Improving the mechanism for settlement of administrative disputes an important contribution to public administration reform in vietnam today

In ađdi li on, the logicalily in such a lopic al so dravvs m y aỉtention... Administr alive law in he í br me r ai med 0 coiilribute to the socinlist regiine in vvhicli collecỉivism wa s

I lì s p a p c r is locusetl 011 iho lovv-eíĩcct o f Ihc e xi s ti n g A d m i n i s l i a l i v c Di vi s io n C o ur l modcl ,

l l n c ì s u p p l i c s an ovcrall VICVV o í t he \ vh o le p r o c e s s í br i m p r o v i n g llic m e c h a n i s m for S A D a nd

t h i e P A R in V i c i n a m , \ v h i l e s i i m i l l n n e o u s l y c o n r i r m i n g tlie m u l u a l r c l a l i o n b e h v c c n l l i c m

lDi'11' i n ạ l l i c s l i i d y l l i c f o l l o w m g i s s u e s v v c r c a d d r c s s c d :

Ki rxt lv, tliis p a p e r c o n í i r m s Ihe i mporlíint coiHributioii Ibr llic i m p r o \ cinenl ol llic

i m a h a n i s m lor S A D tcnvard Ihe o vc r a l ỉ p r o c c s s O Í P A R in V i c l n am SÍIICC thc f o r m c r a i m c d to

ca anỵ out t hc ma i n c o n l e n l s as wc ll as llic o bj c c l i v e acklicsscd hy llic latlcr It p m v e d Ihc

1 11 Itrc iiia llc r ic lc n e đ lo Í1S S A I )

11 lis tcrm mcriiis " llc c h l slanl OI l.cụ íil S la lc " lliiil is comnion usc in llic 1’ iirly 's Kesolutious and S la lc ’s law dooam ents alìei' pcilorm inu tho “ D o iM o ì" po licy in 1080

1 11 lítcinnfìcf' rc lc n v d lu as Iv\

in d isp e n sab le nced ío r the e sla b lis h m e n l o H h e A d m in is tra liv e D iv is io n C o u rt thai re-m arked

llio developm ent o f the “ ju d ic ia l revicxv o f a d m in islra tiv e actio n s” p re v io u sly unknow n in

V ietn am , and also made the V ietn am ese legal system catch up w ilh the developm ent o f legal

Science in ihe rest o f the w orld

S c c o n d ly , ih is paper focuses on the encountered problem s o f the e xistin g me.chanism

ih a l resuỉíed in Ihe developm ent o f legal d eb alcs am ong V ictn a m e se law yers co n cernin g the

m ain len ance o f Ihe e x islin g m odel or the change it to a ne\v m odel know n as “an independent

a d m i n i s t r a l i v e c o u r t ” likc t he m o d c l oỉ' c o n s e i cl'1'Aul in Prancc Tliis p a p e r Ihus p r e s e n t s this

d iscu ssio n and a f íim is thai the im p ro ve m e n l o f thc m eclian ism for S A D is a “co n lin u o u s

lca rn in g process”, a im in g lo m eel llie o v e ra ll requirem cnt o C lh c P A R

1'in a lly , bascd on the s ilu a lio n o T S A D in V ictn a m , the lalest am ended C o n s litu lio n o f

1992 as \vcll as Ihc d c v c lo p in c n l o l'lh e inteinatio n al co -o p en u io n in the prescnl contcxt, this

papcr supports Ihc m aintenanco ol' tlic cxi.sùng m odel and pm poses so m c d irc c lio n s for i(s

b c llc r op cralion in thc 1'uUirc Som e e xp erie n ccs 011 S A D in lapan vvcre also added lo

c o n lrib u lc such an opim on

1996 ụ 7 F-Ị ^ h i - ^ ỷ ò ^ T i m m m m ^ ĩ & i L ề h t c ^ k ^ x ^ T , ' n t m - M m

( s A D ) ơ - ) t z i í b ơ ) / ý j ^ x j * y ? ± á ệ ố * j j 3 c ± M ư 1990

(P A R ) (31tJ ;o " C Z Ề fjM c5^xTl' ^ “ Nha IHIOC Phap quycn V ^ ^ x / p Ịi- ']-h L / C o L / p L , ÌỖ 5fe 6 £[=•

1) ' r í ĩỉư -J“ 6 |pj ẴS /j \ M-1>\ ỶJ - - X 'i» co ĩ ặ |?c co tz ti) ỉ c n í-j J | I 'jỊịf :fk &• t i i ' £ /1: ồò </) -/£ Ể*J

s s $m k ỹ I ử f c L f c 0 Z Ơ )M niíìì(O & Um t t , n Ẹ k ĩ k 1 $ GOM í t á ì í ị - c o J$L ĩby fi® n í c

ẽ i £ í M c * J L r j ; f i ^ f & c < ỉ : c 0 j J j ; £ 4 l l i £ / ỉ i l ; ^ ' á o S A D c/;/:;.y>cO/<#-i X ^ ^ I & Í Ị R L PAR

í - J : o T ± ']Jf & í v c V' & â-: §?• IAJ ' ề ầẾ ư l c g i'i-j 4" M ÍT 1 ‘ ỏ c <t ár l§ íỉ-J <b L T V ' <J / j' b *e & ỏo

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{c $ ) t ô '< I' -í- i-N ^ Fai co m m m t â co m m ' k b to b L t z , ®E /f- c o > ý j =- -XMs co ri: ffi L T V'

Z>\ỉ\Y/iỉỉMỈẮỉt.ĩ:&fo-C-Ci'ĩ)o ycorWK Cc/),]ỈÍI A ‘C.t, C c/),il,ííă4',f ô i ì 'L , A í i ơ í ^ S A D ơy/c

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-tĩìo

ỉiiíì ô ® m u u ĩ ơ m m ^ & ^ ^ T , ^ơ n íù scn , p£tĩ-ơ>ĩ;~r/i'ơ)t?m&$:fôL, M ưịcm

'•-.V)',^ 1.1 * { :* ;{ ) - /, S A D (CỈVJỶ'6>/ I ọ

1 PAR SCCI1 as a s p r i n g -b oa r d íor tlic i mprovemcnl ol llic mccha ni sm loi' S A D 17

2 I mp r ov e me n l o í llie m e c h a n i s m Toi' S A D consiclcrcd ns ;in clTcctive m e a s u r e lo 20Ciirry oul IỈ1C niỉiin oonlenls oí l’AR

3 I inpr ovc mc nl o f lỉic incclianisin í OI' S A D í úms lo Cíiiiy oul llie main o bị ecl ivcs o f 23PAR lo builcl up s uc c cs s í u ll y “ Nha mioc Pliítp q n y c n ” ( I ,cgal Slnle) III Viclnam

4 I m p r o v c m c n l ol llic m e c l i n n i s n i for S A D íilso n i m s lo c a t c h u p \vi111 llic 27clcvelopnieiU oMcgal Science o f llie vvorld and region in llic íìckl o f S A D

5 I m p r o v e n i e n l ol llic i ncc l ií i ni s m for S A D a í í i r m s llic birlli a n d t l c v e l o p m e n l o í l h e 32

ịnclicial review o f administralive action in Vietnam

3.1 Lack o f an i ndependeiU judicial o rga n lo revicvv i mparlially a n d obịect ivel y the 41compl ai neđ adminislrative decisions o r ac ti ons

3.2 The (leícct in llic p r o c c d u i c s o f S A D and implcmcnlation oí rcvi evv tlccisions 45

3.5 The limiuilion pl leg;tl knovvlctlge íiinong p e o p l e <111(1 (lic non-supporl knvar d 52slalc o í ĩ i c i a l s

3.6 SiUiíìlion O Í S A I ) in Viclnam pri or to J111Y 1996 and (he r e mnr kabl c probl eins 53

‘4.2 Pr occ ss oí sc tl mg U|) ( h e ì n o đ e l as Ađ mi n i sl ra ú v e Division vvilliin p e o p l e ’s courl 63

4 2.1 T h e m o d c l o(' i i đ m m i s l r a t i v e c o u r l Í1S an i n d c p e n d c n l S y s t e m í b r m c d hy 63

Nati onal Ass em b l y, s ep a r a t i ng it (Vom llic a dmi ni st r at iv e or g a ns , in paraílel vvith llie

p e o p l e ’s court System

4.2.2 The model o f ad mi n i st r a t i ve cour l as an i nd epe nde nt s ys tem í b n n e d and subordinatecl (0 Prime Minister, but s e p a r a t e d ÍVoni Executive orga ns

4.2.3 T h e clioice o f the model o f A d m i n i s t r a t i v e Division vvithin P e o p l e ’s Court

s ys l em (Administrative Divisions C o u rt ) a nd its íòrmaticm siuce July, r ' 1996

4.3 Concl usion

II S A D in V i e t n a m s i n c c l l i c c r c a t i o n o f t h e A d m i n i s í r a t i v e D i v i s i o n C o u r t s

a n d t h e n c c d f o r i m p r o v c m c n t o f <he e x i s l i n g m e c h a n i s m f o r S A D

