IV. CAC LUAN DIEM VE MO HINH LAP HIEN CUA BO MAY QUYEN LI/C NHA NU^OC
1.Thu-e trang cua van de nghien cihi Cdc Nghj quyit cua Dai hg
Ddng Idn thir XI, cae Hdi nghj TW 2 vd TW 5 khda XI vl SDHP khi dl cap den nhdnli QHP irong HPSD da dua ra luan dilm mang tinh chi dao
Id: "Nghien ciiu xdc dinh ro han quyen hgn vd trdch nhiem cita Chit rich nude de thuc hiin ddy du chuc ndng nguyen thu qude gia thay md! Nhd nude ve ddi ngi, ddi ngogi vd thdng ITnh cdc luc lugng vii trang nhdn ddn, quan hi giiea Chu tich nude vdi cdc co quan thue hien quyen lgp phdp, hdnh phdp vd tit phdp". Hon niia, mdc dii cdng cudc cai each hanh
chinh trong thdi gian qua dd dugc thyc hien, nhung r5 rang Id hipn nay ehung ta vdn chua cd cac ca che phap ly thyc su hiru hieu dl dam bdo cho boat ddng ciia bg mdy hdnh phdp (Chii tjch nude, Thii tudng vd Chinh phii)
thiec su mcinh trong viec dieu hdnh, qudn ly ve mat nlid nude - hdnh chinh
vd Idnh dao kinh te eua ddt nude. Vi thyc trang td chuc va thuc hien QIIP d Viet Nam hipn nay eho thdy mdt sy that hien nhien ma ai ciing cd thi de ddng nhdn thdy la: trong khi Thii tudng vdi tu each Id ngudi dimg ddu ndi cac - Chinh phii qua tdi vi Hien phap ndm 1992 dd giao cho Chinh phu qua nhieu tham quyen vd lam khdng bet viee, thi thdm quyin cua Chu tjch nude vdi tu each Id nguyen thii qudc gia lai qua ban ehl vd rat it vipc. Thuc trang bdt cap nay cd the de ddng nhdn thdy rdt rd khi phdn tich ehl djnh Ciui tich
nude dugc de cap trong Chuang VII "Chu rich nude" vdi ca cau gom tdm
Dieu (101 - 108) ciia Hien phdp nam 1992 hipn hanh md dudi ddy vtri thai dg cdu thj chiing ta cdn phdi thdng than chi ra dl gdp phdn giup Ban bien typ thugc Uy ban Dy thdo sira ddi (UBDTSD) Hiin phap ndm 1992 hilu rd dugc nhdm gdp phan soan thdo cho cdc thi he hdm nay va mai sau mdt ban Hiin phap mdi khoa hgc, dan chu vdi nhanh QHP ndi chung va ehl djnh Chu tjch nude ndi rieng manh vi Itii ich eiia Td qude vd nhdn dan:
1.1. Me)l Id, cung nhu tdt cd 139 Diiu kliac ciia Hiin phap mini 1992
deu khdng cd te:n ggi. ddng thdi KI Li-1 chua dat vi co cdu ciia cdc Dieu chnea biio ddm linh nhdl qudn ve rniit Idgic phdp ly khi trong 8 Dieu nay
chi cd mdt Diiu (103) hi theo khoan (cd 12 khoan), etin tdt cd 7 Dieu cdn
lai (101, 102, 104 - 108) - ihco dt.an (Vi du: Diiu 104 cd 5 doem).
1.2. Hai Id, khdng cd su phan biet mpl each khoa here, rd rdng vd til.nil ineieh cdc nhdm quy pham ciia che dinh Chii tjch nude tuong ung
vdi tung Diiu (khoan) trong Hien phap lan lugl de cap den nhu-ng vdn de
theo thu tu nhu: 1) Dia vi phdp ly ciia Chu tjch nude vdi tu each la ng uyen thii qudc gia; 2) Chiec ndng cua Chii tich nude trong BMQL nhd nu'dc; 3) Vai Hi) cua Chii tich nutre trong mdi quan he ciia eac nhdnh qu yen lue nhd nude; 4) Nhung tham quyen cu the ve ddi ndi eiia Chii tjch iiu^dc lan lugt vdi tu each la ngiu'ri dieng eldu nhdnh QflP va Thdng ITnh cdc LLVTND; 5) Nhung thini quyen cu ihe* ^c ddi ngogi ciia Chii tjch
nu'dc va; 6) Quy irinh budc phai lir ehirc (hay cdn ggi la thii tuc dan bach) ddi vdi Chil tich nude.
