TOA AN V 6 l VIEC XEM XET, XU^ LY VAN BAN QUY PHAM PHAP LUAT CO LIEN QUAN TRONG VU AN HANH CHINH
Cao Vii Minh
Tom tat: Theo Luat To tung hanh chinh nam 2015, Toa dn cd quyen kien nghi cac ca quan nha nuac khac xem xet, sua doi, bo sung hoac bai bo cac van ban guy pham phdp luat neu phat hien cdc van ban ndy c6 dau hieu trdi vai Hien phdp, luat, cdc vdn^
ban cua ca quan nha nuac cap tren. Bai viet phdn tich nhung diem tien bo vd han che cua phdp luat xoay quanh quy dinh ndy, dong thai de xudt mot so gidi phdp hoan thien.
Abstract: According to the Administrative Procedure Law of 2015, a court has right to ask other competent state agencies to consider, amend, supplement or repeal legal normative documents if the former detects that such documents are contrary to the Constitution, laws or legal normative documents enacted by superior state agencies.
This article analyses the advantages and limitations of laws and regulations on this issue and proposes relevant solutions.
1. Viec xem xet, xit ly van ban quy pham phap luat trong vu an hanh chinh cua Toa an
Nghj quy8t s6 49-NQ/TW ciia Bo Chinh tri ngay 02/6/2005 ve Chien luge cai each tu phap da khang dinh: "ca quan tu phdp phai that su Id cho dua ciia nhdn ddn trong viec bdo ve cong ly, quyen con nguai". Ben canh do, theo Van kien Dai hoi dai bieu toan quoc Ian thu X, can: "Xdy dung, hoan thien ca che Idem tra. giam sdt tinh hap hien, hap phdp trong cdc hoat dong vd quyet dmh ciia cdc ca quan cong quyen " va "xdy dung ca che phdn quyet ve nhirng vi pham Hien phdp trong hoat dong lap phdp, hdnh phdp, tu phdp"\ Nham the che hoa cac chu truong, chinh sach nay, Dieu 6 Luat To tung hanh chinh nam 2015 da quy dinh:
"7. Trong qua trinh gidi quyet vii dn hdnh chinh, Toa dn cd quyen xem xet ve tinh hap phdp ciia van bdn hdnh chinh, hdnh vi
TS., Tap chi Khoa hoc phap ly, Dai hoc Luat Tp.
H6 Chi Minh.
' Dang Cong san Viet Nam, Van kien Dai hoi dai bieu toan quoc Idn thir X, Nxb Chinh tri quoc gia, Ha Noi, 2006, tr. 127
hdnh chinh c6 lien quan den quyet dinh hdnh chinh. hdnh vi hdnh chinh bi kien vd kien nghi ca quan, to chuc, cd nhdn co thdm quyen xem xet lai van bdn hdnh chinh, hdnh vi hdnh chinh do vd tra lai ket qud cho Toa dn theo quy dinh cua Luat ndy vd quy dinh khac ciia phdp luat co lien quan.
2. Toa dn co quyen kien nghi ca quan, cd nhdn co thdm quyen xem xet, sua doi, bo sung hoac bai bo van bdn quy pham phdp luat neu phat hien van bdn do co dau hieu trdi vdi Hien phdp, luat, van bdn quy pham phdp luat ciia ca quan nhd nuac cap tren theo quy dinh cua Luat ndy vd quy dinh khdc cua phdp luat co lien quan de bdo dam quyen, lai ich hap phdp cua ca quan, to chirc, cd nhdn. Ca quan, cd nhdn cd thdm quyen co trdch nhiem tra loi Toa dn ket qud xu ly van bdn quy pham phdp ludt bi kien nghi theo quy dinh cua phdp ludt Idm ca sa de Toa dn gidi quyet vu dn ".
