Nguyên tắc phân công, phối hợp và kiểm soát giữa cơ quan lập pháp và cơ quan hành pháp qua các bản hiến pháp việt nam

NHA NUOC VA PHAP LUAT NGUYEN TAC PHAN CONG, PHOI HOP VA KIEM SOAT GICA CO QUAN LAP PHAP VA CO QUAN HANH PHAP QUA CAC BAN HIEN PHAP VIET NAM Tr^NgQcDiidng* *G5.TS Nguyen Pho Chii nhiem Van phong Quoc hoi Thong tin Mi viet: Tit khda: co quan \^p phap, co quan lianh phap, kiem soat quyen lye, Hi§n phap Viet Nam Licfi su bai viet: Nh^nbai : 28/05/2019 Bientap : 10/06/2019 Duyltbii : 19/06/2019 T6m tat: Trong chg dp dan chu va phap quySn xa hpi chii nghTa thi quy^n iyc nha nuac ldi6ng phai la quyen lire tir c6 ciia Nha nuac ma quySn luc dupc Nhan dSn uy quyen va giao quyen Vi the, tSt yeu sinh doi hoi tu nhien va ehtnh dang la phai kiem soat quyen l\rc nha nuac Quyen luc nha nuoc thuong duac lupng hoa bing cac quy dinh ciia Hi^n phap de phfin dinh nhiem vu quyen han ciia cac quyen lap phap, hanh phap va tu phap Viec ghi nhan va phat triln nguyen t§c phan cong, phoi hpp va kiem soat giua ca quan lap phap va co quan hanh phap qua cac ban Hien phdp gan vcri d$c dilm b6i cdnh lich su cua dat nu6c timg giai doan tuong ling Article Infomation; Keywords: Legislation entity; execution entity; power controlling; the Constitution ofVietnam Article History: 28 May 2019 Received 10Jun2019 Edited 19Jun2019 Approved Abstract In regime of democracy and the socialist rule of law, state power is not the its self power, but the power is empowered and authorised by the People Therefore, it is inevitably required to control the state power The state power is often documented by the provisions in the Constitution to define the mandates and rights of the legislative power, the executive power and the judicial power The recognition and development of the principle of allocation, coordination and controlling of powers between the legislation branch and the executive one through the Constitutions are associated with the historical contexts of the nation in each particular stage Nguyen tac phan cong, phoi hgfp v^ kiem so^t giO-a c6c cff quan nlia nvtffc viec thuc hifn quyln lap phap, h^nh phdp tai Hi^n phdp ndm 1946 Theo quy dinh cua Hi^n phap nam 1946, Nghi vien nhan dan la ca quan co quy6n cao nhit cua nirofc ViSt Nam dan chu cong hoa Chinh phu la ca quan hanh chinh cao nhdt cua to^n quoc Ca quan tu phap gom toa an tdi cao, cac toa an phuc tham, cac toa an de nhi cap va sa cap; tham phan Chinh phu bo nhiem Cac nha lap hiSn nam 1946 da nhan thay rang, hanh phap la mot nhimg nhanh quyen luc quan va co S611(387)T6/2019 V _ L A P P H A P ' ' NHA NlTOtC VA PHAF LUAT moi quan he mat thiet vai hai nhanh quyen luc Iai Bo tnicmg Bo Tu phap dau tien cua nuac Vi^t Nam dan chu cong hoa, ong Vu Dinh Hoe da viet: "Toan bp quyen luc ve nguyen tac phai tap trung vac tay ca quan dai dien toi cao Nghi vien nhan dan, nhimg ca cau then chot de thuc hien la Chinh phii vai ca bp may hanh chinh va chuyen mon" Nhiem ky ciia Chu tich nuoc la nam - dai han so vai nhiem ky nam ciia Nghj vien Thu tu6ng la nguai dung dau, dieu hanh Noi cac va chiu trach nhiem truac Nghi vien ve duong loi chinh tri cua Npi cac Hien phap nam 1946 cho thay hai van de cot loi: mpt la, Hien phap dam bao tinh dgc l^p cua quyen l^p phap, hanh phap va tu phap; hai la, khang dinh c6 tinh nguyen tac rang Nghi vien, Chinh phu va Toa an nhan dan deu la nhung ca quan cao nhat co quyen luc nha nirac, moi ca quan nam mpt bp phan quy8n lire nha nuac Nhung quy djnh the hien su phan cong lao dpng quyen luc giiJa cac ca quan cao nhat cua quyen luc nha nuac kha rach roi, the hien quyen luc nhan dan la toi cao, quyen luc nha nuac phai sinh tu quyM luc nhan dan Giua lap phap va hanh phap c6 su phoi hpp dk cung thuc hien cac chiic nang cua Nha nu6c Bieu hien cua no la ca quan lap phap CO quyen lap va giam sat hoat dpng cua CO quan hanh phap; hanh phap CO quyen trinh du an luat de lap phap bieu quy6t thong qua; co sir chung nhan vien vi vien cua Chinh phu phai la vien cua Nghi vien Ve kiem soat giiia l§p phap vai hanh phap, lap phap kiem soat hanh phap the hien cho: tham gia lap ca quan hanh phap qua viec b3u Chii tich nuoc, phe chuan su lira chpn Thu tuong cua Chii tich nuac va sir