The flidi: Van de - Sa kien
Tgp chi c a n g sAnMOT SO VAN DE V l CHl DINH NGUYEN THU QUOC GIA TREN THE GIOI
NGUYEN THI PHlTONG THUY*
Nguyen thu quoc gia co vi tri, vai tro vo ciing to l&n. Id nhdn ti rdt quan trgng, b&ihg khong chi Id bieu tugng cho sire manh, sir phdt triin, gid tri truyen thong vdn hoa, lich su cua mpt qudc gia, md con thi Men vi thi cua quoc gia trong quan h^ quoc ti. CUng chinh vi vay md trong suit tiin trinh lich su cua nhdn logii, ke tie khi hinh thdnh nhd nu&c, nguyen thu qudc gia Id mpt che dinh khong bao gi& thieu trong ti chuc hp mdy vd thuc thi quyin luc nhd nu&c.
T
HUAT ngii "nguyen thii qudc gia" la cum tir Hdn - Vif t, dugc hieu la ngudi dimg ddu mdt qudc gia, dat nude.Trong "Tic dien tieng Viet", "nguyen thu"
hay "nguyen thii qudc gia" deu dugc dinh nghia la ngudi diing ddu mot nude, mdt qudc gia'''. Theo "Tu dien tieng Anh ", nguydn thii qudc gia "la hien thdn ciia cpng ddng chinh fri vd su tiirdng tdn cua nhd nude, thuc bien nhung chiic nang nghi le vdi vi the bieu tugng qudc gia frong ddi ndi vd ddi ngoai",
"la ngudi trudng dai dien chinh thiic cua qudc gia"'^'.
Che dinh nguydn thii qudc gia Id tap hpp nhdm quy pham phap luat quy dinh ve ngudi dung dau nha nude. Tuy theo hinh thirc nhd nude khac nhau md che dinh nguyen thu qude gia quy dinh ve nguyen thii qudc gia cd ten ggi, vi tri, vai frd, frach nhiem khde nhau.
Khdi niem ndy chiia dung rdt nhieu ndi dung, lien quan den: 1- Cdch thiic td ehiic nguyen thii qudc gia trong bd may nhd nude; 2- Vai frd, vi tri, chirc nang eua nguyen thii qude gia; 3- Trinh ty hinh thanh nguyen thu qudc gia; 4- Mdi quan he eiia nguyen thu qudc gia frong he thdng chinh tri; 5- Cach thiie thye
thi quyen lyc nhd nude ciia nguyen thii qude gia. Trong pham vi bdi viet nay, che dinh nguyen thii qude gia chii yeu dugc phdn tich d hai khia canh: 1- Vai frd, vi tri, chirc nang cua nguyen thii qudc gia; 2- Quyen luc cua nguyen thii qude gia.
Vai trd, vi tri, chuc nang cua nguyen thu quoc gia
De lam ro vai trd, vi tri, chuc nang cua nguyen thii qudc gia, edn nghien ciru vd xem xet img vdi hinh thiic nha nude eiing nhu md hinh chinh the cu the. Hinh thirc nhd nude gdm cd hinh thiic ehinh the vd hinh thiic cdu tnic. Hinh thirc chinh the Id cdch thitc td chiic, frinh ty thdnh lap cac co quan cap eao ciia nhd nude. Mac dii cd nhieu md binh chinh thi, nhung chung quy, cd hai hinh thirc chinh thi chinb Id qudn chu (chuyen ehe) va cdng hda (ddn chu). Trong mdi loai binh chinh the lai dugc chia ra thdnh nhieu loai
* ThS, Thu ky Pho Chu tich nucrc
(1) Xem; Hoang Phe (Chii biSn): Tic dien tieng Vi^t, Nxb. Da Ning, tr. 672
(2) Ticdien tieng Anh, Cambridge 3rd Edition
So 934 (thang 1 nam 2020) 95
The gioi: Vaii de - Su kien T a p chf C^ng so^n chinh the (md hinh), nhu md hinh chinb the
qudn chu gdm quan chu tuyet ddi vd quan chii han ehe (trong quan ehu han che lai bao gdm qudn ehii nhi nguyen vd qudn chii dai nghi - qudn chii lap bien). Sy khac nhau ca ban cua cac loai binh nay trudc bet nam d nhiing quy dinh lien quan den viee thanh lap cdc ea quan quyen lyc nhd nude cao nhat, frong dd cd nguyen thii qudc gia. O chinh the qudn chu, nguyen thii qudc gia, ngudi dimg ddu nha nude Id vua. Xet ngay trong ngii nghTa, "qudn chii" cd nghTa Id "vua la chu". Vua cd vi tri, vai trd, dia vi chinh tri tdi cao, dimg fren mpi tdng Idp nhan dan frong xa hdi va khdng chiu bdt eii frach nhiem gi trudc phdp luat (cung chinh do vua ban ra).
