NHA NUdc VA PHAP LUAT
KIEM SOAT QUYEN LlTC CUA CHINH PHU DOI V6l QUOC HOI TRONG THi/C HIEN QUYEN LAP PHAP
Nguyen PhKdc Iho*
* Van phong Chinh phu
Thdng tin b^i viet:
Tif khoa: quyen luc nha nuac, kiem soat quyen luc, quyen lap phap, kiem soat quyen lap phap, vai tro cua Chinh phii trong quan he voi Quoc hpi.
Lfch su bai viet.
Nhan bai : 14/05/2019 Bien tap : 02/06/2019 Duyet bai : 04/06/2019
Tom tat:
Quyen luc quan trong nhat Hien phap trao cho Quoc hoi la quyen lap ph^p. De viec thuc hi^n diing muc dich, co gioi han, bao dam cac dao luat duac ban hanh co tinh dan chu, phap quyen, dap iing yeu cau quan Iy dieu hanh dat nuac, quyen luc nay phai dugc kiem soat, truoc het va chu yeu boi Chinh phii - co quan thuc hien quyen hanh phap. Phii hop vdi Hien phap, co che kiem soat cua Chinh phu d6i vcfi Qu6c hgi trong thuc hien quyen lap phap can tiep tuc hoan thien khi nghien ciru, sua doi, bo sung Luat Ban hanh van ban quy pham phap luat tai day.
Article Infomation:
Keywords, state power, control of power, legislation power, control of legislation power, the role of the Government in relations with the National Assembly.
Article History:
Received : 14 May 2019 Edited : 02 Jun 2019 Approved : 04 Jun 2019
Abstract
The most important power under the Constitution given to the National Assembly is the legislation power. For the right purpose, under a threshold, it is to ensure the laws are democratic and rule of taw, securing the requirements of the country's management and administration, the legislation power must be controlled, first and foremost mainly by the Government - the execution-power agency. In accordance with the Constitution, the Government's control mechanism for the National Assembly's enforcement of its legislation power should be reviewed and improved during the amendment of the Law on the Promulgation of Normative Legal Documents.
MOfDAU
Quy6n lire nha nuac gom quyen lap phap, quydn hanh phap va quyin tu phap. 6 nuac ta, viec thuc hien ba quydn nay dugc HiSn phap trao cho Qudc hoi, Chinh phii va Toa an nhan dan. Muc dich chinh cua su phan cong quyen lire nay nham han che va kidm scat, bao dam quyen luc nha nuac dugc thuc hien trong khuon kho phap luat
mot each dan chu, sang t^o, dung muc dich, phuc vu lgi ich cua Nhan dan, cua dat nuac.
Cuang ITnh xay dung dat nuac trong thai ky qua do len Chii nghTa xa hpi {bo sung, phat trien nam 2011) lan dau tien khang dinh su kiem soat quyen lire giira cac co quan thuc hien quyen lap phap, hanh phap va tu phap: "Quyen luc nha nuac la thong nhat;
CO su phan cong, phoi hgp va kiem soat giira . NGHIEN CtfU I Q S6 14(390)T7/2019 V . L A P P H A p ' ^
NHA NlfOC VA PHAP LUAT cac CO quan trong viec thuc hien cac quydn lap phap, hanh phap, tu phap"'.
Dugc Hidn phap trao trach nhidm thuc hidn quydn hanh phap, Chinh phu co chuc nang mai la ca quan thuc hidn hanh phap. Didu nay mang lai cho Chinh phii mot vi thd mai trong bo may nha nuac, bao dam tinh dgc lap tuang doi han trong quan he vai ca quan lap phap va ca quan tu phap. Theo do, tao ca sa tang cuong tinh chii dgng, linh hoat va tinh sang tao cua Chinh phu trong hoat dgng, ddng thdi thidt I^p tidn dd khach quan cho viec Chinh phu c6 the tang cudng su phdi hgp va thiet lap su kidm soat phii hgp ddi vdi ca quan thuc hien quydn lap phap va ca quan thuc hien quyen tu phap.
Qudc hdi la ca quan co quyen lap phap, ban hanh cac dao luat. Chinh phu co trach nhidm thirc thi cac dao luat dd quan ly xa hdi. Chinh phii la ngudi chu tri nghidn cuu, soan thao, trinh Qudc hgi xem xet, ban hanh trdn 90% cac du an luat. Cac dir an luat do Chinh phti soan thao, trinh Quoc hgi phai dap ung ydu cau phan anh sau sat thuc tien quan ly didu hanh, giai tda nhung biic xuc cua cuoc sdng dat ra; phii hgp vai trinh do, kha nang ciia bd may quan ly. Tuy nhidn, de bao dam cho cac van ban, quydt dinh do Qudc hdi ban hanh mang tinh kha thi, phii hgp vdi ddi sdng xa hgi, dap ung lgi ich ciia Nhan dan, ddi hdi Chinh phii phai cd kha nang tac ddng den quydn lap phap cua Qudc hgi. Kha nang nay dugc hien thirc hoa thdng qua quydn kidm soat ciia Chinh phu ddi vdi Qudc hdi.
