nghla, chiing ta lai cd gang thuc hien su phan cdng, phan nhiem giua cac quyen lap phap, hanh phap va tu phap?
Nhimg nam trudc day, tiong ly Iuan, chiing ta deu khang dinh tap quyen la mpt nguyen tac td chuc va hoat dgng nha nudc, nhung ca 4 ban hien phap dugc thdng qua deu quy dinh mgt each rd rang: Quoc hgi c6 chuc nang lap phap, Chinh phu - hanh phap va Tda an - xet xu; nguae lai, d nha nudc tu ban thi nguyen tac cua hg la phan quyen.
Nhung thuc te nhu neu d tten, giua chiing van cd su phoi ket hgp vdi nhau, tham chi ca quan lap phap lam luat theo nhu cau ciia hanh phap.
Trong mgt nha nudc dan chu, su quan ly cua nha nudc phai theo phap luat. Chinh phli hanh phap chi hoat dgng tren ca sd cac dao luat. Chu the cd quyen thdng qua luat lai la Quoc hgi-ngudi dai dien cua nhan dan, ma khong phai Chinh phu.
Tren thuc te, quyen luc ludn cd xu hudng tap trung cho hanh phap - co sd ciia su dgc tai chuyen che, nen ddi hoi tuan theo nguyen tac phan quyen nhu la mgt tieu chi khdng the thieu cua dan chu. Du hanh phap cd can thiep sang lap phap, thi cudi cung phan quyet dinh, tuc chuc nang quyet dinh du an luat ttd thanh luat van la cua lap phap.
D6 la ly do giai thich vi sao d mgi nha nudc tu san ludn chu truang phan quyen. Dan chii dugc dinh nghia khac nhau, nhung cudi
• cung van la su cho phep nhan dan thay ddi Chinh phu .
' Xem: Stephen Wayne, Quyin lap phdp ciia Tdng
thong. New York, Harper va Row, 1978. - Xem: Tuyen ngon doc lap niroc MJ, 1776.
NGUYEN TAC QUYEN Ll/C NHA NU'dC.
Su hgp Iy trong rdiu cau lap phap cua hinh phap cdn thd hien d chd, chinh thdng qua cac dd xuit lap phap ma hanh phap cd kha nang trien khai cac chu truang chinh sach cua dang cam quyen ttong chuong trinh tranh cQ trudc nhan dan. Vi vay, d day nhu cau lap phap khdng phai hoan toan nam trong tay lap phap. Khdng cd mgt phan quyen tuyet ddi giua lap phap va hanh phap.
Trong nhieu trudng hgp, su phan quyen trd thanh su phan dinh giQa dang cam quyen va dang ddi lap.
Ban than khai niem "dieu hanh" cua Chinh phu budc Chinh phu phai cd cac du an luat cho Qudc hgi. Khdng nhung the, su anh hudng cua Chinh phu - hanh phap sang hoat dgng Qudc hgi - lap phap cdn vugt ra khdi chuang ttinh lap phap cua Qudc hgi, sang tat ca cac Imh vuc khac thudc tham quyin cua Qudc hgi. Tham chi trong nhieu trudng hap, Chinh phii cdn quyet dinh ca chuang trinh lam viec cua Qudc hgi. Dd la kinh nghiem cua nhieu nudc phat trien nhu Phap, Anh, My... Nghe cd ve vi pham dan chu, nhung thuc ra thi diing la nhu vay . Vi ngudn Iuc va uu tien cua nha nudc khdng thi cung mdt luc chia cho Qudc hdi Ian Chinh phu.