1 S Á D by ịudicial r e v i e w in the Aclministrative Di Vision C o u rl s under (he

O r d i n a n c e 011 Scl tlemenl o f A d m in i s t r a t i v e C a s e s ( O S A C ) from 111 ly, l sl 1996 and ils amc n đ me nl ciiaclecl 01) D e c e m b c r 25*1 1998 lo dale

1 I Wh;il is an ỉidiiìinistrativc c a sc ?

1.2 Rc qmr cmc nt ÍOI inilialing adiiìinislralive c a s e s

1.3 T h e obịecls ol Setlleinenỉ o í Aclministralive C a s e s ( S AC )

1.4 Adminisli aí ive Division C o u r t ’s c o n i p e l e n c e 011 S A C

1.5 S o me rcmm kable íeal ur es in the p r o c c ed i n g s o f S A C

1.6 ludgmcnts and e xe cut ion oT judginenls o f adminislrative cnscs

2 S A I ) by a dm i n i s lr a t i ve revievv c o n d u c l e d by the svsl em o( the iulminislnitivc agcncies unclcr tlie O S C C D o f 1991 a nd llie L O C D oí' 1998

2.1 T h e conl ra di ct ion vvitli the exi st ing O S A C o f the O S C D C o(’ 1991 resulled in the birtli o f the L O C D

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III

2.2 S A D bv llie c om pe l e n l aclminislralive a g c n ci e s u n d e r (he L O C D 82

3.2.6 Qualily oí ịiidges, p e o p ! e ’s a s s e s s o r s and p r o c u r a t o r s in par licipation o f S A C 1133.3 T h e di scussi on lo look í'or ;i bctter modcl íor S A Ỉ ) in (lie pr c s cnl liinc 116

MECHANISIM F O R SAI) AND ITS I M P L I C A T I O N IOVVARI) T H E

O V K R A L L P R O C E S S O F P A R

I T h e ( l i r c c l i o n f o r i m p r o v i n g t l i c e x i s t i n g m c c h a n i s m f o r S A D ' 123

responsibilily o f adininislratỉve a g e n c i e s

e c o n o m i c r e íbr m, has laken in a parallel r a n g e o f r e f o r m s sucli as the l egi slalive, ị uđi ci ar y a nd

public admi ni slr al ion r e f or ms T h e 811' P l e n u m o f the 7 ,h Par t y C o n g r e s s ^ c o n s t i t n t e d a l ur ni ng poinl ÍI1 b ui lding and i m p r o v i n g PAR Í11 Vietnain Thougl i pub li c n d m i n ĩ s t r a t i 011 h as bcen

r c í o r m c d lo a ccrỉain extent, it cont imi e s to face witli m a n y o b st a c l e s to its p r o g r e s s and Pailcd to

m ecl the expectal ion o f (lie leade r shi p o f llie c o u n t r y as vvcll as llie pe o p le Tlie lĩiain o b ị e c t i v e s

o í l’AR are to sct up a s t r o n g a nd e í ĩ c c li v e State aclministralion, build up s u c c e s s f u l l y llic “ N h a IIIIOC Pliap (]uyen” '\i) Vi cl nam in vvhich í he s u p e r i o r i t y o f 1 he lavv is a b s o l u t c l y r c s p c c l c d , a n d

pi ol cct ing tlic lcgal (lemocratic riglits o f c i t i z e n s

lu llic (i 111 e being, the s l r o ng d e v e l o p m e n t o f t he vvelfare State, llie i nf o r ma t i o n s o ci e t y as \vell as tlie (lcmocríìli/.íìtion p r o c es s liavc lcd (0 cl iangcs Í11 the relalionsliip b e h v c c n p u b l i c aul ho ri t ics íincl iiiđiviđuals tlial m a k e all g o v e r n m e n t s in (lic w o r l d , iiìcluding Vi e t n am , liave lo p a v imicli

m o r c allcnlion lo sellling p e o p l e ‘s claiins for d a m a g e s c a u s e d by n dmi nis tr a li on A s a resull, tlic

S cl i le me n t o f Adini ni slr at ive Di spul es (l iere i naft er ref er r ed (0 ns S A D ) in Vi cl nam noNvadnys is

icunrdccl as an imporl ant co n tr i bu ti on to the PAR p r o c e s s b e c a u s e it al so a i m s to c a i r y o ut One o f tlic niain o b ịe c l i v e s o f PAR (liat allo\vs pe o p le , apa r t fr om t ho s e m a k i n g c o m p l a i n t s (0 íidininislrative ag en c i es o r State Inspe ct or at e s y s t e m feattired by the m e c l i a n i s m for S A D prior

to 1996, lo initiatc ad mi ni s t r a l i ve c a s es to a c o m p e t e n t co ur t (0 prot ecl I he ins el ve s froin the

m í ì m g c m e n t o í ’ ad mi n i sl ra t i ve pcnver L e t ’s gi ve an e x a i n p l e to illusl rale llie n al ur e o f the problem

í ma u i n e tliat citizen A w a s g ra n t e d the ce r tí fi cate o f Innd use rigliỉs b y a c o m p e t e n t admiiiistrativc agency [ le w a s using it legally for r e s i d e n c e and agriculUiral p u r p o s e s í01' a long lime, a nd tlicn s ud d en l y tlie cerlificate w a s w i t h d r a w n for the land u s e riglils by the s a m e atiminislralive a g c n c y (hat in tnrn s ur e l y c a u s e d liiin inucli đ a m a g e for b e n e í i l s that hc vvould liave der ived í ro 11) the l a n d \ Is ií jusl a n d fair cnougl i i r sticl) an a đ m i n i s l r a t i v e decisioi) wa s made illcgally, noi for a publ ic |)tirpose bui for a p e r s o n a ! p u r p o s e ? O r e vc n in c a s es o f p ublic

p ur pose , vvlial lcvel o f c o m p e n s a t i o n for liis labor a nd living is r e a s o na b l e ?

IỈIUS, llio cxaitiplc m en l i o n e d a b o v e is not a civil i nat ter c o n c c r n m g ihc civil riglils bc(vvcci) tvvo private parties vvlio are equa l in legal status, but an aclministrative d i s p u t e a r i s i n g b e t w e e n a privatc per son and State povver Public A d m i n i s t r a t i o n will b e c o m c c í ĩ c c l i v c i f it cr enl es a sl rong incclianism íbr S A D thíit a i m s to prot ec t the i nfri ngcd p e o p l c íroni m al p r a c t i c e s by tlie íidininistration like sucli a b o v e c a se s OI! the o n e liand, a n d (0 r e c o v e r the i ni s ta ke s f0 r llic belt er

o pcr ation on llic ollter V i et n a me s e a d m i n i s t r a t i v e law, s i n c e tlie e s l ab lĩ sl ime nl o f the Admi n i st ra l i v e Division C o u r t in 1IIly 1996 lias nllovvcd cit izens to initiate (he ad mi ni s t r a t i ve línvsuit to a c o m p c l e n l c our l (hat r e - m a r k s ỉlie birlli a nd d e v e l o p m e n l o f the tlieory “ judicial

' S c e ilic I'' trial i t i d n m e n t o f D A K L A K p r o v i t i c i a l A d m i n i s t r a t i v c D i v i s i o n C o u r t N o 0 1 o n l anuar y, ỏ ' 1' I 9 9 7 in

\vhicli 1 h e citi7.cn N g u y c n Va n D o a n i n r l i a t c d t h e a d m i n i s t r n t i v c c a s e lovvard P c o p l e ‘s C o m m i t t e e o í C a l l l e o d i s t r i c t

revievv o f a dmi ni st r at iv e a c t i o n ” in Vi et nam T h e f ounđation o f the A d mi ni s t r a l i v e Division

C o u r t si nce -l»ly 1996 lias b ee n an e n c o u r a g i n g frui( o f PAR as vvell as (he j nd i ci ar y re íbr m

la mclied from (he b eg i n n i ng of' I990s A n u m b e r o f ađ m i ni st ra t i ve c a s es we r e re solve d by cour ts

a n d s o me o f (hem w e r e w o n by the iníYiiiged tliat (0 soi ne an ext ent aíTirms the important

comlribulion tovvard pr ot e c l i ng p e o p l e ’s d e m o c r a l i c riglits as we l l as setting up tlie “ N ha IUIOC

Phiip q u y e n ” as a d đ r e s se d in llie o bị ec t i ve s o f PAR Hovvevcr, altliougli liaving been in exi st enc e

í o r o vc r rive ycars, the m cc h a n i s m for S A D lias revealed m a n y def ect s that Pailed lo Í\||FiU the c.\ pectalion o f llie pc o p le as well as l a w m a k e r s , result ing in doubt and d i s a p p o i n l m e n t l ỉence, a lomg vviih the process o f a st ep- by- ste p i mp le me n t a t i o n o f the Iiiain o bị ecl ives oí' PAR, the Iiiiiprovcinent of the m e c h a n i s m for S A D is also a “ c o nt i n u o us l e a m i n g p r o c e s s ” in wliich il is not

ca sy to niake simplist ic ị udgi nenl s in t c r ms o f s u c c e s s o r Pailure vvilliout dcc pl y under staiiđing vvhal lias c a u s cd llic dcí ects 1'liere has still b e e n in d i scus si on o f eitlier m a i n t a i m n g the modcl as A( Immisỉralivc Division C ou rt vviih s o m e a ppr opr i at e clianges in (he bol h lcgal and practical iiS|j)CClíi ÔI l ookihg ỈOI <i bctlci' iiKxlel lor SAI)