Theo quy dinh tai Dieu 111 d£n Dihu 114 Luat T6 tung hanh chinh nam 2015, trong qua trinh giai quyet vu an hanh chinh, neu phat hien van ban quy pham phap luat lien quan den vu an hanh chinh co ddu hieu
NHANUdC VA PHAPLUATSO 1/2017
trai voi Hien phap, luat, van ban quy pham phap lugt cua co quan nha nude cap tren thi Toa an co quyen kiSn nghi co quan, ca nhan CO tham quySn xem xet, sua d6i, b6 sung hoac bai bo van ban quy pham phap luat.
Trong thoi han 30 ngay kh tu ngay nhSn dugc van ban ki8n nghi cua Chanh an Toa an, CO quan da ban hanh van ban do phai xem xet va tra loi bing van ban cho Toa an da kien nghi. NSu qua thoi ban nay ma khong nhan dugc van ban tra loi thi Toa an se ap dung van ban co hieu lire phap ly cao ban d6 giai quyet vu an.
Vai quy dinh nay, co the nhan thay, Toa an CO quyen tir choi ap dung mot van ban quy pham phap luat, neu xet thay van ban do trai voi Hien phap, luat, van ban quy pham phap luat cua co quan nha nuoc cap tren. Viec tu choi ap dung mot van ban quy pham phap luat co dau hieu trai vai Hi6n phap, luat, van ban cua co quan nha nuoc c4p tren se do Hoi ddng xet xu tu xem xet va quyet djnh ma khong cSn thinh thi an hay xin y ki8n ciia b^t ky chu th8 nao. Ben canh do, Toa an con co quyen kiSn ngh] vai co quan da ban hanh van ban do tu bai bb van ban ciia minh.
Day la nhimg diem tiSn bp cua Luat T6 tung hanh chinh nam 2015 so vai Luat T6 tung hanh chinh nam 2010. Tuy nhien, co the thay noi dung quy dinh nay da timg dugc ghi nhan trong Cong van s6 39/KHXX ngay 06/7/1996 ciia Toa an nhan dan t6i cao. Theo do: "Khi gidi quyet vu dn hdnh chinh, cdn cu de xem xet quyet dinh hdnh chinh, hdnh vi hdnh chinh dung hay sai Id van bdn quy pham phdp ludt co gid tri phdp ly cao nhat quy dinh ve ITnh vuc do dang co hieu luc thi hdnh tgi thai diem ra quyit dinh hdnh chinh hay CO hdnh vi hdnh chinh ma bi khiiu kien.
Cdn luu y Id trong cdc truong hap van bdn quy pham phdp ludt cua cap duai trdi vai van bdn quy pham phdp ludt cua cap tren
thi dong thai viec ra quyet dinh huy bo quyet dinh hdnh chinh hay kit lu^n hdnh vi hdnh chinh Id trdi phdp luat, Toa dn cdn kien nghi vai ca quan da ra van bdn quy pham phdp ludt trdi vai van bdn quy pham phdp lugt cua cap tren decaquan do tuhiiybd.,, ".
Bang Cong van so 39/KHXX, Toa an nhan dan toi cao da trao quyen cho Hoi dong xet xu trong viec lira chgn quy pham ap dung lien quan den vu an dang phai thu ly giai quyet. Noi each khac, Cong van s6 39/KHXX da ghi nhSn nguyen tic ap dung phap luat tren ca so uu tien ap dung van ban CO hieu luc phap ly cao hem n6u vu an dang xem xet ciing dugc dieu chinh bdfi nhilu van ban quy pham phap luat co quy djnh khac nhau. Su ra dofi ciia Cong van s6 39/KHXX vai viec thua nhan nguyen tac uu tien ap dung "van bdn cd hieu luc phdp ly cao nhat" dupe xem la buoc phat triln vugt bac, the hien vai tro quan trgng cua Toa an trong viec bao ve cong ly. Tuy nhien, cho dan nay, ngoai Cong van s6 39/KHXX thi khong CO bat ky mot van ban quy pham phap luat nao "manh dan" thira nhan nguyen tac "khi gidi quyet vu dn hdnh chinh, cdn cu de xem xet quyet dinh hdnh chinh, hdnh vi hdnh chinh dung hay sai Id van bdn quy pham phdp luat co gid tri phdp ly cao nhat" trong hoat dong xet xir vu an hanh chinh ciia Toa an.
