GOP Y SLTA 001 HIEN PHAP 1992
VAN DE QUYEN HAND PDAP
TRONG S JfA » d l HIEN PDAP VIET NAN
PGS.TS NGUYfiN HCXJ HAI'*'
ThS DAO THI THANH THIIY*"'
1. Quyen hanh phdp trong hf thong quyen lure nhd nu'd'c
Quyen luc nhd nuac dupe hinh thdnh ciing vdi sy tdn tai ciia nhd nude. Ve nguyen tdc, quyln lyc nhd nude la thong nhat vd ludn tdn tai dudi ba hinh thdi:
quyen lap phdp, hdnh phdp vd tu phdp. De phdt huy vai trd ciia quyen lyc nhd nude vd phdng ngua nguy co "tha hda" loai quyen luc ddc biet ndy, ngudi ta phdi tinh den chuyf n phdn chia quyln lyc mdt cdch thich hpp. Nguyen tdc phan chia quyen lyc nhd nude dupe John Locke vd Montesquieu de xudng vdi mong mudn xay dyng nen mpt nhd nude ddm bdo dupe quyen cua cdng ddn vd han chl tinh trang lam quyen thdng qua eo chl kilm sodt quyln lyc ngay chinh trong bd may nhd nude, tren co sd phan l$p gitta cac hinh thdi quyln lyc. Nguyen ly ndy se tao nen sy can bdng quyen lyc gitta cdc CO quan nhd nude thdng qua co chl "kilm tra vd chl ude" (co chl "kim ham vd ddi trpng") nhdm ddm bdo sy thyc hifn diing ddn moi quyen.
(•). (••) jjpc vif n Hanh chinh.
Trong xd hpi dan chu, quyen lyc nhd nude khdng phdi ty nhien cd dupe hay do tudc doat lan nhau, md Id do nhdn ddn uy quyln cho nhd nude thyc hifn. Nhu vdy nghia la quyln luc nhd nude thupe vl nhan ddn. Tuy nhien nhdn dan lai khdng trye tilp thyc hifn vd khd cd the khdng dinh rang ngudi dupe iiy quyln ludn ludn ldm diing nhihig gi md nhdn ddn mong mudn. Chinh vi ly do ndy dd ndy sinh ddi hdi phdi cd kilm sodt thyc thi quyen lyc thdng qua cdch thttc phdn chia cdc quyln vd giao cho nhttng CO quan nhd nude khde nhau thay mdt nhdn ddn thyc hifn. Thyc tien d nhieu nude, quyln lap phdp dupe giao cho Qudc hpi hay Nghi vif n, quyen hdnh phdp dupe giao cho Chinh phu, quyln tu phdp dupe giao cho Tda dn. Sy phdn dinh thyc hifn quyln lyc cho cdc co quan nhd nude nhu v|iy Id dieu kifn eo bdn dk nhdn dan kilm sodt vd ddnh gid dupe hifu lyc vd hifu qud trong vifc thyc hifn cdc quyln md minh dd giao cho CO quan dai difn. Dong thdi, ciing Id CO sd dl cdc eo quan nhd nude dl cao trdch nhifm trong vifc thyc thi quyen lye vd tu kiem tra vifc thyc hifn quyen lyc nhd nude dupe giao ciia minh.
L t LUAN CHINH TRI. S 6 4-2012
Hpc thuylt vl phdn quyln dupe xuit trong dd m6i quan hf gitta hdnh phdp vd hien vdo thi ky XVIII thdi k^ ciia cdch l$p phdp t^o ndn sy khde bift co bdn trong mang tu san vdi myc dich chong lam quyln md hinh to chuc nhd nude cua moi qudc gia va bao ve ngudi dan. Quan nifm ban dau vd hinh thdnh cdc chinh thi nhu chinh thi cua quyen hanh phdp cd y nghTa bf mdy dd cfng hda tong thong, chinh thi cpng hda phai hoat dpng tren co sd cdc quylt nghj d^i nghj, chinh thi cpng hda hon hpp (gitta cua CO quan lap phap, dd Id quyln cai trj cpng hda d^i nghj vd cpng hda tong theo luat dinh. Montesquieu cho rdng thong)... 6 Anh, chinh phu vd nghj vifn quyln hdnh phdp chi tham gia vdo vifc l§p diu phdn dnh y chi ciia ddng cam quyln phdp bang chuc ndng ngdn can, chu khdng ddng chiem da sd ghe trong qudc hpi, c6 chen vao ban cai cdng vifc, md ciing khdng quyen thanh lap chinh phu. Thii ITnh ciia phai lam cdc kien nghj. Nhu v$y, theo ly ddng cam quyen s6 Id thii tudng chinh phu.