A s ihc imporlíinl implicíition íibove m en t i o n c đ , (ỈÌC topic " ỉm p r o v in g tlie m e c h a n is m fo r S A I) :

.1I I I im p o r ía n í c o n tr ib u tio ii tfì P A R in V ĩe tn a m to d a y ' vvas clioscn Ibr a M;islcr's gnulunlỉon

lliesis Tliis paper, hy l o ok i ng back the h i st or y o f V i e( n a m’s c x p er i ence in S A D , aiiiily7.es thc

d o s c rclnlion bcl wc cn ihe i m p ro vc mc nl o f (lie m c c h a n i s m íbr S A I ) and PAK in Viclnam In Mikliiion, lliis papcr is (iiKling p ro b l c m s eiicounlerctl in llic cxisli ng mecl ui ms m, c o n í i m n n g ihc Iieccd l'or lurtlicr m i p r o v e m e n t o f the mc c l inni sm for S AI ) , ÍIIKỈ gi vi ng proposnls í01 Iievv (lircclioiis

Tlnc scope o ( ' l h e cliosen topic ma y a p p e a r bro ad , so tiial llirce mor c speciTic quesí ions a c co r d i ng

10 Ihc conlcnl o f e n c h chnpl cr (tlircc chnpler s inchidcd) \vill be íuklrcsscd <1S íbllovvs:

In Cliapter I, the rirst qtiestion lliat sliall bc directly a n s w e r e d is w h y th e im p r o v e m e n t o f

m c c h a n ỉsn t f o r S A D is r e g a r d e d a s a n im p o r ta n t c o n trib u lio n to PAR in p r e s e n í V ietn am ?

S m c e thc p u r p o s e oClliis cli apter is to m a k e cl ea r the mutual relatioi) b et we en the p r o c es s o f PAR

in Vi etnam t owar d the overal l r e q u i r e m e n t for i mp ro v i n g the meclianism for S A D , it rirstly gives

an o v e r v i e w o f all the m e c h a n i s m s T h e n , a direct ana lyz e o f tliis mutual relation tiirough five

main poi nts is prc senl ed a n d e m p h a s i z e s lliat tlic i m p r o v e m cn t o f the exi sl ing mc chnni sm for

S A D is ai me d lo carry o u t the mai n c o n t e n t s as vvell as the objectives acklressed by PAR, and nee ds to spee ding up lurtlicr to ineet the r e qu i r e me n t o f the present, s l r ong re novaí ion process

í he main tlieorelical issues a s well as the us e o f legal t e n n s c o ve ri ng tlirough tlie co nt en t o f the lliesis such as “j udi cial r e v i e w o f a d m i n i s t r a t i v e ac t i o n ”, “ Nh a IHIOC Pliap q u y e n ” (Legal State)

‘Pliap clic” (Piinciplc o f Legali(v) íire a l so intentỉonally pr e sent ed and a n al yz ed in lliis chapter

Si nc e (lic d e v c l o p m c n t o f legal S c i e n c e in v i e t n a m is a i mc đ lo catcli up lo ílie d c ve l o p i n e n t s in

llic worl(l, tliis cha pte r will a l s o i n a k e clear (lic i nfluence oí' the vvorld and the region 011 the Vicin;iiiì‘s circiiinstcinces in (!ic rickl oí SAD, especinlỉy in tlic crCíilion oí IỈ1C model oí ỉlic Admmislr ative Division Cour l lo deal vvill) administrative disputes

In Cliaplcr II, in o r d c r lo c o n f i r m tliat the improviĩig i nechanisni for S A D is an i mporlanl conlribtilion to llic pr oc e s s of PAI^ in Vi et na m loday, tlicte is an i ndi spensabl c neeci to prove in íact the liistory and oul linc o r V i e l n a m ‘s e x p e ri e n c e in S A D As II) me n t i on ed a bovc , llic se c on d

maiii question h o w is th e in tp o r ta n t c o n tr ib u lio n to P A R p r o v e d iĩi fn c t b y t h e p r o c e s s o f

r epresents the most ii nporí ant part o f the tlicsis, so llial tliis c ha pl er aims lo an;ilyze and prove the proc css o l ' i m p r o v i n g llic m e c h a n i s m for S A D in Vietnam by di vi din g il in lo tvvo main periods:

4

|1)C íìrst is pri or lo JIIly, 1996 k n o w n a s t he “ M i n i sf r y - J us ỉ i c e, / ’m c c h a n i s i n lliat r e v e al e d a lo! o f

s ho i l co m i ng s , leading (o (lie i nd i s p e n s ab l e n ee d o f sel ti ng up a b el le r i no đ el for S A D knovvn as Aclininistrative Division witliin P e o p l e ’s cour l s ys te m li andỉing oul a đ m i n i s t r a l i v e di sput es Tlie

s cc ond c o n c e r n s tlic p er io d from July 1996 up to now, in vvliicli tliis p a p e r p o u r e d o v e r i nany cíĩ ort s (o a n a l yz e the mai n e n c o u n t e r e d p r o b l e i n s o f the e x is t i ng i n ec l i an i s m tliat n e e d to be

rc c o v cr ed for its existence In addi ti on, liie a p p a re n t s l ì o r t c o m i n g s o f t he n e w m e c h a n i s m for

S A I ) c x p o se d in the r e c e n t y e a r s lias o n c e aga in i n ad e a goocl c o n d i t i o n for (lic lcgal debates

d ev el op e d, so lliat in ỉlie rest o f c l i a p t e r II, tlie p a p e r w a n t s to c o n d u c t a d i s c u s s i o n c o n c e r n i n g the support or non-support o f the exi sti ng mo de l O n e , tliere sliould c l i an g e the e x i s t i ng mo de l as the Ailministralivc Divisi on C o u r l to auot lier n e w inodel as p r o p o s e d b e í o r e 1996 Tliis w a s k no w n Í1S ;m “ inclependcnl ad mi ni st ni l iv e court s y s l c m ” , “ íbrmeci and s n b o i d i n a l e d to tlic Prime Minisler, bu! s ep ar at i ng írom e x e c u t i v e o r g a n s ” , and (lic e x i s t i ng State I n sp c ct o r nt e a g e n c y shall be

( i m c l i o n c đ Í1S bolli d e a l i n g vvith d i s p n t e s a n d i n a k i n g l e g a l c o n s u l t a t i o n l o g o v e r i i i n e n t l i k e (he

modcl of tlic CohsgìI d ’Etat in Pranec Tlie olliei is to imiinlain the e x i s t i ng inodel and n ỉ on g wilh

s omc a p p r o p r i a t e c h a n g e s o f llic present C o ns t i t u t i o n 19 9 2 ,C0 I1 t imi ousl y i m p r o v e botli llic organizational structures a n d lcgal r egulal ions conc er ne tl step- by- step

111 C h ap l er III, (lie last q uc st ỉ on sliall be e x a i n i n e d is w h a í is (he (lirectio n ffìr in tp r o v in g th e

c x isíin ỵ m echanLsm fo r SA ỉ ) ait(l its im p lic a tio n íơ ìv a r d (h e o v e r a ll P A R p r o c c s s in ì ĩe tn a m

It m c a n s in V i c t n a m e s e “ B o I r t i o n g - q u a n l o a ” m e c h a n i s m A c c o r d i n ụ t o tliis m e c h a n i s m , I h c a d m i n i s l r a t i v e

I i g c n c i c s w e r c linnclcd o v c r tlic c o i i i p e t c n c c o f bot l i g i v i n g t h e a d n i i n i s t r a t i v c d i s p o s i t i o n s vvliilc p e r r o r m i n ụ i h c p u b i c

p o w c r a n d a l s o m a k i n g llie í ì nal i u d g m c n t s t l i e r c o f w h e n c o m p l a i n t s a p p c a r e c ) S c e L N e v i l l c Br ovvn a n d .lolin

s lìcll ÍTcnch A dnnnistrati v c Invv, '17 (1 9 9 8 )

toriav? S in c e s o m e a p pr op r i al e cl iange s (0 (he Consli lut ion o f 1992 vvas m ad e by the lo " ’

Na ti onal A s s e m b l y in De c cm bc r 2001 a nd tlie i mp o rt an ce o f (lie d e v e l o p m e n t o f international

c o - op e r a t i o n and íbreign legal aid has been fu!ly real ized, the lasl c h a pt er aims lo pre sent s o m e

p r o p o s a l s for thc direction o f i m p r o v i ng the exi st ing m e c h a n i s m for S A D ỉn additíon, since liaving a cliance to s tudy J a p a n e s e law, this p ap e r w a n t s to br i eí ly identiTy a nd a n a l yz e the posi tive p o i n l s as well as s o m e r e m a i n i n g issues o f S A D in J a p a n tliat are really usePul to d r a w

s o m e lessons for Vi et nam‘s e x pc r i e n c e s in SAD

R A T I O N A L E

Tliere are tvvo main r e a s o n s tha! requir e such a study

First, c o n c e n i s the cont rove r si al c h a r a c t e r laid d o w n 011 llie ef fecti venes s o f llic existing

m o d e l as A d mi ni s t r a t i v e Di vision witltin P e o p l e ’s Court T h e íbi mda ti on and inaugur a t ion o f Aclmini slrativc Division C o u r t for o v e r p as t five y e a r s re - t nar ke d an e p o c l i - ma k in g st ep t owar d llic ini provei nenl o f tlie me c l ta nỉ sm f'or S A D in Vietnain by a p p l yi n g “ juclicial revievv o f

a d in in is lr a liv c íic lio n s ” lh.1t lia v e Iiot b c c n kiiONvn b c fo re A lo n g vvitli c c r líiin r c s t ilís , Ih c c x is t in p