Nhu vay, giiJa Chinh pliu va Quoc hdi tat ydu khach quan cd mdi quan he phdi hgp rat chat che trong hoat dgng lap phap, thuc hidn quydn lap phap. Ddng thdi, ciing rat can thidt phai bao dam vide thuc hien quyen lap phap ciia Qudc hgi phai chju kidm soat tir
phia Chinh phu - Ca quan thtrc hien quy^
hanh phap, nhit la trong didu kien chua c^
ca chd bao hidn ddc lap. Nghidn cuu, lan ro cac vin dd ly luan va thirc tien cua mo, quan he kidm soat quydn luc cua Chinh pho ddi vdi Qudc hdi trong hoat dong lap phap la CO sd dk tidp tuc hoan thidn khudn kho tiii chd didu chinh mdi quan he va nang cao chi lugng, hidu qua cdng tac l^p phap, gdp phai tidp tuc ddi mdi, hoan thien td chiic va hoai ddng cua bd may nha nudc ta.
1. Cff sd Iy lu^n vd vai tro ciia Chinh phu trong kidm soat viec thuc hien quyen Igip phap 1.1 Hoc thuyet phdn quyen
Hinh thanh tir thd ky XVII - XVin, vdi mong mudn chdn^ lai khuynh huonj chuydn chd ciia cac Quoc vuong, hgc thuyet phan quydn da neu ra cac tridt ly sau day:
(1) Quyen luc nha nudc cao nhat thupc vd Nhan dan;
(2) Nhan dan khong true tidp thuc hien quydn lire (nhu tai cac thanh phd A-ten nhu trudc day) do quy md dan sd ngay cang lan va su gia tang phuc tap cua cac mdi quan he kinh te va xa hdi;
(3) Chi cd quydn lire mdi cd thd kidm soat, ngan chan dugc quydn lire.
Vide sir dung quydn luc nha nudc luon cd xu hudng bi lam dung, lam tha hda bp may nha nudc. Do vay, quydn lire nha nuctc cin phai dugc phan tach thanh cac quydn lap phap, hanh phap va tu phap: (i) Lap phap la thidt lap cac dao luSt; (ii) hanh phap co trach nhidm lam cho cac dao luat do dugc ap dung, dac bidt la bang phuang tidn gdm cac van ban phap quy; (iii) tu phap giam sat su tdn trgng ddi vdi cac luat cua cdng dan cilng nhu cac thd chd true thudc hai quyen lire kia.
Cac quydn nay dugc phan chia tuang ung cho ca quan nha nirdc khac nhau de thuc hien mdt each dgc lap; cd su kidm chd, doi trgng vdi nhau.
I Dang Cong san Viet Nam, Van ki?n Dai hoi Dai bieu toan qu6c lan thii XI, tr. 85.
4
1 HGHl£H CUV ; I I Aft B U i t B / <^Al4n9niT7/2niPNHA NUOC VA PHAP LUAT
.2 Quan Mem cua Bang ta ve kiem sodt
^uyen lye
Cuang ITnh xay dung dit nudc trong hdi ky qua do Idn chii nghTa xa hdi (bo sung, that tridn nam 2011) lin diu tidn khing dinh iguydn tac kidm soat quydn lire nha nudc. Cu he hda Cuang ITnh, Nghi quydt Dai hdi XI :ua Dang nhan manh chii truang: "Nghien
;uu xay dung, bd sung cac the chd va co chd /an hanh eu the dd bao dam nguyen tac tat :a quydn lire nha nudc thudc vd Nhan dan Va nguyen tac quydn lire nha nudc la thdng
"nhat, cd su phan edng, phdi hgp va kidm soat giiia cac ca quan trong vide thuc hidn quydn lap phap, hanh phap va tu phap"^.
Day la budc tidn quan trgng ve Iy luan, la quan didm mang tinh dot pha cua Dang ta vd quydn lire nha nude. Vdi quan didm ve kidm soat quyen luc, quan niem vd quyen luc nha nudc ciia Dang ta da co ban vugt qua hgc thuyet tap quyen XHCN, hinh thanh mot hgc thuydt mdi vd td chirc quyen luc nha nudc.
Quyen lire nha nude xuat phat tir Nhan dan, cua Nhan dan, dugc Nhan dan trao cho bd may nha nudc de phuc vu lgi ich chung ciia xa hdi, dd bao vd cac quydn ciia con ngudi, quydn cdng dan. Khang dinh nguydn ly nay, Cucmg ITnh xay dung dat nudc trong thdi ky qua do Idn chii nghTa xa hgi (bd sung, phat tridn nam 2011) da ndu rd: "Nha nudc tdn trgng va bao dam cac quydn con ngudi, quyen cdng dan; cham lo hanh phiic, su phat tridn tu do ciia mdi ngudi"\
Kidm soat quyen lire nha nudc, vd thuc chat, la kidm soat vide sit dung quydn lye cua nhirng con ngudi va td chuc dugc giao quyen luc ay, de bao dam quydn lire dung la cua Nhan dan, ludn thugc ve Nhan dan, dugc siir dung nham muc dich phuc vu
Nhan dan, vi lgi ich eua qudc gia, dan tdc.