lira chpn Bp truong cua Thii tucmg; bieu quyet cac du luat, sac luat va ngan sach Chinh NCHI£N cini 1I LAP P H A P ^ S6l1(387)T6/2019 phu de trinh; chuSn y cac hiep uac ma Chinh phu ky vai nuoc ngoai Nghi vien co quyen ki8m soat, phe binh Chinh phu; chdt van cac vien cua Chinh phu; quyet dmh t h ^ lap toa an dac biet d6 truy to va xet xu Chu tich nuoc, Pho Chu tich nuac hay mpt nhan vien Noi cac pham toi phan quoc; l^t Chinh phii qua viec bieu quyet van de tm nhiem Thii tuong va Noi cac Hanh phap kilm soat lai lap phap the hien cho: Chu tich nudc CO quyln ban hanh sac lenh co gia tri gin nhu luat; yeu c4u Nghi vien thao luan lai dv luat ma Nghi vien da thong qua; dua v§n dl tin nhiem Npi cac Nghi vien thao luan lai thoi han 24 gia Chu tich nuac khong phai chiu mpt trach nhiem nao truoc Nghj vien trCr toi phan quoc Chinh phii CO quyln bit giam cac Nghi vien hp pham toi qua tang nhung phai thong bao cho Ban thuong vu cham nhat la sau 24 gia Mpt so nhan xet: Mot la, moi quan he giiJa lap phap va hanh phap Hien phap nam 1946 duoc hinh tren co so can phai co mpt Chinh phu manh de doi voi mpt Nghi vien da dang va dl giai quyet co hieu qua nhilu van de phiic tap ciia dat nuoc Danh gia v l Chinh phu nay, Chii tich H6 Chi Minh noi: "Chinh phii la mot Chinh phu chii thuc tl va se n6 luc lam viec, dl tranh thu quyen doc lap va thing nh4t lanh thi cung xay dung mot Nha nuac Viet Nam moi" Hai la, moi quan he giita lap phap va hanh phap Hiln phap nam 1946 duac xay dung tren co so ap dung sang tao nhung nguyen ly co ban cua hoc thuylt phan quyln vao hoan canh thuc tl o nuoc ta liic b4y gia de hinh co chi kilm soat quyln luc giiia lap phap va hanh phap va tao chi dp hanh phap luong dSu - ca Chii tich nuoc va Thu tuong cung nam hanh phap chia se quyen hanh phap Ban chit cua phan quyln NHA NtfOfC VA PHAP LUAT khong CO gi khac han chinh la sir phan cong, phoi hpfp de tien toi su kiem scat; diing quyln luc de kiem soat quyen luc; nham muc dich khong dl quyln lire di din ch6 lam quyln Ba la, Hien phap nam 1946 khong chi phan cong ro rang chuc nang, nhiem vu va quyen han ciia cac co quan ma dat v4n de kiem soat quyen luc giiia lap phap va hanh phap Tuy co sir kiem che nhung khong d6i h-png quyet liet ma kha on hoa Cu thi la: Npi cac co the bi Nghi vien bit tin nhiem tap thi hoac ca nhan nhung khong co chieu ngupc lai Nghia la, Chinh phii khong co quyln giai tan Nghi vien Nghi vien chi bi giai tan chinh Nghi vien tuyen b6 tu giai tan Quy dinh bao dam tinh thdng nhit ciia quyln lire nha nuoc thupc ve nhan dan Trong vin de bat tm nhiem Npi cac, Chu tich nuac co quyen yeu cau xem xet lai, nhien, nlu Nghi vien van tiep tuc bilu quylt vai ty le nhu ban dau thi Noi cac duong nhien phai bi lat Chu tjch nuac co quyen phii quylt nhung khong tuyet doi vi chi can V2 Nghi vien thong qua thi dir luat phai duoc cong bo Nhu vay, mpi truong hop, dii Chii tich nuac CO quyen kiem che cac quyet djnh cua Nghi vien nhung quyet dinh cuoi ciing van thupc ve Nghi vien Bon Id thong qua co che phan quyen, Hien phap nam 1946 da the hien diing ban chat ciia co quan lap phap va hanh phap Nghi vien nhan dan la co quan co quyen quyet dinh nhiing van de lien quan den van menh qudc gia va ban hanh cac dao luat co anh huong din loi ich chung cua toan xa hpi Che dinh Nghi vien Tihan dan the hien hinh thiic dan chii mai ciia chinh the cpng hoa \ki dau tien duoc thiet lap d mdt dat nudc phong kiln niia thudc dia Ban chit, td chuc va phuang thuc hoat ddng cua Nghj vien la phu hop vdi tinh hinh thuc te cua Viet Nam sau Tong tuyen cii 1946, vdi sir tham gia cua nhieu luc luong chinh tri mdt co che dan chii nhan dan Chinh phii theo Hiln phap nam 1946 la mpt Chinh phu manh va dam chju trach nhiem, ddc lap tnrdc Nghi vien va co kha nang quay trd lai kilm chi Nghi vien Chu tich nuoc vira diing dau Nha nudc, vira tryc tiep chi dao cac hoat ddng cua Chinh phu Chiic nang nguyen thu quoc gia nhap lai vdi chuc nang hanh phap va Chu tich nudc thuc sir nam quyen hanh phap Chinh phii thuc sir la CO quan hanh chinh cao nhat ciia toan qudc Gidng vdi mdt sd nudc khac, mdi sac lenh ciia Chinh phu, ben canh chu ky ciia Chu tich nudc phai cd chii ky phd thy ciia mpt bp trudng va chinh