Micchanism lias also leíì beliind a lot o f s l i orl coni ings lliat Iieed to be r e co v er e d loi' existcnce T h e

l o \ v - cí Te c t iv e n c s s in S A I ) in SOIÌ1C past ycars OI1CC again e n l i a n c c s the legal sc i ent i s l s íind llie

| ) u b l i c ‘s attention to looki ng for a bet ter m e c h a i i i s m for S AD All tliese points ma k e tliis topic far

Ir om b ei ng out o f date and still a liot-issue in Vi ct nam, even lliougli Adininistr at ive Division

C o u r t lias cxistcd since 1996 Besi des (liat, PAI? in Viel nam p r o m o l c d by C o m m i m i s l 1’arly sincc llic b e g i nn i ng o f I9 9 0s is a nevv la.sk, “ witliout p r e c e d e n t s ” tliat n ec ds lo be pr oi not ed slcp by slep 'I liis lliesis íìncls a need lo pu( the PAR in i(s relation lo llie overnll r e qu ir eme n t for i mp ro ve i ne n t

o f llic mecliaiiisin for S A D lodíiy in o r d e r to íìnd out bolli llic legíi! and praclical basi s for cxplíiining the remnining issues, and to thiuk o f i(s beỉter d eve lo pme nl in the íului e

6

S e c o n d l y tlie lopic is íittractive by botli its tlieoretical and logical character A s nienlioned,

Vi et name se legal s ci e n c es in general as wc ll as the ricld o f a dmi ni st r at iv e l aw in par ticular are still i mma tu re and need to be s uppor l eđ by foreign legal aiđ T h e i dcol ogy beliind o f the “ iudicial review o f a dmi ni str at iv e a c t i o n s ” , “ N h a ĨHIOC P ha p q u y e n ” , “ adminislr ative ị uri sdi ct ion” and its distinction írom the “ active a đ m i n i s l r a t i o n ” s e e m quite Iiew and ar e in neeđ o f lĩìucli attention

;iikI c o m pl e t e sl udy hy llie legal scicntists a n d a d mi ni str at ive g ov e r n o r s as well In ađdi li on, the logicalily in such a lopic al so dravvs m y aỉtention Sucli as (he S A D issue is not onl y ex n mi ne d

s cpa mt cly bti( also put in mut ual relat ion tovvard the overall p r o ce s s o f P AR ; the p ro c es s o f impr ovi ng the mecl iani sm for S A D in V i e t n a m is ana ly z ed in its relation lo the d e v e l o p m e n t o f

Vi cl name se liistory as vveỉl a s the m í l u e n c e of tlie d e v e l o p m e n t of llie legíil S c i e n c e in tlie worl d íincl so 011 lltal Í1IC prc scnt cd Ĩ11 the llicsis

Whilc conclucling llic rcscarcli, the mai n usetl met liods vvcre llie annl ysis and synlliesis o í b o t h llic lcgal nnd praclical issucs rclaíing lo S A D a nd P A R in Viclnam The \viitcr coll eclcd llie ni.Ucrinls c o n c c m i n g on S A D in V i e l n am i nc l ud in g llic updal e (iala sucli as llic annual reporls 011 ịudgnienl aclivi lics niade by the S u p r e m e C ou rt , (lie report 011 S A D lĩiacle by Ge neral State Inspc-Moralc and so on; a n a ly ze d llie p r o c es s o f i m pr ov i ng (he ni eclianism fbr S A D ; prescnỉetl the 0WI1 opinions upon llie b e i ng d e b a te d i ssues a nd to a certain extenl proposec! dí rec t ions in (he íìilurc

Allhotigh tlic c o m p a r a t i v e l a w ‘s mclliocl is a still diíTicult one, ỉhc vvrilcr also Iry bcst to Inke il (Im Iiii (he researcli to Iiiake c o m p a r i s o n a nd col lat ion betvveen V i e t na me s c law and soiìie otlier lorcij.il laws such as lapan, P r a nc c and s o m e ollier coimlries in llic vvorld and the Asi an region

|0\v;iiJ Ihc lcual i s s ucs i nvolvcd.

I O v c r v i o v

1 O v c r v i e w o f ( h c P A R p r o c e s s in V i c t n a n i

On S e p t e m b e r 2'Kl 1945, Pi e si denl Ho Chi Minh r c a d llic Dc cl ar a ti on o f IndcpciKÌence, (he Nc\v

Dc mo c ra l i c R e p u b l i c ol’ Viclnanv c a mc in to e.xisỉcnce a n d a State ađmi ni slr at ion vvas íbrmed Viclnam i mmc dia l cl y expcriencecl lwo conlii iuous b l o o d y Wíirs for liberalion and ( l c l c n s c 1 On July 2 ,ul I976,im<jcr llic rcsoliilion o f; i rcuniílcd Vi clnain Níilional A s s c m b l y , llic vvliolc coimtry ciìlcrecl 111 to n pcriocỉ o f transition to socialism Dur in g llie p r o c c s s o í u o v c r n i n g llic counl rv, tlic State vvitli the sole rtiling C o m mu u i s l Parly lias c o p e d vvilli iTiany (liííìcullics in tlie buikl up ;i

Commtmist PartỴ in 1986, b a s e d 011 “ the altiluđe in a s s e s s i n g the siluation is to face and lo lell ihc Irull)” 3 thai e am e s l l y r e c o g » i ze d the mi st a kes a n d sl i o it co mi ng s result ed in the less

d ev el op me nt o f the wliole c o un t i y o ve r the p as t t en y e a r s si nce the re unií lca ti on w a s laid d o w n in ihc “ P a r l y ’s ideological and or ganizati onal ac ti vi ty’ a n d c o u r a g e o u s l y called u p on the

renovation, lias been se e n as a signiíĩcant t un i in g -p oi nt in V i e t n a m e s e liistory As a result, since

1986, u nde r the l eadership o f tlie Coi ni nuni st Part y, the c o u n t r y h as p u r s u e d a c o m p r e h e n s i v e rcnovalion policy kncnvn as “ Doi M o i ” , shiíìing í r o m a p l an n eđ e c o n o m y o p e r a l e d llirougl) a ccnlral, bureaucr atic m e c h a n i s m in to a imilti-sector econoiTiy o p e r a l e d througli a m ar ke t

mcclianism, subịecl to (he monitor i ng by the S t at e8 P A R is se e n as a n e c e s s a r y c o m p o n e n l in the ovcrall reiiovation p ro c es s a n d lias b e c o m e an iinportant p o l i c Y c o m p o n e n t o f the Party and the Slalc PAR in Viclnam is síill a nevv lask, “ vviílioul p r c c e d e n t ”9 T h e d ev e l op me n ! o f c o n c e p l s and basic principles for P AR as well as ílie í bn n u l a t i on o f gui del ines a n d d ir ec t ions for P AR by tlic Party and llic State lias resulled in a c on t i mi ou s d e v e l o p i n g p r o c e s s

I ooking bíick íil llic ỉiislory prior lo 1986, íìltliougli the wa t ‘-resistnnl g ov c r n m e n t ( period 1945 -

1975) and tlic r e uni de d g o ve r n m c n t (aíter 1975) liad a l r e a d y co i ul uc l ed soine r e ma r k a b l e rcíbrin

pol i ci es c oncerni i i g llic State administrative m a n a g e m e n t c l o s e l y c o n n e c t e d to c o l lec t i vi s t or

soúnl isl r c l b r m 10, and (he c o n c ep l o í ' “ Public Ad mi n i s l r a l i ve R e l b r m ” \vas not slill inenỉ ioned

Durmg Iliis pcriod, tlic facl remai ns lliat the or gani zat i onal rcíirrangcmcnl o f llie adminislrativc

■Scc llie 6 lh Par l y C o i mr e s s D o c u m e n t < h i t p / / w w w c p v o r u v n / c p v / n a l i o n a l c o n g r e s s e 5 / 6 t h c o n t t r e s s c s / i i H l c x [ l i m > '• Id

Suc l i as 1.111(1 r c l b r m s III llic p e r i o đ ol I y.Vl-1 9 5 4 III t h e No r t l i o f V i e t n a m a n d o f I 9 7 6 in t h e S o u t h , a n d llic

s o c i a l i s t inclustrinl a m! Inul c r c í b r m s i n c e 10 7 6 in t h e vvliolc c o u n t r y

systeni vvas implcniented and more attention w a s paiđ to tlie clevelopment o f Icgal institulions as vvell as the s t a f f manageiTient.