Ndi each cu thd, kiem soat quydn lire nha nudc la dd bao dam quydn lire khdng bi tha hda, khdng lam bien chat, hu hdng ddi ngii can bd, cdng chure va bd may lanh dao, quan ly dat nudc.
Thira nhan kidm soat vide thuc hidn quydn lire giiia cac co quan lap phap, hanh phap va tu phap chinh la su thira nhan hai nguydn ly ca ban: (1) Bat cir quydn lire nha nudc nao thi vide thuc hien no eung phai cd gidi han va bi kidm soat; (2) chi cd quydn lire nha nudc mdi kiem soat, han chd dugc quydn luc nha nudc. Vdi tu duy, nhan thire nhu vay, phai thira nhan Chinh phii cd quydn kiem soat ddi vdi vide thuc hidn quydn lap phap ciia Qudc hdi, eung nhu ddi vdi vide thuc hien quyen tu phap cua Tda an, mdt each tuang xung va phii hgp.
1.3 Quy dinh cua Hien phdp ndm 2013 Dudi anh sang quan didm ciia Dang vd kiem soat quyen luc, mdt sd quy djnh eiia Hien phap nam 1992 lidn quan ddn tham quyen va trach nhiem ciia Chinh phu da dugc sira ddi, bd sung hoac quy dinh mdi.
Cu thd:
(1) Hidn phap nam 2013 quy dinh rd tinh chat, vi tri, chiic nang ciia Chinh phu, tao tidn dd cho vide thuc hidn kidm soat quydn lire ctia Chinh phii ddi vdi vide thuc hien quyen lap phap va tu phap. Doan 1 Didu 94 Hidn phap nam 2013 quy dinh: "Chinh phii la CO quan hanh chinh nha nudc cao nhat ciia nudc Cdng hoa XHCN Viet Nam, thue hidn quydn hanh phap, la ca quan chap hanh ciia Qudc hdi". Day la quy dinh quan trong, ehua dung quan didm, nhan thiic vira cd tinh ke thira, vira mang tinh than ddi mdi vd tinh chat, vi tri va chirc nang cua Chinh phii dugc hien dinh.
Dang Cong san Viet Nam, Van ki^n Dai hpi Dai bi^u toan quoc lan thii XI, tr. 247.
Cuong imh xay dimg dit nirac trong thoi ky qua dp len chu nghia xa hgi (b6 sung, phat trien nam 2011), Van kien Dai hoi d?i bieu toan qu6c lan thii XI, Nxb Chinh tri quoc gia. Ha Npi, tr. 85
NGHIEN Cini I E So 14(390)T7/2019 ^ L A P P H A P ' "
NHA NtfdC vA PHAP LUAT Khac Hidn phap nam 1992, vd mat ky thuat lap hidn, Hidn phap nam 2013 cd sir dieu chinh vd trat tu sap xdp cac loai tinh chit, vi tri, chirc nang cua Chinh phii, Theo do, da dat Idn hang dau va nhan manh tinh chit, vj tri, chirc nang ciia Chinh phii la ca quan hanh chinh nha nudc cao nhat. Day la su kd thira ky thuat lap hidn cua Hidn phap nam 1946, la mot bude chuydn rat ca ban trong nhan thiic ve phan cdng quyen lire, vd vi tri, vai trd cua Chinh phii trong eac mdi quan he quydn lire, bao dam su ddng bd, logic vdi quy dinh vd Qudc hgi (la co quan quyen luc nha nudc cao nhat ciia nudc Cdng hda XHCN Viet Nam) va vd Tda an nhan dan toi cao (la co quan xet xif cao nhat ciia nudc Cdng hda XHCN Viet Nam).
Quy dinh trdn day eiia Hidn phap nam 2013 cd y nghTa rat quan trgng, tao tidn dd cho vide Chinh phu thyc hidn vai trd kidm soat quydn luc, thd hien trdn hai khia canh sau day:
- Dinh hinh ro hon vide phan cong quyen luc giiia Chinh phii, Qudc hdi va Tda an nhan dan tdi cao. Theo dd, ngoai vide phan cdng ro thyc hidn quydn lap phap, quyen hanh phap va quydn tu phap, lan lugt eho Qudc hgi, Chinh phii va Tda an nhan dan, thi giGa 3 ca quan nay cdn cd su phdn biet rdt ro ve tinh chdt, cd vi tri ddc lap va ngang hang nhau: Qudc hgi la co quan quydn lire nha nudc cao nhat cua nudc Cdng hoa XHCN Viet Nam, Chinh phu la ea quan hanh ehinh nha nudc cao nhat ciia nudc Cdng hda XHCN Viet Nam, Tda an nhan dan tdi eao la ca quan xet xir cao nhat ciia nudc Cdng hoa XHCN Viet Nam;
- Vide phan dinh ro rang han trdn day ve tinh chat, vi tri trong phan cdng quydn luc tao eho Chinh phii vi tri ddc lap han, do vay se chii ddng, linh hoat va sang tao han trong hoat dgng. Qua dd, Hidn phap nam 2013 da dd cao tinh hanh ddng, tinli chu ddng, linh hoat, sang tao trong td chirc thuc thi chirc nang, tham quydn ciia Chinh phii.