ngudi true tiep ky ay mdi phai chiu trach nhiem trudc Nghi vien ve hau qua phap ly cua van ban do' Chinh phu phai tir chuc neu hi Nghi vien bd phieu bat tin nhiem Day la trach nhiem chinh tri chijr khdng phai la trach nhiem phap ly thdng thudng Chinh nhiing quy djnh ve che dp trach nhiem la co sd tao nen mdt Chinh phii manh, ban ITnh va quylt doan Nguyen tac phan cdng, phoi hop va kiem scat giva cac ctr quan nha nird'c vi^c thirc hi€n quyln l^p phdp, hanh phap tai Hien phap nam 1959 Theo quy djnh cua Hien phap nam 1959, quyen han cua Qudc hdi da duoc the che mdt each cu the hon va quyen luc cua Qudc hdi dupc tang cudng hon nhieu so vdi Nghi vien nhan dan Hien phap nam 1946: quyen lap hien va lap phap deu thudc ve Qudc hdi, pham vi quyen lap phap cung dupc md rdng hon; Qudc hdi cd quyen giam sat viec thi hanh Hien phap, lam luat, quyet dinh chien tranh va hda binh, dai xa Khi Nguyin D5ng Dung (1997), Luat Hien phap nuoc ngoai, tr 68 So 11(387) T6/2019 NHA NtfOKl VA PHAP LUAT xay chien tranh hoac cac trudng hop bat thudng khac, Qudc hpi cd the quySt djnh keo dai nhiem ky cua minh va cd nhiing bien phap can thiet de dam bao hoat dpng cua Qudc hpi va cua dai bieu Qudc hdi Nguyen thu qudc gia bi tach khdi hanh phap Chu tich nudc khong cd quyen phu quyet ma chi c6 quyen cdng bd luat ve mat hinh thiic Quyen han cua Chii tjch nudc bi thu hep rat nhieu, chi edn dai di?n cho Nha nudc, khdng dieu hanh hoat dpng ciia Chinh phii Hoat ddng cua Chu tich nudc chu yeu nghieng ve chiic nang hanh phap tuong trung cho su ben viing, thdng nhat cua dan tde Vai trd quan trpng nhat cua nguyen thu qudc gia liic bay gid la phdi hpp ba nhanh quyen lye vdi Hien phap nam 1946 thi Chii tich nudc khdng nhung nam mdt nhanh quyen lye, phdi hpp cac nhanh quyen lye ma cd quyen kiem soat hoat dpng ciia cac nhanh quyen lye Hpi ddng Chinh phu dupc quy dinh la CO quan chap hanh cua co quan quyen lye nha nudc cao nhat va la co quan hanh chinh nha nudc cao nhat cua Viet Nam dan chii cdng hda (Dieu 71) Vdi tu each la co quan chap hanh cua Qudc hdi, tinh hanh chinh cua Hdi ddng Chinh phii md nhat hon so vdi Hiln phap nam 1946 Hpi ddng Chinh phii cd sy thay ddi rat Idn ve mat td chiic, chiic nang va quyln han bj thu hep lai Trong mdi quan he vdi lap phap thi Hdi ddng Chinh phii trd mdt thiet che yeu hon han Hien phap nam 1959 khdng dat van de hanh phap kiem soat lap phap Vj tri, vai trd ciia Qudc hdi duoc de cao Qudc hdi thuc sy la CO quan quyen lye nha nudc cao nhat Khdng mdt co quan hay mdt chiic danh nao bd may nha nudc cd quyen kiem soat hoat dpng cua Quoc hpi H,e„ ph p n«n 1959 dat van dS lap phap ^ e m soat ^anh phap thong qua quy dinh: HP dong Chtnh phu ch,u trach nhiem va bao cao cong B t m d c Q u c hpi, Uy ban thuong vu Quoc hoi (UBTVQH) Cac Bai b«;; Q™=^ !^'''1° q u y L chat van Hpi dong Chmh p t a Hp d6ng Chinh phu khpngbi Quoc hp.l?t bang CO chS bit tin nhiem, thay vao la chS d.nh bai mita tvrag viSn cla Chinh phu vi cac nha lap hien giaidoan cho rang "giai tan Chinh phu se dan den su khilng hoang chinh tri, su gian doan khong thong su6t, hi tie quySn lire nen khong bao dam dupe sir th6ng nhit quyen litc"l Mot sd nitdn xet: Mot la mei quan he giiia lap phap va hanh phap Hi6n phap nam 1959 duoc xay dung tren nguyen tic tap quyen XHCN Chi Qu6c hpi - co quan dai dien cao nhat cua nhan dan moi co diy du quyen lire nha nirac va la CO quan quyfen luc nha niroc cao nhat Cac CO quan cap cao khac cua Nha nuoc chi la CO quan hanh chinh va tu phap cua co quan quygn lire nha nuoe cao nhat, nen dSu tnjc tiep hoac gian tiep Quoc hpi lap va bai mien, deu nhan dupe quyen luc tir Quoc hpi, phai bao cao cong tac va chiu trach iJiiem truoc Quoc hpi Hai id, su phan cong quyen luc khong ro rang nen tinh doc lap cua Hpi d6ng Chinh phij bj han che Qu6c hpi dupc &h cao va CO rat nhieu quySn luc vi HiSn phap chinh Quoc hpi lam Hpi d6ng Chinh phu chi la CO quan hanh chinh cao nhit c i a Qu6c hpi, bi dpng va le thupc vap Qu6c hpi Ba Id, to chiic bp may nha nuoc theo mo hinh tap quyen, HiSn phap da d6 cao vai tro eiia Quoc hpi nen sir kiem soat giira lap Trin Nggc Duong (2014), Mot so van de ly luan va thirc tien ve xay dttng va ban hanh Hian phap, Nxb Chinh