HGHI&H CUU, XAY D U H G VA A F DUNG P H A P LUAT
VE NGUYEN TAG QUYEN QUYET D!NH VA Tl/ OmH DOAT CUA NGUdi KHdl KIEN TRONG TO TUNG H A N H CHINH
LE VIET SON*
Quyen quyet dinh vd tu dinh dogt cda ngudi khdi kien la mpt trong nhitng nguyen tac ca bdn cua Luat Td tung hdnh chinh (Luat TTHC). Viec th^rc hien nguyen tdc ndy khdng nhung giup quyen vd Ipi ich hpp phdp cua ngudi khdi kien dugc bdo ve mgt cdch tdt nhdt md cdn giiip cho viec gidi quyet vu dn hdnh chinh cua Toa dn dugc nhanh chdng, tiet kiem thod gian vd cdng sue. Nguyen tac quyen quyet dinh vd tu dinh doat cua ngudi khdi kien Id mpt trong nhung nguyen tac mdi dugc Lupt TTHC nam 2010 chinh thuc quy dinh. Thifc tiin gidi quyet v(/ dn hdnh chinh trong thdi gian qua cho thdy, nhirng quy dinh cua phdp lu&t ve nguyen tdc ndy chua phd hpp, trong khi cdc vdn bdn hu-dng ddn thi hdnh Ludt TTHC chua gidi thich mpt cdch cu the vd rd rang, da gdy it nhieu khd khan cho viec khdi ki^n vu dn hdnh chinh cdng nhu viec th\i ly, gidi quyet vu dn hdnh chinh, ddn den trudng hgp dn hdnh chinh bi huy nhiiu, gay trd nggi cho cd nhdn, cff quan vd td chuc khdi kien v^ dn hdnh chinh"'.
Trong pham vi bdi viet ndy, chiing tdi phdn tich nhirng tdn tai, bat cap tiong quy dinh phap luat ve nguyen tac quyen quyet djnh va tu djnh doat cua ngudi khdi kien tiong td tung hdnh chinh, cung nhu thue tien dp dung nguy8n tac nay, tir dd de xudt mpt so kiln nghj hodn thien.
1. Nhung quy dinh ciia phap luat to tung hanh chinh v l nguy@n tac quyen quyet dinh v^ tir dinh doat cua ngirM khdi kien trong to tung hanh chinh
Hien nay, nguyen tac quyen quyet djnh vd tu djnh doat cua ngudi khdi kien dugc ghi nhan tai Dilu 7 cua Ludt TTHC. Ngodi ra nhiing quy djnh cua Luat TTHC ve bieu hien eg thi cua nguyen tac nay dugc quy dinh tai cdc dieu ludt thugc nhieu chuang khac nhau cua Luat TTHC, tiong dd chii yen quy dinh tap trung tai chuang IX ve "Chuan bi xet
xu", chuang X ve "Phiin tda sa thdm" vd chuong XII ve "Phien tdajjhuc thdm ".
Theo quy djnh tai Dilu 7 Ludt TTHC thi
"Cd nhdn, co quan, td chiic cd quyin quyit dinh viec khdi kien vu dn hdnh chinh. Tod dn chi thu ly gidi quyet vu dn hdnh chinh khi cd dan khdi kien cua ngudi khdi kien. Trong qud trinh gidi quyet vu dn hdnh chinh, ngudi khdi kien co quyin rut, thay ddi, hd sungyiu cdu khoi kien cua minh theo quy dinh cua Ludt ndy". Nhu vay, theo quy djnh tren thi quyen quyet dinh va tu dinh doat ciia ngudi khdi kien tiong td tung hanh chinh cd nhiing ndi dung ca bdn sau: Thie nhdt, cd nhdn, co quan vd td chirc dugc quyen quyet djnh viec
Nghien ciru sinh, Giang vien Khoa Luat Hanh chinh - Nha nu^c, Bai hoc Luat TP. Hd Chi Minh.
S622(thangl1/2014)V
Tap chi _KIEM SA
.til
HGHlfiH ClrtJ, XAY DUHG VA AP DUHG PHAP LUAT khdi kien hoac khdng khdi kien vu an hdnh chinh vd Toa an chi thu ly vu an khi co dan khdi kien ciia ngudi khdi kien; thii hai, ngudi khdi kien dugc quyen riit, thay ddi, bd sung yeu cau khdi kien eua minh theo quy djnh cua phdp ludt.