I HGHltH CUU , I LAP P H A P ^ So 14(390) T7/2019
(2) Vdi tinh chat va vi ti]
hanh chinh nha nudc cao nhat (a ca qm
ciia nu6c Cdng hda XHCN Viet Nam, Chmh phuj thidt chd cd thim quydn hanh chmh cao nk khdng chi ddi voi he thdng hanh ehinh nha nudc ma cdn ddi vdi ca he thdng cmnh tn.
Chinh phii cd chiic nang quan ly nha nuoc thdng nhit ddi vdi tit ca cac Hnh vuc doi sdng kinh td - xa hdi cua dit nudc; quan ly thdng nhit ndn hanh chinh qudc gia.
Tinh ehit hanh chinh nha nudc cao nhit cua Chinh phu chi phdi khdng nhirng mdi quan he cua Chinh phu vdi he th6ng hanh chinh ma cdn cac mdi quan he giQa Chinh phii vdi cac ca quan lap phap, tu phap, vdi cac td chiic troiig hd thdng chinh tri ndi chung. Theo dd, vd mat hanh chirih nha nude, Chinh phu cd vi tri va tham quyen cao nhat. Cac quyet dinh cua Chinh phu co gia tri trong toan qudc, trong ca bd may nhii nudc va he thdng chinh tri. Tat ca cac co quan, td chirc trong he thdng chinh tri, cac to ehtic va ca nhan trong xa hdi phai tdn trpng va chap hanh cac quy dinh hanh chinh cua Chinh phii. Chinh phii cd quyen chi phoi, kidm soat vd mat quan ly hanh chinh nha nude ddi vdi toan bd ho^t ddng eiia bp may nha nudc.
(3) Lin diu tidn Hidn phap nam 2013 khang djnh Chinh phii la ca quan thyc hien quydn hanh phap
Vdi quy dinh tinh chat, vi tri va vai tro, chirc nang la co quan thyc hidn hanh phap, mang lai eho Chinh phu mdt vi the mdi trong bd may nha nudc, bao dam tinh ddc lap tuang ddi hon trong quan hd vdi ca quan lap phap va co quan tu phap. Theo do, tao CO sd tang cudng tinh chii ddng, linh hoat va tinh sang tao cua Chinh phii trong hoat ddng, ddng thdi, thidt lap tidn dd khach quan cho vide Chinh phu cd thd kidm soat ddi vdi ca quan lap phap va co quan tu phap.
Vdi chiic nang thyc hien quyen hanh phap, Chinh phii thyc hien vide hoach djnh va didu hanh chinh sach qudc gia, td chirc thuc hien Hidn phap va phap luat dd duy tri va bao vd trat ty cdng cdng, bao vd lgi ich qu6c gia,
NHA NlTOC VA PHAP LUAT bao ve quyen con ngudi, quyen cong dan.
(4) Tinh than chii dao xuyen sudt toan bg cae quy dinh cua Hidn phap ve Chinh phii la bao dam tinh dgc lap tuong ddi, tang cudng tinh chu dgng, linh hoat, sang tao va tinh dan chu phap quyen trong td chiic va hoat ddng cua Chinh phii. Day la tu tudng rat mdi tao tidn dd quan trgng dd Chinh phii thuc hidn quyen kidm soat ddi vdi Qudc hdi.
Ngoai ra, Hidn phap nam 2013 cd hai siia ddi, bd sung quan trgng;
Thd nhdt, Bd quy dinh cua Hidn phap nam 1992 vd vide Qudc hdi ban hanh Chuang trinh xay dung luat, phap lenh''.
Trong khi Hidn phap nam 1992 khang dinh manh me, quydn ciia Chinh phii "Trinh du an luat, phap lenh va cac dy an khac trudc Qudc hgi va Oy ban thudng vu Qudc hdi (UBTVQHJ'^ nhung cung chinh Hien phap da ban che quyen ban nay ciia Chinh phit bang quy djnh tham quydn ciia Quoc hdi
"quyet dinh Chuang trinh xSy dyng luat, phap lenh". Quydn ban nay tra thanh cdng cu cua Qudc hdi nham kidm soat qua miic ddi vdi vide thuc thi quydn hanh phap, va trdn thyc td, quy dinh nay lam ban chd quydn ciia Chinh phii duge dgc l^p, chii dgng trong vide trinh du an luat, du an phap lenh ra trudc Qudc hgi, UBTVQH; lam eho Chinh phu trd ndn bj dgng, ban ehd trong vide hoach djnh chinh sach, dap ung yeu cau cua quan ly dieu hanh. Ndi each khac, quy djnh nay ciia Hidn phap nam 1992 da han chd nhat djnh vai trd lap phap ciia Chinh phii, khdng bao dam tinh thdng nhat vdi chinh ngay quy djnh ciia Hidn phap nay ve quydn ciia Chinh phil trinh du an
luat, phap lenh ra trudc Qudc hgi, UBTVQH.