Chinh vi vay, trong tac pham chuyen Iuan cua minh "Logic chinh tri My", Samuel Kernell va Gary C. Jacobson da viet:
"Cdu cdch ngon md md Tong thdng Franklin Roosevelt dica ra - "Muu su tai Tdng thdng, thdnh sic tgi Qudc hpi" - dd mo td chinh xdc mpt khia cgnh quan trong trong vai tro cua Tdng thdng th&i ky hien
dgi, khia canh md nhd lap hien truac kia khong du tinh khi dgt hp vdo cuoi quy trtnh ldp phdp. Tuy nhien, su gia td'ng nhiem vu hdnh phdp cua Tong thong, ciing vdi viic Quoc hpi tiy quyen tu quyet cho Tong thong, dd bdo ddm rdng Qudc hpi se xem xet that ky luong cdc kien nghi lap phdp cua Tong thong. Quoc hpi bat ddu cdn nhdc todn bo ngdn sdch quan trpng hdng ndm chi sau khi Tong thong de trinh cdc kiin nghi ve thue vd chi tieu cua Chinh phu cho ndm tdi khoa tiip theo, kem theo cdc muc chi tieu du kien ciia tung ca quan lien bang. Tong qudt han, cdc nhd lap phdp hy vpng Tong thong tu vdn cho hp nhirng vdn de chinh sdch hien hdnh vd cong viic hdnh phdp vd kien nghj nhirng diem sua doi de ndng cao hogt dpng Tong thong vd nhimg ngu&i dup'c bo nhiem qudn li cdc ca quan hdnh phdp lien bang, CO Ip'i the ve thong tin, vi gdn lien v&i lai the ve thong tin, gan lien v&i quyen duac ity thdc ciing co thi ldm cho hdnh phdp gidnh duac lai the khi kien nghi du lugt. Ddi khi Tong thong cung co the ndng cao khd ndng thdnh cong cua du lugt hp mong muon bdng cdch khong de cdc nhd lap phdp biet mpt so thong tin nhdt dinh, neu nhung ngu&i ndy ung hp mpt so chinh sdch md Tong thong phdn doi. Bdng nhieu cdch, vai trd hdnh phdp trung tdm cua cdc Tong thong th&i ky hien dgi bdo ddm cho hp co duac vi tri chu chdt trong qud trinh lap phdp. Ket qud Id, khong CO gi ngge nhien khi cdc uy ban vd tiiu ban cua Quoc hpi xem xet, ddnh gid tai 90 % cdc sdng kien cua Tong thong" .
NhQng nam gan day, sang quydn lap phap tQ phia Chinh phu Viet Nam cung chidm mgt con sd gan tuang tu nhu vay.
^ Xem: Bii phat bieu ciia 6ng Christophe Palles, Giam d6c Trung tam Thu vi?n cua Quoc hgi Phap ngiy 20 thing 11 nSm 2007, VSn ph6ng Qu6c h^i Vigt Nam.
* Samuel Kernell vi Gary C. Jacobson, Logic chinh trf My, Nxb Chinh tri Quoc gia, Ha N6i, 2007, tr.
123.
NHA NUdc VA PHAP LU^TSd 3/2015
Nhieu ngudi da cd y kien cho rang, nhu the Chinh phu da lin sin sang phin cdng viec ciia Qudc hgi. Va ban th8 nQa, thdng qua viec trinh cac du an, Chinh phu, cac Bg co kha nang gai cac quyen lgi cua minh vao cac du an luat. Nhan xet ve su kien cd tinh khach quan nay va ggi y cho viec ttanh dugc cac hau qua ciia su gai cac Igi ich cua hanh phap vao cac du an luat, trong mgt Hgi thao ve "Du an nang cao nang Iuc cua cac ca quan dan cu", dng Kevin Deveaux - cd vin ky thuat du an ciia UNDP da ndi:
"Cdc iiy ban tu sogn thdo du dn ludt, trinh vd thdm Ira - nhu 2 try han cua Quoc hpi da ldm Irong khoa XI cGng la dieu lot ldnh, b&i nd the nghiem nhiing khd ndng co the ddm duang duac mpi ly le nhdl dinh ddu vdo ciia cdc du dn ludt. Trdnh su dpc quyen tuy^t doi ciia ben hdnh phdp. Song tuyet dgi da so cdc du dn ludt deu do ca quan hdnh phdp trmh Quoc hpi cung khong phdi id diiu ti hgi, b&i do Id yeu cdu tdl yeu cita Ihuc te cupc song. Quoc hpi khong phdi Id ca quan dieu hdnh, vi vdy se kho co the ndm long duac nhirng gi vuang mdc, nhiing gi cdn dieu chinh di ddm bdo hieu qud dieu hdnh cua ca quan hdnh phdp nhu chinh hp duac. Vi vdy, ca quan hdnh phdp trinh du dn ludl du&ng nhu Id duang nhien, vd hp co dpng hec de ldm viec do. Quoc hpi cdn quan tdm vd cdn ldm tot phdn viic quan trpng cita minh do Id thdm tra vd thong qua cdc du dn ludt han Id viec bdn khodn rdng niu de ty le qud l&n cdc du dn ludl do cdc Bp, ngdnh trinh thi se ma nhgt di vai trd "ldm ludt" Iheo dmg nghia den ciia no Thay vi lo ldng diiu do, viec tdt han nen ldm la Ihdm dinh xem cdc du dn ludt khi dp dung vdo cupc sdng thi ngu&i ddn do dgi biiu ldm dgi diin se dnh huang thi ndo vd phdi cdn doi giira lai ich giUa cdc ddi luang diiu
chinh cua ludt de chpn gidi phdp tdi uu nhdt.