tri quflc gia, H., tr 56 Ctfu 61L&P PHAP—/ S6 11(387) T6/2019 NHA NtfCK: VA PHAP LUAT phap va hanh phap md nhat hon nhilu so vdi Hien phap nam 1946 Chu ylu la sy kilm scat cua Qudc hpi vdi Chinh phu, Chinh phti khdng dupc quyen kiem soat Qudc hdi Cac dai bieu Qudc hpi chi bi bit giam va truy td neu c6 su ddng y cua Qudc hdi hoac UBTVQH Qudc hdi khdng hpp Bon la, Hien phap nam 1959 khdng thi hi|n duoc ban chat can phai cd cua co quan lap phap va hanh phap: Qudc hdi khdng thi hi$n duac la m^t thilt chi dupc kilm scat viec ban hanh cac dao luat Qudc hpi cd toan quyen viec lap hiln, lap phap; luat ciia Qudc hdi khong dugc Chu tich nudc yeu cau xem xet lai Hdi ddng Chinh phu duoc xac dinh la co quan chip hanh cua Qudc hpi va tinh hanh chinh bi lu mo Hdi ddng Chinh phii khong nhieu nhiem vu, quyen han nhu Chinh phii HiSn phap nam 1946 Co che tin nhiem Chinh phu khdng duoc ap dung Vi thi, Hien phap nam 1959 khdng lot ta dupc ban tinh quyet doan va dam chiu trach nhiem cua Chinh phii Nguyen tac phan c6ng, ph6i hop va Idem soat giu-a cdc co quan nha nird'c viec thiJc hien quyen hdnh phdp tai Hiin phap nam 1980 Theo quy dinh cua Hien phap nam 1980, Qudc hdi dupc quy djnh la co quan quySn lye nha nudc cao nhat, la co quan nhat cd quyln lap hien, lap phap Qudc hpi bau Hdi ddng Bp trudng; quyet djnh cac van de quan trpng ciia dat nudc va giam sat tdi cao toan bp hoat dpng ciia Nha nudc Khdng nhung thi, Qudc hdi cd the ty dinh cho minh nhimg nhiem vu, quyen han khac xet th4y ciin thiet Cd the ndi, Hien phap nam 1980 la dinh cao ciia nguyen tac t|p quyln XHCN, dinh cao ciia sy tap trung quyen lye nha nudc vao Qudc hdi Chfnh dilu lam cho mdi quan he giua ISp phap va hanh phap Hiln phap nam 1980 cd su nhap nhiing, khd phan dinh Quan he giiia Hpi ddng Bp trudng va Qudc hpi la quan he mdt chieu Hdi ddng Bp trudng khong dupc quyen kiem soat Qudc hdi ma chi cd Qudc hdi dupc quyln kilm scat Hdi ddng Bd trudng vi nguyen tie tap quyen da phii nhan sy ngang quyln va kilm che ddi trpng lan giua lap phap va hanh phap Hiln phap nam 1980 chi dat van dl lap phap kiem soat hanh phap thdng qua cac hinh thiic: Hdi ddng Bd trudng phai chju trach nhiem va bao cao cdng tac trudc Qudc hdi, Hdi ddng Nha nudc Dai bieu Qudc hdi chat van va yeu cau vien ciia Hdi ddng Bd trudng phai trinh bay hoac cung cap tai lieu ve cac van de can thiet Qudc hdi cd quyen bai nhiem Chu tich, Phd Chii tjch va cac vien khac cua Hdi ddng Bd trudng Trong quan he vdi Qudc hdi, Hpi ddng Bd trudng chi cd quyen ban hanh cac van ban dudi luat de hudng dan thi hanh cac van ban cua Qudc hdi va Hdi ddng Nha nudc; quyen trinh dy an luat, du an phap lenh va cac dy an khac, lap dy an ke hoach nha nudc va du toan ngan sach nha nudc Hdi ddng Bd trudng khdng the kiem soat va ddi trpng vdi Qudc hdi Ben canh dd, Hien phap nam 1980 ap dung co che bai nhiem nhu Hien phap nam 1959 Mpi quyet djnh cua Hoi ddng Bd tnrdng deu dupc ban bac tap the va quyet djnh theo da sd, vai tro cua ca nhan Chii tjch Hdi ddng Bd trudng va cac Bd trudng rat md nhat, phan anh tu tudng lam chii tap the da in dam td chiic va hoat ddng cua bp may nha nudc Hdi ddng Bd trudng bi trdi budc vao Qudc hdi va tinh hanh chinh cua Hdi ddng Bd trudng kha md nhat Mpt so nhan xet: Mot Id, chiu anh hudng manh me HGHIfeH Ctfu I S6 11(387)T6/2019 V l A P PHAPl ' NHA NUOfC VA PHAP LUAT cua Hien phap XHCN, nen vl phuong dien td chiic bp may nha nudc, Hien phap nam 1980 la dinh cao cua sy tap trung quyen luc nha nudc tay Qudc hpi Trong mdi quan he vdi cac co quan nha nudc d trung uong, Qudc hpi cd uu the gan nhu tuyet ddi, chi cd Qudc hdi mdi cd quyen giam sat va phe binh hoat dpng cua cac co quan khac ma khdng cd chieu ngupc lai Tu tudng phan cdng, phdi hop va kiem soat quyen luc giiia lap phap va hanh phap la md nhat nhat so vdi hai ban Hien phap trudc Sy kem ddc lap giiia cac chuc nang dan den sy van hanh thieu hieu qua ciia bo may nha nudc va hien tupng khdng quy ket dupc trach nhiem cho cac CO quan, hoSc su khd khan viec phdi hpp cdng viec giiia cac ca quan nha nudc Cd the ndi, vdi ban Hien phap nay, tu tudng phan quyen va hat nhan hpp ly ciia nd hhu nhu bi phu nh§n hoan toan Hai la, mdi quan he gifla lap phap va hanh