Nguyen tac phan cdng, phoi hop va kiem scat giva cac ctr quan nha nird'c trong vi^c thirc hi€n quyln l^p phdp, hanh phap tai Hien phap nam 1959 Theo quy djnh cua Hien phap nam 1959, quye
Trang 1NGUYEN 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 nay sinh doi hoi tu nhien va ehtnh dang la phai kiem soat quyen 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 trong timg giai doan tuong ling Article Infomation;
Keywords: Legislation entity;
execution entity; power controlling; the
Constitution ofVietnam
Article History:
Received
Edited
Approved
28 May 2019
10Jun2019
19Jun2019
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
1 Nguyen tac phan cong, phoi hgfp v^ kiem
so^t giO-a c6c cff quan nlia nvtffc trong 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 do Chinh phu bo nhiem Cac nha lap hiSn nam 1946
da nhan thay rang, hanh phap la mot trong nhimg nhanh quyen luc quan trong va co
Trang 2moi quan he mat thiet vai hai nhanh quyen
luc con 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 5 nam - dai
han so vai nhiem ky 3 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 nay
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 thanh 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
thanh vien cua Chinh phu phai la thanh vien
cua Nghi vien
Ve kiem soat giiia l§p phap vai hanh
phap, lap phap kiem soat hanh phap the hien
6 cho: tham gia thanh 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 do Chinh
41 NCHI£N cini
I 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 thanh 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 khi pham toi phan quoc; l^t do Chinh phii qua viec bieu quyet van de tm nhiem Thii tuong va Noi cac Hanh phap kilm soat lai lap phap the hien 6 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 d l tin nhiem Npi cac ra Nghi vien thao luan lai trong 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 khi 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 trong Hien phap nam 1946 duoc hinh thanh tren co so can phai co mpt Chinh phu manh de doi pho 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 nay la mot Chinh phu chii trong thuc tl va se n6 luc lam viec, d l tranh thu quyen doc lap va thing nh4t lanh t h i cung xay dung mot Nha nuac Viet Nam moi"
Hai la, moi quan he giita lap phap va
hanh phap trong 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 thanh co chi kilm soat quyln luc giiia lap phap va hanh phap va tao ra c h i
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
Trang 3khong 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 con dat ra 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 khi
chinh Nghi vien tuyen b6 tu giai tan Quy
dinh nay 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, tuy nhien, nlu
Nghi vien van tiep tuc bilu quylt vai ty le
nhu ban dau thi Noi cac duong nhien phai
bi lat do 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, trong 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 trong 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, trong 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 nay la co sd tao nen mdt Chinh phii manh, ban ITnh va quylt doan
2 Nguyen tac phan cdng, phoi hop va kiem scat giva cac ctr quan nha nird'c trong 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 trong 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
Trang 4xay ra 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 ra 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 con 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 trong khi vdi Hien phap nam 1946
thi Chii tich nudc khdng nhung nam mdt
nhanh quyen lye, phdi hpp cac nhanh quyen
lye ma con 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 thanh 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
trong 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 6 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 bang CO chS bit tin nhiem, thay vao do la chS d.nh bai mita tvrag thanh viSn c l a Chinh phu vi cac nha lap hien trong giaidoan nay 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 trong 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 do Quoc hpi lap ra 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, do 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 do chinh Quoc hpi lam ra 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, do 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
gia, H., tr 56 tien ve xay dttng va ban hanh Hian phap, Nxb Chinh tri quflc
61 Ctfu
Trang 5phap 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 khi 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
trong viec ban hanh cac dao luat do Qudc
hpi cd toan quyen trong 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 con nhieu
nhiem vu, quyen han nhu Chinh phii trong
HiSn phap nam 1946 Co che tin nhiem
Chinh phu khdng con 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
3 Nguyen tac phan c6ng, ph6i hop va
Idem soat giu-a cdc co quan nha nird'c
trong 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 duy
nhat cd quyln lap hien, lap phap Qudc hpi
bau ra 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 con cd the ty
dinh ra cho minh nhimg nhiem vu, quyen
han khac khi 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 nay lam cho mdi quan he giua
ISp phap va hanh phap trong 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 nhau 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 thanh 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 thanh 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 trong 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, do chiu anh hudng manh me
HGHIfeH Ctfu I 7
Trang 6cua 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 trong 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 trong 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 trong Hien phap nam 1980 khd
phan dmh; cd sy chdng cheo trong 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 nhau 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
81 NGHl£N Ctni ,
dang BO tmong khong con toan quyen ngay 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 nay khong dupe xem la mot thilt ch6 quySn luc cp tinh doe lap nhu nguoi dtoig diu Chinh phu trong 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 trong 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 thanh vien Hpi d6ng Bp trudng, eung nhu tao di6u kien cho Qu3c hpi chu dpng hon trong viec xu ly cac thanh vien cua Hpi dong
