'7hi hdnh phdfi lu4l Sd 5 (338) - 2020
TRAO Ddi VE M O T Stf DAC THU CUA HOAT O O N G T H I H A N H AN HANH CHINH
• ThS. N G U Y £ N T H | H O A N G GIANG 8. ThS. N G U Y £ N THj KIM QUY •
Tdm tdt: Tren ca sa nghien cuu khdi niem, ddc thii gan vol thytc te thi hdnhdn hdnh chinh, tdc gid kien nghi mgt so gidi phdp hodn thien ca die de kiem sodt qud trinh tu thi hdnh dn hdnh chinh.
Abstract: Based on conceptual research, specific characteristics associated with the actual execution of administrative judgments, the author proposes a number of solutions to improve the mechanism of controlling the process of self-enforcement of administrative judgments.
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hi hdnh an Id hojt dpng quan trpng cua Nhd nudc, cd vai ttd hipn thyc hda cac bdn an, quygt djnh v l dan sy, hinh sy, kinh te, lao dpng, hanh chinh da cd hipu lyc eiia Tda an; cdc quylt dinh cua ttpng tai va cdc chu the khdc theo qyy djnh ciia phdp ludt, nham bdo dam, bdo ve quygn, lpi ich hpp phdp cua td chile, cd nhdn, cdng dan cung nhu quygn va lpi ich cua Nha nudc. Xuit phdt tir dac thii ciia cae quan hg tianh chip dupc gidi quylt, thi hanh dn dupc ehia thdnh 03 ITnh vyc: Thi hdnh dn ddn sy, thi hanh dn hinh sy va thi hdnh an hdnh chinh. Trong bdi vilt ndy, chiing tdi xin dupc ttao ddi mdt so dac thii cua hoat d$ng thi hdnh an hdnh chinh vd tdc dpng ciia nhimg ddc tiiii ndy din kit qud thi hdnh cdc ban dn, quyet djnh ciia Tda an vl vu dn hdnh chinh, tir do dua ra mpt so kiln nghj nhdm nang cao higu qua cdng tac thi hanh an hanh chinh d Vigt Nam hign nay1. Khdi nifm ve thi hanh an hanh chinh Dl dilu chinh boat dpng td tyng hdnh chinh vd thi hdnh dn hdnh chinh d Vipt Nam, Qudc hpi, Uy ban Thudng vy Qudc hpi dd thdng qua, ban hdnh ba vdn bdn phap ly quan trpng, dau tien Id Phap Ipnh
Thd tyc gidi quylt cdc vu an hdnh chinh nam 1996, tilp dd Id Ludt Td tung hdnh chinh nam 2010 vd hipn nay Id Luat To tyng hdnh chinh ndm 2015. Cdc vdn bdn ndy ngodi vigc quy dinh cy thg vg trinh ty, thii tyc gidi quylt cdc vy dn hdnh chinh cdn cd nhiing quy dinh dilu chinh boat dpng thi hdnh an hanh chinh. Tuy nhign, ed ba van bdn nay dgu khdng dinh nghia, gidi thich v l khai nigm thi hdnh an hdnh chinh. Hign nay, Nghj dinh sd 71/2016/ND-CP ngdy 01/7/2016 eua Chinh phu quy djnh thoi ban, trinh ty, tiiii tyc thi hdnh dn hanh chinh vd xll ly trdeh nhipm ddi vdi ngudi khdng thi hdnh bdn dn, quylt djnh cua Tda an (Nghi djnh sd 71/2016/ND-CP) cd quy djnh gidi thich: "Thi hdnh dn hdnh chinh la vipc thi hdnh bdn dn, quylt djnh ciia Tda dn vl vu dn hdnh chinh dupe thi hanh quy djnh tai Dilu 309 Luat Td tyng hdnh chinh, ttii quylt djnh vl phin tdi sdn ttong bdn dn, quyet djnh ciia Tda dn v l vy dn hanh chinh" (khodn 1 Dilu 3).