Chinh tu hogt dpng thdm tra cua cdc ify ban duac day mgnh, cdc dif dn lugt qua qud trinh tuang ldc giira cdc dgi biiu m&i xung dot lpi ich dia phuang vd Irung uang, giUa ngdnh.
gi&i, ddn tpc. y hen cdc chuyen gia, ngiroi ddn... Ddy cung chinh Id khdu quan trpng quyel dinh chdl lupng die dn ludt^.
Nhung dieu phan tich tren la nhung bieu hien cua su thdng nhat quyen Iuc nha nudc, ma cac nha nghien ciiru Iy thuySt cung nhu thuc tien ciia he thdng Nha nudc tu ban chu nghia mac du deu thua nhan viec ap dung hge thuyet phan quyen khdng the bd qua.
Vay thi Qudc hgi/Nghj vien van mang danh la c a quan lap phap cdn lai la gi? Do la ttach nhiem chinh Iy cac du an luat ciia Chinh phu trinh sang theo y chi cua nguoi dan, ma Quoc hgi/Nghi vien la ngudi dai dien^, va la kiem tta giam sat viec thuc thi cac chinh sach da dugc Nghi vien/Qudc hoi thdng qua. Cau chuyen Iich sQ dudi day la mgt minh chQng:
Thud ban dau ciia Nha nudc dan chu tu san Anh qudc ciing quan niem rang, quyen lap phap nam trgn trong tay Nghi vien.
Nhung sau dd, vdi su v i n dgng cua ti£n trinh dan chu, quyen trinh du an luat rai dan ve tay cua Chinh phu - hanh phap. Thdng qua viec trinh du an luat, Chinh phu the hien rd nhQng quan diem, chu truang, chinh sach cua minh (chinh sach, chu truong cua dang cam quyen). Viec chap nhan chinh sach ciing ddng thdi hinh thanh tren eung mgt cap do va cung mgt luc vdi viec thanh
Doi dieu thach thirc ciia Quoc hgi Viet Nam trong cong tac lap phap, Nguoi dai bi^u nhSn dan va VietNamNet, 5/9/2007.
^ Xem: Tnit ly Lap phdp ciia Nguyen ST Dung, Tap chi Tia sang, s6 7, n§m 2003.
NGUYEN TAC QUYEN LUC NHA NUOC.
lap ra Chinh phu. Mai den nhGng nam dau cua the ky XX mdi thdng nhit dugc quan diem nay.
Herbert Morrison, euu Phd Thu tudng Anh qudc da tung tuyen bd:
Toi xin noi cdc ngdi rdng, Chinh phu phdi chiu trdch nhiem... Cong viec ctia
Qudc hpi Id kiem sodt Chinh phii, hdt bd no di neu muon, cic viec tdn cdng nd, phi binh no .
Che dinh chiu traeh nhiem dugc hinh thanh nhu vay trong lich su cua Anh qudc.
Mai ve sau che dinh quan trgng nay mdi dugc cac hien phap cua nhieu nudc ghi nhan va trd thanh mgt nguyen tic quan trgng cua md hinh chinh the dai nghi ca cua cac nSn cdng hoi vi quan chii lap hien. Day cung la ca sd phap ly cua viec giai tan Qudc hgi va lat do Chfnh phii, tra lai quyen thanh l^p Chfnh phu mdi cua ngudi din.