Do do, viec Luat T6 tung hanh chinh nam 2015 quy djnh nguyen t5c ap dung phap luat nay la mot su ti^n bp dang ghi nhan, bai:
Thu nhat, day la l4n dSu tien trong Iich su lap phap ciia Qu6c hoi, mot dao luat di^u chinh viec giai quyet vu an hanh chinh quy dinh ve nguyen tac "Toa dn dp dung van bdn CO hieu luc phdp ly cao han de gidi quyet vu dn hdnh chinh ". Nguyen tac nay dugc ghi nhan trong mot van ban co gia trj phap ly cao da tao thuan Igi cho Toa an "manh dan" ap dung phap luat trong hoat dong xet xir.
TdAANVtyiVIEC.
Thu hai, viec ghi nhan mot nguyen tac ap dung phap luat da the hi6n tinh cong khai, minh bach cua he thong phap luSt.
Thu ba, thong qua quyen kien nghi siira doi, bo sung hoac bai bo van ban quy pham phap luat, Toa an da dam bao thuc hien nguyen tac "phdn cong, phoi hap, kiem sodt giifa cdc ca quan nhd nuac trong viec thuc hien cdc quyen lap phdp. hdnh phdp, tu phdp" . Theo do, Toa an - co quan thuc hien quySn tu phap^ khong tu y bai bo van ban quy pham phap luat ciia nhiing co quan nha nuoc khac, nhung co quyen kien nghj de cac chii the tu bai bo van ban do minh ban hanh. Sau xa ban, quy dinh nay con la ca so phap ly quan trpng dam bao cho hoat dong xet xu cua Toa an, giiip Toa an phat huy hieu qua vai tro cua minh trong viec bao ve tinh thong nhat va tinh thu bac cua he thong phap luat.
Thie tu, mpi boat dong ciia Toa an, neu xet theo nghia rgng, deu phuc vu muc tieu dam bao tinh thong nhat cua phap luat, giup giir gin trat tu va cac Igi ich chung ciia xa hoi . Viec xem xet, xir ly cac van ban quy pham phap luat cua Toa an cho phep dua ra khuon mlu ve each hanh xir cua cong quyen.
Nhd sir xem xet, xir ly ciia Toa an ma mot van ban trai vdi Hien phap, luat, van ban quy pham phap luat cua co quan nha nude cap tren se khong the ton tai trong he thong phap luat, dac biet trong boi canh hien nay, khi ca che tu kiem tra van ban quy pham phap luat ciia cac co quan nha nude dupe thuc hien khong hieu qua, hoc 16 qua nhieu bat cap^.
" Dieu 2 Hien phap nam 2013.
' D i a u 102 Hign phap nam 2013.
Nguyen Hoang Anh, Vai tro va gi&i han ciia Toa Hien phap. Toa Hanh chinh trong viec ddm bdo tinh thong nhat cua phdp luat. Tap chi Nghien ciiu lap phap, so 10, nam 2012.
* Cao Vu Minh, Bdn ve nhiTng nghich ly trong viec ban hdnh cdc van bdn hucrng ddn thi hdnh ludt, Tap chi Nha nuoc va Phap luat, so 2, nam 2012, tr.31-39.
Tuy nhien, ben canh nhimg diem tien bp neu tren, v i n con mot so van de can ban luan:
Mot Id, Luat T6 tung hanh chinh nam 2015 chua du lieu hk cac truong hgp can phai xem xet, xu ly van ban quy pham phap luat CO Hen quan trong vu an hanh chinh.