Phdn tich djnh nghia ngu tten, theo Tii diln tilng Vipt, "thi hanh" cd nghla Id ldm cho thdnh hipn thyc dilu dd dupc chinh thiic quylt djnh', theo do, thi hdnh dn hdnh chinh dupc hiiu Id vipc dua
Ddn chCi & Phdp ludt ^
cac bdn dn, quygt djnh cd hi^u lyc cua Tda dn ve vu dn hanh chinh ra thi hanh ttgn thyc tl. Song, khdng phdi mpi phdn quygt trong ban an, quyet djnh ciia Tda dn vl vy dn hdnh chinh dupc dua ra thi hanh dgu dupc phan loai la thi hdnh dn hdnh chinh. Cy thg, vigc thi hanh nhiing phdn quygt vg tdi sdn trong ban dn, quyet djnh eua Tda dn ve vu dn hanh chinh (nhu an phi, bdi tiiudng thigt h^ii, trd lai tdi sdn, giao lai dit dai dupc tuygn cu thi ttong bdn dn, quyet djnh cua Tda dn^) dupc phdn loji la thi hanh dn dan sy vd do Ludt Thi hdnh dn ddn sy dilu chinh.
Vigc xac djnh rd npi hdm cua khdi nipm thi hdnh dn hdnh chinh cd y nghia quan trpng trong vigc lya chpn phdp lu?t dp dyng khi t l chirc thi hdnh cac npi dung phan quylt ttong bdn dn, quylt djnh eua Tda dn v l vy dn hdnh chinh. Trong bdi viet ndy, chung tdi tilp cdn khdi nipm thi hdnh dn hdnh chinh theo quy djnh hipn hdnh ciia phap luat (khdng bao gdm vipc till hdnh cdc phdn quyet v l tdi sdn ttong bdn dn, quylt dinh cua Tda dn vl vy dn hanh chinh).
2. D^c thil ciia thi hdnh dn hdnh chinh Thi hdnh dn hdnh chinh Id mpt d?ng thi hanh an cy thi, dd dd, nd mang diy dii djc diem cua till hanh dn ndi chung, dd la hoat dpng dien ra sau qud trinh xet xii, gidi quylt ciia Tda dn; bdn an, quygt djnh cua Tda dn da cd hipu lyc phdp lu|t Id co sd de tiln hdnh cdc boat dpng thi hdnh dn vd nd Id hojt dpng mang tinh hanh ehinh - tu phdp... Tuy nhign, xuit phat til djc thu quan hg tranh chdp trong vy dn hdnh chinh la quan hg giiia mpt ben Id co quan nhd nudc, can bp, cdng chile va ngudi dupc Nhd nudc giao quyin thyc thi cdng vy vol mpt ben Id td chiic, cd nhan, cdng dan chju sif tdc dpng ciia quyet djnh hanh chinh, hdnh vi hdnh chinh do co quan nhd nudc, cdn bp, cdng chitc, ngudi dupc Nhd nuoc giao quyin thyc thi cdng vy ban hanh/thyc hign, vi vdy, vigc thi hdnh bdn dn, quylt djnh ciia Toa dn vl
Ei Ddn chil & Phdp ludt
vy dn hdnh chinh cd nhung ddc fliii rigng so vdi cac hojt ddng till hdnh dn khac (nhiing dac ttiu ndy ciia thi hdnh dn hanh chinh dupc diic nit tir hoat dpng theo doi, qudn ly nhd nudc v l thi hdnh an hdnh chmh), cy thi:
Mft la, mgt ben trong quan he thi hdnh dn hdnh chinh luon Id chu the mang quyen life nhd nuac trong mil quan he vin ben con lai Id cdc to chicc, cd nhdn, cong ddn. Djc tiiii ndy xuit phdt tii ttanh chip ttong vu an hanh chinh Id sy khdng ddng tinh cua td chile, ca nhan, cdng ddn ddi vdi quyet djnh hanh chinh, hanh vi hdnh chinh cua co quan nhd nudc, can bp, cdng chuc vd ngudi dupc Nha nudc giao quygn thyc till cdng vy. Qud trinh gidi quyet vy vigc, Tda an c6 thim quyin xem xet ve tmh hpp phdp eiia quylt djnh hdnh chinh, hanh vi hdnh chinh bi khdi kietf. Trudng hpp quylt dinh hanh ehinh, hdnh vi hdnh chinh dupc co quan nha nudc, cdn bO, cdng chile, ngucri dupc Nhd nudc giao quyin thyc thi cdng vy ban hdnh/thye hign ttdi phdp ludt, Tda dn se tayen buy quylt djnh hdnh chmh ttai phdp ludt hoac ttiygn ttdi phdp ludt ddi vdi hdnh vi hdnh chinh, ddng tiidi bupc chu tiie dd ban hanh/tiiyc hipn quylt djnh hanh chinh, hdnh vi hdnh chinh ttdi phdp ludt phdi ttiyc hipn hodc khdng duoc thyc hign mpt cdng vigc nhit djnh (tiiudng Id ban hdnh quylt djnh hdnh chinh mdi tiieo dimg quy djnh cua phap luat) nhdm khdi phyc, bdo ve quygn va lpi ich hpp phap ciia td chiic, cd nhan, cdng ddn.