thuyet phan quyen ciia Montesquieu, quyln Do nghj sT ciia ddng ndo chi dupe bd phieu hanh phdp chi cd quyln phu quylt md iing hp y chi ciia ddng dd vd quyen trinh dy khdng cd quyen trinh kiln nghj len co quan dn ludt trudc qudc hpi, nen gan nhu mpi dy lap phdp hay ban bac, thdo lu^n cimg vdi luat deu xuit phdt tu chinh phii. Khdng CO quan nay. nhttng thi, dnh hudng cua chinh phu hdnh
Hien nay, hiln phdp ciia nhilu nude tren P^^P ^^"S ^°^t dpng quoc hpi cdn vupt ra the gidi khi quy dinh vl quyln hdnh phdp ^^'^ chuong trinh lap phdp vd lan sang tit thudng chi ra nhiem vy chinh ciia hdnh phdp ^^ ?^^ ^'"^ ^^c khde thupe thim quyln cua la hoach djnh vd dilu hdnh chinh sach. quoc hpi. T h ^ chi trong nhilu trudng hpp, Trong do, chinh phii thyc hifn mpt sd hoat ^^^^^ P^" <=^" ^"jy^t djnh cd chuong trinh ddng nhu lanh dao qudc gia, in dinh myc '^"^ ^'f'^ ^^^ ^"O? ^^i nhu d Phdp, Anh, tieu cu thi, phdc thdo chuong trinh hdnh ^ y - ^ ^^^P' ^^^^ ^^i khdng cd chuong ddng nhdm thyc hifn myc tieu chinh trj. trinh ky hpp rieng md chuong trinh dd do Dilu 20 Hiln phdp ciia nuoc Cpng hda Phdp ^^^"^ P^" ^ <^»^-
quy dinh: "Chinh phu Phdp xde dinh chinh 2. Hdnh phdp v i hdnh chinh nhi nirdc sdch vd thyc hifn chinh sdch qudc gia". Nhu tren dd dl c?ip, hai ho^t dpng ciu Dieu 64 Hien phdp ciia Cpng hda lien bang thdnh trong quyln hdnh phdp bao gdm Due quy dinh: "Thii tudng Lien bang quy ho^ch djnh chinh sdch cy thi va dilu hanh dinh dudng ldi chien lupc trong ITnh vyc chinh sdch.
chinh sdch vd chju trdch nhifm vl dilu do". T-; ' » A i , ^. . . , .
r x i o^ Tj-^ u ' T* 1- - >• 1. Thu nhdt, hogeh dfnh chinh sdch \i cnxi
Dieu 95 Hien phap Italia cung quy dinh: *_j . * J \ ^ . I .
"TU- • ^ IS u ^ w u ' Z \ . trinh xay dyng nhihig myc tieu cy thi cho
"Thu tuong ldnh dao chinh sach chung cua A • A ^ , . v u***
/-u' u u' ' 1,- * A u u - i *u u - ^^°^ 8*^ ^^ ^^ phuong thttc de dat duac Chmh phu va chju trdch nhi?m ve thyc hif n _ ... ^x TT . *• , , . . " x
w u ' u ' nw u u'M vTu ^ ^^^ tieu dd. Ho^ch dinh chnh sdch quoc
chinh sach cua Chinh phu", v.v.. Nhu v^y, „• ,, _.* • u ^ , ,
^ u' u u' u ^ u -w w^ Sia la mpt trong nhttng chuc ndng quan quyen hanh phap bao gom hai bp phgn quan •^„„„ „i„ ui .- ^f . , ..
