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SO LUOC VE HE THONG TOA AN HANH CHJNH VA THU TUC TO TUNG HANH CHINH
CUA CONG HOA PHAP
NGUYEN THU THAO Viec nghien cuu phdp ludt to tung hdnh chinh cua cdc qudc gia tren the gi&i nhdm cung cdp thong tin, gdp phdn vdo viic hodn thipn hp thdng phdp lupt td tt^ng hdnh chinh & nu&c ta. V&i muc dich do, bdi viet ndy, tdc gid gi&i thieu khdi qudt ve hp thdng toa dn hdnh chinh vd thu tuc to t^ng hdnh chinh cua Cpng hoa Phdp.
1. He thdng toa an hanh chinh ciia C$ng hoa Phap
He thdng toa dn ciia Phdp theo chl dp ludng he tai phan, dupe phan dinh thanh hai tieu he thong: Toa an Tu phap va Toa an Hanh ehinh. Trong khi he thong Toa an Tu phdp CO tham quyen giai quyet tranh chap phat sinh frong cdc ITnh vyc kinh te - xa hdi, bdo ve quyen con ngudi, quyen cong dan...
va dugc phan ehia thanh cac Toa Hinh su, Toa Dan sy, Toa Lao dpng, Tda Thuong mai... thi hp thong Toa an Hanh chinh co tham quyen xet xir cdc vy dn hanh chinh, xem xet tinh diing din cua cac quyet dinh hanh ehinh, hanh vi hanh ehinh ciia cac cong chirc va eo quan quan ly nha nude*'', tir cdc quyet dinh nho nhat ciia chinh quyen dja phuong cho den cac sac lenh cua Tong thdng, bat ke npi dung cua khieu nai la nham hiiy bo quyet dinh hay yeu ciu boi thudng thiet hgi. Cdc vy viec phd biln nhat thudng la vl vipc ap dyng cdc quy dmh vl
kinh te - xa hdi, thue, quy hogch do thi, giay phep xay dyng, raua sara cong, eae dy an ve mdi trudng, giay phep nhgp cu, luong huu, bau cu... He thong toa Hanh ehinh duge chia lam 3 cap: Toa sa tham hanh chinh (Adminisfrative fribunal), Toa phiic thim hdnh chinh (Administrative court of appeal), va Thara chinh vien (hay Hpi ddng nha nudc - Council of state).
1.1. Tham chinh viin
Thyc chat, Tham ehinh vien nam giu hai vai fro: Toa an toi cao ve hanh chiiih vd tu van luat eho Chinh phii. Nhu vay, Thara chiiih vien vira tu van ve cac quyet dinh cho chinh phli va dong thdi eiing la eo quan cao nhat xem xet tinh diing dan ciia chinh cac quyet dinh do. Dieu nay giup cho ca hai hogt dpng Clia Thara chinh vien co sy phdi hop, tuang tdc chat che vdi nhau. Tuy nhien, de frdnh chdng cheo ehiic nang, Tham chinh vien dupe phan ra thanh Ban hanh ehinh (Administrative sections) de tu van va Ban xet xir (Judicial panels) - trong do ldn nhat
(I) Thai Vinh Thing (2010), M a ntr&c va phap ludi tu sdn ducmg dgi - Ly luqn va thuc tiin (Sach chuyen khao). Nxb Tu phap. Ha Npi, ir. 174-218.
Th^c sT, Khoa Lupt. Hpc vien An ninh nhan dan.
Tap chi S6TetAtMui(thang02/2015)V_KIEMSAT I 5 1
T E M H I ^ P B A P LUAT HVCfC HGOAI
Dong chi Nguyen Van Khanh, Pho Vien triro'ng Vien kiem sat nh3n dan toi cao, Vipn truing Vi^n kiem sat quan SLP Trung u'O'ng trao Cd" thi dua cua nganh Kiem sat nhan dan cho cac tap the co thanh tich xuat sac trong phong trao thi dua nam 2014 (Ha Noi, ngay 17/01/2015). ^„^. Q^^ „„J,
la Ban to tung (Litigation section) de giai quyet qud trinh to tyng. Trung binh raoi nam, Tham chinh vien dua ra khoang 10.000 din 11.000 ban an. Thanh vien cua Tham chinh vien thudng la nhung ngudi tdt nghiep hi Dai hpc hanh ehinh qude gia (Eeole Nationale d'Administration - ENA) da thdng qua cde bai Idem tra gat gao hoac duge Tong thong bd nhiera true tiep tir cdc thara phdn eiia cac toa cap dudi.