1.1. Cd nhan, ca quan vd td chuc cd quyin quyet dinh viic khdi kien hogc khdng khdi kien vu dn hdnh chinh vd Tda dn chi thu ly vtf dn khi cd dan khdi kien cua ngudi khdi ki$n
Ve ndi dung nay ciia nguyen tac dugc bieu hien cu the tiong Luat TTHC d mdt sd quy dinh sau:
Mpt Id, v l quyen yeu cau Toa dn bdo ve quyen va lgi ich hgp phdp dugc ghi nhan tai Dilu 5 Ludt TTHC. Theo quy dinh tai dieu ludt ndy thi "cd nhdn, ca quan, to chiec cd quyin khai kien vu dn hdnh chinh deyiu cdu Tod dn bdo vi quyen, lgi ich hgp phdp cua minh theo quy dinh ciia Luat ndy". Nhu vay, cd nhan, ca quan, td chiic eo quyen khdi kien vu dn hdnh chinh de bdo ve quyen va lgi ich hgp phap eua minh neu nhu hg cho rang quyin vd lgi ich hgp phap do dang bj xam pham bdi cdc khieu kien hdnh chinh. Mat khac, neu nhu ca nhdn, co quan, to chiic bi tdc d6ng bdi cdc khieu kien hanh chinh, nhung neu hg cho rang khdng xdm pham den quyen vd lgi ich hgp phdp cua minh thi hg cd the quyet djnh khdng khdi kien vu an hanh chinh. Dieu nay the hien su tu dinh doat eua cd nhan, co quan va td chiic bi tdc dgng bdi ede ddi tugng khieu kien.
Hai Id, djnh doat trong viec lua chgn ca quan c6 thdm quyen gidi quyet tiong trudng hgp ca nhdn, ca quan, td chiic vira co dan khiSu nai, vira cd dan khdi kien theo quy djnh tai Dilu 31 Luat TTHC. Hien nay phdp luat td tung hanh chinh cho phep ca nhdn, co quan vd td chiic khdi kien dugc quyen lua chpn ca quan co tham quyin gidi quylt tiong
trudng hpp hg ed dan khdi kien vu an hdnh chinh tai Toa an cd tham quyin, ddng thai cd don khilu nai din ngudi c6 thdm quyen gidi quylt khilu nai. Thdng qua su lua chgn nay ngudi di khdi kien tu minh quyet djnh hinh thiic va bien phdp phdp ly cdn thiet de bdo ve quyen vd lgi ich cua hp.
Ba Id, djnh doat tiong viSc thuc hi?n quyin khdi kien vu an hanh chinh tai khodn 1 Dilu 103 Luat TTHC. Theo dd, "cd nhdn, ca quan, to chiec cd quyin khdi kien vu dn hdnh chinh ddi vdi quyit dinh hdnh chinh, hdnh vi hdnh chinh, quyet dinh ky ludt bupc thdi viec trong trudng hgp khdng ddng y vdi quyet dinh, hdnh vi do hodc dd khieu nai vdi ngudi cd thdm quyin gidi quyet khiiu ngi, nhung hit thdi hgn gidi quyet khieu ngi theo quy dinh cua phdp ludt vi khiiu ngi md khiiu ngi khdng dugc gidi quyet hogc da dugc gidi quyet, nhung khdng ddngy voi viec gidi quyit khiiu ngi vi quyit dinh, hdnh vi do ". Vdi quy dinh ndy, chiing ta cd the thdy ro quyen quyet djnh vd tu djnh doat ciia cd nhdn, ca quan va td chirc trong vice thuc hien khdi kien vu an hanh chinh tai Tda dn. Cd nhdn, ca quan, to chiic khi bj tdc ddng bdi khieu kien hanh chinh hg cd quyen khdi kien ngay vu dn hanh chinh hoac lua chpn thuc hien xong viec khieu nai hdnh chinh, sau dd mdi tien hdnh khdi kien vu an hdnh chinh. Ben canh do, tiong trudng hgp ca nhan, ca quan vd td chirc lua chgn khieu nai trudc khi khdi kien thi hp cd quyen khdi kien vu an hdnh chinh ngay sau khi hoan tdt viee giai quyet khieu nEii Ian ddu hoac khieu nai Ian thir hai ddi vdi cdc vu viee qua bai Idn gidi quyet khieu nai.