Trong nhd nude qudn chu lap hien, vai frd cua nguyen thii qudc gia, ngudi dimg dau nha nude - vua hay qudc vuong, duoc giu nguyen, tiep ndi tir thdi phong kien, nhung chiic nang, nhiem vu da dugc che dinh bdi bien phap, khdng cdn tinh "quan chii"
nguyen ven nhu trudc, ma bi han ehe, chia se cho cac thanh td khdc frong bd may nhd nude. Hien nay, chinh the qudn chu lap hien van tdn tai d nhieu nude, tieu bieu la Nhat Ban, Thdi Lan, Ma-lai-xi-a, Anh, Thuy Dien, Dan Mach, Ca-na-da, Hd Lan... Vi du, frong Hiln phdp Nhat Ban nam 1947, Dieu 1 quy dinh: "Hoang de Id bieu tupng eua qudc gia Nhat Ban vd sy thdng nhat ciia ddn tdc, vi tri ciia Hoang de xudt phdt tir y chi nguyen vgng cua ngudi dan mdt nude ed ehu quyen". Dieu 4 quy dinh: "Hoang de chi tien hanh eac hoat dgng lien quan din qudc gia nhu quy dinh frong Hiln phdp nay, Hodng de khdng cd quyln lyc frong Chinh phii". Dieu 6: "Hoang dl bd nhifm Thii tudng theo chi dinh ciia Qudc hpi, ddng thdi bd nhiem Chdnh dn Tda dn tdi cao theo de nghi cua Ndi cac"'^'. Theo Hiln phdp Nhat Ban hien hanh, mac dii Nhdt Hoang mang tinh bieu tugng qudc gia, tham gia thuc hifn nhiem vy d cde ITnh vyc lap
phap, hdnh phdp va tu phdp, song chi mang tinh thu tuc, nghi thiie la ehinh. Vl ca ban, quyln Idp phdp vdn thupc Qude hdi, cdn quyen hdnh phdp vdn thupc Ndi cac - gdm Tbii tudng va cae bd trudng. Mac dii khdng tham gia cde edng viec mang tinh chat ndi bd chinh trudng, nhung Nhdt Hodng ludn dupe ngudi dan Nhat Bdn vd ciing tdn kinh. Nhat Hodng cd tdm anh hudng, tae dgng rat Idn, gan nhu tuyf t ddi tdi tu tudng, tinh cdm cua cac tdng Idp nhdn dan Nhat Ban. Hay nha vua Thai Lan Bu-mi-bon (Bhumibol) ciing vay, la ngudi giii quyen qudc vuang lau nhdt fren thi gidi. Id "tugng dai" khdng the thay thd frong long nhieu the hd ngudi ddn Thai Lan. Td New York Times tung nhan dinh:
Vua Bu-mi-bon ddng vai trd edt yeu eho bdn sic ciia Thdi Lan, va Id luc lugng chinb gan ket ddt nude, ddng vai frd quan frgng frong qud trinh Thdi Lan chuyen ddi thdnh dat nude dan chii. "Nha vua Thai Lan dugc ngudi ddn nude ndy tdn kinh nhu mdt vi Phdt sdng. Hp ggi dng bang nhieu cai ten triu men nhung khdng kem phdn ngudng vgng: Vi chiia ngu phia fren chung con, Vua cua nhdn dan. Sy tdn kinh ndy khdng phdi bat ngudn tii nhimg bi dn hay chiu sy tac ddng cua mgt the lyc nao khdc, md tir chinh thyc te ddi sdng"**'.