Trong quan hg flii hdnh dn hanh chinh ndy, ben phai thi hanh dn Id ehii thi mang quygn lyc nhd nudc.
Djc thu nay eho tiiiy, suy cho din cung, quan h? tiii hdnh an hanh chinh van la mpt quan hp qudn ly hanh chinh nha nudc va vi vay, nd tin tji sy bat binh ding tten ttiyc t l giua ngudi phdi thi hdnh dn va ngudi dupe tiii hdnh an. Theo dd, bgn phdi till hanh an Id ben mang quygn lyc nhd nudc thudng cd
^hi hdnh phdp ludt S6 5 (338) - 2020
xu hudng gdy khd khan cho ben dugc thi hanh an, thgm chi vi phgm, khdng chap hanh, chip hdnh khong nghiem, khdng kjp thdi cac phdn quylt ciia Tda an.
Hai Id, doi tupng cda thi hdnh dn hdnh chinh co khdc bi4t so vai thi hdnh dn ddn su, thi hdnh dn hinh sy. Trong thi hanh dn dan sy, ddi Uigng ciia thi hanh an la cac quyet djnh dan sy (theo nghTa rgng) mang tinh chdt tai san va nhan than. Trong thi hanh an hinh sy, ddi tugng ciia thi hdnh an la hinh phgt va cdc bign phdp tu phdp khdc. Trong khi do, ddi tugng ciia thi hanh an hdnh chinh la cdc quylt dinh hanh chinh, hdnh vi hdnh chinh do co quan hanh chinh nha nudc, can bg, cong chiic, ngudi dugc Nha nudc giao quyin thyc thi cdng vy ban hdnh/thyc hign. Qud trinh thi hanh an hanh chinh thuc chat la qua trinh cdc co quan nha nudc, can bg, cdng chuc phdi thyc thi mgt hoat dgng cdng vy cy the theo phan quyet cua Tda an (thudng la ban hdnh mgt quylt dinh hanh chinh mdi), phii hgp vdi cdc quy djnh cua phap lugt nham bdo v?, khdi phyc quyen vd lgi ich hgp phdp cua td chiic, cd nhan, cdng ddn la b6n dugc thi hanh an. Do phap lugt qudn ly hanh chinh nha nudc phan cap rd thdm quyin qudn ly hanh chinh nhd nudc va phan quyet ciia Tda an eung phdi tren ca sd cac quy dinh phan cap thdm quyen qudn ly hanh chinh nhd nudc, vi vgy, hanh vi thi hdnh dn hanh chinh la hdnh vi khong thi thay thi, cd nghTa la dich than ngudi phai thi hdnh an mdi cd tham quyin thyc hi?n. Dgc thii ndy ly giai vi sao co che thi hdnh an hdnh chinh theo phdp Iuat hi?n hanh Id co che "ty thi hanh".
Ba la, ca che thi hdnh dn hdnh chinh chua tgo ra tinh "bat bupc " doi vai nguai phdi thi hdnh dn.
NIU nhu thi hdnh dn dan sy, thi hanh an hinh sy, phap luat quy dinh co chi mgt chii the thit ba (co quan thi hanh an hinh sy, co quan thi hanh an dan
sy) dugc Nha nudc giao trach nhi?m to chiic thi hanh bdn dn, quyet djnh cua Tda dn da cd hieu luc thi hdnh, thi thi hanh an hdnh ehinh dugc thyc hien theo CO cM "h; thi hanh" cua ngudi phdi thi hanh dn. Theo dd, ngudi phai thi hdnh an cd h-dch nhigm (h; minh) nghiem chinh chdp hdnh cac nghia vu theo ban an, quyet djnh cua Tda an.