The concep(ualizalioii O Í P A R has i niproved s t e p - b y - s l e p s ince the 6lh Party C o n g r e s s (1986)

The 6 " Party C on gr es s D o c u mc n l sl)owed tlial “ in o r d e r to sct up llic ncvv me c l ia ní sm íbr State

adminislrative ma n a g e me n t , tliere n e e d e d a t r e m e n d o u s r e í br m o f the State orga niz at ional

st ru cl u r c ” 1 Tlius, the conc ep! o f P A R w a s not fnlly m e n li o n e d , c.xcepl for “ the r e í o r m o f ihe slnte or ganizalional st ru ct u r e ” to be seen a s a m a j o r c o m p o n e n t o f (he r e íbr m

Du rmg the per iod 1992- 1995, the 711' Parly C o n g r e s s 12 r e p re s en l s a lime o f s t ro n g d c ve l o p m e n l o f thc P a rt y ‘s t hi nkmg pe r ce pt ion and c on ce p ti o n o f public ađmi nistr alion a nd P AR Resolulion 011

“ adminislrativc p ro c e d u r e r e f o r m ” u w a s e n a c l e d by ll)e g o v e r n m c n t in 1994 a nd c o n s i đ c r e d a breakllirougli f'or PAR, a imi ng a( i mprovi ng the đ e m o c r a l i c relalionsliip b e t w e e n tlie State and various s nb ị ec t s in a n e w e c o n o m i c a nd social cont ext T h e 8 lh P lemim o f (he 7 ,h temi re Parly

C o n g r e s s in 1995 conslilutcđ a turiiing point in building a n d iinproviiig (he publ ic ndminislration

i he leiin ol P AR, í01 lirst lime, vvas oííícially m en t ìo n ed in P a r t v ’s docui nenl s I ỉence, PAR \vas

c o n c c r n e d vvith tlirec maj or c omp o ne i i l s suclì as: tlie “ íìdministralivc instiliiỉional r e lo r m" llie

“ or ganizalional struclure r e í b n n ” , and 1 he “ đ e v e lo p in e n t o f c a d r e s a nd civil s e r v a n l s ” ‘\ v e r c sysl cmat ical ly pre sent ed for (lic rirst (ime in the signiíicant poliỉical đ o c u me n l s

Diiring thc s e c o n d li íi ir oí tl ie d e c a d e oí llic 90 s, the V i e t n a m e s c g o v c m m c n l , bnscd 011 tlìc

g u i d e l me s oí ỉlie Parly Resol ut ion No 8 o f tlie 7 lh Par t y C o n g r e s s , slrongly p r o m o l c d llic P AR

11 V a n k i c n Dai h o i D a n g l o a n q u o c lan (liu 6, [ D o c u m e n l o f t h e 6 1*' Pa r t y c o n n r e s s ị , I 18 ( I 9 8 6 )

l l i c t c r m o f l ! i c 7 " Pnrly C o n t Ị r e s s w a s í r o m 1991 t o 1 9 9 6

S c c R c s o l n t i o n N o 3 8 / C l ’ O I 1 M a y 4 U' I 9 9 4 o n R e í b r m i n g A d m i n i s t r a t i v e p r o c c d u r e

S c c i h c 7 n’ 1’nrt y C o n i ; r c s s D o c t i m c n t < lìl t p// w w w c p v o r g v n / c p v / n n t i o n n l c o n i > r e s s c s / 7 n’ c o n i Ị r c s s / i n d c x litin >

10

p ro c es s in parallel willi the p r o c c s s o f J udi ci ar y R e f o r m l5lhat lias r e sull ed in the i mport ant inilial

a c l iíevements o f stable s o c i o - e c o n o m i c grovvlh as well as the political slability, m a d e Vietnam lỉradually i ntegrated in to the d e v e l o p m e n t o f tlie Asi an region and the wor l d Hovvever, P A R Iias Iiot yet b ee n able lo meet tlie r e qu ir e me n t s o f re no v at i on , e s pe ci al ly e c o n o m i c 111 vvliiclì the

r e mna nt s o í ' a State admmi str at ion d e s i gn e d for a centrally p l a n n ed a n d b ur e a u c r a t i c mccha ni sm slill l emain PAR lias Taced o b s t ac l e s to its p r o g r e s s , sucl) as “ !o\v a n d i rresolule” 16 rcíorni and mconsisíen! implcmeiitalioii T h e Polilical R ep o rt o f llie laíest 9 lh Party C o n g r e s s (April, 2 00 1 ) fVankly criticized llie \ v c ak n e ss a nd sl i oil coni ings in the i mplenientali on o T P A R Tliis reporl especi al ly poi nt ed out the si tuation o f the co un tr y in tlie past íìve y e a r s a nd the Iiiain lessons o f 1 5 ycars o f renevval con ce r n i ng P A R , sucli as “ the State a p p a r a t u s vvliicli lias been organizalionally

c u m b c r s o m e willi ovcr la pp i n g ['unclions, m i m e ro u s int ermedi ar i e s niicl hai ns si ng nclminisli nlivc

p r o c e d u r c s ” 17;ind the qualily o f no! a small m i m b e r o f public officinls a n d e m p l o ye e s who hnve bcen “ subslanđíirđ in hotli etliics a n d j o b (]Uíilificalions, p ro í c s s i o n a l c a pa c i ti es and vocnlional

skills Tl.us, Vielnam lias sỉill b ce n l o ok mg íor e í ĩ e c l i ve mcíisurcs lo cnrry onl s ucc cs sí ul l y llie PAR p r o c e s s , and (Itis o b j e c l i v e is al so emp l i as i z e d in the “ OITiciíil R e p o r í " ol llie lalesl session

of llie I 0 th Nalioiinl A s s e m b l y ( D e c e m b e r 2 0 0 1 ) thai llicre n e e ds lo be ftir!her spc c din g Iip o f the

p r o c es s O Í P A R , pmmoii it g (he e l ĩ ec l i v e o p er a l i on o f a d m i n i s l r a l i v c íipparnlIIS1 P AR is ;i broad cn(cjzory in holl) llioorclical a nd practical a sp ec t , s o tliíit in llic s c o p c o í l l t i s llicsis, llic vvritcr is

IH)I in de s i r c o f dealing vvilli all p r o b l e m s i nvol ved in P AR , bui cnclcnvors to í bcus (111 P/\R in ils

rclaliou lo Ihc overall rccỊiiiremctìt for i m p r o v e m e n l o f ( h e i ne c ha ni sm lor S AD

.1 IicỉiciÍ 1 ( r c f o r m \ vas c o n đ u c t e đ SII 1 CC l li e e n d o f I 9 9 2 S e e N a t i o n a l S c i e n t i f ì c I Vo ị e c t N o 92- 98- 15 V ludi ci nl

The i noder n administrative law, Ĩ11 the b ro a d e n s ense, involvcs the study o f “ how tlie S y s t e m o f

g ov c r n mc n l s vvhicli are neither legislatures 110r cou rt s n iak e dec is ions ” °and lio\v lo govern llie relationship b e t w c e n the citizens and g ov er n n i e n t a g e n c i e s and tlic ỉnlerrelatioMship ai nong

gover nmc ní a g e n c i e s 21 In addition, ịudicial r e v i e w of' adminis!ral ive action knovvn a s (he main parl o f acimiiiislralive l aw aims (0 u n d er t a k e “ llie p ri mary p n r p o s e ” 22lo prolect cili/.ens íìgnins! Ilic nialpractices o f administralion Wiíli the a b o v e u nd e r s t an d i ng about administralive lavv,

Vielnanicse ađmini str alive lavv may be criticized for taking so long to dev el op , especially

s omel imc 01 s o m e w h c r e bl amẽd (or not eíTectively prot ect ing p e o p l e ’s rights and legitiinate inlcrests providecl by lnw.2,Looki ng l);icl< al ils liislorical đ cve l opmc nỉ, s o m e otilslanclmg ícnltircs couỉd be dravvn a nd explained as íollovvs:

M o d e r n lúslory wi lncs sed the íbiindatioii o f D e m o c r a t i c Republic o f Vielnam III1945 (11 aI cnded

SO y c a r s o f l 7reiicli co!onizaỉion Viet nam ỉlien experieiicec) 30 vea r s o f suíTcrinịi Crom vvars to libcrate tlic coimtry, consecỊiieiilly the V i e t n a m e s e admini stralive lítvv 111 lliis period \VÍ1S strongly inHiiciiccd by w ; n s and priinarily aimed to s e r v e tlie revolulionnry l a s k Adminislrat ive lavv vvas

VVilliam F f ' o x , Jr, U n d e r s t a n d i n g A đ n i i n i s l r a t i v e L a w , I ( 1 9 8 6 )

J B c a t s o n & M I I M a t l l i e w s , A d i n i n i s t r n t i v e L a w , C a s e s a n d M a t e r i a l s 3 ( 1 9 8 9 )

' M a r k A r o n s o n & B r u c c [ ) yer , ludi ci nl R e v i c w o f A d m i r t i s l r a t i v e a c t i o n s 2 ( 2 0 0 0 )