Thuc tien ban hanh van ban quy pham phap luat d nude ta trong thoi gian qua da cho thiy, khong chi cac van ban trai vdi Hien phap, luat, van bah quy pham phap luat cua CO quan nha nude cap tren mdi can dupe xem xet, xir ly, ma ngay ca nhimg van ban do mot CO quan ban hanh nhung cd quy dinh khac nhau ve ciing mot van de thi van can CO quan co tham quyen phan djnh thii tu ap dung. Theo Di^u 156 Luat Ban hanh van ban quy pham phap luat nam 2015, cac truong hgp xung dot phap luat khong chi khi mot van ban "trdi vdi Hien phdp, ludt, van bdn cua ca quan nhd nuac cdp tren", ma con trong truong hgp "mdu thudn vai van bdn do chinh ca quan do ban hdnh"
Tuy nhien, Luat To tung hanh chinh nam 2015 chi mdi du lieu truong hap Toa an xem xet, xu ly van ban quy pham phap luat CO lien quan den viec giai quyet vu an khi
"van bdn do co ddu hieu trdi vai Hien phdp, ludt, van bdn quy pham phdp ludt cua ca quan nhd nuac cdp tren ", ma khong de cap den truong hgp "cdc van bdn quy pham phdp ludt do ciing mot ca quan ban hdnh co quy dinh khdc nhau ve ciing mot van de ma lai lien quan den vu dn hdnh chinh thi Toa dn se gidi quyet nhu the nao ".
Vi du: ciing mot hanh vi "say ruov, bia a cong sd. nai Idm viec, khdch san. nhd hdng, qudn dn, tren cdc phuang tien giao thong vd nai cong cong khdc" nhung Nghj djnh s6 73/2010/ND-CP ngay 12/07/2010 quy djnh xu phat vi pham hanh chinh trong linh vuc an ninh va trat ty, an toan xa hoi thi mire phat la tir 60.000 ddng d6n 100.000 dong (khoan 1 Dieu 24), cdn Nghi djnh sd 11
NHA NUCfC VA PHAP LUAT SO 1/2017
75/2010/ND-CP ngay 12/07/2010 vg xu phat vi pham hanh chinh trong ITnh vuc van hoa lai quy dinh muc phat rir 500.000 ddng dSn 1.000.000 ddng (khoan 1 Di^u 18). Gia su, dng A CO hanh vi "say ruau, bia a cong sa, nai lam viec" va bj phat tiSn theo che tai ciia Nghi djnh sd 75/2010/ND-CP. Ong A khdi kien tai Toa an va yeu c3u ap dung theo Nghj dinh s6 73/2010/ND-CP vdi ch8 tai nhe hon. Trong truong hgp nay, Toa aii se giai quySt thS nao khi Toa an khong the ap dung nguyen tac van ban cd gia trj phap ly cao ban de xii' ly*".
Hai Id, Di^u 112 Luat T6 tung hanh chinh nam 2015 quy dinh Chanh an Toa an cap huyen cd quy^n d l nghj Chanh an Toa an cap tinh kiSn nghj sua ddi, bd sung hoac bai bd van ban quy pham phap luat cua co quan nha nude cap tinh; cd quyen bao cao Chanh an Toa an cap tinh de nghi Chanh an Toa an nhan dan toi cao kien nghj sua ddi, b6 sung hoac bai bd van ban quy pham phap luat ciia co quan nha nude d trung uong.
Chanh an Toa an cap tinh, Chanh an Tda an nhan dan cap cao cd quyen de nghj Chanh an Toa an nhan dan toi cao kien nghi sua doi, bo sung hoac bai bo van ban quy pham phap luat ciia co quan nha nude d trung uong. Tuy nhien, truong hgp ngu'di cd tham quyen de nghi hoac kien nghj noi tren va nguoi true tiep giai quyet vu an (Tham phan hoac Hoi dong xet xir) mau thuan trong danh gia van ban ap dung thi giai quyet nhu the nao? Trong tnidng hgp nay, cap dudi phai phuc timg cap tren hay van c6 ca ch§
giai quyet dac thii khac? Cac quy djnh trong Luat To tung hanh chinh nam 2015 chua giai dap cau hoi nay.