Chinh the edng hda bao gdm bdn loai md hinh co bdn: cdng hda tdng thdng, cdng hda dai nghi, cdng hda bdn hgp vd edng hda xd hgi chii nghia. Mdi loai md hinh chinb the ndy cd md hinh nguyen thii quoc gia tuong img. Nhin chung, d ba md hinh cdng hda tdng thdng, cdng hda hdn hgp va cdng hda dai nghj, ngudi dimg dau nha nude, nguyen thu qudc gia thudng ed ten gpi la tdng thdng. Ddi vdi chinh thi cdng
(3) Tuyin tdp Hien phdp ciia mot so qudc gia, Nxb.
H6ngDuc, Ha Noi, 1992, tr. 17
(4) Thifen Nhan (t6ng hpp): Gidi md sue manh ky Ig Idm nen quyin luc toi thuong cho vua Thdi Lan, 2016, nguon ins.dkn.tv
96 So 934 (thans I nam 2020)
itie gicn: Van ae - bvr kien Tpp chf C o n g s d n hda xa hdi chu nghia, nguyen thii qudc gia
cd nhieu ten gpi khac nhau: ehii tich hdi ddng nha nude (Lien Xd tmde day), chii tich nude (Trung Qudc, Viet Nam, Lao), chu tieh dodn chu tich (Trieu Tien).
Nguydn thu qude gia trong chinh the edng hda tdng thdng thudng diing dau co quan hdnh phap, cd vai frd vd dnh hudng rdt to Idn ddi vdi qud trinh phdt trien kinh te, xa hdi cua ddt nude bdi ehinh cae quyet sach cua minh. Trong dd, mdt sd nguyen thii qudc gia CO vai frd, dnh hudng vugt ra ngodi pham vi lanh thd, anh hudng tryc tiep den cac qudc gia fren thd gidi. Trong md hinh cpng hda dai nghi (hay cdng boa nghi vien), nguyen thu qude gia tham gia phan nao (mgt each tugng trung) vao lap phdp, tu phdp vd hdnh phdp. Da phan d nhieu nude, quyen hanh phdp dugc trao cho thii tudng - ngudi diing dau chinh phu. Tieu bieu eho md hinh nay la Dire, Ao, I-ta-Ii-a. O Diic, nguyen thii qudc gia khdng dung ddu ca quan hanh phap, ma chi ed quyen hanh phap mang tinh chdt hinh thirc, gidng nhu md hinh nguyen thu quan chu l^p hien, Ddi vdi md hinh edng hda hdn hgp (Id su kit hgp giOa cdng hda tdng thdng vd cpng hda dai nghi, tieu bieu la d cdc nude Phap, Phdn Lan, Hdn Qudc, Nga...), quyen lyc nha nude dugc thiet ke vira cd tinh dgc lap tuong ddi, vira cd sy phdi hgp hai hda giiia cdc quyen hanh phap, lap phdp vd tu phap. Hiln phap Phdp quy dinh, Tdng thdng cd quyln thanh lap Chinh phu, ra cdc quyet dinh to chirc vd chi dao boat dpng cua Chinh phu. Tdng thdng la nhdn vat trung tdm ciia bd may, giu cdn bang eho cae boat ddng eua bd mdy. Dilu 5, Chuang II Hien phap Phap nam 1958 quy dinh: "Bdng vai trd frpng tai, Tdng thdng bdo ddm hoat ddng binh thudng cua cac ca quan cdng quyen". Nhu vay, Tdng thdng giii vai frd chi dao dieu hdnh vd tham gia thye hifn edc nhiem vu frong edc ITnh vuc lap phdp, tu phap va hdnh phdp de
bdo ddm edn bang hoEit ddng cua cdc co quan quyen lye nha nude.