S c c N g u y ê n D u y Cìia, T h i e i Inp Ini pl i nn I l a n h c h i n h 0 n t i o c la [ T h e e s t a b l i s h m e n t o f A d m i m s l r n i i v e l ur i s d i cl i o n in

V ic tn n m ], 1 3 7 ( 1995 )

12

laken as an cíTective i nstrumenl in liand o f (he g o v e r m n e n t to co nt ri bu l e (0 the land and

ímricultural r e fo nn s in 1 95 3- 1954, trađe a nd industrial r e fo rm, ovvnership nationa!ization in

\vliich iiidividuals vvere not a l l owe d lo o w n the m e a n s o f p r od uc ti on , land, a n d all privale

maiiíigemeiil wa s f)lso p r o h i b i l c d ^ D u r m g tliis time, it đid noỉ me a n llial llie p e o p l e alvvays w e r e

s a t i s í i c d vviih g o v e r n m e n l ‘ s d e c i s i o n s , o r tliat (lie g o v e r n m e i i l c o m p i e t e l y i g n o r e d t he p e o p l e ‘ s

\vill In f'aci, Ibc system o f I n s p e ct o r a t e 25 w a s set up a n d i na u g ur a t e d froin 1945 to dea l wit!i coinplnints o f peopl e t o w a r d the State, but d u e to r e a s o n s laid dovvn by vvars a nd all íor the suc c es s o fr e v o ! u l i o n a r y vvorks, (liese ki nd s o f d i s p u t e s s e e m e đ less developecl a nd llms

ndininislralive lavv lacked g r o u n ds for r e v ie w i n g it

'I he Vi et na me se administr alive law, aí ìer the liberation o f tlie c o u n t r y in 1975, can b e di vi deđ in

to I\vo stages, One is prior to “ Doi M o i ” in 1986 a n d llie otlicr is íVom 1986 up to this dale

Administr alive law in (he í br me r ai med (0 coiilribute to the socinlist regiine in vvhicli collecỉivism

wa s liiglily conccnlralcđ S in ce ađmi mst r at ion ha d p l ay e d an imporlnnt role in ruling (he coi mtry

thiough llic State plans by cacli flve y e a i s, ÍIS lo a d mi ni str at ivc liivv, lliougli m nn y lcgal n o rms vvcre issucd bu( Iiot treated as lavvs b e c a u s e they did I10( prov idc for g oo d melliods o f

ci i f o r c e i ) i c n ( a n d Oĩily i m p o s e d o n e - s i d e d d u t i e s 011 e n t e r p r i s e s a n d ci t i / c ns D i s p u l c s b c h v c e n

pc o p l e and (!ic stníe liad slill not đ r a w n mucli al tenlion meanvvỉiiỉe lliose a moi iụ c n t c r p n s e s vvere

re solvc d u nd c r llic (brin o f arbilralion “j ust like ( a king n ionc y íVom o n e p oc ke l a nd pulliim it in lo anollicr p ockc l, bollì p o c k c t s bel on gi ng (0 thc State” 26 Aclminislraúve lavv altcr “ Doi M o i " 19861.1 p to dat e liíis s lep-by- step d c v c l o p e d in the bolli a s p e c t o f go vcr ni ng and pr ol cc li ng llic p e o p l e ’s

riuhts and legitimale interests, calcliing up with the íìill me a n i n g o f the administrative law iliat vvas niarkcd by the r ecepti on o f “judicial r e v ic w o f administrative ac t i ons” resulted in the cr ealion and o pe r at i on o f the Adininistralive Division C ou r t in Jufy 1996, i naking a great contribulion to set up “ Nlia IHIOC Pliap q uyen "(Reclìt staat or Legal State) in Vietnam.

2 2 M c c h a n i s m f o r S A D

Nalurally, the legal S y s t e m is higlily iní lue nced by the c o u n t r y ’s political system, especiall y in the míillcrs o f consliluíional and admi nistr ative l a w 27 The polilical system, in ils tuni, is iníluenced

so many otlier íactors, sucli as the c oi mt r y ‘s e c o n o mi c structure In o r d e r (0 (liorouglily grasp the

m e c h a m s m for S A D in Vi et nam, (he mutiial relation to the political and e c ononi i c struct ure in the

hi sl ori cal d c v e l o p i n e n t i nus t b e s t uđ i e d as w e l l

The polilical syst em in Vi el nam is ronnall y b a s e d 011 llie principle o f povver CentraliV.ation The

Vi cl namc s e Constitution r e f us es llic c o n c ep t o f sepa rat ion o f p owe rs It is mor e correct lo lalk about (he “ division o f func li on” 2K All State povvcr is centrally in hands o f the National A s s e m bl y , tlic llighesl r c prescnl at i ve o rga n of the pe o pl e, accor di ngl y it is llie only organ vvitlt conslilulíona! and lcgislative povvers, vvhicl) then delegates e x e cut ive p o w e r to the g o v e m m e n t and ịudicial pcnvcrs to the c o m ( and llic p ro c u r a l o r a te a ge nc y The role o f thc sole ruling Coinimuiisl Partv is slipulalcd in ihc C o»s li lut ion2; 'ỉ he relalionsliip bclvvecn llie adminisỉralion and ỉhc Pm ly may

n ppc a r c o n í us i n g lo \ vc s lc m o b s c r v c r s 10s m c e |I)C p r e a mb le oí lhc Conslilulion o f 1992 stalcs llint

“ llic peoplc are tlic mas ter s , while tlie stale pr o vi de s inanageiTienỉ and Ihc Pnrly provi des llie lcadersliip” Tliis cxpl ains vvliv all rc ío r ms in Vi et nam ar e found lo be originating írom tlie PcirtV

Conyi c s s c l o c u me n t s i ncluding ađniinistrative reform as w e l l as the foimdatioti o f tlie

A d m i n i s t ra l i v e Oi Vision Cour l h a n đ l i n g the d i s p u t e s 11.

I k i ng vigorously inílLicMced b y tlie cli ange s in c c o n o m i c st r u ct ur e tliat shi rt ed from the Central planning ecoiioiny to imilti-sector m a r k e t e c o n o m y , tlie m e c l i a n i sm í or S A D in V i et ua m lias changed fimdnmenlally to meel the r e q u i r e m e n t for tlie overall r e no v at i on , e s pe ci al l y for the limcly dcaling vvith c o mp l ex d is pu te s e m e r g i n g in the o p e n - d o o r e c o n o m y L o o k i n g at the

Itislcrical as pe ct s, llic establishinent oí tlie Admi ni str at ive Division C o u r t liandling d i s pu l es since luly 1996 can sliow a l anđma r k to di scriininate the m e c h a n i s m íor S A D in V i et na m in to t wo lypcs as íollovvs:

Prioi to 1996, the m ec h a ni sm for S A D in Vi etnam w a s k n o w n a s (he “ m i n i s t e r s - j u d g e s ”

mocl - ani sm' ,;! in wl ) i c h all d i s p u t e s vvere s e l t l e d witl)i n tlie St at e a g e n c i c s a p p l i e d “ a d m i n i s t r a í i v e

rcvievv o f aclminislralive a c t i o n ” v\ T h e íidminisỉralive a g e n c i e s whilc p ei To n n i n g publ ic p o w e r s

IkkI ‘ numeron.s prerogíilives an d e x e r c i s e d a great denl o f d i s c r e í i o » ” ul, s o tlial i mdc r í he

Constiltilion and ;i luimbcr o f l a w d o c u m e n ỉ s ^ , lliey a r e o bl íge d lo su b ị e c t lo m i m b e r s of' e.xtemal Controls, sucl) as llic s u pc r v i s o r y activities o f (he National A s s e m b l y tovvarđ gover ii niei]( ' s

(locumcMls; llic “ inlcrnỉil c o n l r o l ” íiclivities o f íiclminislralivc a g c n c i c s (o r e c o v c r itscir llic

misUikes; (lie ycnciíil supervisioM o f pr o ci i r a t or sK’ al aíl levels tovvard (he legal p cr lbni Kì nc e o f

1 S c c ìll K c s o l u t i o n s o f Pa r t y C o n g r e s s , e s p e c i a l l y t h e 7 lh, 8 1'1, 9 lh c o n c e r n i n i ; o n (lic m e n t i o n c đ i s s u e s

lĩ( t r u o n g - q u a n l oa ” m e c h a n i s m , S e e L N e v i l l e B r o w n & J o h n s B e l l , P r e n c h A d n i i n i s t r a t i v e Lavv 4 7 , 4 8 ( I 9 9 8

I lui l u c Ị l a n h c h i n h I A d m i n i s l r a t i v e P r o c e d u r e ] a c c o r d i n u l v all A d m i n i s l r a l i v e d i s p u l c s a r c r c s o l v e d \ vi t hi n

A d m ir i s t r a t i v c a i i c n c y s Y S t o n i b y “ i n t e m a l c o n t r o l "

\Vill:;im r l:ox ,lr, suprn nolc 20, ;it 19

Suclt ;is la\v o n or u; mÌ7 nti on ai ul o p c r n t i o n o f t iie N a t i o n a l A s s c m b l y , tlic G o v e r n m e n t , t h c 1’c o p l c ' C o u r t a n d