phap Hien phap nam 1980 khd phan dmh; cd sy chdng cheo viec thyc hi?n chiic nang, nhiem vu, quyen han cua cac CO quan Qudc hdi bao bien, dm ddm, can thiep vao cdng viec quan ly cua Hpi ddng Bd trudng Mdi tuong quan giua lap phap va hanh phap nghieng han ve phia Qudc hdi Hanh phap chi duoc quan niem la mpt bd phan boat dpng dudi sy chi dao ciia CO quan lap phap Hanh phap hau nhu khdng cd kha nang kiem soat nao vdi lap phap Cac phuang thiic ma Hien phap nam 1980 trang bj cho Qudc hdi giam sat tdi cao Hdi ddng Bd trudng thi kha chung chung, khdng rd rang va khdng mang tinh kha thi Ba la, Hien phap nam 1980 ciing khdng lot ta duoc ban chat can phai cd cua cac thilt che nha nudc khac Vdi mpt md hinh Qudc hdi cd toan quyen thi khdng mpt chii the nao cd quyen de nghi Qudc hpi xem xet lai cac quyet dinh ciia minh Hpi NGHl£N Ctni ILAP P H A P ^ , S611{387)T6/2019 dang BO tmong khong toan quyen catfong linh vire quan ly nha nuoc V , a ^ nocungkhongthelamptcaquanhanhphap manhmevaquyadpan.Honnua,vm nh thin lam ehu tap the, va tro cua Chu Uch Hpi d6ng Bp tnrong hoan toan mo nh|t H L phap nam 1980 khong quy dmh quyen han euthS cua Chu tich Hpi dong BP truong Vi vay chiic danh khong dupe xem la mot thilt ch6 quySn luc cp tinh doe lap nhu nguoi dtoig diu Chinh phu HiSn phap nam 1946 Chii tich Hpi dong Bp tnrong duoc xem nhu mpt vi tri diing dau cua Hp ddng, lanh dao diSu ph6i hoat dong cua Hpi d6ng va quy6n han cung pham vi cua H6i dang Hi6n phap nam 1980 ciing khang CO CO ch6 tin nhiem Chinh phu, dodo khong th6 phat huy tinh thin trach nhiem cua cac vien Hpi d6ng Bp trudng, eung nhu tao di6u kien cho Qu3c hpi chu dpng hon viec xu ly cac vien cua Hpi dong Bp truong NguySn tic phan cong, phoi hop va kiim soat giira cac cff quan nha nird'c viec thirc hien quydn lap phap, hinh phap tai Hien phap n9m 1992 (sira doi, bo sung nam 2001) Ve su phan cong giUa lap phdp vd hdnh phap, Dieu Hien phap 1992 sira doi quy dinh quyen lire nha nuoc la thang nhit, CO sir phan cong va phai hpp giua cac co quan nha nuoc viec thuc hien quydn lap phap, hanh phap va tu phap Vtii quy djnh nay, ian dau tien ten gpi cua ba loai quyen luc nha nude theo tu tuong phan quyen dupc hiSn dinh; tit thira nhan su tpn tai cua ba quySn lap phap, hanh phap, tu phap trpng Nha nuac Hien phap nam 1992 co sir phan cong, phan nhiem giua Quae hpi - lap phap va Chinh phu - hanh phap ro rang hon nhidu so voi Hien phap nam 1980 Cu the; quydn lap NHA NirOC VA PHAP LUAT phap thudc ve Qudc hdi, ca quan dai dien cao nhat ciia nhan dan va ciing la co quan quyln luc nha nudc cao nhdt Chinh phii dupc quy dinh la co quan chap hanh cua Qudc hdi, ca quan hanh chinh cao nhat cua ddt nudc, nen Chhih phii khdng edn duac coi la mdt bd phan cua Qudc hdi Chinh phu mac dii v§n la CO quan phai sinh cua Qudc hdi nhung Qudc hpi khdng dm ddm, lam thay cdng viec quan ly cua Chinh phu Viec quy dinh Chinh phu la CO quan hanh chinh cao nhat cd y nghia quan trpng nham khang dinh tinh ddc llip tucmg ddi cua Chinh phu Chiic nang cua Chinh phu la quan ly nha nudc Cdng viec phat sinh hang ngdy hang gid nen can nhiing quydt dinh nhanh chdng, kip thdi, mang tinh thdi su, can cd sy tap trung va thdng nhat qua trinh quan ly Hien phap nam 1992 da nhSn thiic rang, viec trdi chan mdt ngya se hoan toan khac so vdi viec ddng yen cuong cho nd va da dan thay the co che trdi chan Hdi ddng Bd trudng Hien phap nam 1980 bang CO che ddng yen cuang cho Chinh phu phap lenh nam chuong trinh xay dyng luat va phap lenh Qudc hpi quyet dinh Ve su kiem sodt giua lap phdp vd hdnh phdp: Hien phap nam 1992 quy dinh lap phap kiem soat hanh phap thdng qua cac hinh thiic: Chinh phu phai bao cao cdng tac va chiu trach nhiem trudc Qudc hdi; dai bieu Qudc hdi cd quyen chat van Thu tudng Chinh phu va cac vien khac cua Chinh phu; Qudc hdi cd quyen bai nhiem, mien nhiem Thu tudng Chinh phii; phe chuan viec mien nhiem, each chiic Phd Thu tudng, bp trudng va cac vien khac ciia Chinh phu; dinh chi thuc hi6n, bai bd van ban phap luat ciia Chinh phii, Thu tudng Chinh phii neu cac van ban dd trai vdi Hien phap, luat, nghi quyet cua Qudc hdi Tu nam 2001, Qudc hdi dupc bd philu tin nhiSm ddi vdi cac chuc danh Qudc hdi bau hoac phe chuan, dd