Hi?n nay, phap lugt thi hdnh an hdnh chinh hien hdnh ciing da quy djnh nhimg co che tac dgng cua chu the thu ba ddi vdi qua trmh thi hanh dn hdnh chinh cua ben phdi thi hanh dn, nhu: Ca che Tda an da xet xii so tham vu an hanh chinh ra quyet djnh huge thi hanh dn hanh chinh trong trudng hgp ngudi phdi thi hanh an vi phgm nghTa vu tff nguyen thi hdnh an; co che co quan thi hdnh an dan sy theo doi vi?c thi hdnh an hdnh chinh cua ben phai thi hanh an; co che Vi$n kiem sat nhan dan kiem sat viec thi hanh bdn dn, quySt djnh cua Tda an ve vy dn hdnh chinh; co che thii trudng tryc tiep, thu trudng cap tren tryc tiep cua ngudi phai thi hdnh dn cd trach nhigm chi dao, don doc ngudi phdi thi hanh an chap hdnh dn vd xii ly tt"ach nhi^m ddi vdi td chiic, cd nhan thugc tham quyen quan ly cd hdnh vi cham thi hanh an, khdng chdp hdnh hoac chap hanh khdng dung ban an, quyet djnh ciia Tda dn. Song, nhirng co che tac ddng nay chi dimg lai d viec tgo
"sire ep" de ben phai thi hanh an nghiem chinh thi hanh bdn an, quyet djnh cua Tda dn ma khdng cd y nghia "bit buOc" ngudi phdi thi hanh an thyc hien nghiem phan quylt ciia Tda dn nhu trong ITnh vuc thi hdnh an hinh sy, thi hanh an hanh chinh.
BStt Id, thi hdnh dn hdnh chtnh co tinh phuc tgp dgc biet. Thi hdnh an ndi chung la hoat ddng phiic tap, song, hoat dgng thi hdnh dn hanh chinh ed tinh phiic tgp dae bigt han so vdi hoat dgng thi hanh an hinh sy va thi hdnh an ddn sy. Dieu ndy xuat phdt tu tinh chdt phuc tap ciia hogt dgng quan ly hanh
Ddn chO & Phdp lu$t E l
chinh nha nudc, nd khdng chi da dang trgn cac ITnh vyc ciia ddi sdng xd hdi ma cdn phiic t^p d npi dung cdc vdn de can gidi quygt trong vy vigc tranh chdp. Thyc te theo ddi edng tac thi hdnh an hanh chinh tren pham vi ca nudc cho thdy, tren 90% cdc bdn dn, quygt djnh cua Tda an vg vy dn hdnh chinh phdi thi hdnh thudc linh vyc qudn ly nha nudc vg ddt dai, ddy Id linh vyc het siic phiic tap, tiiudng cdc vy vipc da keo dai rdt nhigu ndm, qua nhigu cdp, nhllu nganh gidi quylt. Vigc thi hdnh mpt bdn dn, quylt djnh cua Tda dn vg vy an hanh chinh ttong ITnh vyc nay cdn cd the gdy tdc ddng day ehuyen lam phat sinh nhiiu vy an hdnh chinh mong ty khac (lign quan dgn cac quyet djnh thu hdi dat, bdi thudng, hd trp, tai djnh cu bj khdi kign trong cac dy an Nhd nudc thu hdi dit). Dac tiiii ndy ddi hdi de nang cao hipu qud thi hdnh an hdnh chinh, ngodi vipc nghien cilu hodn thipn co chi thi hdnh an hdnh chinh thi vipc nghign cuu, hodn thipn phap lujt qudn ly nhd nudc ttgn cdc ITnh vyc, nhit Id ITnh vyc qudn ly nhd nudc vg dat dai la hgt siic can thiet.