('coplt s 1’rosce.uiion: lavvs OM ornani/.ation and opcration ofsotne polilic.nl soeinl orgnnÌ7.nlion sucli ;is r.iiherland

I r o m I raclc U n i o n Yotilli U n i o n ; l;nv o n c o m p l n i n t s a n d d e i u i n c i a t i o n , o r d i n a n c e o n I n s p e c t i o n el c

I I)C (' imclion k n t n v n ns “ t h c g c n c r n I s u p c r v i s i o n ” o f p r o c u r a t o r a l c n g c n c y s y s t e m w a s r e p e a l e d h y ilic

A m c n c l me n l o( ( ' o n s t i t u l i o n 1 0 9 2 ;il t h e I o"' s e s s i o n o f l l i e I o"' N a t i o n a l A s s c m b l y in D e c c m h c r 2 0 0 1 ll n o w

•KỈmmistraíive agencies; the exaiiiination o f a var ious social o rg a n i z a t i on s to\vard adininisírative

n n n a g e m c n t activities and s o OI1 T h e State í ns p ec to ra t e w a s set up in 1945 and de ve lope d much

in bolli llie Itamcs and o r ga niz al ion to c a tc h up wúli the reqmVement f or S A D H o w e v e r , it wa s still an a dmi ni slnui vc a g e n c y lliat vvas v cs t cd Iiot enougli s l r on g povver (o deal witli dispules Althougli tlial vvas not the solc r e as on , it sliall be interest ing to d i s cu s s in c h a pt er ỉĩ vvliy tliis

me c ha ni sm for S A D vvas n o l s u i t a b l e for t he p r e s e n t tiiTie.

Smcc July 1996, the meclianisin for S A D lias c o n s i d e r ab l y c h a n g e d in vvliicli for (he íìrst time,

p c o p l e a r e a llo v v e d to s u e a d m i n i s t r a t i v e a u t l i o r i t i e s to a n i n đ e p e n d e n t j u d i c i a l c o u r t d u e to

causing tliem d a i nage s g u a r a n t e e d by law All d i s pu t es are r e s olvc d first by tlie ađministrative age ncy tlial r e nde r s sucli a litigatcd decision P eopl c, in c a s e o f d i s a g r e e m e n t vvith sticii a revievv

de ci s i on, can c h o s e eillier c o i i t i n u o us l y to m a k e c o mpl a i nt s lo i mme d i a t e higlier-level a g e n c y or

lo imlinlc a c a s e lo (he Admi n i sl ra t i v e Division Conrt' 17 T h e s y s l c m o f Slntc Jnspccíorntcs, since tlic birtl) o f llic L O C D ,x replacecl ÍỒI llie O S C C D v' in 1991, lias not func ti one d as a c ompe l ent iigcncy hanclling admi nislral ive clispuícs, but Consulting to p e o p l e ‘s c o mm i t l e e s to deal \vilh

p c o p l c ’s clíiims, e.xccpỉ íor llie c a s e o f d e l e g a t i o u <0

1 lic l l i e or y o f ’ Jnclicial rcvicvv o f a d m i n i s t r a t i v e a c t i o n lias b e e n e n t l u i s i a s t i c a l l y v v e l c o m e d in

Vielnam for o vc r past íĩvc yea r s T h e n e w meclianisiìi for S A D lias hacl Í1 great coiilnbution (o the sclllcment o f (he p c o p l e ‘s c o m p l a i n t s towarcl (lie infringeincnl bv lltc administríìtion ỉltnvcvcr,

u n d c r l a k e s (vvo Iiiain ( u n c t i o n s a s “ p r o s c c u t i o n " a n d “ s u p e r v i s i n g (l\c i t i di ci al a c l i v i l i e s " S e e (lie a m e n đ e đ

'ìíìer íìve )' cars o f e xpe ri enc e , it !ias al so lcft b e h i n d a lot o f sl iort comi ngs tliat Iieecỉ (0 be

re cover ed íbr existence Tliis p a p e r is t her e f or e p o u r e d o v e r ưuich efrort to point out and ana lyz e the e n c o u n l e r e d p r o b le ms in cl iapt er II, def imì el y emp!iasi zing lliat v i e t na i n lias stil! been

l oo kmg for an el ĩecti ve i ne c h a n i s m for S AD

r irsl ly, PAR is a “ c o m m o n p l i e n o m e n o n ” 1 li appeni ng in all social r e g i me s and counỉries lh;il a r e slill quilc (liíĩcrcnl in llic polilical s ys l cm or y o v c m i n c n l a l síí u c t u r c s ,2 T h e origins, conl cnt s and e í ĩc c ls O Í P A R c a n b e ex pl ai n e đ by practical raclors líiid dovvn in eacli c ounl ry otlicr

11lan "ils lendci s líilional clioice" n ln Viclnnm, llie State adminislrntion eslablislìecl since llic lihcr;ilion oCllic connlry up lo đnlc liíis rcvcnl eđ Í1 loỉ ol d c í c c t s íciilurcd bv cncli slngc lli.it IcíkIs

lo llic imperíilivc rcqiiircincnl oí llic ovcrall r e t b r m, ỉiiming at e n s u r m g llic ef feclive and c on cr et e

o p e i a t i o n ol thc pnblic adi ninislnil ion, k e c p i n g llie povvers o f aclministralive autliorities vvithin lỉtcir legíil b o u nđ s as well ;is protecliiig p eo p le ÍVoin tlieir abuse Autliorities, cỉuring ỉhc cnrrving oui llic public povvers in c v c r y đ a y I ĩ Te, ar e c m p o w e r e d to r e n d e r a great m i mb e r o f admmislr ati ve cliscĩ etions, whcllier accidenlcilly o r đel iberat ely, m a y inevitably iníringe 011 p e op l c conccmecl lliai in (uri) lcads lo vnrious aclminislríitive d ispul es a p p c a r e d and Ihe re qui r ement o f resolving it

Ni l s l i r i m s s o n & l ohan I ' O l s e n T h e t e í o m i i m ’ o r g n i i i / a t i o n , 1 ( 1 9 9 9 )

l u D i c n , C a i c:ich I Innli c h i n h va c a i c a c l i ki nl i lc I A d m i n i s l r a t i v e r c f o r n i a n d e c o n o m i c r c f o r n i | , 7 ( 2001 )

Ni l s l ỉ m n s s o n & lolian I’ C)lscn, s n p r a n o t e 4 I , al “ p r c l a c e ” part

T R Ư Ơ N G ' t

irt lie public admi ni str at ion is s t r o n g a nd e í ĩ e c ti v e eiiough and tliere is no m al p ra c t i c e s bv the aut horities, the m i mb er s o f d i s p u t e s will be c o n s i d e r a b l y r e d u c e d or even d i s ap p ea r

s i m u l l a n e o i i s l y , i f lỉie p u b l i c a d m i n i s l r a t i o n is w e l l r e f o r n i e d , it vvill c r e a t e in i t s e i r t h e c f f e c t i v e

m e c h a n i s m í o r rcsolvi ng d i s p u t e s wliile pr ot ec t i ng the riglits a nd legilimate interests o f p e o p l e as well as d e c e a s i n g tlie an ti pa t hy o f p e o p l e tovvard the adininistration Tluis, P A R in Vietnam,

b es i d c s s o m e otlier í ac l o r s sucl i as to e ns u r e the administration to o p e r a t e vvell in e v e r y d a y life,

lias evi dent ly ori gi nat cd from llie practical r e q u i r e m e n t o f S A D tliat is c o n s i đ e r e d a s a

r c q ui r e me n t in the aclministralion itscir, and not the “ s ubị ect ive cli oice” o f V i e t n a m ‘s l eadershi p

A c c or di ng l y , P A R is really dcímecl as a s p r i n g b o a r d vvliile dca li ng wilh tlie S A D

S e c o n d l y , looki ng at this n i cnt ionc d i ssue (r om the philosopliical pt' incip!esJ 'thai liave inucli itifluenced t he V i e l n a m e s e lcgal syst ei n n a m e l y Ma r x i st đ o c l n n e J\ A c c o t d i n g to this docl rine,

“ all lliings cxisling in Ilic Y v o r l đ Imvc itisiđc a n d o ut s i đ c rclalions 1111(1 mtiliKil iclnlion a m o n g llicm and (o thc otlicrs' "16 a nd “ mol ion is (he m o d e o f e x i s t e u c e o f m a d e r ” ' 7 As a result, w h a ( ev e r Ihiiìgs cotild not l)e e xa tni nc d p rc ci s e l y vvithoi.it b e i n g pnl III ils rclalion lo the ollicrs or in Í1

c c t tain a i m ls, P A R llius is nc c cs s ar i l y e x a m i n e d iu its relatioii lo llic ovcrall t e q u i t c m c n l loi

i m p r o v em c n t o f l h c mcchỉ ini sm for S A D and tlie latter is ai med lo c a r r y oul IỈ1C main conl cnl s and o b ị e c t i v e s of (he (brtner tlial sỉiall b e c on t i nu o us l y d i s c u s s e d in the next seclion