3. Kiem soit quyin luc nha nudc Do nhung dieu kien chu quan va khach quan khac nhau, nguyen tac kiem soat quyen Iuc nha nudc mai den Hien phap nam 2013 mdi dugc quy dinh. Ve nguyen tac, he thdng phap luat Viet Nam khdng thudc nhdm he thdng phap luat dan su (Civil law), nhung do dieu kien cua Iich su da tung la thudc dia cua nudc Phap va sau nay thuoc he thdng phap luat cac nudc xa hdi chu nghia, nen hd thdng phap luat Viet Nam cd nhiSu net tuang ddng vdi he thdng phap luat dan su, va nhat la cua thdi ky tap tnmg bao cip, nen mgi van de Uen quan den nha nudc cin phai quy dinh mdt each chi tiet. Vdi su hien dien cua "kiem soat" quyen Iuc nha
^ Xem, Robert E Ward and Roy C, Macridis, Modern Polilical Systems Europe. Prentic, Hall, Inc Englewood Cliffs, New Jersey Libary of Congress Catalog No 63. 11095, p. 156.
nudc, su phan cdng, phan nhiem, hay cdn cd the ggi la "phan quyen" cd co hgi hon cho viec thuc hien tten thuc te.
Ndi nhu vay hoan toan khdng cd nghla van de kiem soat quyen luc nha nudc chua he cd d Viet Nam. Giong nhu cac nudc khac, khi da cd hien phap thanh van va thQa nhan hieu Iuc tdi cao ciia nd, thi da cd su kiem soat quyen luc. Tham chi cd ngudi cho rang, dudi che do phong kien, quyen Iuc cua Nha nudc phong kien Viet Nam cung da tung bi kiem soat va gidi ban it nhieu bang che do Iang xa^.
Cho du cd nhu vay, vdi nguyen tac tap quyen, khdng phan chia quyen luc, cung vdi che do tap trung bao cap, va che do lanh dao cua mgt Dang, vdi each hieu va thdi quen hanh vi cua con ngudi ttudc day, thi nguyen tac kiem scat quyen Iuc nha nudc khong the cd dieu kien day du de thuc hien.
Chinh vi vay, de sua ddi nhung han chd nay, khoan 3 Dieu 2 Hien phap nam 2013 da quy dinh: quyen lire nhd mr&c Id thong nhdt, CO suphan cong, phdn nhiem vd kiem sodt giUa cdc quyen lap phdp, hdnh phdp, vd lu phdp. Lan dau tien trong lich su lap hien Viet Nam, kiem scat quyen Iuc nha nudc dugc quy dinh d tam hien phap. Su kiem scat quyen luc nha nudc trudc het phai dugc the hien ttong su phan quyen.
Quyen luc nha nudc khi khdng dugc phan ra thi khd cd su kiem scat. Khac vdi cac hidn phap trudc day, quyen luc nha nudc theo Hien phap nam 2013 dugc phan ro cho ba quyen. Khoan 2 ciia Dieu 69 Hien phap quy dinh: "Quoc hdi thuc hien quyen lap hien, quyen lap phap..."; khoan I Dieu 94 quy dinh: "Chfnh phu la ca quan hanh chinh
* Xem: Phan Ngoc, Mot cdch tiep cdn van hoa, Nxb Thanh nien, 1999, tr. 424.
NHA NlfOC VA PHAP LUAT SO 3/2015
nha nude cao nhat ciia nudc Cdng hda Xa hgi chu nghia Viet Nam, thuc hien quyen hanh phap..."; va nhat Ii khoan 1 Dieu 102:
"Tda dn nhdn ddn Id ca quan xel xir cita nu&c Cpng hda Xa hpi chii nghia Viet Nam, Ihuc hiin quyin tuphdp ".