cd ngudi diing dau va cac vien khac ciia Chinh phu Ngudi bi Qudc hdi bd phieu tin nhiem ma khdng vuot qua (khdng dat tren 50% sd phieu tin nhiem) se bi dua mien nhiem, b§i nhiem Ve suphoi hap giua lap phdp vd hdnh phdp: Chinh phu phai chap hanh Hien phap, hoac each chiic theo quy dinh Vdi quy djnh nay, Qudc hdi chu ddng hon viec xir luat, nghi quyet cua Qudc hdi, phap lenh, ly cac vien cua Chinh phu hoat nghi quylt ciia UBTVQH Chinh phii tryc ddng cua hp khdng dap umg yeu cau va tir dd tiep hoac chi dao cac bp, co quan ngang bd tang cudng trach nhiem cua cac vien ban hanh cac van ban quy pham phap luat de Chinh phii cu thi hda va hudng din vi6c thuc hien Hien phap, lu|it, nghi quyet cua Qudc hdi, phap Hien phap nam 1992 khdng ddt van de lenh, nghi quylt cua UBTVQH Hoat ddng ciia Chinh phit cung tac ddng trd lai vdi Qudc hanh phap kiem soat lap phap Chinh phii hpi nhu: Chinh phu cd quyen trinh dy an luat, khdng cd quyen phu quyet cac du luat cua Qudc hdi, khdng cd quyen de nghj xem xet phap lenh va cac dy an khac trudc Qudc hdi, lai cac quyet djnh cua Qudc hdi Do van UBTVQH; Thu tudng Chinh phu cd quyln chju anh hudng cua nguyen tac tap quyen tham dy cac ky hpp cua Qudc hdi Hien nen Hien phap nam 1992 quy djnh ve kiem phap nam 1992 khdng quy djnh Qudc hdi cd soat quyen luc nha nudc dac biet la kiem quyen ty djnh cho minh hoac giao them cho cdc CO quan khac nhiing nhiem vu, quyen scat cac hoat ddng cua Qudc hpi rat han che hiin ngoai Hiln phap Hien phap cung ngan Mpt so nhgn xet: ngiia sy lam quyln cua UBTVQH bSng quy Mot Id, CO che phan cdng nhiem vu, dinh UBTVQH chi dupc quyln ban hanh cac quyln han va trach nhiem ciia cac co quan > HGHifeN euti I n So 11(387)T6/2019 \ ^ L A P PHAPl *• NHA Nir6C VA PHAP LUAT Hien phdp nam 1992 da dupc the hien tuong ddi rd net Qudc hdi thyc hien chiic nang cua co quan lap phdp; hanh phap - d miic dp nhat dinh - da thudc vl Chinh phii Tuy nhien, tinh din thdi diem trudc Hien phap nam 2013 ddi thi quyen lap phap, hanh phdp vd tu phdp khdng duoc trao mdt cdch ddc lap va binh dang cho cd ba co quan khdc nhau; chi cd Qudc hdi la nhat dupc nam quyen lap phdp, cdc quyen hanh phdp va tu phdp deu dupc thyc hien vdi sy phdi hpp giUa cac co quan nha nudc Su phdn cdng thyc hien quyen lye cung khdng duac thuc hien mdt each triet de Hien phdp khdng the hien ro co quan nao la ca quan thyc hien quyen hanh phap va co quan ndo thuc hien quyen tu phdp, vay nen cd su nhap nhang giiia cac co quan thuc hien quyen lye cua minh Hai Id, vdi viec van dung nhimg hat nhan hpp ly ciia hpc thuyet phan quyen de xac lap mdi quan he giiia lap phap va hanh phap theo co che phan cdng va phdi hpp quyen lye, Hien phdp nam 1992 da cd nhiing quy djnh nham the hien tinh ddc lap, dam chju trdch nhiem cua Chinh phu Ben canh viec khang dinh Chinh phu la co quan hanh chinh cao nhat ciia cd nudc (chii khdng phai ciia Qudc hdi), Hien phap da cd su phan djnh tham quyen giiia Chinh phu va ngudi diing dau Chinh phu la cd nhan Thii tudng Viec quy dinh rd rang quyen han ciia Thu tudng Chinh phu Hien phap da tao cho Thii tudng mdt vj tri phap ly ddc lap vd cd thyc quyen cau tnic quyen lye nha nudc Hien phdp nam 1992 de cao trach nhiem cd nhan ciia Thu tudng, Phd Thii tudng, Bd trudng va cac vien khac theo hudng chii trpng ve trach nhiem ca nhan ciia timg chiic danh chir khdng quy dinh mdt each chung chung ve trdch nhiem tap the nhu trudc day • | n I NGHIEN CUU l U I L A P P H A P ^ S611(387)T6/2019 Nguyen t5c phan cong, hgp vd laem soat giira cac cff quan nha ntr^c tro"gJ ? thirc hien quyln lap phdp, hanh phap tai Hien phap nam 2013 Vl CO ban, khudn khd quy dinh cua Hiln phdp nam 1992 vl co che thi hanh quyln luc cua Chinh phu tiep tuc dupc Hien phap nam 2013 kl thira va cd buoc hoan thien phu hop vdi yeu cau xay dyng nha nudc phdp quyln Tu tudng xuyen suot npi dung sira ddi, bd sung, hoan thien co che thuc hien quyln hanh phap va hanh chinh cua Chinh phii Hiln phap nam 2013 la lam rd hon va dl cao tinh dan chii phap quyln Wong td chiic va hoat ddng ciia Chinh phii theo hudng minh bach, theo phdp lu|t, dupc kilm sodt va bao dam tinh thdng nhat, thdng suot thyc hien quyen lye Ben canh su dilu chinh, lam rd hon nhiem vy, quyln