Tren thuc te, Tham chinh vien co 3 con dudng de thyc hien chuc nang xet xir cua rainh. Thu nhdt, Tham chinh vien cd the la toa an dau tien va duy nhat xet xu mdt vy viec (chilm khodng 2% sd vy dugc giai quyet tgi day'^*). Theo dd, mgt sl vin dl se dugc de trinh true tiep len Tham chinh vien.
Day thudng la nhiing vu viec co tam quan frpng nhu phan ddi sac lenh eua ehinh phu, ede quyet dinh cap bp trudng, cac vy viec lien quan den quan chiic cap cao, cac quyet dinh cua chmh quyen dugc ban hanh ben ngoai lanh thd (vi du nhu cac quyet dinh eua Dgi sii Phap ve thu tuc nhgp cu,...). Trong trudng hop nay, Thara chinh vien se xem xet ca quy dinh phdp luat va tinh tiet vu viec.
Thd hai, ca bdn va thong thudng nhat, Tham chinh vien se giai quyet cae vu viec dugc dua len tii Tda phiic tham*^'. Tham chinh vien se chi xem xet van de dp dung lugt frong phan quyet ciia cac tda cap dudi chu khong xem xet ddnh gia tinh tiet, npi dung thye chat ciia vu viec. Neu Tham ehinh vien quyet dinh ban dn dugc dua len la sai thi cd
(2) M Patrick Frydman, Administrative Justice in France, Speech to the 11th Australasian Institute of Judicial Administration Tribunals Conference.
(3) Bernard Schwartz, French Administrative Law and the Common-law World, The Lawbook Exchange Ltd., 2011, p. 24.
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Cdc d6ng chi Pho Vien tru'd'ng Vien kiem sat nhan dan toi cao Nguyen Thj Thuy Khiem, Nguygn Hai Phong va ong Pham Long Trgn, Chu tjch HDTV T|ip dodn Byu chinh - ViSn thong Viet Nam an nut khai truo-ng He thong truyen hinh hpi nghj den Vi$n kiem sdt nhdn d i n cap huypn (Hd N^i, ngay 14/01/2015).
Anh: Hai Long
the tryc tiep tien hanh xet xii lgi (liic nay Tham ehinh vipn se lgi ddng vai fro la Toa an dau tien vd cudi cung) hogc gui ban an lai cho CO quan xet xii trudc do (liic nay eo quan cap dudi se phai xir lgi va tuan theo quyet dinh cua Tham chinh vien). Thd ba, Tham chinh vien con c6 the dong vai fro la mpt Toa phlic tham ddi vdi khdng cdo tryc tiep tir Toa sa thara hanh chinh thay vi qua Toa phlic thara. Trudng hpp nay thudng chi xdy ra khi vu viec dugc quy dinh la khdng the khdng cao len Toa phiic thara, dac biet la eho kien tung lien quan den cupc bau cir dia phuang. Phdn quyet cua Tham chinh vien la chung thara va khong the khang cao.
7. 2. Tda sa thdm hdnh chinh & Tda phuc thdm hdnh chinh
Toa so tham hanh chinh la toa so thim
doi vdi tat ca cac vu an hanh ehinh, chi trir nhirng van de dugc dua tryc tiep len Tham chinh vien. Co tat ca 42 Toa sa tham hanh chinh tinh den nam 2009*'*', va chi tinh rieng frong nam 2008 da dua ra 183.000 phan quyet'^'. Trudc day, mgi phdn quyet cua Toa so tham hanh chinh dupe khang cao tryc tiep len Tham chinh vien. Tir sau nam 1987, do so lugng vu vipc tang len ddng ke, he thdng cac Toa phiic tham hanh chinh da dugc thanh lap, frd thanh co quan trung gian tiep nhan cac khang cdo tu Tda sa tham hanh chinh. Tgi Phap hien cd 8
(4) Administrative Justice m Europe - Report for France, Association of the Coimcils of State and Supreme Administrative Jurisdiction of the European Union, p. 4.