1 V ^ u u A- u U'U AU ^ ^^^^ S ^ ^^^" ^°^ sy tdn tai vd tieu vong
trpng la quyen hogeh djr^ chinh sdch va , ^ ^^inh phu, bdi chinh phu Id chu thi quyen dieu hanh chinh sach quoc gia. ,hiu trdch nhifm chinh trong vifc tim
Sy phan cdng thyc thi cdc nhdnh quyln hudng di cho qudc gia. Chinh phu ddng lyc cd lien quan vdi nhau rit ch§t chg, thdi qudn ly true tilp bp mdy dilu hdnh xd
10 L t L U ^ N CHiNH TRI, S6' 4-2012
hdi, nen cd khd ndng ndm bdt kip thdi sdch mdi chua dupe luat dieu chinh. Khdng nhttng nhu cau ciia qudc gia vd dua ra cd quyln lap quy, sdn phdm ciia lap phap se nhimg chinh sdch de ddp ung nhttng nhu kh6 c6 thi dupe hifn thyc hoa trong ddi
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cau do thdng qua quyen trinh dy dn lugt sdng xd hf i, do vgy quyen lap quy ciing Id trudc CO quan lgp phdp ho$c dudi cdc hinh mft bp phan khdng the thieu ciia quyen hdnh thuc khde. CJ Hoa Ky, hdnh phdp vd lgp phdp. Ngodi quyen lgp quy, gidm sat vifc phdp phan lap trift de, khdng chiu trdch thyc thi chinh sdch ciing Id mpt npi dung nhiem lan nhau, ciing do dan bdu va chi quan trpng trong qud trinh dieu hdnh chinh chiu trdch nhifm trudc nhan dan. Tuy nhien, sdch, bao gdm cac hogt ddng theo ddi, kieu Tdng thdng can thifp rat sdu vao quy trinh tra qud trinh thyc hifn de dam bao cho mpi lap phdp cua Qudc hdi thdng qua quyen chu thi hogt dpng diing vdi muc tieu chinh dpc thdng dif p trudc Qudc hdi, trong do sdch. Nlu phdt hien cd vi pham phap luat thi Tdng thdng dinh hudng chuong trinh hogt chinh phii cd quyen xtt ly hodc de nghj xu ly.
dpng hang nam cua Qudc hdi. Ddng thdi, Tu dd hinh thdnh tham quyen thanh tra, dieu thdng qua cac cudc trao ddi thudng xuyen tra, truy td, thi hdnh dn trong hdnh phdp.
vdi cdc nghj sT Id ddng vien thudc dang cua Theo gido su Dodn Trpng Truyin, hdnh minh ma Tdng thdng cd khd nang tdc dpng ^hinh nhd nude: "Id hoat ddng qudn ly cdc de hp trinh dy an ludt theo y chi cua Tdng ^dng viec ciia Nhd nude" Tic diin Oxford thdng trudc Qudc hdi. Hon ntta, quyen phii ^^^ ^ghxa hanh chinh la: "mdt hdnh ddng quyet md Hien phdp trao cho Tdng thdng Id thi hdnh", "qudn ly cdc cdng vifc" hoac CO che dam bdo cho sy tdc ddng ddc bift "hudng ddn hoac gidm sdt sy thyc hifn, su ldn ttt cdc quan diem cua Nhd Trdng, bdi ^yng hoac dilu khiln" CJ nude ta, nhin Tdng thdng cd the ngdn can vifc ban hdnh ^hung quan niem hdnh chinh nhd nude Id nhttng dgo ludt khdng phu hpp vdi y chi hogt ddng thyc thi quyln hanh phap ciia cua minh hay cua co quan hdnh phdp. j^hd nude, do Id hogt ddng chip hdnh vd Thic hai, diiu hdnh chinh sdch Id qud dieu hdnh cua hf thdng hdnh chinh nhd trinh huy ddng vd td chuc stt dyng nhihig nude trong qudn ly xd hdi theo khudn khd ngudn lyc, phuong tifn cdn thilt dl thyc phdp ludt nhd nude nham phye vy nhdn hifn nhttng myc tieu chinh phu da vgch ra. dan, duy tri sy dn dinh vd phdt triln bin Trong viec dilu hdnh chinh sdch, chinh phu vttng xd hpi. Trong dd chdp hdnh the hifn phdi