3. Tdc dpng ciia nhirng d^c thii ciia thi hanh an hanh chinh doi vdi kit qud thi hanh cac bdn an, quyet dinh ciia Tda an ve vy an hanh chinh Dilu 106 Hiin phap ndm 2013 quy dinh: "Ban dn, quylt djnh cua Tda an nhdn ddn cd hipu lyc phdp lujt phdi dupc co quan, td chuc, cd nhdn tdn trpng; co quan, t l chitc, cd nhdn him quan phdi nghigm chinh chip hdnh". Nguyen tdc Hiin djnh ndy ddi lidi mpi bdn an, quygt dinh ciia Tda an cd higu lyc phdi dupc thyc thi ttgn thuc te. Tuy nhien, thyc tiln thi hanh an ndi chung, trong dd cd thi hanh an hanh chinh ndi rieng cho thay, khdng phai mpi phan quylt cd higu lyc phap lujt cua Tda dn diu dupc chip hdnh nghiem tiic, kjp thdi (tdng hpp kit qua thi hanh an hanh chinh trgn ph?m vi ca
nudc theo Luat Td tyng hdnh chinh nam 2015 ttong 03 ndm 2017, 2018, 2019 cho thiy: Sd bdn an, quylt djnh da thi hdnh xong chi dat ty 1$ 68%, sd chua till hdnh xong chiim ty Ig 32%*). Cd nhiiu nguygn nhan khdch quan vd chu quan tdc dpng dgn kit qud thi hanh dn nay, ttong dd cd nguygn nhdn tii nhimg dae thil cua tfii hdnh dn hdnh chuih, cu ttig:
3.1. Chu thi cd nghia vy thi hdnh an hdnh chinh Id CO qyan, cdn bd, cdng chile nhd nudc mang quyin lyc nhd nudc ttong mii quan hg vdi bgn dupc thi hanh an Id cdc t l chitc, cd nhdn, cdng dan, do dd, thyc tl bgn phdi tiii hdnh an thudng cd xu hudng gay khd khan cho bgn dupe tiii hanh dn, tham chi khdng chip hdnh, chip hdnh khdng nghiem, khdng kjp tiidi eac bdn dn, quyet djnh dd cd hipu lyc phdp ludt cua Tda dn, dnh hudng dgn tinh nghiem minh ciia phdp lujt ciing nhu quyen vd lpi ich hpp phdp cua td chiic, cd nhdn, cong ddn.
3.2. Ddi hipng cua thi hdnh dn hdnh chinh Id cac quylt dinh hanh chinh, hdnh vi hdnh ehinh, vi vay, qud ttinh thi hdnh dn hdnh chinh khdng chi chiu sy dilu ehinh ciia phdp ludt thi hdnh dn hdnh ehinh md cdn chju sy dilu chinh cua phdp luat quan ly hanh chinh nha nudc ttong ngdnh, linh vyc phdt sinh ttanh chip. Dac thu ndy ldm cho qua trinh kilm sodt tiln dp thi hdnh dn hdnh chinh ciia cdc co quan nhd nudc, cdn bp, cdng chiic tten thyc t l gdp khdng it khd khan, do thi hdnh dn hanh chinh phdt smh d nhiiu ngdnh, ITnh vyc khdc nhau; mdi ngdnh, ITnh vyc, mdi nhigm vy cdng vy lai cd mpt quy trinh thyc hign rieng do phap luat qudn ly hdnh chinh thupc ngdnh, ITnh vyc dd dieu chinh. Vi vdy, tren thyc te, cdc co qyan nha nudc, cdn bp, cdng chuc Id bgn phdi thi hdnh an thudng dya vdo tinh phiic tap, tham chi khdng rd thdi ban ttong cdc quy djnh phap lujt qudn ly chuyen ngdnh de "bao bipn" qud ttinh
I Ddn chil & Phdp ludt
^hi hdnhphdfiludt S6 5 (338) - 2020
thi hdnh dn dang dupc thyc hign. Dilu nay ldm dnh hudng den kgt qud thi hanh bdn dn, quylt dinh cua Tda an vg vu dn hdnh chinh.
3.3. Vdi CO chg "ty thi hdnh" trong an hdnh chinh ldm cho ket qud thi hanh an hdnh chinh phy thupc nhiiu vdo nhan thiie, y thuc trach nhigm tu nguygn thi hanh ciia cac eo quan, td chile phdi thi hanh an hdnh chinb. Trong khi dd, hipn nay, nhan thiic ve ttach nhigm chap hdnh dn cua ngudi phdi thi hdnh an (thudng Id cdc co quan nhd nudc) trong cac bdn an, quygt dinh vg vy an hanh chinh vdn cdn ban chi, chua ke tdi vigc khdng phdi Iuc ndo co quan ban hanh quyet djnh hdnh chinh, ed hdnh vi hanh chinh trai phdp ludt ciing ddng y vdi kit qud xet xil ciia Tda an vd trong thuc tg, cac chu thg ndy ludn cd xu hudng bdo ve quygt djnh hanh chinh, hdnh vi hdnh chinh ma minh da ban hdnh/thye hign.