(5) The Administrative Justice System - An Overview, Conseil d'Etat, Communications Department
T^pchi S6TetAtMui(thang02/2015)VKlEMSAT I 5 3
TIM H I ^ PHAP UTAT HirbC HGOAl
Tda phlic tham, dua ra khoang 26.000 phan quyet raoi nam'^*.
Ve CO ban, each td chiic va hoat dpng ciia Tda so thara hanh chinh va Toa phiic tham hanh chinh deu dugc lay tir Tham chinh vien - ca quan dugc xay dyng lau ddi han. Vi vgy, ngoai chiic nang xet xir, cae ca quan nay eiing c6 vai fro tu van nhung d miie dp thap han cho chinh quyen dia phuang. Va mac dii fren nguyen tdc cdc phan quyet cua Tham chinh vien khong mang tinh rang budc phdp ly doi vdi vipc ra quylt dinh ciia cac toa cap dudi, thi ca Tda sa thara hanh chinh va Tda phiic thara fren thyc te deu tuan thu rat nghiem ngat cac phan quyet nay (nham fraiih tinh frgng co the bi khang cao len Thara chinh vien)*''.
Han niia, rapi van de ve each td chiic, thyc hien chiic nang, tuyen chpn thanh vien, dao tao va tai chinh cua Toa so thara hanh chmh va Toa phiie thara hanh chinh deu thupc sy qudn ly ciia Thara chinh vien. Dieu nay khien cho Tham chinh vien cd phan giong nhu rapt "bp tu phdp" ve hanh ehinh.
Ve thanh vien, de dam bao sy dpc lap khach quan cua cac tham phan, khong de hi chi phoi bdi ca quan hanh phap, hp cd nhung dac quyen nhat dinh. Cy the, mgi quyet dinh lien quan den vi tri cong tac cua hg nhu thang chiic hay chuyen cong tae deu dugc qudn ly bdi rapt hgi dong dgc lap - Hdi dong nha nudc toi cao ve cdc toa hanh chinh va tda phlic tham hanh chinh (Superior Council of administrative tribunals and courts of appeal), do Pho Chii tieh Tham
(6) Pre-lnal Procedures in Administrative Justice Proceedings in England and Wales, France, Germany and the Netherlands, A comparative study with a view to the possible development of pre trial procedures in admmis- traiive taw in Turkey, World Bank, July 19th, 2010, p. 56 (7) M Patnck Frydman, Administrative Justice in France, Speech to Ifte 11th Australasian Institute of Judicial Admimstration Tnbunals Conference, p. 10, para. 3,
chinh vien chiu frach nhiera. Da phan cdc tham phdn ciing diu qua dao tao tai ENA (Tnrdng hanh chinh quoc gia cua Cdng hda Phap) nhung frong nhiing nam gan day do nhu cau tang, each thiic chgn lua da co su md rgng, vi dy nhu ehpn lya true tiep tir cae nhan vien nha nudc, lugt su hoac sinh vien luat co thanh tieh eao qua cac cupc thi dugc to chirc hang nam.
2. Thii tuc to tung hanh chinh ciia Cong hoa Phap
2.1. Phgm vi khieu kien
Khieu kien ra Toa so tham hanh chinh ve CO ban dugc chia lam hai loai: Khieu kien ve tinh hop phap va khieu kien doi bdi thudng.
Thdi hgn de khieu nai la 2 thang ke tir ngay quylt dinh hanh chinh dugc cong bo (Dieu R421-1, Bp lugt hanh chmh Phap 2001).