thilt lap mdt co ciu td chuc bd mdy sy tudn thu cua hdnh chinh nhd nude vdi ddm bdo sy phdn cdng rd rdng, rdnh mgch vl cdc quyet dinh lap phdp do qudc hpi hodc chttc ndng, quyln hgn vd ddm bdo mdt co nghi vifn ban hdnh, hodc Id sy tudn thu chl phoi hpp hifu qud. Bao gdm thi chl quyet djnh theo mdi quan hf thtt bdc trong cdng vy, cdng sd, cdng sdn, dpi ngu cdng hf thdng bO mdy hdnh chinh nhd nude; dieu chuc vd cdc CO chl chinh sdch ddi vdi hp hdnh Id khai thdc, huy dpng vd stt dyng cdc nhdm ddm bdo chit lupng cua qud trinh dilu ngudn lyc trong khu vyc cdng vd ben ngodi hdnh chinh sdch. Mat khde, chinh phu phdi (co sd vat chit, tdi nguyen, nhdn lyc, tdi true tilp ban hdnh cdc quylt dinh qudn ly dl chinh...) theo quy dinh phdp lugt nhdm dgt td chue thyc hifn chinh sdch quoc gia thdng dupe myc tieu qudn ly nhd nude. Dilu hdnh qua quyln lap quy. Quyln lap quy ciing hdnh chinh cung bao gdm dilu hdnh hf dupe su dyng dl dilu chinh nhiing chinh thdng bp mdy nhdm duy tri hogt dpng vd
L t LUAN CHINH TRI, SO 4-2012 H
phdi hpp nhjp nhdng cdc co quan hdnh khodn sau dd cua Hiln phdp khdng cd nf i phdp theo mpt co chl hifu qud vd dilu dung ndo dl cgp din thugt ngtt ndy.
hdnh cdc doi tupng hogt dpng trong cdc -pheo quy djnh cua Hiln phdp Vift Nam ngdnh, ITnh vyc cua nin kinh tl xdhfi. hifn hdnh, Chinh phu Id "co quan hdnh
Nhu v§y, hogt dfng hdnh chinh nhd nude chinh nhd nude cao nhit cua nude Cpng Id nhdm ldm cho quyln hdnh phdp dupe hod xd hpi chii nghTa Vif t Nam" (Dilu 109) thyc hien, nhung quyln hdnh phdp khdng chu khdng dupe xde djnh Id co quan hdnh chi dung lgi d chip hdnh vd dilu hdnh md phdp. Vi Hiln phdp khdng quy djnh Chinh cdn bao gom qud trinh hogeh djnh chinh phu Id co quan hdnh phdp nSn Dilu 112 sdch quoc gia. Ndi din co quan thyc hifn quy djnh tham quyln cua Chinh phii chi dl chuc ndng hdnh phdp (hdnh phdp t|p thi vd c$p tdi quyln trinh dy dn Lugt trudc Qu6c hdnh phdp cd nhdn) ddi hdi chinh phu phdi hf i (Khodn 3), chu khdng dl cap tdi quyen Id chu thi hogeh djnh chinh sdch vT md vd hogeh djnh chinh sdch, mpt bp phgn quan ngudi dung diu chinh phu d6ng vai trd Id trpng ciia quyln hdnh phdp. Cung vi thi md ngudi ldnh dgo doi vdi qud trinh dd. tgi Dilu 114 vl thim quyln cua Thu tudng
3. Chinh phu hdnh phdp hay chinh phii Chinh phu, Thu tudng cung khdng dupe ca quan hanh chinh nha nu-dc cao nhat? quy djnh Id ngudi ldnh dao hoach dinh Trudc ndm 2001, khdi nifm quyln hdnh ^^inh sdch. Da s6 nhttng thim quyln dupe phdp chua xuit hien trong Hiln phdp cua trao cho Chinh phu deu do tap the Chinh Viet Nam. Trong cdc bdn Hiln phdp eua P^" ^^y^t ?inh, Thu tudng chua dupe trao nude ta (1946, 1959, 1980 vd 1992), dia vi "^ttng quyen ehu dpng lien quan den hogeh phdp ly cua Chinh phu dupe ghi nhdn dudi ^i"^ vd dieu hdnh chinh sdch qudc gia, ma cdc thudt ngtt khac nhau nhu "co quan chip ^^^ y^,^ thyc hifn cdc hogt dpng lien quan hdnh cua Qudc hdi"; "co quan chip hdnh ^^^ ^'^" ^dnh hdnh chinh trong Chinh phu.