Thd hai, Bd sung quy djnh cho phep Thu tudng Chinh phu dugc quydn ydu cau trifu tap ky hgp bat thudng cua Qudc hdi hoac de nghi Qudc hgi hgp kin^.
2. Thirc trang Chinh phu kiem soat vile thirc hif n quyen lap phap
Trong qua trinh Qudc hdi xem xet, thdng qua cac du an luat do Chinh phu trinh, mac du ehua duge Luat Ban hanh van ban quy pham phap iuat (VBQPPL) nam 2015 quy dinh, nhung tren thyc td, Chinh phu da thuc hidn vide xin nit lai hoac dd nghj dimg thdng qua du an luat. Chang han, trong nam 2017, Chinh phu da xin nit lai Dy an Luat Cdng an xa de bd sung van dd chinh quy hda lue lugng Cong an xa vao dy an Luat Cdng an Nhan dan sua ddi (khdng ban hanh Luat Cdng an xa theo Chuang trinh xay dung luat, phap lenh nam 2017); hay tai ky hgp thir 5 Qudc hdi khda XIV (thang 6 nam 2018) Chinh phii da de nghj Qudc hdi dimg xem xet, thdng qua Luat Don vj hanh chinh - kinh td dae bidt dd tidp tuc nghidn ciiu, hoan thidn, bao dam chat lugng, tinh kha thi. Mdt vi du khac, dd la vide Chinh phii ddng thdi vira de nghj bd sung vao Chuong trinh xay dung luat, phap lenh nam 2018, vira xay dung, trinh Qudc hdi du an Luat Cdng an Nhan dan (siia ddi) tai ky hgp thii 5 Qudc hdi khda XIV. Cac dd nghj va each lam nay cua Chinh phii ddu da dugc Qudc hdi, UBTVQH ddng thuan. Xet trdn gdc do kidm soat quydn luc, cac hoat dgng trdn day cua Chinh phil la can thidt va phu hgp vdi quy dinh cua Hidn phap^.
B6 quy dinh tai khoan 1 Dieu 84 Hien phap nam 1992: quyen han ciia Quoc hpi "quyet dinh ChitODg tinh xay dimg Iuat, phap lenh".
Khoan 3 Dieu 112 Hiln ph^p nam 1992 Khoan 1 va khoan 2 Di6u 83 Hign phap nSm 2013
Trong qua trinh nghien cuu, sua doi, bo sung Hi^n phap nSm 1992, d^ bao dam sir ki^m soSt ciia Chinh phu doi voi Quoc hpi trong vi?c thi^c hifn quyen l^p phap, Chinh phii da chii dpng de xuat voi Uy ban siia doi Hien phap 1992 va v6i Quoc hoi cAn bo sung quy dmh Chinh phu co quy^n rut lai du an lu?t do Chinh phu trinh v^ d4 nghi Quoc hpi chua th6ng qua dir an luat do c^c ca quan, t6 chiic, ca nhan khic trinh neu thay du an luat chua dam bao tinh kha thi (khi lay
^ kien de thong qua, da c6 24/25 th^nh vign Chinh phii t^n th^nh dh xudt n^y, nhung da khong dupc Uy ban siia doi Hien phip 1992 va Quoc hpi chap thuan)
NGHIEN CUU I . NGHIEN CUU I J S6 14(390)T7/2019 ^ L A P P H A P ' '
NHA Nirdc VA PHAP LUAT Tuy nhidn, nhin chung sy kiem soat cua Chinh phii ddi vdi Qudc hgi trong vide thuc hidn quydn lap phap cdn ydu, chua thuc su ro net do cdn thieu ea sd phap ly rd rang, minh bach va nhan thirc chua day du, thd hidn rd d mdt sd han chd, bat cap sau day:
1. Theo quy djnh cua Luat Ban hanh VBQPPL nam 2015 va thyc tidn xay dung va thuc hidn Chuang trinh xay dung luat, phap Idnh nhimg nam gan day, cho thay, vide xay dyng va thyc hidn Chuang trinh ngay cang phai linh hoat, mdm deo, uydn chuydn de dap img yeu cau ciia quan ly didu hanh cua Chinh phii va phii hgp vdi vi tri, vai tro mdi ciia Chinh phii trong quan he vdi Qudc hdi theo quy dinh cua Hidn phap nam 2013. Ndi each khac, vide didu chinh Chuang trinh la cin thidt, xuit phat tir ydu ciu thuc tien va da dugc Luat Ban hanh VBQPPL cho phep^ Mat khac, dudi gdc do kidm soat quydn luc thi vide Chinh phu dd nghj dieu chinh Chuang trinh, trong do cd vide xin rut hoac dd nghi dimg vide xem xet, thdng qua dy an luat, phap lenh la didu binh thudng va phii hgp vdi tinh thin quy dinh ciia Hidn phap vd kidm soat quydn lye. Tuy nhidn, mdt sd co quan cua Qudc hdi, ciing nhu khdng it dai bidu Qudc hdi vin thd hidn quan didm, thai do phd binh, chat van Chinh phil nhu trudc day (khi chua ban hanh Hidn phap nam 2013) vd van dd nay. Didu nay cho thiy, tu duy, nhan thiic vd vai trd kidrn soat quydn lye cua Chinh phii ddi vdi Qudc hgi trong thuc hidn quydn lap phap edn han chd, chua phu hgp vdi tinh than ciia Hien phap