1.2. Ngudi khdi kien dugc tir quyet dinh vd dinh dogt ddi vdi vipc rut, thay doi, bd sung yeu cau khdi kien cua minh theo quy dinh cua phdp luat
Theo quy djnh tai Dilu 50 Lusit TTHC v l quyen va nghia vu cua ngudi khdi kien quy
Tap chi
4 2 I KIEMSAT_ /So 22 (thang 11/2014)
HGHIEH Clitl, XAY D U N G VA AP DUHG PHAP LUAT
djnh ngudi khdi kien dupe "Rut mpt phdn hogc todn bp yiu cdu khdi kien; thay ddi. bd sung npi dung yeu cdu khoi kiin, niu thai hieu khdi kien vdn cdn ". Ngodi ra, tai Dieu 146 Ludt TTHC ve xem xet viec thay doi, bo sung, nit yeu cdu quy djnh:
1. Hpi dong xet xu chdp nhan viec thay ddi, bo sung yeu cdu ciia duong su neu viec thay doi, hd sungyiu cdu cua hp khdng vugt qud phgm vi yiu cdu khdi kien hogc yeu cdu dpc lap ban ddu.
2. Trudng hop duong su rut mpt phdn hogc todn bPyeu cdu cua minh vd viec rut yeu cdu cua ho Id tu nguyen thi Hpi dong xet xii chdp nhdn vd dinh chi xet xii ddi vdi phdn yiu cdu hogc todn bp yeu cdu md duang su dd nit
Theo quy djnh tien co the thdy, ngoai viec ngudi khdi kien dugc quyen tu dinh doat tiong viec rut yeu cdu khdi kien, hg cdn dugc quyen dinh doat tiong viec quySt djnh pham vi nit yeu cau khdi kien. Trong qua tiinh tham gia vdo boat dpng td tung ngudi khdi kien dugc quyen nit mdt phan hoac toan bd yeu can khdi kien.
Ben canh do, Dieu 203 Luat TTHC cdn quy dinh cho phep duang su dugc nit don khdi kien tai giai doan xet xu phuc thdm. Theo dd, trudc khi md phien tod hoac tai phien toa pbiie tham ma ngudi khdi kien nit don khdi Men till Hdi dong xet xir phiic thdm phdi hoi ngudi bi kien cd ddng y hay khdng va tuy timg trudng hgp ma giai quyet nhu sau: Neu ngudi bj kien khdng d6ng y thi khong chap nhdn viec nit dan khdi kien ciia ngudi khdi kien;
nlu ngudi bi kien dong y tiii chap nhdn viec nit dan khdi kien ciia ngudi khdi kien. Hdi ddng xet xir phiic tham ra quyet djnh buy ban an sa thdm vd dinh chi giai quyet vu an. Trong trudng hgp nay, cdc duong su van phdi chiu dn phi sa tham theo quyet dinh cua Tod an cap sa tham va phai chju mpt nira an phi phiic thdm theo quy djnh ciia phap luat.
Ngoai ra, quyen tu djnh doat ciia ngudi khdi kien cdn the hien tiong viec thuc hien hay khdng thuc hien quyen khang cao ddi vdi ban an, quyet djnh cua Toa an cdp so thdm theo quy dinh tai Dilu 174 Luat TTHC;
thay doi, bo sung vd nit mpt phan hoac todn bd yeu cdu khdng cao theo quy dinh tai Dieu 188 Luat TTHO^'.
2. Mot so Iden nghi hoan thi@n phap luat to tung hanh chinh ve nguyen tac quy§n quyet dinh va tu* dinh doat cua ngirdi Ididi kien
Thii nhdt, tir ngii dugc dimg tiong Dieu 7 Luat TTHC la chua phii hgp. Ten gpi day dii cua nguyen tac theo quy dinh cua Luat TTHC hien nay la "Quyin quyit dinh vd tie dinh dogt cua nguai khdi kien ", tiong khi do, mpt tiong nhiing npi dung cua nguyen tac nay nhu da phan tich phan tren la ca nhan, ca quan vd td chiic dugc quyen quyet djnh viec khdi kien hoac khong khdi kien vu an hanh chinh. Tai thdi diem cd nhdn, ca quan vd td chirc khdi kien vu an hanh chinh, hg chua tid thdnh ngudi khdi kien, bdi le theo quy dinh ciia phap luat to tung hanh chinh hien nay thi chi cd nhiing cd nhdn, ca quan, to chiic bj tac dpng true tiep bdi cac khieu kien hdnh chinh mdi c6 quyen khdi kien vu an hanh chinh, vd hp chi trd thdnh ngudi khdi kien tiong vu an neu nhu hanh vi khdi kien ciia hp dugc Tda an thu ly gidi quyet'^'. Nhu vay, ten gpi cua nguyen tac la quyen quyet dinh va tu dinh doat cua ngu'di khdi kien, tiong khi ndi dung ciia nguyen tac ghi nhan nhiing chu the chua phai la ngudi khdi kien trong vu an thuc hien quyen quyet djnh va tu dinh doat thi chua dugc hgp ly. Do vay, theo chimg tdi, ten gpi ciia nguyen tac nay nen dugc sira ddi theo hudng "quyen quyet dinh vd tu dinh dogt ciia cd nhdn, co quan vd to chiec khai kien " hoac
"quyen quyet dinh vd tu dinh dogt cua chu thi khai kien ".