1.3. Ba Id, trong bdi canh loan cdu hda va hdi nhap qudc te hipn nay thii cac ITnh vuc ddi ngogi ddi vdi mdt nguyen thii qudc gia la quan trgng
iihiu vay nen nhung thdm quyen ciia Chu tjch nude Viet Nam trong cae
ITmh virc nay le ra cdn phai cu thi hda vd di ceip trong mgt Dieu rieng biiit, nhung rat liec la Hien phap ndm 1992 chi ghi nhdn chiing ven vpn tail mgt khodn 10 Dieu 103 va lai xen Idn chung cd trong nhieng thdm cjuiyin vi ddi ngi. Thiet nghT, KTLH nhu vay rd rang la khd md cd the
cbidp nhdn dugc.
1.4. Bdn Id, theo lien le, cac ham, cap .sy quan cdp cao trong Quan
ddii (kl cd cua Viet Nam va ciia nutre ngodi) tir trudc den nay thudng
durgc hilu la tu cdp tudng (Chudn dd ddc hai quan) trd len va Hien phdp
ndim 1992 (khodn 9 Diiu 103) da trao thdm quyin ndy cho Chii tjch nude,
nhiung khdng hieu nguyen nhan vi sao Luat "Ve Cdng an nhdn ddn" vd Luidt "Vi sy quan Qudn doi nhdn ddn" (ban hanh sau ndm 2001, Id ndm sirra doi Hiin phdp Idn thir nhal) da "tiiy tien ban chi" theo hudng thu hep thidm quyin ndy ciia Chii ljch nutVe khi quy djnh Chii tjch nude chi phong hdim, cdp sy quan cao cdp tir Thucrng tudng {Do ddc hdi qudn) trd len, vdy
mid that Id vd ciing ky la vi khdng hieu tai sao hai Ludt nay van duge Qiudc hdi thdng qua (!?).
1.5. Ndm la, mdt sd quy djnh ve thdm quyin cua Chii tjch rartrc edn mdu thudn, chua rd rdng vd gdy khd hieu vi quyin ndng dich thuc cita nguyen thu qude gia - ngudi dieng ddu QHP md theo thdm quyin hiin
djnh (khoan 3 Diiu 103 Hiin phdp nam 1992) ehinh Id ngudi dl nghj Qudc hdi bdu ra ngudi dimg ddu Ndi cdc (Thu tudng Chinh phu) nhung
lai chi cd quyen "tham du" cdc phien hgp eiia Chinh phii (doan 2 Diiu
105), thdm ehi khdng ed quyin bilu quyit (chir dirng ndi gi den quyin chil tga phien hgp dd), ma le ra da la nguyen thu qudc gia - ngudi dung dau QH? - dai dien cho Nha nude ve doi ngi va ddi ngoai thi phdi cd
toan quyen chu tga phien hgp eiia Chinh phu (nhu dilm "d" Diiu 49 Hiin
phdp nam 1946 trong thdi dai Hd Chi Minh). Vi nlu nhu quy dj.ih trong
Hiin phap ndm 1992 hien nay, thi theo ThS. Cao Vii Minh (Trudng DH
Luat TP. Hd Chi Minh) la "nhu thi khac ndo Chii tjch nude chi hgp "dy thinh' ma khdng hi cd thuc quyin") (•TL 73, tr.31).
1.6. Sdu Id, dae biet trd ngai Idn nhat cho vipc thi thvrc ehl dinh Chii
tjch nude trong thyc te la mac dii ddi vdi cdc quy djnh vl ehl dinh nay duge ghi nhdn trong Hiin phdp nhung van chua hi dugc cy thi hda bdng mdt dao ludt tuong irng rieng biet nhu doi vdi cdc quy pham biln dinh vl cac ea quan khdc trong BMQL nlia nude (Qudc hdi, Chinh phu, he thdng TAND va he thdng VKSND).