han va trach nhiem cua timg thiet chi Chinh phii, Thii tudng Chinh phu va Bd trudng, Thii trudng co quan ngang bd, Hien phap mdi da cd mpt sd ddi mdi ve ca che thyc thi quyln luc, phii hop vdi tinh chat, vai trd ciia timg thiet che nay, nang cao tinh minh bach, linh hoat, nhanh nhay, de cao trach nhiem ca nhan, nhat la trdch nhiem giai trinh, ddng thdi bao dam gan ket chat che giu-a cac thiet che thyc hien quyen hanh phdp va hanh chinh duoc giao Ve su phdn cong giita lap phdp va /ifln/jp/iop.'vecoban, Hiln phdp nam 2013 van quy dinh Qudc hdi cd hai tinh chdt la co quan dai bieu cao nhdt cua Nhan dan va la CO quan quyln lye nha nudc cao nhdt Tuy nhien, so vdi Dilu 83 Hiln phdp nam 1992 thi Dilu 69 Hiln phap nam 2013 cd hai dilm mdi CO ban la cd su phan biet giira quyln lap hien va quyen lap phdp va khdng quy dinh Qudc hdi la co quan nhat cd quyln lap hien va lap phdp Viec phan biet giiia quyln lap hien, quyen lap phdp la mdt nhirne yeu cau cdt loi cua dan chu va phap quyln NHA NlTdC VA PHAP LUAT Trong nha nudc phap quyen thi quyln lap hien phdi thudc ve nhan dan Nhan dan sir dyng quyen lap hien de thiet lap quyln lye nha nudc, dd cd quyen lap phdp^ Do dd, quySn lap hien phai dat cao hon quyln lap phap va Hien phap phdi la van ban cd hi?u lye phdp ly cao nhat, la cdng cu tay cua nhan dan de phan cdng vd kilm sodt quyen luc nha nudc Hien phdp quy dinh Chinh phu la co quan hanh chinh nha nudc cao nhat, thyc hien quyen hanh phap va la co quan chap hanh cua Qudc hdi So vdi Dieu 109 Hien phdp nam 1992 thi Dieu 94 Hien phdp nam 2013 da dat tinh hanh chinh cao nhdt cua Chinh phii len trudc tinh chap hanh, dieu cho thay Chinh phu phai dupe nhan thiic la CO quan dupc lap trudc het la de thyc hien chiic nang dieu hanh, qudn ly tren co sd chap hanh dudng ldi, chu truong Hiln phdp, luat, nghi quyet cua Qudc hdi chii khdng phdi Id co quan dupc lap chi de phuc tiing va bao cao cdng tde trudc Qudc hpi Hon nua, lan dau tien Ijch sir lap hiln Viet Nam, Hien phdp nam 2013 chinh thiic quy djnh Chinh phu thyc hien quyen hdnh phdp Theo nghia hien dai, thyc hien quyen hanh phdp bao gdm cdc hoat ddng chu yeu sau: hoach dinh vd dieu hanh chinh sach qudc gia; dy thao va trinh Qudc hdi cac du an luat; ban hdnh ke hoach, chmh sach cy the, nhung van bdn dudi luat de thyc thi cac chu truong, chinh sdch, luat da dupc Qudc hdi thdng qua; chi dao, hudng ddn, dilu hanh giam sdt viec thyc hien cac kl hoach, chii truong, chmh sach; thilt lap trat ty hanh chinh tren co sd ciia luat; phat hien, xac minh, xir ly cac vi pham theo tham quyln hoac chuyin cho Tda an nhan dan xet xii theo trinh tu, thu tuc tu phap Quy djnh mdi ndy the hien tu phan cdng rach rdi giiia cdc nhdnh quyen luc, Chinh phii nam mdt loai quyen luc thuc sy chu khdng la phai sinh tii Qudc hdi Chinh phii dupc ddc lap, chu ddng va trdch nhiem hon viec dieu hdnh, qudn ly dat nudc Viec bd sung khdng nhiing the hidn budc tien viec phan biet cac khdi niem hanh phdp, hdnh chinh ma edn khang dinh hdnh phdp la mdt ba nhanh quyen luc tuong ddi ddc lap, phu hop vdi quan diem vd nguyen tac cua td chiic quyen lye nha nudc cd sy phan cdng, phdi hpp vd kiem sodt lan giiia cac CO quan nhd nudc viec thyc hien cdc quyen lap phdp, hdnh phdp vd tu phap Ve suphoi hap giita lap phdp vd hdnh phdp: Khdc vdi Hien phap nam 1980 vd Hien phap nam 1992, noi quy djnh nhiem vu cua Chinh phii ve "bao dam viec thi hanh Hien phdp va phap luat", Hien phdp nam 2013 da quy dinh "td chirc thi hanh phdp luat" thdnh mpt tham quyen cd tinh dpe lap va dac trung ciia he thdng hanh phdp bao gdm Chinh phu, Thu tudng Chinh phii, cdc Bd trudng va chinh quyen dia phuang cdc cdp Vai trd ciia td chiic thi hanh phdp luat la bdo dam cho "dau ra" ciia san pham lap phdp; tao sy gan ket giiia chiic nang lam luat ciia Qudc hdi vdi viec dua phdp luat vac cudc sdng cua quyen hanh phap Dieu thi hien mdi quan he phan cdng, phdi hop giua hoat ddng lap phap vdi boat ddng td chuc thi hdnh phdp luat ciia hai thiet che mang quyen lap phdp va quyen hdnh phdp Mpt so nhan xet: Mot Id, bat dau tir Hien phdp nam 2013, cac khai niem quyen lap phdp, quyen hanh phdp vd quyen tu phap di lien vdi nd la sir dung cac thuat ngii co quan lap phdp, co