, Tap chi S622(thang11/2014}^Kri;M S A M
HGHI&H CUU. XAY D U N G VA AP DUHG PHAF LU^T
Thie hai. quy dinh cua phdp ludt td tung hanh chinh ve quyin quyet dinh vd tu djnh doat trong viee nit yeu cdu khdi kien cua ngudi khdi kien chua dugc quy djnh mpt cdch hgp ly. Theo quy djnh tai khodn 2 Dieu 50 Luat TTHC, trong qud trinh gidi quyet vu dn hdnh chinh tai giai doan chudn hi xet xii sa thdm va giai doan xet xii sa thdm thi ngudi khdi kien dugc quyen nit mdt phdn hoac todn bd yeu cdu khdi kien. Tuy nhien, de hieu va dp dung diing quyen ndy cua ngudi khdi kien phdi dua vao quy djnh cua phdp ludt tai eac chuang c6 lien quan. Lien quan den vdn de ndy chiing tdi ed y kien nhu sau: Ddi vdi quyen "rdt mpt phdn hogc todn bp yeu cdu khdi kien" thi khong phai liic ndo ngudi khdi kien ciing thuc hign dugc quyen ndy. Theo quy djnh tai dilm b khoan 1 Dilu 120 Luat TTHC quy dinh v l dinh chi giai quyet vu dn: "Ngudi khdi kien nit don khdi kien vd dugc Tda dn chdp nhan ". Nhu vdy, viec nit yeu eau khdi kien phai phg thupc vdo su quyet dinh ciia Tda dn ma khdng phdi phu thupc hoan toan vdo y chi ciia duong su. Tuy nhien, trong thuc tien Toa dn se rdt khd xac djnh viec nit dan ndy CO phdi tir nguyen vd do chinh duong su quyet dinh hay khdng.
Mat khdc, vdi viec quy djnh duong su nit don khdi kien phdi dugc Tda an chdp nhdn CO mau thuan vdi nguyen tac quyen quylt dinh va tu dinh doat ciia ngudi khdi kien hay khong ciing can phdi dugc lam sang to. Nbu phan tien da phan tich, mdt trong nhiing npi dung CO ban ciia nguyen tdc ndy la cho phep duang su tii dinh doat tiong viec khdi kien vu dn hanh chinh bao gdm: Tu quylt dinh viec khdi kien hay khdng khdi kien vu an hdnh chinh, quy djnh khi ngudi khdi kien nit dan khdi kien vd phdi dugc Tda an ddng y thi vd hinh trung da Idm ban chi di nguyen tac nay. Theo chiing tdi, quan dilm cua cdc
nhd lam luat quy dinh nbu vdy de bdo ddm quyen cua ngudi khdi kien, tranh trudng hgp ngudi khdi kien nit dan khdi kien nhung khdng phdi Id y chi ciia duong sg, nhu nit dan khdi kien do bj ep budc hay cudng biic.
Nhung thuc tien cho thdy, viec xde djnh nit dan khdi ki6n cd phdi Id su tu nguyen hay khdng rat khd. Mat khac, mdt khi ngudi khdi kien khdng mudn tham gia vao boat ddng td tung nira thi hg cd nhieu each de vu dn hanh chinh cham dirt neu nhu viec nit don khdi kien cua hg khdng dugc Tda dn chap nhdn, vi du: Theo quy djnh tai diem d khoan 1 Dilu 120 Ludt TTHC, Toa an se ra quylt djnh dinh chi giai quyet vu dn neu nhu
"ngudi khdi kipn da dugc trieu tap hgp le den Idn thu hai md vdn vdng mat". Do do, quy dinh ti8n cung gidm mpt phdn y nghia phdp ly nhu mong muon cua cdc nhd lam luat. Do do, theo chiing tdi quy dinh nay can sira ddi theo hudng, duang sg dugc quyin nit mpt phdn hoae toan bd yeu cau khdi kien ma khdng can phdi cd su ddng y cua Tda an.