1.7. Vd cudi cimg, bdy Id, cd le vi vdy md mgt sd khilm khuyit khac
ciia cac quy djnh ve ehl djnh Chu tjch nude trong Hiin phap nam 1992
da dugc thdng thdn chi ra d Phan C "Hgn ehi vd nguyen nhdn" trong bao cao cua Vdn phdng Chu tjch nude "Ve Tdng kit vi^c thi hdnh Hiin phdp ndm 1992 (Nhieng ndi dung lien quan din chiec ndng, nhiem vu va quyin hgn ciia Chii tich nude CHXHCN Vi^t Nam)" (cdc tr. 15 - 16) nhu: "Thdm
quyin, trdch nhipm ciia Chii tjch nude trong Hiin phdp 1992 quy djnh chua ro va cd mdu thuan nhau giua tu tudng ciia Hiin phdp vd quy djnh cu the; vice Chii tjch nude thyc hipn chire ndng, nhiem vy vd qu/ln ban cua minh tren mdt sd ITnh virc chi cd y nghTa hgp thirc hda thu tic hdnh chinh cho cdc co quan khdc ciia Nhd nude... Chii tjch nude theo Hiin phap 1992 la md hinh nguyen thii qudc gia vira mang tinh bile tugng, vira khdng cd thyc quyen thi quy djnh khdng rd rang, nhiiu mdi; thuan, dan den liing tiing...; mdi quan he gitra Chii tjch nude vdi eac to quan thyc hien QLP, QHP vd QTP chua dugc quy djnh rd, v.v...".
2. Nhung CO- sd khoa hoc - thuc tien vdi tu each la nhung mue tieu cua vice tl chiic QHP trmVc you tau HPSD trong giai doan xay dung NNPQ d Viet Nam. Tir thue trang da neu tren cua vice td chuc QHP d nude ta trong 65 nam qua (dac biet la kinh nghiem lap hien trong Hien phdp Viet Nam ndm 1946), done thdi nghien cdu thye tien td chuc BMQL nha nude tai cdc NNPQ tren thi gicri va thuc lien qudc te hipn dai nhiing nam qua dd cho thdy, viec ghi nhan cac quy pham hien djnh ve td ehirc nhdnh QHP trutie yeu cdu HPSD trong giai doan xay dung NNPQ d Viet Nam cd
till dugc tnln khai theo mot trong hai phuong an Id: 1) Phuang an I - dua tren ca sd kinh nghiem ciia lliln phap nam 1946 (khi Chii tjch nude Id Chit tga Hdi ddng Chinh phii, lire la ngudi dieng ddu QHP nen ddng thdi true liip diiu hdnh nhanh QHP nhung chi mgt sd ITnh vuc quan trpng hon cd trong nhanh ndy) HPSD se phdn dinh rd hai nhdm co quan hanh phdp
(CQHP) - cac CQHP true thudc Chii tich nude (nhung bao gdm eac
Bg/co cau trong bdn ITnh VTJC la ngoai giao, qudc phdng, an ninh, BVPL) vd cdc CQHP true thudc Chinh phii (bao gdm cac Bd ca cdu trong ITnh vyc kinh tl, tai chinh, thuang mai); 2) Phirtmg an II - theo diing ludn diem chi dao eiia Dai hdi XI va Nghj quyet TW Idn thu 2 khda XI (lhdng 7/2011) vd Nghj quyit Quoc hdi (thdng 8/2011) ve sua ddi, bd sung che djnh Chu tjch pudc theo hudng da neu tren, tue la Chu tjch nude dung
ngodi ba nhdnh quyin lyc nhd nude (QLP, QHP va QTP) de nam quyen KTrHP nen Chu tjch nude se la Chii tjch Hgi ddng Hiin pheip de dieu hda, phdi hap vd kiim sodt viee thyc hien quyen luc nha nude cua tat ca
eac CO quan trong BMQL nhd nude nham BVHP trdnh khdi viee ban hanh cac VBVH vd ngan ngira nhirng hdnh vi vi pham Hien phdp. Thiet nghT, viec td ehirc nhdnh QHP theo mdt trong hai phuang an nay khdng