Ciing cdn nhdn manh rdng, ngay nay, sy canh franh giua cac ddng phai chinh tri va mdi quan he giua chiing cd y nghia quyet dinh va dnh hudng trye tiep den viec hinh thanh vi tri, dia vi chinh tri ciing nhu vai frd eua nguyen thu qude gia. O eac qudc gia da ddng hay mdt ddng ndi trdi chiem uu thi, thii ITnh tieu bieu, xuat sdc cua dang ehinh tri thay mat dang dua ra euong Imh, dudng Idi, chii truong ciia dang minh de franh cir cdc vi tri quyen lyc dnh hudng Idn frong xa hdi, trong do cd franh cu vi tri nguyen thu qude gia. Neu nguyen thu qudc gia ddng thdi la ngudi dung ddu dang thi se thuan lgi ban cho edc boat ddng cua dang dd, ciing nhu quy tu dugc su ling hd cua cu tri ban frong canh tranh chinh fri vd bau cir dan ehu, tu do.
Quyen l^c cua nguyen thu quoc gia Tiiy theo hinh thue chinh the nhd nude ma nguyen thii qudc gia cd pham vi quyen lyc khde nhau. Dudi day, de cap den quyen lyc ciia nguyen thu qudc gia theo miic dp quyen lyc gdn vdi cac chinh the nha nude nhu sau:
Mot la, nguyen thu quoc gia todn quyen vd thuc quyen: Cd the thay ro trong cdc chinh thi qudn chii, cdng hda tdng thdng va cdng hda xa hdi chii nghTa. Trong chinh the qudn chu, nhit Id qudn chii tuyet ddi (dien hinh la vua trong nhd nude chii nd va phong kien chuyen ehl trudc day), quyen lye nhd nude tap trung manh vao nguyen thii qude gia Id vua, hodng dl, qude vuong. Nguyen thu qudc gia ed quyln lyc tijyet ddi, khdng gidi ban. Id ngudi duy nhdt cd quyen dat ra luat phdp. Cdc sdc phong, chieu chi ciia vua cd gid trj phap Iy tdi eao. Nguyen tini qudc gia dilu hanh, quylt dinh mpi cdng viee frong bg may nha nude, bao triim len tdt cd cdc nhanh quyln lyc, gdm ed quyen hdnh phdp, lap phap vd tu phap. Co quan lap phdp chi cd So 934 (thang ( nam 2020) 97
T h e gioi: V a n d e - S u kien T a p chf C d n g s o n
nhiem vu tu vdn cho nha vua. Trong Iinh vyc tu phap, mac dii cd he thdng tda dn, nhung vua la ngudi cd quyen xet xu eudi cimg.
Trong ehinh the cdng hda tdng thdng, nguyen thu qude gia cd quyen lye rdt Idn, ey the Id tryc tiep dieu hanh chinb phu vd cd dnh hudng tdi cdc nhanh quyen luc khdc. Vi du, Tdng thdng My Id ngudi dung dau hanh phdp (cd todn quyen bd nhiem ngi eae); cd quyen trieu tap qudc hdi bat thudng, hang nam giii thdng diep den qudc hpi, ddng thdi de xuat nhiing van bdn phdp luat cho qudc hdi; tdng chi huy cae lye lugng via frang, cd quyen huy dpng lyc lugng can ve cua bang de phye vu cho lien bang. Ngoai ra, tdng thdng cdn cd nhung quyen rdng Idn hon frong nhiing trudng hgp dac bift ciia qude gia, nhu frong trudng hpp khan cap hay chien tranh, tdng thdng dugc nghi vien frao eho nhiing quyen dac biet de bdo ve an ninh qude gia. Ben canh do, frong ITnh vyc tu phdp, tdng thdng bd nhiem cac chirc danh Idnh dao nganh tu phap (qua sy chudn y eiia thugng vien).
Trong nhanh lap phdp, tdng thdng ed nhiing quyen quyet dinh d vi fri tdi cao, nhu khodn 3, Dilu 2 Hien phdp My quy dinh: "Tdng thdng cd quyen frong trudng hpp bat thudng, trieu tap nghi vien hoac mdt frong hai vien", ed quyen phii quyet cdc dao luat md qudc hgi da thdng qua.
Rieng che dinh nguyen thii qudc gia trong md hinh Xd-viet cd rat nhieu dac thii gan vdi vai frd lanh dao ciia Ddng Cdng san, tinh thdng nhat eiia quyen lyc nha nude, de cao vai trd tap the... chung tdi se trinh bdy rieng frong mgt bai viet khdc.