Day la mdt ttong nhung budc tien Idn trong lich su lap hien Viet Nam, it nhat la ve mit nhan thuc. Mac du van la tap quyen, nhung da quy dinh rd cho 3 quyen lap phap, hanh phap va tu phap vdi 3 ca quan tuang ung thuc hien. Dd la ca sd ca ban nhat cho viec thuc hien quy dinh "kiem sodt quyen lire" d Dieu 2 Chucmg 1 - Nguyen tic td chuc quyen Iuc nha nudc, ma khdng ban Hien phap nao trudc day the hien.
Tiep theo quy dinh cd tinh nguyen tie tren la ndi him eua kiem soat quydn Iuc nha nudc phai dugc phan anh tap trung vao su kiem soat ben trong giQa cac canh quydn Iuc, ma trgng tam la kiem scat Chinh phu - hanh phap. Mic du bd may nha nudc Viet Nam trudc day va hien nay khdng tuygn bd theo md hinh dai nghj, nhung nhung hinh hai cua nd van dugc the hien trong cac quy dinh ciia Hien phap. Dd la viec Qudc hgi - lap phap do nhan dan thuc hien quySn luc nha nudc bau ra, true tiSp thanh lap ra Chinh phli - hanh phap, va Chfnh phu nay phai chju trich nhiem trudc Qudc hdi (Dieu 94). Chi'nh phu cd trich nhiem hoach dinh chfnh sach va trinh trudc Qudc hgi (khoan 2 Didu 96). Va cu thS ban nGa, Qudc hgi cd quyen giam sat Chfnh phu vdi nhidu hinh thQc khac nhau nhu nghe bao cao, giai ttinh cua Chfnh phu; dai bidu Qudc hdi chit vln Thu tudng va cac thanh vien Chfnh phu. Trong trudng hgp dac biet, Qudc hdi cd quyen bai miln Thu tudng va cac thanh vien cua Chinh phu (khoan 7
Dieu 70)... Dd la frgng tam cua su kigm soat quyen luc nha nudc.
Diem rd nhat cho viec thue hien nguyen tic kiem soat quyen Iuc nha nudc Viet Nam mang dang dap quy dinh cua hiln phap cac nude dan chu tu san la viec tai khing dinh tinh than Hien phap nam 1992 (sQa ddi, b6 sung nim 2001) ttong quy dinh tai khoin 1 Dieu 88 Hien phap nam 2013, dd la: quyen cua Chu tich nudc ttong viec de nghi Uy ban Thudng vu Qudc hgi xem xet lai phap lenh trong thdi han 10 ngay, ke tu khi phap lenh dugc thdng qua; neu phap lenh do van dugc Uy ban Thudng vu Qudc hgi bifiu quyet tan thanh, ma Chu tich nudc van khdng ddng y, thi Chu tich nudc trinh Qudc hgi quyet dinh tai ky hgp gin nhit. Diy Ii quyen phu quyet tuang ddi ciia hanh phap.
ddi vdi van ban luat cua lap phap. Nhung quy8n nay khdng dugc hien phap md rgng mgt each day du ttong ITnh vuc lap phap ciia Qudc hgi, ma chi ddi vdi phap lenh cua Uy ban Thudng vu Qudc hdi, mgt phan nhd cua quyen lap phap.
Ben canh nhiing diem ndi tren, ca chl kidm soat quydn luc cua Hidn phip mdi vln cdn nhieu bidu hien khd khan cho viec thuc hien tren thuc td sau nay. Dilm khd khan thu nhat cua ca che kiem soat quydn luc nha nudc d Viet Nam la, vin nhu trudc day phai dat trong khung canh cua nguyen tic tap quyen, tat ca quyen luc nha nudc ddu phai dat dudi quydn Iuc tdi cao cua Qudc hgi, nen trong Hidn phap vin khdng cd quy dinh nao the hien su kiem soat quyin Iuc nha nudc ddi vdi Qudc hdi - lap phap, tru mgt quy dinh trung clu dan y cua khoan 15 Dilu 70, nhimg quydt dinh trung clu nay van dugc Hien phap giao cho Qudc hgi quylt dinh. Cd the thiy, didm hay nhit cua
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NGUYEN TAC QUYENLt/CNHA NlfOC...
ca chl kilm soat ttong Iy thuydt cua Nha nudc tu san d My dugc biln thanh ca chl
"kim chi vd ddi trpng", tQc la tu kilm soat giQa cac canh quydn luc vdi nhau: Giua lap phap ddi vdi hanh phap, va ngugc lai giGa hanh phap ddi vdi lap phap; giQa hanh phap ddi vdi tu phap, va ngugc lai giua tu phap ddi vdi hanh phap; giGa lap phap ddi vdi tu phap va ngugc Iai giGa tu phap ddi vdi lap phap. Nhung d Viet Nam chi cd chilu di xudi giGa lap phap vdi hanh phap, giua lap phap ddi vdi tu phap, ma khdng ed chilu ngugc Iai.