cua CO quan quyen lyc nhd nude cao Trong khi dd, Dieu 84 quy dinh Quoc nhit..." Thudt ngtt Chinh phu hdnh phdp hpi cd thdm quyen quyet djnh kl hogeh chu ylu mdi dupe ghi nhgn trong cdc vdn phdt trien kinh tl - xd hpi cua dat nuoc;
kifn Dgi hpi Ddng cdc khod VIII, IX vd X quylt djnh chinh sdch tdi chinh, tiln tf vl moi quan hf gitta ede eo quan thyc hifn quoc gia; quylt dinh dy todn ngan sdch nha quyln lap phdp (Qudc hpi), quyln hdnh nude vd phdn bd ngdn sdch nhd nude, phe phdp (Chinh phu), quyln tu phdp (Tod dn chuin quylt todn ngdn sdeh nhd nude; quy nhdn dan vd Vifn Kilm sdt nhdn dan), dinh, stta doi ho$e bdi bd cdc thu thul; quyet
"Quyln hdnh phdp" xuit hifn lan diu tien dinh chinh sdch dan tpc cua Nhd nude...
trong Hiln phdp Vift Nam Id tgi Hiln phdp Nhu vgy, Quoc hpi ngodi vifc dupe quy 1992 dupe stta ddi, bo sung ndm 2001 dinh Id co quan duy nhat c6 quyen lap hiln trong vifc xde dinh "Quyln lyc nhd nude Id vd lgp phdp edn Id eo quan quylt dinh thdng nhit, cd sy phan edng, phdi hpp gitta nhttng chinh sdch co bdn eua qudc gia, mot ede CO quan nhd nude trong vifc thyc hifn logi tham quyln gdn liln vdi chuc ndng cdc quyln lap phdp, hdnh phdp, vd tu phdp" hdnh phdp. Ddy Id sy khac bift co bdn trong (Dilu 2). Tuy nhien, ngoai tru dupe dl cap quy dinh eua Hiln phdp nude ta so vdi den duy nhat mpt ldn trong Dieu 2, cdc dieu nhieu qudc gia khde tren thi gidi ve vifc
12 L t L U ^ CHINH TRI, s 6 4-2012
quy dinh dia vi phdp ly eua chinh phu Id co vl vifc" bd philu tin nhifm ddi vdi nhihig quan hdnh phdp vd cd tham quyln hogeh ngudi gitt cdc chttc vy do Quoc hpi bau dinh vd thyc thi chinh sdch, thu tudng chinh ho^c phe chuin" Vd Dilu 67 ciia Lugt To phu lanh dgo chinh sdch. chuc Qudc hfi quy dinh: Sau khi bj bd Trong thyc tl hifn nay, khi nhu cau stta Philu tin nhifm, khdng cdn tin nhifm, cdc ddi Hiln phdp dang dupe ddt ra cip bdch chttc danh ndi tren se bi Quoc hpi bd philu nhdm tgo eo sd dl stta doi cae lugt nhu Lugt bdi nhifm. Tuy nhien, sy chua rd rdng cua Td chue Chinh phu, Lugt Td chuc HDND Hiln phdp trong xde dinh myc dich vd cdch vd UBND... thi Hiln phdp can stta ddi theo thuc thyc hifn co chl mdi ndy khiln din hudng xde dinh Chinh phu Id co quan hdnh nay nd chua phdt huy dupe gid tri tdng phdp ehu khdng phdi Id co quan hdnh chinh cudng hifu lye hogt dpng gidm sdt cua nhd nude cao nhit. Khi hiln dinh Chinh phu Quoc hpi doi vdi nhttng chttc vy do Qudc Id CO quan hdnh phdp thi dilu ndy cung cd hpi biu hodc phe chuin, nen co chl ndy nghTa Id xde dinh vai trd ciia Chinh phu cho tdi nay van chi dttng lgi d "nguyen trong