Hai Id, nguyen thu quoc gia quyen luc han chi nhung thuc quyen: Thudng thdy trong chinh t h i cdng hda hdn hpp. Trong md hinh chinh thi nay, nguyen thii qudc gia khdng cdn todn quyen, dpc quyln, ma quyln lyc cd sy giam bdt. Tuy nhien, vln cd quyen rdt Idn frong ITnh vye hdnh phap, nhu quyen quyet
dinh bd nhifm thu tudng ehinh pbii (cho dii frong ha vifn ed till dang ddi lap chilm da sd), vd cd mdt sd quyen d ITnh vyc tu phdp, nhu quyen bd nhiem, miln nhifm, edch chiic cac chiic danh tu phap
Ba la. nguyen thit quoc gia khong thuc quyen: Thudng thay frong cac chinb the quan chii lap hien va cdng hda dai nghi. d cdc md hinh chinh the nay, nguyen tbii qudc gia hau nhu khdng tham gia giai quyet cdc cdng vifc cua nha nude. Chinh vi vay ma frong dan gian phuong Tdy cd luu truyen mdt sd cau thdnh ngii: "Nha vua fri vi nhung khdng cai tri", "Nha vua khdng bao gid lam sai", "Nhd vua khdng hai ai cd", "Nha vua khdng ehiu frach nhifm gi", "Nha vua khdng cd quyen nen khdng gdnh vdc frach nhifm". Nguyen thu qudc gia la vua frong chinh the qudn chii lap hien, mac dii la ngudi "bdt khd xam pham", tupng tnmg cho sy ddc lap, trudng tdn ciia ddn tdc, cd quyen uy ve mat bieu tugng, song khdng cd quyen lyc tren thye tl. Vi dy, Hiln phdp Nhat Bdn nam 1889, d Dieu 3 va Dieu 4, Chuong I cho thdy, mac dii Hodng de Nhat Ban "la thieng lieng, bdt khd xdm pham", "diing ddu de che, ed quyen luc tdi cao", nhung lai "thyc thi cac quyen theo cdc quy dinh ciia Hien phap". Nhu vay, quyen cua nguyen thu qudc gia da bi ban che bdi hien phdp. Tren ITnh vuc lap phdp, Hodng de khdng cd quyen Idm luat, md chi cd quyen chuan y, phe chuan, thdng qua theo thii tuc don thudn, mang tinh chat hinh thiic. Nhieu quyen lyc mang tinh chdt tdi cao cua Hoang de ciing ehi trd thdnh hifn thuc khi cd sy ddng y ciia nghi vien, nhu Dieu 5 quy dinh:
"... thyc thi quyen lap phdp vdi su chap thuan eiia nghi vifn Hoang gia"; Dieu 9 ciing cho thay, Hoang de ban hanh cac sac Ifnh can thilt d l thuc thi cac luat hay d l duy tri hda binh va frat ty, tang phiic Igi cho ddn, song sdc lenh dd "se khdng Idm thay ddi bdt ky luat ndo hien tai dudi bdt ky hinh thirc ndo".