2. Viec Luat Ban hanh VBQPPL tiep tuc quy dinh thim quydn cua Qudc hdi quydt djnh Chuang trinh xay dung luat, phap lenh hang nam khdng chi la chua bao dam phii hgp vdi tinh thin ciia Hien phap nam 2013, ma trdn thyc td thSm quydn nay da giiip eho Qudc hgi, UBTVQH hdi gia tang quydn kidm soat ddi vdi Chinh phu trong thue thi quydn hanh phap, lam han che quyen hidn djnh cua Chinh phu vd dd xuat, hoach dinh ehinh saeh va xay dung, trinh dy an luat, phap lenh ra trude Qudc hgi, UBTVQH, dap iing yeu cau quan ly, didu hanh dat nudc.
3. Quy trinh hai giai doan^ theo quy djnh cua Luat Ban hanh VBQPPL hien hanh khdng ehi lam suy giam manh me dgng luc ciia mdi quan he phoi hgp giiia Qudc hgi, UBTVQH vdi Chinh phii trong giai trinh, tidp thu, chinh ly, hoan thidn du an luat, phap lenh (do khdng duy tri dugc sy tuang tac xuyen sudt, lien tuc giira co quan chu tri soan thao va ca quan tham tra), ma eon khdng bao dam tinh lien tuc ve trach nhidm, lam thay ddi vi tri, vai trd trong giai trinh, tidp thu, chinh ly, hoan thidn va thSm tra, giam sat, phan bidn ddi vdi du an luat, phap lenh. Theo do vai trd, trach nhiem kiem soat cua Chinh phii ddi vdi Qudc hdi, UBTVQH cang trd ndn hi dgng hon; phuang thiic kidm soat quyen lye khdng duy tri dugc tinh lidn tuc, do vay anh hudng khdng nhd ddn hidu qua thuc hidn.
4. Luat, phap Idnh do Chinh phu chu tri nghidn ciiu, soan thao, trinh Qudc hpi, va trong qua trinh Qudc hgi xem xet, thdng qua, Chinh phu ddng vai trd, trach nhidm rit
"Uy ban thucmg vu Quoc hpi ttr minh ho^c theo de nghi ciia ca quan, to chuc, dai bteu Qu6c hpi trinh dy an luat, phdp lenh quyk djnh di6u chinh chuang trinh xay dimg lu^t, phap lenh ttong c^c tnrong hgp sau day: a) Dua ra khoi chuang trinh cac dy an lu?it, phap lenh khong can thiSt phai ban hanh do co sir thay dot v€ tinh hinh kinh li - xa hpi hoac dik chinh thai di^m trinh trong tiuong hgp can thill; b) Bo sung vao chuong trinh cac du an luat, phap ISnli dg dap ung yeu cau cdn thiit phat trien kinh tk - xa hoi, bao dam quoc phong, an ninh, tinh mang, tai san ciia Nhan dan; cac dir an lu(it, phap l^nh cin siia d6i theo cic vSn ban m6i duoc ban hanh de bao dSm tinh thflng nhSt ciia he thflng phip lufit hoac de thuc hien dilu uac qu6c te ma Cpng hoa XHCN Viet Nam la thanh vien" (Khoan 1 Dieu 51 Luat Ban hanh VBQPPL nam 2015).
Theo quy dinh tai DiSu 74 va DiSu 75 Luat Ban hanh VBQPPL.
I NGHllH CUU ,
I i j ^ p p H A P ^ So 14(390)17/2019
NHA NlTdC VA PHAP LUAT quan trgng, khdng thd thidu trong tidp thu,
ehinh ly, hoan thidn. Tuy nhien, sau khi luat dugc Qudc hgi thdng qua, khdng cd bat cii vai trd nao ciia Chinh phii, Thu tudmg Chinh phu trong quy trinh, thu tuc Chii tjch nudc cdng bd luat, phap lenh, ma Luat, phap Idnh sau khi duge Qudc hdi, UBTVQH thdng qua duge girl thang cho Chii tjch nude ban hanh lenh cdng bd.