Bp truong
4 NguySn tic phan cong, phoi hop va kiim soat giira cac cff quan nha nird'c trong 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 2 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 trong 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 do 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
Trang 7phap 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 nay 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 trong qua trinh
quan ly Hien phap nam 1992 da nhSn thiic
rang, viec trdi chan mdt con 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 trong Hien phap nam 1980 bang
CO che ddng yen cuang cho Chinh phu
Ve suphoi hap giua lap phdp vd hdnh
phdp: Chinh phu phai chap hanh Hien phap,
luat, nghi quyet cua Qudc hdi, phap lenh,
nghi quylt ciia UBTVQH Chinh phii tryc
tiep hoac chi dao cac bp, co quan ngang bd
ban hanh cac van ban quy pham phap luat de
cu thi hda va hudng din vi6c thuc hien Hien
phap, lu|it, nghi quyet cua Qudc hdi, phap
lenh, nghi quylt cua UBTVQH Hoat ddng
ciia Chinh phit cung tac ddng trd lai vdi Qudc
hpi nhu: Chinh phu cd quyen trinh dy an luat,
phap lenh va cac dy an khac trudc Qudc hdi,
UBTVQH; Thu tudng Chinh phu cd quyln
tham dy cac ky hpp cua Qudc hdi Hien
phap nam 1992 khdng quy djnh Qudc hdi cd
quyen ty djnh cho minh hoac giao them cho
cdc CO quan khac nhiing nhiem vu, quyen
hiin ngoai Hiln phap Hien phap cung ngan
ngiia sy lam quyln cua UBTVQH bSng quy
dinh UBTVQH chi dupc quyln ban hanh cac
phap lenh nam trong chuong trinh xay dyng luat va phap lenh do 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 thanh 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 thanh 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 do Qudc hdi bau hoac phe chuan, trong dd cd ngudi diing dau va cac thanh 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 ra mien nhiem, b§i nhiem hoac each chiic theo quy dinh Vdi quy djnh nay, Qudc hdi chu ddng hon trong viec xir
ly cac thanh vien cua Chinh phu khi hoat ddng cua hp khdng dap umg yeu cau va tir dd tang cudng trach nhiem cua cac thanh vien Chinh phii
Hien phap nam 1992 khdng ddt van de hanh phap kiem soat lap phap Chinh phii khdng cd quyen phu quyet cac du luat cua Qudc hdi, khdng cd quyen de nghj xem xet lai cac quyet djnh cua Qudc hdi Do van con chju anh hudng cua nguyen tac tap quyen nen Hien phap nam 1992 quy djnh ve kiem soat quyen luc nha nudc dac biet la kiem scat cac hoat ddng cua Qudc hpi rat han che
Mpt so nhgn xet:
Mot Id, CO che phan cdng nhiem vu,
quyln han va trach nhiem ciia cac co quan
> HGHifeN euti I n
Trang 8trong 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 khi
Hien phap nam 2013 ra 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 duy 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 khi 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 trong Hien phap da tao cho Thii
tudng mdt vj tri phap ly ddc lap vd cd thyc
quyen trong 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 thanh 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
5 Nguyen t5c phan cong, pho 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 trong 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 trong 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 nay trong 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 duy nhat cd quyln lap hien va lap phdp Viec phan biet giiia quyln lap hien, quyen lap phdp la mdt trong nhirne yeu cau cdt loi cua dan chu va phap quyln
Trang 9Trong 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, trong 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 trong
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
nay cho thay Chinh phu phai dupe nhan thiic
la CO quan dupc lap ra trudc het la de thyc
hien chiic nang dieu hanh, qudn ly tren co
sd chap hanh dudng ldi, chu truong trong
Hiln phdp, luat, nghi quyet cua Qudc hdi
chii khdng phdi Id co quan dupc lap ra chi de
phuc tiing va bao cao cdng tde trudc Qudc
hpi Hon nua, lan dau tien trong 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 duy phan cdng rach rdi giiia cdc nhdnh quyen luc, Chinh phii nam mdt loai quyen luc thuc sy chu khdng con la phai sinh tii Qudc hdi Chinh phii dupc ddc lap, chu ddng va trdch nhiem hon trong viec dieu hdnh, qudn ly dat nudc Viec bd sung nay khdng nhiing the hidn budc tien trong viec phan biet cac khdi niem hanh phdp, hdnh chinh ma edn khang dinh hdnh phdp la mdt trong 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 nhau giiia cac CO quan nhd nudc trong 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 nay 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
3 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
Trang 10quan hdnh phap, co quan tu phdp de chi cdc
CO quan trong 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
nhau md Hien phdp mdi ciing cd nhumg quy
dinh nham phdn biet trdch nhiem giiia cdc
CO quan nay vdi nhung con ngudi hoat ddng
trong CO quan do (phan biet trach nhiem tap
the va trdch nhiem cd nhan), dac biet la trong
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 trong 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 trong
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 trong khi
thyc hien cdc chuc nang lap phdp, hanh phdp
vd tu phdp Cling nhu tuong quan quyen luc
giiia chung vdi nhau Day la mpt budc tien
Idn trong tu duy ciia cac nha lap hien, bdi
Hien phdp nam 1992 siia ddi khdng dat ra
van de kiem soat lan nhau 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 trong co che
tap quyen ma chi la co quan nam giir mot
^ n I NGHIEN Cim I
loai quyen luc trong 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 trong eo che tap quySn XHCN truoc day
Che do lam vice tap tha giiip Chinh phu dan chii hon trong vice dua ra 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 thanh 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 nay ke thira Dieu
54 Hien phap nam 1946 (Thu tuong chiu trach nhiem ve con duong chinh tri ciia Npi cae) Ngoai ra, Hiln phap nam 2013 eon quy dinh Thii tuong sau khi dupc Quoc hpi bau phai tuyen the trung thanh vai To quoe, voi Nhan dan va Hien phdp Pho Thu tuong con 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 nay nham phat huy nang lue ca nhan, quylt doan va chiu trach nhiem ciia cac thanh vien Chinh phu, nhu vay mai dam bao cho cac thanh vien Chinh phii dam nghi, dam lam va dam chiu trach nhiemB