Vdi logi hmh thii nhat, nguyen don chi yeu cau hiiy bd rapt hanh vi hoac quyet dinh hanh chinh nao do frdi vdi phap lugt.
Khieu kien nay chi dupe tda an hanh ehinh thu ly khi eo day dii cac dieu kien sau: (a) Quyet dinh hanh chinh phdi la van ban phdp ly dia phuang do ca quan hanh chinh dua ra; (b) Chua het thdi hgn khieu kien theo quy dinh cua phdp luat; (c) Dan khieu kien phai cd day du ndi dung va frong do phai neu rd ly do va yeu cau cua ngudi khdi kien; (d) Ngudi khieu kien phai c6 lpi ich lien quan tdi viec ban hanh quyet dinh do. Khi xet xir cac khieu kien logi nay, toa an hanh chinh cd quyen ra radt trong cdc quyet dinh: Chap nhgn dan kien, huy toan bp quyet dinh hanh chinh bi khieu kien;
chap nhan ragt phan don kien, hiiy bo radt phan quyet dinh hanh chinh bi khieu kien;
bae dan kien, giii nguyen quyet dinh hanh chinh hi kien.
Cdn vdi logi hinh thii hai, khong chi dimg lai d tinh diing ddn cua quyet dinh, nguyen don cdn muon tda xac dinh quyin
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va Igi ich ddng dugc hudng va tir dd yeu eau doi boi thudng. Ve nguyen tie chung thi cd trach nhipm phai boi thudng khi chiing rainh dugc co quan hanh chinh co loi. Tuy nhien, thyc tien xet xu ciia cde toa an hanh chinh qua nhieu nara cho thay, frong nhieu trudng hgp, ede ea quan nhd nudc phai bdi thudng ngay cd khi khdng co yeu td 16i, nhung do nhiing hdnh dpng cua minh, ca quan nha nudc gay thiet hai cho cong dan. Tren phuang dien nay, he thong to hing hanh chinh cua Phap cd phSn tiln bp va uu viet han he thdng khac nai toa an chi bupc cac ca quan eong quyen boi thudng khi ehiing minh dugc ylu t l 16i frong hanh dpng gay ra thiet hai.
2.2. Thu tuc td tung a. Dae diem
Ve thil tuc to tyng tgi tda, cd 3 dgc tnmg tieu bieu: Dang van ban, bi mat, dilu tra.
Thd nhdt, da so thu tuc tgi toa dugc tien hanh bang van bdn. Tren thyc te, ciing co rapt sd thil tuc tranh tyng raieng raa Lugt su CO the dua nhirng nhan xet, lap luan tgi toa nhung cdc thii tyc ca ban vin la bang van ban. Theo do, trong dp frinh bang van ban len tda, cdc ben phdi neu len tat ca nhiing yeu cau ciia minh, va cac lap lugn raipng cua hp tgi toa phai tuan theo cdc van de da dugc neu ra frong ban de frinh do.
Thu hai, thu fric raang tinh bi raat. Theo dd, ben thii ba se khong dugc tiep can qua trinh to tung giua cac ben. Tuy nhien nguyen tdc nay chi ap dung doi vdi de frinh cua hai ben, bdi phien franh tyng duge tien hanh cong khai'^\
Thu ba, thil tuc tgi t6a hanh chinh
(8) Pre-tnal Procedures in Administrative Justice Proceedings in England and Wales, France, Germany and the Netherlands, A comparative study with a view to the possible development of pre tnal procedures m adminis- trative law in Turkey, World Bank, July 19th. 2010, p. 54.
mang tinh dieu tra. Cu the, tda se chuygn de frinh eho cac ben va true tiep tien hanh dieu tra, hoac yeu cau them chiing cii neu can thiet. Han nira, toa co toan quyen quyet dinh frong each thiic tien hanh td tung, vi dy nhu: Dat ra thdi han de trinh cho cac ben, sir dyng chuySn gia de tien hanh dieu fra bo sung, dao ngugc nghia vy chiing minh tu nguyen dan sang eho co quan hanh phap...