Hidn phap quy djnh Chii tich nudc cd quydn ydu cau UBTVQH xem xet lai phap Idiih, ndu UBTVQH vln bidu quydt ban hanh thi de nghj Qudc hdi xem xet, quydt djnh. Co quan nao - ndu khdng phai la Chinh phu - la chii thd cd thd phat hidn nhimg bat hgp ly cua phap lenh va chuan bi ngi dung van de bat hgp ly dd trinh Chu tich nudc xem xet, trinh UBTVQH hoae Qudc hdi xem xet, quydt djnh? Day la vin dd ehua dugc Hien phap va Luat Ban hanh VBQPPL quy djnh.
5. Bao cao cdng tac ciia Chinh phii, Thu tudng Chinh phu trude cac ky hgp cua Qudc hgi, nhit la tai ky hgp dau tien cua Qudc hdi, cung nhu trudc UBTVQH lau nay thudng thieu mot ndi dung rat quan trgng, do la dua ra thdng diep manh me vdi Qudc hgi, UBTVQH vd nhiing uu tidn, trgng tam eiia Chirih phii vd nhu eau lap phap phuc vu cho edng tac quan ly, didu hanh cua Chinh phu va he thdng hanh chinh nha nudc.
Qudc hdi cd quyen lap phap, nhung Chinh phu ddng vai trd trong vide thue hien quydn lap phap cua Quoe hdi, ban nua Chinh phii la ca quan td chiic thyc thi cac dao Iuat cua Qudc hgi, do vay, trong bao cao cua Chinh phii, Thii tudng Chinh phii trudc Qudc hdi cin dua ra nhiing nhan xet, danh gia vd tinh kjp thdi, chat lugng, tiiih kha thi ciia cac luat, phap lenh dugc Qudc hgi, UBTVQH ban hanh; dua ra nhun^ dd xuit, kidn nghj vd djnh hudng va ydu cau cu the vdi Qudc hgi vd nhiing uu tidn, trgng tam va
nhung vin dd cu thd trong cdng tae lap phap dd dap ling ydu cau quan ly, didu hanh cua Chinh phii va bg may hanh chinh nha nudc.
Thdng diep nay can duge Qudc hgi quan tam, thao luan, chia se; dugc tdn trgng va la ca sd de xac lap dinh hudng cho hoat ddng lap phap ciia Qudc hgi, UBTVQH.
3. Mdt so de suat, kien nghi
De bao dam sir kidm soat ciia Chinh phil ddi vdi Qudc hdi trong vide thyc hien quyen lap phap mdt each phu hgp, can sira ddi, bd sung Luat Ban hanh VBQPPL mdt sd van de sau day'":
1) Bd tham quydn ciia Qudc hgi vd quydt djnh Chuong trinh xay dung lu|t, phap lenh hang nam. Vi?e bd tham quydn nay se thiie diy xac lap day dii, toan dien ban quydn trinh dy an luat, phap lenh ciia Chinh phu trude Qudc hdi, UBTVQH theo dling quy djnh eiia Hien phap. Ddng thdi, tao ca sd dd Chinh phu thuc hidn quydn kidm soat trdn thue td ddi vdi Qudc hdi trong ITnh vyc lap phap.
Bd Chuang trinh xay dyng luat, phap lenh hang nam ciia Qudc hgi khdng cd nghTa giii nguydn each thiic cua Chinh phil hong vide chi dao ehuan hi, nghidn ciru, soan thao cac dy an luat, phap lenh nhu hidn nay. Nguge lai, can phai xae lap, dd cao vai trd, traeh nhidm doc lap, chu ddng ciia Chinh phu va cac ca quan cua Chinh phii trong vide de xuat, nghidn ciiu, soan thao, trinh Qudc hdi, UBTVQH eac dy an luat, phap lenh, ca trong ngan han va dai han, vdi tinh than chi khi nao du an luat, phap Idnh dugc chuan bi xong, dap iing day dii cac ydu cau theo quy dinh vd trinh ty, thu tuc soan thao; vd chat lugng, tinh kha thi thi Chinh phil se chii ddng dd nghj va trinh Qudc hgi, UBTVQH xem xet, thdng qua.
Theo hudng nay, Chinh phu ty thiy se phai xac lap chuong trinh, kd hoach dd xuat.
10 TheoChuang trinh, dir an Lu^it siia doi, bo sung mpt so dieu ciia Luat Ban hanh VBQPPL n5m 2015 se duac Chinh phii trinh Qu6c hpi tai ky hpp cuoi nam 2019.
S6 14(390)17/2019 ^
NHA NlS6C vA PHAP LUAT xay dyng, xem xet, thdng qua cac dy an luat, phap lenh nhu thd nao de dap iing yeu ciu quan ly, didu hanh trdn cae ITnh vyc kinh td - xa hgi. Nhiing vin dd nhu xac dinh thii tu uu tidn; xac dinh nhimg du an luat, phap lenh can nghidn ciiu, dd nghi ban hanh hang nam, trong nhidm ky ciia Chinh phii va trong giai doan 10 - 15 nam... Tir dd chii ddng phan cdng, bd tri ngudn lye nghien cuu, soan thao, chi dao xem xet, cho y kidn.