thi vd khdng phdi la mpt mue dich ty thdn ma nd dya tren ndm co sd khoa hgc, thyc tien va ciing chinh la dl dat dugc ndm myc tieu cao ca vi Igd ich chung cua Td qudc, nhdn ddn vd todn thi xd hgi sau day:
2.1. Tha nhdt, bdo dam tinh thira kl kinh nghiem tdt vl td chuc Chinh
phu ciia Hiin phap ndm 1946 (dugc soan thdo dudi sy chi dao true tiep eua Chil tjch Hd Chi Minh) ma ban be qudc tl khdp nam chau rat ca nggi (dd Id chua mudn bdn din viec Chu tjch luc bay gid la nguyen thii qude gia -ngirdi dimg ddu nhanh QHP va true tiep chi dao tdt cd cac Bg, ca cau trong Chinh phii, chir khdng phdi chi cd Bg Ngoai giao va cac Bg "sue manh" nhu da neu tren);
2.2. Tha hai, mat khdc, sy phan cdng lao ddng quyin lyc ngay trong ndi
bg mdt nlianh quyin lyc (QHP) nhu vay se dem lai kit qua tieh eye la: I) Ed bdng chimg cho thi gidi didy rdng, Chii tjch nude ciia Viet Nam dich thyc la
nguyen thii qudc gia, ngudi dimg ddu QHP vd cd thuc quyin; 2) Gdp phdn
san se bdt ganh nang qudn ly nha nude giira Thii tudng Chinh phii - ngutri dung ddu Ndi cdc vdi Chu tjch nude - ngudi dung ddu Nhd nude, dung ddu
QHP; 3) Gdp phdn khdc phyc dugc tinh trgng qud tdi hi^n neiy ciia Thu tudng Chinh phii vi phai mat rat nhiiu thdi gian cho vipc quan ly cung mgt mgt Hie qud nhieu ITnh vuc ciia hogt dgng thugc nhdnh QHP nen ddn din hi^u qud lanh dgo Chinh phii bi hgn ehi (minh chimg rd net nhat khdng thi
bac bd dugc la cac vy viee Vinashin va Vinalines gay tdn thdt cho dat nude den hang tram, nghin ty ddng).
2.3. Tha ba, gdp phan khac phyc duge tinh trang "vita dd bdng, vira thdi cdi" hien nay cua Chinh phu vi chua cdn bdn din ddng co hay myc dich cua cdch lam la gi, nhung ro rang la hieu qud cita cugc ddu tranh phdng chdng tham nhiing (PCTN) se thdp nlu chiing ta cir bao thii, khdng cau
thi md tiep tue thyc hien phuang thuc "2 trong 1" thiiu khdeh quan dd loi thdi
tir lau - phan cdng cho cimg mpt ca cau vira quan ly cdc ITnh vyc sir d\ing nhieu ngdn saeh cua Nha nude (nhu: kinh tl - xd hdi, tai chinh - thuang mai, v.v...) lai vira quan ly ITnh vyc BVPL (nhu: Thanh tra Chinh phu, Bd Cdng an)
la ITnh vuc lien quan din hogt dgng ddu tranh di chdng lgi chinh viec sd dung sai ngdn sdch Nhd nude. Chlnh vi v^y, vipc Hdi nghi TW 5 kJida XI ra kit ludn
chuyen Ban chi dao TW vl PCTN tir ca cau cua Chinh phu sang co cdu ciia Bg Chinh tri BCHTW Dang va tryc thudc tham quyin cua Tong bi thu Id mgt quyet djnh rat sang sudt va hgp vdi y Dang, Idng ddn nen cdng lam tang them uy tin cua Dang (van dl tilp theo chi cdn la hipu qua boat ddng thyc tl ciia Ban nay ra sao). Tuy nhien, van dl quan trgng la cdn phdi tim ra gidi phap hgp ly va diing ludt dl ghi nhdn cac quy pham vl Ban nay trong ludt ndo (?) va nhu the nao (?) dl cho cdng cugc ddu tranh PCTN dat dugc hipu qua Id mgt cdu hdi rat khd can phdi dugc cac nha lap phap suy ngam ky cang va dua ra cdu tra Idi.