vifc hogeh dinh vd dilu hanh chinh tdc" 6 cdc qu6c gia chdu Au, nghi vifn cd sdeh cua qudc gia. Dl thyc hifn cd hifu qud q^ygn gidm sdt chinh phu vd bd philu bit cdc chinh sdch ndy, Chinh phu phdi td chue ^in nhifm bupc chinh phu phdi gidi tan. Bk thdng nhdt ttt Trung uong den dja phuong ^hyc hien quyln gidm sdt, nghi vifn ed hai nham thuc ddy sy phdt trien kinh te - xd hpi ^hilt chl quan trpng Id Thanh tra qu6c hpi vd cua cd nude vdi tu cdch Id co quan hdnh j^.x . , x , .. t^, . « j - ** L '
, i \ , Kiem toan quoc hpi. Khi eong dan, to chue chinh nha nuoc cao nhat. Chinh phu hanh , . i r-i i •« ^A- '• .A U ' ^ , -
, , ^i , , . , ^. , . . ; . CO don khieu kien doi voi to chuc, ea nhan phap dong thoi xac dinh ro vi tn trung tam , , , , , , . ^ , x , «.
X . , ^, . , •, , , • ~ . *• 1 trong chinh phu len Thanh tra quoc hpi, co quoc gia cua Chinh phu, va cung xac dinh , .. . x , , , ^. x ,. ., /^u' X. u' u " 1' u ' ..u* !-• ^' 1- I--"- quan nay se tien hanh dieu tra voi su giup Chmh phu phai la chu the chiu trach nhi?m ^ -^ , ' ^ f chinh v l su phdt triln eua dit nude. Tinh ^? ^'^ ^ ^ " ^ * ° ^ - ^^ ^ ° ' h«^^ ^^"^ ^^dt chiu trdch 'nhiem cua Chinh phu ddi vdi ^ ^ ^^ W ^^^^^ nhifm ddi vdi cdc thdnh chinh sdch do mmh hoach dinh vd td chue ^^^^ ^^inh phu cua ngW vifn ed hifu qua rdt thyc thi cung cdn phdi xde dinh mpt cdch rd ^^o- ^ ^ ^^y' ^^ tang tinh chu dpng cho rdng. Mac du Hiln phdp hifn hdnh xde dinh "g^nh hdnh phdp trong bdi cdnh hdi nhdp Chinh phu phdi chiu trdch nhifm vd bdo cdo vd phdt trien nen kinh tl thi trudng or Vift edng tdc trudc Qudc hpi, nhung co chl cWu Nam hifn nay, Hiln phdp dupe stta ddi cin trdch nhifm chua rd, chua mang tinh phdp ly quy dinh Thu tudng Id ngudi lanh dgo nen chua dl cao trdch nhifm cd nhdn eua chinh sdch, ddng thdi phdi chiu trdch nhifm cdc thdnh vien Chinh phu. Trong dd, cung trudc Qudc hpi vl chinh sdch cua Chinh cin phdi nhin mgnh tdi trdch nhifm cd nhdn phu. Dong thdi, can cd co chl kilm sodt cua ngudi dung dau Chinh phu. Quy dinh hifu qud ttt co quan lgp phdp, co quan tu ndy dd tttng dupe dl cap tdi trong Hiln phdp phdp, cdc to chuc vd nhdn ddn nhdm ddm diu tien ciia nude ta Hiln phdp 1946 quy bdo tinh chiu trdch nhifm bdng chinh con dinh: "Thu tudng phdi eWu trdch nhifm vl dudng chinh tri cua cdc thdnh vien Chinh con dudng chinh tri eua ndi cdc" (Dilu 54). phtt, chtt khdng chi dttng lgi d vifc nhgn Khodn 7 Dilu 84 Hiln phdp stta ddi khuylt dilm trudc nhan ddn vd "nit kinh 2001 ed quy dinh thim quyln cua Qudc hdi nghifm sdu sdc" nhu hifn nay. a
LY LUAN CHINH TRI, SO 4-2012 13