Trin Ngpc Dirang {2014), CliS dmh Qu6c hgi irong HiSn phap nSm 2013, Binh lu3n kJioa hoc HiSn phdp Viet Nam nam 2013, Nxb Lao dong xa hpi, H., tr 309 ^ NOHIEH CUU I 44 So 11(387}T6/2019 V _ L A P P H A p ' '* NHA NUdc VA PHAP LUAT quan hdnh phap, co quan tu phdp de chi cdc CO quan bp mdy nhd nudc duac chmh thiic sir dung rdng rai Day la diem mdi dang ghi nhan ciia Hiln phdp nam 2013 so vdi Hien phdp nam 1992 sira ddi, vi Hien phdp nam 1992 khdng khdng dinh co quan ndo Id CO quan hanh phap, co quan nao la co quan tu phap Khdng chi phan djnh chiic nang, nhiem vu, quyen han giiia cdc co quan vdi md Hien phdp mdi ciing cd nhumg quy dinh nham phdn biet trdch nhiem giiia cdc CO quan vdi nhung ngudi hoat ddng CO quan (phan biet trach nhiem tap the va trdch nhiem cd nhan), dac biet la hoat ddng eua co quan hdnh phdp Hien phdp xdc dinh rd trach nhi^m cua tap the Chinh phii, cd nhan Thu tudng Chinh phii vd cac thdnh vien ciia Chinh phii hoat ddng qudn ly Hai la, Hien phdp nam 2013 bd sung them mpt npi dung mdi ve td chiic quyen luc nha nudc d nudc ta Dd Id quyen lye nha nudc Id thdng nhat, khdng chi dupc phan cdng, phdi hop ma edn cd sy kiem sodt viec thyc hi?n cdc quyen lap phdp, hdnh phap, tu phdp Day la nguyen tac chi phdi den mdi quan he giii:a cac co quan thyc hien cdc chuc nang lap phdp, hanh phdp vd tu phdp Cling nhu tuong quan quyen luc giiia chung vdi Day la mpt budc tien Idn tu ciia cac nha lap hien, bdi Hien phdp nam 1992 siia ddi khdng dat van de kiem soat lan giira cdc nhdnh quyen lye Ba la, Hiln phdp nam 2013 cd nhilu quy djnh mdi, tien bd nham phdt huy ban tinh than trpng ciia Qudc hdi, tdn trpng phdp quyen va phdt huy sy ddc lap, chu ddng, kien tao manh me va dam chju trdch nhiem ciia Chinh phii - co quan thyc hien quyen hanh phdp Qudc hdi da khdng edn Id CO quan cd todn quyen nhu co che tap quyen ma chi la co quan nam giir mot ^ n I NGHIEN Cim I I ' I L A P P H A P ^ S6 11(387) T6/2019 loai quyen luc co cau quyen Ivc H phap nam 2013 da dat tinh hanh ehinh cao ^ a t cua Chinh phu len t™c 'inh chap h a * va chinh thiic quy djnh Chinh phu h j hpn quySn hanh phap Hien phap "5™ 2013 quy dinh cho Chinh phu vi tri nhu the la vi Chinh phu true tiSp nhan quy^n hanh phaP " "h™ dan, chinh nhan dan phan cong Chinh phu thue hien quyln hanh phap chir khong phai la Quae hpi nhu nhan thuc eo che tap quySn XHCN truoc day Che lam vice tap tha giiip Chinh phu dan chii hon vice dua cac quyat dinh Tuy vay, vai tro ciia Thu tuomg - nguoi dirng d k Chinh phu van duac the hien thang qua nhimg nhiem vu, quySn han rieng Co chS chiu trach nhiem ciia cac vien Chinh phu ciing co sir thay dai: Thu tuong phai chiu trach nhiem trucrc Qu8c hpi ve hoat dpng ciia Chinh phii ve nhimg nhiem vu dugc giao; bao cao cong tac cua Chinh phii, Thu tuong Chinh phii truoc Quae hpi Quy dinh ke thira Dieu 54 Hien phap nam 1946 (Thu tuong chiu trach nhiem ve duong chinh tri ciia Npi cae) Ngoai ra, Hiln phap nam 2013 eon quy dinh Thii tuong sau dupc Quoc hpi bau phai tuyen the trung vai To quoe, voi Nhan dan va Hien phdp Pho Thu tuong phai chju trach nhiem truoc Thii tuong vl nhiing nhiem vu duoc giao Cac Bp truong, thii trucmg co quan ngang bp phai chiu trach nhiem ca nhan truoc Thii tuong, Chinh phu va Quoe hpi vi nganh va ITnh vuc ma minh phu trach Ciing nhu Thu tuomg, Bp truong CPU phai bao cao cang tac truoc Nhan dan vl nhiing van dl quan trpng thupe trach nhiem quan ly Nhiing diem moi nham phat huy nang lue ca nhan, quylt doan va chiu trach nhiem ciia cac vien Chinh phu, nhu vay mai dam bao cho cac vien Chinh phii dam nghi, dam lam va dam chiu trach nhiemB ... dang ghi nhan ciia Hiln phdp nam 2013 so vdi Hien phdp nam 1992 sira ddi, vi Hien phdp nam 1992 khdng khdng dinh co quan ndo Id CO quan hanh phap, co quan nao la co quan tu phap Khdng chi phan... dupc quy dinh la CO quan chap hanh cua co quan quyen lye nha nudc cao nhat va la co quan hanh chinh nha nudc cao nhat cua Viet Nam dan chii cdng hda (Dieu 71) Vdi tu each la co quan chap hanh cua... viec quan ly cua Hpi ddng Bd trudng Mdi tuong quan giua lap phap va hanh phap nghieng han ve phia Qudc hdi Hanh phap chi duoc quan niem la mpt bd phan boat dpng dudi sy chi dao ciia CO quan lap