Thii ba. van de tu djnh doat cua ngudi khdi kien trong viec thay ddi, bo sung yeu cau khdi kien chua dugc phap ludt to tung hanh chinh quy djnh mgt each rd rang. Ddi vdi quyen thay ddi, bd sung yeu cdu khdi kien thi ngudi khdi kien chi duge tiiuc hien quyin nay n l u thdi bieu khdi kien vdn eon.
Ben canh do, theo quy djnh tai khodn 1 Dilu 146 Luat TTHC v l xem xet thay dii, bd sung y^u cdu cd quy djnh "Hpi dong xet xir chdp nhan viec thay ddi. bo sungyiu cdu cua duang su niu viec thay doi, bd sungyiu cdu cua hp khong vugt qud phgm viyeu cdu khoi kien hogc yeu cdu dpc lap han ddu ".
Nhu vdy, ngodi dilu kien thdi bieu khdi kiSn vdn edn thi phdi dap ling dugc dilu kiSn viec thay ddi, bd sung yen cdu cua (Xem tiep trang 64)
Tap chi
KIEM SAT /So22(thang 11/2014)
KGmf:N cutj, 7iAi DUNG VA AP DUNG PHAP LUAT
HOl NGHJ
H«IMNIlUi(KIHl*flU|Il,^TII|*.
Lanh a?o VKSND tinh Ninh Binh va Ban Thudng trifc Oy ban Mat trin T 6 quoc cCing cap Icy Quy chS phdi htyp cong tac {sira d6i) (Ninh Binh, ngay 20/10/2014).
Anh: Trinh Viet Ttiukl
VE NGUYEN TAC...
(liip theo trang 44) duong su neu vi8c thay ddi, bd sung y8u eau cua hp khdng vugt qua pham vi y8u cau khdi ki^n hodc yeu eau ddc lap ban dau. Vdi quy djnh nay ciing cdn phdi dugc xem xet lai m6t edeh thdu dao, bdi le thdng thudng ngudi khdi kien bd sung yeu can thudng vugt qud pham vi yeu cdu khdi kien ban ddu, vi dg nhu bd sung them ddi tugng khdi kien trong vu dn, bo sung yeu cdu bdi thudng thiet b^i do ede khilu kien hanh chinh bj khdi kien gdy ra... N l u Tda an khdng chap nhan viec bd sung yeu cdu, ngudi khdi kien se khdi kiSn mot vg dn hanh chinh khac vd tiong trudng hgp nay lai ed the thugc trudng hgp nhap vu an hdnh chinh theo quy dinh tai Dilu 33 Lu^t TTHC vd dugc hudng ddn tai Dieu 7 Nghi quyet sd 02/2011/NQ-HDTP cua Hgi ddng Thdm phdn Tda an nhan dan tdi cao hudng dan thi hanh mdt sd quy djnh ciia Ludt TTHC, do
dd, viSc giai quyet vu dn vira radt thai gian lai gdy philn ha cho duang sg va Tda an.
Theo chiing tdi, nen quy dinh quyen nay cua ngudi khdi kien theo hudng neu viec thay ddi, bd sung yeu cau cua ngudi khdi kien trong giai dogn chudn bj xet xur sa thdra thi yeu cdu nay vdn dugc xera xet gidi quylt, neu yen cdu dugc dua ra tai phiSn tda x6t xii sa thdm ma thugc tham quyin gidi quylt eua Tda an thi Hpi ddng xet xir se chap nh^n yeu cdu, ddng thdi ra quyet djnh hoan phiSn tda de cd thdi gian xem xet giai quylt.*
(1) Nam 2011, Lu^t TTHC c6 hieu li;c phap lu$t, toan nganh T6a an thu 1;^' tdng cgng gin 48.000 vy in cac loai, da giai quySt hon 85% (tang 9,4% so vai cing ky n3m tnidrc). Rieng an hanh chinh co ti 1? giii quy^t th4p nhit, an hinh chinh thy ly 596 vy, chi m6i giii quySt dugc 60,57%. Theo Phip lu^t online, http://phap- luattp.vn/20120111120557225pOcl063/tDhcm-i.n-h^^h- chinh-tanp-dot-bien.htm. tniy c^p ngiy 01/11/2012.
(2) Dai hQc Luiit Tp.HCM (2012), Gido trinh Lugt To tifttg hanh chinh Vi^t Nam, Nxb. H6ng Diic, tr.49.
(3) Le Vi|t San, Ban vS nguai khai ki|n va nguai bi ki?n trong t6 tyng hanh chinh, tgp chi Khoa hoc phdp ly so4, nani20I3,U.28.
Tap chi
6 4 I KIEM SAT_ /So22{thang11/2014)