Ba la, Luat To tung hanh chinh nam 2015 khong quy djnh ro rang trach nhiem '• Nghi dinh s6 73/2010/ND-CP va Nghi dinh s6 75/2010/ND-CP dSu do Chinh phii ban hanh nen co gia tri phap ly ngang nhau.
cua cac co quan nha nude khac trong vi?c xem xet va tra Idi bang van ban ddi vdi kien nghj ciia Chanh an Tda an nhan dan. Dieu 114 Luat Td tung hanh chinh nam 2015 chi quy dinh: "Niu qud then han 30 ngay ke tu ngdy nhdn duac van bdn kien nghi cua Chdnh dn Toa dn ma Tda dn khong nhdn dup'c van bdn tra lei thi Toa dn dp dung van bdn co hieu luc phdp ly cao hon de gidi quyit vu dn ". Va trong trudng hop, Toa dn da nhdn duac van bdn trd lai, nhung van bdn khang dinh rang van bdn quy pham phdp luat cua cdcscf quan nhd nuac khdc khong sai trdi thi Tda an se giai quyet nhu th8 nao? Trudng hgp nay, Tda an van se ap dung van ban cd hieu luc phap ly cao han d§ giai quySt vu an hay phai ap dung chinh van ban quy pham phap luat ma Tda an cho rang cd dau hieu trai phap luat?
2. Mot so kien nghi hoan thiSn Thic nhat, diem b, khoan 2 Dieu 22 Luat Td chuc Toa an nhan dan nam 2014 quy dinh: "Hoi dong Thdm phdn Tda dn nhdn ddn toi cao ban hdnh nghi quyet huang ddn cdc Toa dn dp dung thong nhdtphdp luat"
Do do, theo tac gia. Hoi ddng Tham phan Tda an nhan dan toi cao can ban hanh nghi quyet hudng dan ro rang ve nguyen tac ap dung phap luat. Theo do, boat ddng xet xir ciia Tda an can tuyet ddi ton trpng nguyen tac ap dung van ban quy pham phap luat dugc quy dinh tai Dieu 156 Luat Ban hanh van ban quy pham phap luat nam 2015. Hoi dong xet xir hoac Tham phan khi ap dung phap luat de xet xir vu an hanh chinh phai neu rd ly do va lap luan cho quyet djnh ciia minh. Trong trudng hgp cac co quan nha nude khac khong ddng y thi cd quyen de nghj ngudi cd tham quyen khang nghi theo thii tuc td tung va tham gia trinh bay y kiSn ciia minh vdi tu each la ngudi co quyen Igi va nghTa vu hen quan.
Thii- hai, c5n quy djnh ro rang v6 co che phap ly nliam giai quyet mau thuln trong
TO.-iAM'Ol VIEC...
trudng hgp: i) Ngudi true tiep giai quyet vu an (Tham phan hoac Hpi ddng xet xir) khong dong \ vdi nhan dinh cua Chanh an Toa an dang giai quyet \ix an va ii) Chanh an Tda an cap dudi khong dong y vdi each xir ly ciia Chanh an Toa an nhan dan cap tren ve viec danh gia tinh hgp phap cua van ban quy pham phap luat cua cac ca quan nha nude khac bi kien nghi.
Thir ba. can quy dinh ro trach nhiem ciia cac ca quan nha nude khac trong \iec xem xet va tra Idi bang van ban ddi \o\ kien nghj ciia Chanh an Toa an nhan dan lien quan den tinh hop phap cua van ban quy pham phap luat do cac ca quan do ban hanh. Co nhir \ ay thi ca che "phdn cong. phoi hop. kiem sodi giica cdc CO quan nhd nirdc irong vice thuc
hien cdc quyen lap phdp. hdnh phdp. tu phdp " mdi thuc sir dugc bao dain.