Diem khd khan thu hai nim d chd, kilm soat quyen luc chu yeu d trang thai phdng ngua trudc su lam quydn cd kha nang xay ra. Vi du, thdng qua viec giam sat cua lap phap, hanh phap chinh sua lai cac chu truang chinh sach cua minh, tham chi ttong trudng hgp mat uy tin cac chinh khach cln phai tu chQc... Trong trudng hgp bit phan thing bai, thi can phai cd su phan xet cua tu phap - tda an. Nhung eho ddn nay, theo quy djnh cua Hien phap mdi, tu phap Viet Nam van khdng cd chQc ning cua viec xet xQ cac hanh vi cua lap phap va hanh phap.
Diem khd khin thu ba, Nha nudc Viet Nam da tu lau d^t dudi su Ianh dao cua Ding Cgng san, hinh thanh bd may lanh dao tQ trung uang tdi dia phuang, nam song song va taeh khdi bg may nha nudc. Su thdng nhat quyen Iuc d day chfnh la su tap quyin cho su Ianh d^o cua Dang Cgng san.
Cho du Hiln phap cd quy dinh su phan cdng, phan nhiem giGa cac quyen, dugc ggi la su tiep thu hat nhan hgp Iy cua hoc thuyet phan quyen, thi khdng the cd su phan quyen d mdt mQc do nio day theo hoc thuyet phan quydn. Mdt khi khdng cd su phan quyen mgt each rd ring, khd cd the kiem soat
quyen Iuc nha nudc. Theo quy dinh cua Dieu 4 Hidn phap nam 2013, Dang Cgng sin Viet Nam va td chuc cua Dang phai chiu su giam sat cua nhan dan, phai boat ddng tiong khudn khd Hien phap va phap luat. Nhung cho den nay van chua cd quy djnh ve hinh thQc, bien phap giam sat cua nhan dan ddi vdi Dang.
Nhu nhQng phan tich d phan tren, mac du bd may khdng td chuc tiieo chl do dai nghi, nhung van cd dau In cua chl do nay, ma mdt ttong nhQng bien dang cua nd la tu chd phan quyen giQa lap phap va hanh phap chuyen thanh phan quyen giQa dang cim quyen (dang nam hanh phap) vdi dang ddi lap ttong Nghi vien. Su kiem soat giQa lap phap vi hanh phap trd thanh giua dang elm quyen va dang ddi lap. Viec khdng cd dang ddi lap cung la su khd khan cho vide thuc hi?n ca chd kiem soat ciia Viet Nam, cho du cd phat huy chQc nang phan bien cua Mat tran Td qudc.
Ket luan
Mac du dugc quy dinh mdt each dien giai nguyen tac: Quyen Iuc nha nudc la thdng nhat, thi van cd su phan cdng, phan nhiem, phdi hgp va kiem soat giua ba quyen lap phap, hanh phap va tu phap, giGa chung cd mdi lien he vdi nhau tao nen su thing nhat va kiem scat quyin luc nha nudc. Su thdng nhat va kiem soat quyin luc nim ngay ttong su phan cdng va phan nhiem, tuc la phan quyen. Cho du viec td chuc nha nudc theo md hinh phan quyin nao, thi hanh phap van can thiep sang ITnh vuc lap phap, tham chi lap phap la nhu cau cua hanh phap. Dd la mdt quy luat cua viec td chuc quyin Iuc nha nudc thai hien dai, ma trong vifc tilp thu kinh nghiem ciia cac nudc tten the gidi Viet Nam khdng thi bd qua.
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