2.4. Tha tu, do khdng phdi qud tdi vd dd mdt thdi gian do phdi chi dgo true liip tdt ca cac Bp/ca cau trong Chinh phii nua (vi nhu tren da
phan tich d tren la cdc CQHP thupe 4 ITnh vyc hdu nhu khdng cd lien quan gi nhiiu din kinh tl, tdi chinh, thuang mai, ddt dai, khoang san va tai nguyen, v.v... eiia ddt nude do la cac Bd/ea c|u "sue manh" nhu quoc
phdng, an ninh, BVPL va Bd Ngoai giao se dugc HPSD phdn edng tryc
thudc Chil tjch nutre) nen Thu ludng Chinh phis se khehig hi qud tdi md ci) the tap trung dugc nhiiu thdi gian vd tri tiii Iu/n nica cho vice ndng cao hiiu qud diiu hdnh vTmd nen kinh te qudc o'ein lhdng qua cdc CQHP
true thudc Chinh phii trong cac ITnh \ uc cd su dung nhieu ngdn saeh Nhd nude (nhu da neu tren) va nhu vay. rd rang la n}u nang lue Idnh dao, dieu hanh ciia ngudi dimg ddu ndi cac gioi ihi duirng nhien, theo Idgic ciia vdn de si; dan din kit qud tich cue rat ich nude l(;a dan.
2.5. Tha nam, nin kinh tl quoc dan se tang trudng nhanh -^- dan se
giau, nude si! manh —> quan cliung se ed cudc sdng am no, hanh phuc vi nhdn ddn (nhdt Id cac gia dinh ngheo d viing sau, viing xa) dugc bdo ddm
it nhat 4 nhu cdu tdi thieu ciia mdt con ngudi sinh ra tren ddi la: chira benh (1), nlia d (2). vice lam (3) \a hgc hanh (4) -^ Idng tin ciia nhan dan vao Chinh phii ngeiy ce'ino tdng --<• uy tin cua Dang cam quyen nge'iy cdng len cao —» si! hgn che duge a mice initp nhdl su phein chia sdu sdc giau - ngheo trong xd hdi —• dat nude se binh yen vi mdu thudn xd hgi se khdng gay gdl din mue lam cho du luan biic xiic va dan den bao loan ddm mdu,
buynh dp tuong tdn, noi da nau thjt (nhu d mgt sd qude gia Trung Ddng vd Bdc Phi) hay cac cutic bieu tinh chdng Chinh phii trong cao trao
"Chiim idy phd Wall" (nhu d cac nude Anh, My) trong ndm 2011 vira
qua hay d Xyri hien nay.
2.6. Vd chinh vi vay, thu sdu, chirng ta can phdi nhin nhdn mdt each
khach quan rdng tlurc trang qudn ly dieu hanh kem ciia Chinh phii da de xay ra cac vy PMU 18, Vinashin hay Vinalines cung mgi phdn la do loi ciia he thdng, ca chi phi khoa hpc tap ra (vi Hien phap niun 1992 hien hanh da giao
cho Thu tudng Chinh plui qud nhieu viec nen mgi ngtedi khong thi lam xui, khdng dii thdi gian cd ihi hao qudt due/c tdl ca cdc ITnh vuc qudn ly nhd nude nhu vciy). Do dd, dl gdp phan tranh klidi .sai lem dd xdy ra, rd rang la I lien phdp mdi can phdn cvng lao eldng quyin luc nhd nude, san se bdt tham
quyin hiin dinh ciia nhanh QHP ra dl Chii tjch nude ciing ganh bcit trach nhiem trong 4 ITnh vuc nhu da neu tren.
Nhu vay, vl phuang dien nay, tien till ciing xin luu y rang: y kien ciia Uy vien Bd CWnli tri BCHTW Dang, Chii tjch nude Tnrong Tan Siuig trong budi Hdi thao ban vl SDHP do Van phdng Chii tjch nude to chire vdi su tham gia cua mdt so chuyen gia phap luat va nhd khoa hgc - luat gia ciia dat nude (Ha Ndi, 15/3/2012) la hoan loan dimg ddn va cd sire thuylt phuc, dai y la: Trong
bdt ky mdt qudc gia nao (dii Id chi c6 mgt dang cdm quyin) nhung nlu nhu Ban lanh dao ciia dat nude khdng cd tu duy "vimg - miln", eye bd, ban vj, hpp