Nhin chung, cac hanh vi hay quyet dinh hanh chinh eua co quan hanh phap se van dugc thyc thi dii cho dang hi khdi kien tai toa an, raien la toa chua dua ra phan quyet huy bo quyet djnh hanh chinh dd'^'. Nhu vgy, tren thyc te viec khdi kien khong giiip ngan chan nhirng thiet hai ed the gay ra bdi vipc thyc thi quyet dinh, dac biet khi giai doan xdc dinh tham quyen eiia tda mat nhieu thdi gian. Tuy nhien, frong radt so trudng hgp dac biet khi CO ca sd day du, toa eo the yeu cau tam dirng thi hdnh quyet dinh hdnh chinh trude khi dua ra phdn quyet cudi ciing.
Day dugc gpi la thii tyc to tyng so lugc (procedures de refere) va thudng dupe ap dyng doi vdi cdc quyet dinh lien quan den giay phep xay dung, quy hogch do thi, cac cdng trinh cong cpng... do he qua ciia viec thi hanh cac quyet dinh nay (vi du nhu viec xay dyng mpt tda nhd) la khong the thay ddi dugc.
b. Qua trinh to tung
Nhin chung, frinh ty, thu tyc d cdc cap gidng nhau nhung thdng thudng, viec giai quyet cac vu viec d Toa an hanh chinh cap dudi dan gian han. Trinh tu to tyng dupe tien hanh qua hai giai doan:
Giai dogn thdm cuu
Sau khi nhan hd so, tieu ban phu trach
(9) Dieu L4, Bo lujt hanh chinh Phap 2001
..-. . — , Tap chi SoTetAtMiii{thang02/2015)V-KIEMSAT I 5 5
Tin mcu PHAP LUAT Htrdc HGOJU
Ngay 22/01/2015, Vien kiem sat nhan dan tdi cao to chu>c Le cong bo Quylt dinh so 20/QD-VKSTC ngay 20/01/2015 cua Vien tru'd'ng Vien kiem sat nhan dan toi cao ve viSc b6 nhiem dong chi Nguyen Nhu' Hiing, Pho Tong Bien tdp Tap chi Kiem sat giir chirc vu l o n g Bien tap Tap chi Kiem sdt; Quylt djnh co hieu iu'c tir ngay 01/02/2015.
Trong anh: Tien sT Tran Cong Phan, Ciy vien Ban can s y Dang, Phd Vien tripdng Vi^n kilm sdt nhdn ddn t6i cao trao Quylt djnh va tang hoa chuc mij>ng dong chi
Nguyen Nhir Hiing. . Anh: Cao Tru&ng Giang
lmh vyc lien quan thong bao cho hai ben giri ban gidi trinh. Ho sa sau do dugc giao cho mpt bao cdo vien de de ra giai phap.
Trudng tieu ban dong vai fro dy thdra hoac cii hai thanh vien cua tieu ban dong vai frd dy tham. Dy tham nghien cim ky ludng gidi phap ciia bdo cdo vien va dua ra thao luan tgi Hpi nghi toan the tieu ban. Sau do, tieu ban bo phieu thdng qua dy thao quyet djnh.
Giai dogn gidi quyit
Tai phien toa, bao cao vien frinh bay su viee, neu yeu cau eiia cde ben. Khi xem xet mgt quyet dinh hanh chinh, toa se xem xet
ca hieu lye ve mat hinh thiie lan npi dung cua quyet dinh do. Co hai co sd de xem xet hieu lyc ve mat hinh thiic: Thara quyen va thil tuc ra quyet dinh. Theo do, mgt quyet dinh duge xera la vo hieu khi ngudi dua ra quylt dinh khong cd tham quyen dua ra quyet dinh do (vi dy: Thong doc dua ra quyet dinh thupe tham quyen cua bp trudng) hoac viec dua ra quyet dinh khong tuan theo thu tyc da dugc quy dinh (vi du:
Khong thong qua uy ban tu van). Tuang ty, ciing cd hai ca sd xem xet hieu lyc ve mat ngi dung: Sy vi pham lugt phdp va lara
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5 6 I KlEMSAT^S6TetAtMui(thang02/2015)
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dyng quyin lyc. Cu thi, su vi phgra ve raat luat phap cd thi bao gIm sy vi phgm hien phap, dieu udc qudc te, van bdn phap lugt, cac nguyen tdc chung cua luat, quy dinh phap luat khac, va cac quyet dinh hanh chiiih cdp cao han. Khi xem xet viec lam dyng quyin lyc, toa nhin vao dgng ca cua CO quan hanh phap khi ra quyet dinh do.