Cudi ciing. Dieu 102 Hien phap nam 2013 quy djnh: "Toa dn nhdn ddn co nhiem rit bdo ve cong 1\". De bao \ e cong ly, Toa an can dupe trao quyen giai thich phap luat.
Viec giai thich phap luat phai dat trong mot vu \^iec cu the, gan vdi cac su kien phap ly nhat dinh. Chi co Tda an vdi hoat dong xet xu cua tham phan mdi co dieu kien ciing nhu nghia vu giai thich cac dieu luat Thuc te da cho thay, Toa an co vai tro idn trong
\iec giai thich phap luat, bdi cac Nghi quyet cua Hoi dong tham phan Toa an nhan dan toi cao luon ""lam sang to ve mat tu tuang va npi dung" mot quy pham phap luat nao do (giai thich phap luat)'.
Nguyen Dang Dung -\u Cong Giao. Tu phap dot Idp' mot so \cm de ly luan va ilurc lien (In- 2). Tap chi Nghien cmi lap phap so 2 1 . nam 2012.
" Nguyen Cuu ^ iC't. Gido trinh h' luan chung ve nhd nuoc vd phdp ludi. Nxb. Dai hoc Tong hop, 1993. tr. 283
(Tiep theo trang 8 - Quyen song theo Hien ngudi dan \en bien cua quoc gia khac. Da\' la cau hoi lien quan tdi nghia vii cua quoc gia trong \iec bao \o tinh mang con ngudi khong chi dang sinh song tren lanh tho cua minh"*. \"e van de nay. Dieu 19 Hien phap nam 2013 \"a cac \"an ban luat khac khong CO quy dinh cu the. \'i \ a y . khd co the ket luan \'ier Nam co nghTa \ u bao dam quyen song cua nhirng ca nhan sinh song ngoai tanh tho \'iet Nam. Tuy nhien. tac gia ung hg quan diem mdi quoc gia phai co nghia
\ u \"ugt ra klioi bien gidi. dac biet nhu trong boi canh bien doi khi hau dang co nhirng tac dong lieu cue doi vdi Viet Nam hien nav.
phdp...) Ket luan
Quyen song ia quyen thieng lieng va ca ban nhat ciia con ngudi. Viec ghi nhan trong Hien phap da cho thay tarn quan trpng cua quyen nay. Tuy nhien, co the iha\" dang co do \'enh giira Hicn phap Viet Nam \'di quy dinh ciia phap luat quoc te.
Vi vay, Dieu 19 va khoan 2 Dicu 14 Hien phap nam 2013 can dugc sua doi nham dam bao Nha nude N'iel Nam thuc hien day du nghTa vu cua minh, khong chi \ d i tu each ihanh \ien cua ICCPR. ma con doi vdi ngudi dan: dam bao Nhii nude Viet Nam thuc sir la nha nude cua Nhan dan. do Nhan dan. vi Nhan dan
\ c nghia \ u cuj quoc gia. da\ \an la \an de ga\ nhieu tranh cai giira cac quoc gia \ a ca hoc gia Cac an le cho ti>i n.i\ cho tha\ rang quoc gia co nghTa \ u doi \cri (i) Hanh \'i cua niinh ihirc hien tren lanh tho qu6c gia khac. uO Dam bao cu\en con nguoi tren lanh tho ma quoc gia kicm .soal hiru hicu. (in) Mot so vi pham thuc hicn 1.1 n'ji'c ngoai boi ehu the Itr nam uong qu\cn tai phan cua quoc gia \ i du nhu HRC. Lopez Buiuos \ L'rugu,i\ R12 .-^^r (19"9). ICJ. Legal Consequences of the Construction of a Wall in the Occupied Palestinian Terriu>rv. AdMSor\ Opinion of 9 Jul> 2004; lACIiR. Coard ct al \ L'niicd Siaies. Ca.se No. 10 951, Reports
\ o U)9 99 129 September 1999), BankoMc \ Belgium (.-\pp. \ c . 5::()" 99. Decision of 12 December 2001),
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