Khi ngudi phai thi hdnh an co tinh khdng chap hanh dn thi vigc thi hdnh an trd nen khd khan vd keo dai.
4. Kiln nghj
Tir nhimg dac thu cua thi hdnh an hdnh chinh vd tdc ddng cya nhiing dac thu nay dgn ket qud till hdnh dn hdnh ehinh, chiing tdi thay rdng: Co chg
"Hr thi hdnh" trong boat dpng thi hanh dn hdnh chinh la co chi phii hpp vdi dac thii vg chii tlig vd ddi hrpng ciia thi hdnh an hdnh chinh, do dd, cdn tilp tyc duy tri co chi ndy ttong ho?t dpng thi hdnh an hdnh chinh. Tuy nhien, cin thigt phdi cd co che dl kilm soat qud ttinh ty thi hdnh an hanh chinh ciia ngudi phdi thi hanh dn ngay trong bdn an, quyet dinh cua Tda dn vl vu an hanh chinh. Cu the:
Thu nhdt, phdp luat td d^ng hanh chinh can quy dinh ro traeh nhigm cua hdi ding xet xii vy dn hanh chinh trong vipc taygn ro, cy the nhipm vu, cdng vy ma CO quan, cdn bp, cdng chiic phdi thyc hipn vd thdi han cy till phai hoan thanh nhiem vy, cdng vu
dd. Quy djnh nhu vdy se khac phyc duoc tinh trang nhigy ban an, quylt djnh cua Tda an hien nay chi tuyen chung chung tiieo hudng co quan, cdn bp, cdng chile nhd nudc phdi tiiyc hign nhiem vy, cdng vy theo quy djnh cua phap ludt ma khdng xac dinh rd nhigm vy, cdng vy phdi thyc hipn dd la gi vd ddc biet khdng xae djnh rd thdi ban phai thyc hign xong nhiem vy, cdng vy, digy nay Idm cho cac co chg kilm sodt tiln dp thi hanh dn hanh ehinh ciia cac co qyan thii ba nhu co quan thi hdnh dn dn dan sy, Vien kilm sdt nhan dan vd thii ttudng co quan cip tren ciia ngudi phai tiii hdnh an hign nay gap khd khan khi cdc co quan, can bp, cdng chile phdi thi hdnh dn "chay i" ttong thi hdnh dn.
Thlt: hai, bgn c p h cac chi tai bdo ddm till hdnh an hanh chinh dd dupc phdp ludt hign hdnh quy djnh (nhu chi tdi ky ludt dd dupc quy djnh tai Nghj djnh sd 71/2016/ND-CP), phap lujt thi hanh an hdnh chinh cin nghign cuu quy djnh bd sung bign phap phat tiln ttong thi hdnh dn hdnh cbinh. Cy the, bien phap nay cin dupc Tda dn quyet djnh ngay trong bdn an hanh chinh hoac ttong quygt djnh bupc thi hdnh an hdnh cbinh nhim ngdn chan vi^c khdng thi hanh dn cua ben phai thi hdnh an vd Id chi tdi dp dyng khi cdc chii thi ndy vi pham nghla vy thi hdnh dn hanh chinh. Sd tiln phat ndy can dupc iiy til ngudn tilt kipm chi qudn Iy hdnh chinh nhd nudc cua co quan, don vi phdi thi hdnh an hdnh chinh.
TTTH- ba, song song vdi vigc nghien ciiu, hoan thign phap luat thi hdnh dn hanh chinh, phdp ludt qudn ly hanh chinh nhd nudc ttong cdc ngdnh, ITnh vyc cung can dupc nghign ciiu, hodn thipn, bdo ddm cho vipc dp dyng phdp luat ttong qud trinh thi hanh an hdnh chinh cua cdc co quan nhd nudc dupc de dang vd khdng g^p phai vudng mac vi tiiyc chat