Neu myc tieu ma nhd cam quyen hudng den khong diing vdi myc tieu theo lugt dinh thi quylt dinh do dugc xera la trai phap lugt. Chdng han nhu frong trudng hgp co quan hdnh phap ra quyet dinh vi lgi ich rieng ciia minh (vi dy nhu nham tgo dieu kien thugn lgi eho c6ng viec kinh doanh cua ngudi than va gay can frd eho doi thu cgnh tranh). Sau khi xem xet, phan quyet dugc cong bo sau 15 ngdy.
Ban dn eua Toa so tham va phiic thara CO the hi khang an, thdi gian khdng an la hai thang. Trudng hgp khan cap theo quy dinh eua phdp luat la 15 ngay. Thdi gian
trung binh giai quyet cac vu viec la khoang 13 thang ddi vdi toa so tham va phlic thara, va 10 thdng doi vdi Tham ehinh vien<'^>.
Bai viet fren day da gidi thieu so lugc ve he thdng tda dn hanh chinh va thii tuc td tung hanh chinh ciia Cpng hoa Phap - mot frong cac quoc gia c6 nen hanh chinh lau ddi nhat tren the gidi, lam tai lieu de chiing ta CO the thara khao. Ben egnh viec eiing co va hoan thien he thong toa hanh chinh, thii tuc td tung hanh chinh thi viec md rpng tham quyen ciing nhu co nen thiet lap ca quan tai phan hanh chinh dpc lap vdi he thing Toa dn, dpc lap vdi Chinh phu da va dang dat ra nhung suy ngam eho nhihig nhd nghien cim, cung nhu nhirng ngudi dp dung phdp luat nhim hoan thien phdp luat tl tyng hdnh chinh nude ta.*
(10) La Justice administrative, en bref, Conseil d'Etat, 2009, p 4
GHI NHAN Tir..
(Tiep theo trang 27) can bp, nhan xet Dang vien, cac Kiem sat vien khdng cd giai phap cy the, khong cd hieu qua trong thyc hien Chi thi thi khong dugc bilu duong, khen thudng frong quy va tong ket nam.
Qua mpt nam thyc hien Chi thi da mang lai hieu qua thilt thuc, tao sy chuyin bien tich cyc ve nhan thiic va hanh dpng, dpi ngu Kiem sat vien da neu cao trdch nhipm frong thuc hien nhiem vu.
Trong hoat dpng dilu fra da gdn eong tl vdi hoat dpng dieu tra, Kiem sdt vien da bam sat qua trinh dieu tra, nam chdc tiln
dp dilu tra, frong qua trinh dieu tra, Kiem sat vien da song hanh ciing dieu tra, ehii dpng tich cyc thara gia sau vao qua trinh dilu tra. Cling chiu trdeh nhiem vdi Co quan dilu fra thao gd nhirng kho khan, vudng mdc phat sinh frong thuc te, Kiem sdt vien luon coi do la kho khan eiia minh de Cling vdi Ca quan dieu tra tim cdch khdc phyc, dugc cac Co quan dieu tra tin tudng ddnh gid cao, cdc vu an deu dugc giai quylt theo dung quy dinh cua phdp luat, khdng c6 an phai tra hd so de dieu tra bd sung, khdng co an phai dinh chi do bi can khong phgra tpi hay Toa tuyen khong phara tpi, gdp phan nang cao chat lupng cdng tac dilu tra, truy to, xet xii cdc vu an hinh sy.*
Tap chi So Tet ^t Miii (thang 02/201 S K - K I E M SAT I 5 7