98 So 934 (thang \ nam 2O20)
Ihe gidi: Van ae - byt kien T a p chf C d n g sAn Trong md hinh edng hda dai nghi, quyln
lyc nha nude khdng tap trung cho nguyen thii qudc gia, md tap trung vdo nghi vien (ca quan quyen lyc nha nude cao nhat do nhan ddn trye tiep bdu ra). Nghi vien cd quyen tap ra chinh phii (do nhdn ddn gian tiep bdu ra va chiu fraeh nhifm gian tiep trudc nhdn dan thdng qua nghi vifn) va bdu tdng thdng; ddng thdi, cd the bai mien chinh phii, tdng thdng va ca quan tu phdp. Tdng thdng, chinh phii boat ddng va chiu frach nhifm trudc nghi vien. Cdc quyet dinh eua tdng thdng ludn theo y chi ciia da sd d ha vifn. De eae quyet djnh eua tdng thdng cd gia tri, Dieu 58 Hien phdp Cdng hda lien bang Diic nam 1959 quy dinh: "De chi thi ciia Tdng thdng Lien bang cd gid tri, ddi hdi phdi cd sy phe chudn cua Thit tudng Chinh phii Lien bang hoac eua Bd trudng Lien bang cd tham quyen. Didu nay khdng ap dung ddi vdi cae viee bd nhiem hay trudt Thii tudng Lien bang, gidi tdn Nghi vien". Dieu 63 quy dinh: "Nghi vifn Lien bang bdu Thu tudng vd cdc bd trudng Lien bang. Ngudi tning cii Thii tudng Lien bang la ngudi chiem duge da sd phieu eua eae thanh vien trong Nghi vien Lien bang, Tdng thdng Lien bang chinb thiic bd nhiem ngudi tning cir". Dieu 64:
"Cdc bd trudng Lien bang do Tdng thdng Lien bang bd nhiem va bai mien tren eo sd de nghi ciia Thii tudng Lien bang". Nhu vay, Tdng thdng chi lam nhiing viec mang tinh chit hinh thiic, quylt dinh nhiing viec khdng xudt phat tir y chi eiia nguyen thu, hay ndi each khac, quylt dinh "nhiing viec da rdi".
Quyen luc cua Thu tudng cd dnh hudng bon cd ngudi diing dau nha nude. Dieu ndy eung dl hilu vd dugc minh ehung qua thyc te, khi ngay frong chinh trudng nude Dire hien nay, nhdn vat anh hudng Idn den ddt nude, gay sy quan tam, ehii y cua the gidi khdng phdi la nguyen thii qude gia ma chinh la vj tri Thii tudng duong thdi An-gie-la Mee-ken.
0 Vift Nam, thuat ngu "nguyen thu qudc gia" chua duge de cap chinh thiic trong bdt cii ban hien phdp nao dl che dinh ngudi diing ddu nha nude. Tuy nhien, tir khi thdnh lap nude Viet Nam Dan ehii Cdng hda nam 1945, vdi Hien phap lich sir dau tien nam 1946 den nay, sau 4 Idn sua ddi vd theo hoan cdnh lich sir cu the cua dat nude, du Id cd nhan hay tap the thi ndi hdm "nguyen thii qudc gia" d giai doan nao ciing mang y nghTa Id ngudi diing ddu Nha nude, thay mat cho Nhd nude ve ddi ndi va ddi ngoai.
Dieu 86 Hien phdp nude Cdng hda xa hgi chii nghia Viet Nam nam 2013 ghi: "Chu tich nude la ngudi diing dau Nhd nude, thay mat nude Cdng hda xa hdi ehu nghTa Viet Nam ve doi ndi va ddi ngoai". Nhu vay, mac dii khdng chi dich danh Chu tieh nude Id nguyen thii qudc gia, nhung xet ve bdn chdt, Chii tjch nude Viet Nam Id ngudi dung ddu Nhd nude chinh la nguyen thu qudc gia.
CJ nude ta hien nay, Chii tieh nude trong CO cdu td chuc quyen lyc nhd nude cd mdt vi tri dae biet quan trpng, la "Ngudi diing ddu Nha nude", thay mat Nhd nude ve ddi ndi vd ddi ngoai. Chu tjch Hd Chi Minh la Chu tich nude ddu tien gan lien vdi bdn Hiln phap nam 1946. Trdi qua cac giai doan edch mang, chi dinh ngudi dimg dau Nhd nude da cd nhilu thay ddi, dae biet Id trong Hiln phdp nam 2013, nhu vi tri phdp Iy, chiic nang, nhifm vu, tham quyen cua Chu tich nude. Tuy nhien, che dinh nguyen thii qudc gia cdn tiep tyc nghien eiiu de bd sung, phdt triln gdn vdi hoan thien nha nude phdp quyln XHCN. Trong dd, dae biet Id mdi quan be giua chii tich nude vdi cac quyen lap phdp, hdnh phap va tu phap; eo chi kilm soat quyln lyc; trach nhiem, quyen ban thye hien chiie nang nguyen thu qude gia... •
S6 934 (thang I nam 2020) 99