Cach lam nay ciing se gdp phan ddi mdi mdi quan he giiia Qudc hdi, UBTVQH vdi Chinh phu trong cdng tac lap phap. Vide thao luan vd du an luat d phien hgp eiia UBTVQH ndn hudng tdi muc tidu xem xet, danh gia miic do chuan bi du an; trdn ca sd do, quydt djnh vide cd dua vao chuang trinh nghj sy ciia ky hgp Qudc hdi hay khdng. Didu nay se khang dinh ro hon tinh ddc lap tuang ddi, tinh chii ddng hern eua ea quan thyc hidn quyen hanh phap va ca quan thuc hidn quydn lap phap, tao ca sd phat huy day dii, dung dan hon vai trd, trach nhidm cua mdi ca quan trong xay dung, trinh, xem xet, thong qua luat, phap lenh; tir dd, cd the bao dam chat lugng, tinh kha thi cua luat, phap lenh; va se khdng edn cac van de nhu cham tidn do, xin didu chinh chuong trinh, xin nit, xin bd sung vao chuang trinh xay dyng luat, phap lenh...
2) Bd sung tham quydn ciia Chinh phii dd nghi Qudc hdi, UBTVQH xin nit lai hoac chua thdng qua dy an luat, phap lenh do Chinh phii trinh hoac dd nghi chua thdng qua dy an luat, phap lenh do ca quan khac trinh. Tham quydn nay cd thd bd sung vao Luat Td chiic Chinh phu va Luat Ban hanh VBQPPL. Ddng thdi, sira ddi, bd sung Luat Ban hanh VBQPPL theo hudng quy djnh ro can cu, trinh ty, thii tuc thuc hidn tham quydn nay ciia Chinh phu.
3) Bd quy trinh hai giai doan theo quy dinh cua Luat Ban hanh VBQPPL hien hanh. Can xac djnh day dii, rd rang, nhat quan vai trd, traeh nhiem ciia Chinh phii trong toan bg quy trinh Qudc hgi, UBTVQH xem xet, thdng qua cac dy an luat, phap lenh
10
I NGHlfeN CUU ; I LAP P H A P - / S6 14(390)77/2019theo hudng phan cdng hgp ly, bao dam kidm soat quydn luc, chiu traeh nhidm ddn cung ciia Chinh phii trong viec soan thao, tidp thu, chinh ly, hoan thidn cho ddn khi Qudc hdi, UBTVQH thdng qua luat, phap Idnh do Chinh phil chii tri soan thao, trinh.
Do phai chiu traeh nhidm ddn ciing ddi vdi du an luat, phap lenh, Chinh phii cd didu kidn giai trinh va bao vd ehinh sach lap phap ciia mmh qua tit ca cac lan tham tra, thao luan va xem xet tai Qudc hdi, UBTVQH.
Trong qua trinh nay, eac ca quan ciia Qudc hdi cd trach nhidm lien tuc, ngay tir dau trong vide tham tra, phan bidn, giam sat, danh gia vide tidp thu, chinh ly, giai trinh ciia Chinh phii ddi vdi dy an luat, phap lenh.
Vide tuong tae nhat quan, lidn tuc nay giua CO quan chii tri soan thao va co quan tham tra se tao ddng lye eho quy trinh, phat huy tdi da trach nhidm cua cac co quan lidn quan, do vay se bao dam tuan thii day du, nghidm tic ve tidn do va cac ydu cau lap phap ddi vdi du an theo quy dinh; va cudi cimg la bao dam chat lugng, tinh kha thi ciia luat, phap lenh dugc Qudc hgi, UBTVQH thdng qua.
4) Xac dinh ro hon va tang cudng vai trd lap phap eiia Thii tudng Chinh phii. Thu tudng la ngudi dung dau Chinh phii, tiic la dling dau hanh chinh va hanh phap. Do vay, trong quan he vdi Qudc hdi vd lap phap, Thii tudng tat ydu phai cd nhiing quydn han nhit dinh ve cdng tac lap phap. Dudi gdc do kidm soat quyen luc trong hoat ddng lap phap, can khang djnh quydn han sau day ciia Thu tudng Chinh phii:
(1) Quydn dugc dd nghi vdi UBTVQH cho bd sung, dieu ehinh Chuang trmh xay dung luat, phap lenh (ndn bd quy djnh hidn hanh giao tham quydn nay cho Chinh phu);
quyen dugc dd nghi nit dy an Iuat, phap lenh; quydn dd nghj dimg chua thdng qua dy an luat, phap lenh. Nhung dieu chinh nay la dd bao dam tinh linh boat, kjp thdi.
(2) Cho y kidn chi dao vd vide tidp thu, chinh ly dy an luat, phap lenh trdn co sd y kidn
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