1 S h i d y i n g s o c i a l i s t l e g a l s y s t e n i ( t h a i V i e t n a m n u i c l i i n D u e n c e d f r o m f o r m e r S o v i c t U n i o n ) s h o u l d a t l n c h it lo t h e

s o l c p h i l o s o p h y t h e o r y , n a m e l y M a r x i s l - L e n i n i s t 1’h i l o s o p h y S e e R e n e D a v i d & l ohn E c B r i e r l e y , M ; i j o r s y s t e m s III tl\c w o r l d t o d n y 16 9 (I 9 8 ? ) a n d s e e a l s o T e x t h o o k o f M a r x i s t - L e m n i s t P h i l o s o p h y in V i e l n a m (I 9 9 9 )

S c c g i a o Irinli T r i c t h o c M a c - l c n i n , [ T e x l b o o k s o f M n r x i s l - l e n i n i s l P l i i l o s o p h y in V i c t n n m Ị ( 1 9 9 9 )

C h u n g h í a d u y v a t b i e n c h u n g v e - í h e í >i oi , [ The l e x l b o o k o f I he w o r d m n l e r i a l i s t i c d i n l c c l i c s - M a r x i s t - L e n i n i s l 1’l i i l o s o p h y ì M O - 1 4 6 ( 1 9 9 9 )

R e n e Davic) & J o ! i n f ĩ c B r i e r l e y , M a ị o r l e g a l s y s t c m in t h e vvorlcl, I 70 (I 9 8 5 )

1 c S v T l i i c p , Vn i t ro lai p l i a n 1 l a n h c h i n h v a y e u cat i d a t ra d o i v o i t o c h u c c o q u a n lai p h a n , I 1 l ic r ol c oT

A d m i n i s t r a l i v e i ur i s cl i cl i on a n d r e q u i r e m c n l l a i d d o w n t o t h e o r g n » i z a t i o n o f A c l mi n i s t r n t i v c ị ur i s cl i ct i on a g e n c y ] in

N a t i o n a l S C I I - N T i r i C 1 ’ K O I Í C T N O 9 5 - 9 8 - 4 0 6 / 1 ) 7 ' “ A D M I N I S T R A T I V E C O U R T - T I i r O R f V n r A L A N D 1’K A C I I C A L 1’ R O I Ỉ L I Ì M S ” b y G e n e r a l S t a t e I n s p e c t p r a l e , 91 ( 1 0 9 7 )

18

The í mai and i mportant re as on to explain the al lege d i ssue is the tlieoretical a s p e c t laid cknvn in the Íìinclíimenlal principle o f a đ mi ni str at ive lavv shovving tliat the adniinistration itseir includes Ivvo co-exisli ng sicles as “ a c t i ve ad mi n i s lr a t i o n” 9a n d “ ịudicial a d m i n i s t r a l i o n ” 50 T h e ' ;uclicinỉ íìmclions are clislmct and vvili a l w a y s r e ma i n s e p a r a t e from acỉminislrative fimc!i on” 51 Ther c sliould rcmain a clear dỉ st mctỉ on b e t w e e n tliose íidminislralive a g e n c i e s r e s p o n s i b l e for the

“ iniliation oỉ’ g o v em me n t a ! o r ot her ađmi ni slr al ive a c t i o n ” 52a nd t hose w h i c h ar e “ ad j ud ic a ti ve

a u c n ci es ” s ' r e spousi bl e for (he a dị udi ca ti on 0 f resotut ion o f d is put es arising from admi ni str at ive aclions T h e i mpr ovemenl o f Ihc nieclianisin for S A D in Vi et na m, in vvliich admi ni str at ive

clisputes are íiilovved lo bc seltled by c o m p e l e n t c o n r t s s i nc e 1996 a r e p a r a l l e l vvith tliose seltled

bv íiclminislralive ngcncics íillìrms ns llie “ ịuclicial rmicl ion” oT aclminisliíìlion lluil ha s n cv c r bcjcn kiKAvn in Vi et na mc se aclministralive lavv Tlius, il aims to c a r r y out tlie main co nt en t s o f P AR as

“ i mpr ovement s o f l h e legnl s ys tem c o n c e r n i n g on S A D ” P A R , in its turn, is lield responsibili ty lo crcalc ;i í avor condilion lo r es olvc ncliniiiislrnlivc d i sp u l es , such ns: llie “ o ig ai ii/ nl innnl sl ni ct ur e

rc lo rm 01 is n iu ic d lo s c l up au d í c c ú v e “ a d ịu d ic a t iv e íìg c it c y ” lo d e a l vvitli d is p u te s ; (lic

" m s l i U i t i o n a l r c l b i i u ' ' 55 is to r e n d e r a n a p p r o p r i a l c lc g ítl I V a i u c v v o i k Coi S A I ) a n d s o 0 1 1 ,

iiccordmgly P AR is really s ce n Í1S Í1 íìmđiinicnlal a nd intlispcnsíiblc r e qu ir cmc n t in o r đ c r lo

improve llic mechíiiiism for S A D in Vieliiíim

M c a n i n g as tlic m a n a u m u l u n c l i o n o f A c ỉ m i m s t n u i o n S e e í N c v i l l e Br ovvn &. J 0 I 1 II s B e l l P r e n c h Ac ỉ mi n i s t r a l i v e

7 | m p r o v e m e n t o f t hc m c c h a n i s m f o r S A D c o n s i d e r c d a s a n e f f e c t i v e m c a s u r v ' t o c a r r y o u t

Ihc 111 nin contcnts of PAR

The perception and under sta nding o T P A R in the context o f overall r e í o n n lias i n c r e a s ù m l y

b cc ome clear Ibr the political leadersliip, llie civil ser vants and the general public in Vi ct na m

Ị hc p r obl ems bcing a d d r e s s e d by P AR and the p r o c e s s o f implementation are v a r i o u s a n d v e r y complex Tliis pait of'Ihe p a p e r aims to point out (liree main cont enl s o f P AR cl os el y c o n c e r n i n g llic improvemenl o f tlie me c ha ni sm for S A D as below:

2.1 R c f o r m o f í u l m i n i s t n i t i v c i n s t i t u t i o n s

Ađmmislrative inslitulion r e f omi w a s c o n d u c t e d aflev the 6 lh Party C o n g r e s s ( 1 9 8 6 ) l oect li cr with (he c c o n o mi c rclbr m and the creation o f llic n e w e c on omi c meelianism namel y “ ma r k e i c c o n o m y oricnted soci alism”56 Arter the birth o f the Constilution o f 1992, (hc adtiiinislralive instiuition System has been g rađ u a lly reiievvcd to catcli up \vilh the reqtiircmcnl o ỉ sỉalc m ann gem enl a n d o f public set vicc dclivery in (lie opcn mar ke t c c o n o my , and littlc by lilllc it lins i mp r ov e d in

íic c o rc ia n c c w ilh llie p io c c s s o f c x p a n t liiig (lc m o c iíie y

I lic ncw clcmocralic insliltilion lias a l lowed peopl c lo prolecl llicmsclvcs ỈVoni bciim inlì iimcd by thc nciminislrntion, as <1 resull, it ca u se d í) grcat mi mbcrs of di spnt cs mising b c lw e cn poopĩ c a n d public aullioriỉics or slntc lliíil slioulcl bc bolh legally and rntionally resolvcci In o rd c r lo sal isí y tlie abovc menl ioucđ d c m a n d , Rcsol ul ion No 8 o t 't he 7lh Parly C o n m c s s lliat is c o n s i d e r e đ lo b e oKicially use llic Iiame for P AR, clelcrmineci “ (liete sliould iulensily llic setllemcnl o f ' c o m p l a i n t s

ÍIIKỈ l i t i gal i ous ol p c o p l e ' ° , c o n c c l an d m a k e nevv l e g i s l a t i v e i c e u l a l i o n c o n c e r n i u u s o m o

n c l m in is t t íiti v c í ì c l d s C e n t r a l l y n r i s i n g in c l i s p u ỉ c s s u c l i ; is O VCI l í i i u l h o u s i n g , s o c i a l p o l i c i c s c ỉ c

Vielnam cse Constitution 1992, An I 5

S c c V a n kicíi 1)01 11 nhi l an 8 I3CII I w D a n g k h o a 7 Ị D o c u m c n l o f tlic 8 11' s c s s i o n o f t h e 7 11' 1’nrt v C o i m r c s s l 2 9

(I <)')>)

20

1111 "promot e ihc f'oirnda(ioti o f a đ m i ms tr at i v e court lo deal vvilli the litigated admmistralive

( li.cpositions m a d e b y a u t h o r i l i e s o f tlie S t a t e ” 58.

í he rcquirement for S A D lias o b l i g e đ the g o v e r n m e n t to impl eme nt the e í ĩ e c t i v e me a s ur e s

10'vard admi ni stral i ve iiisóUition re l o r m, sucli as the important legal d o c u m e n t s tliat liave bcen

i s s n c d59 the I1CVV legal f r a m e wo rk c o v e r i n g i he all í ìel đs o f s o c i e l y included concentral ed

l i ì i p i l i o n í í e l d s llial l i a v c b e e n b u i l l ™, e s p e c i a l l y l li e r e í b r m s o f n đ m i n i s l r a l i v e p r o c e đ u r e f rom

1994 is r c ga r d c d as a “ b r e a k l l ì r o u g i r 6lo f P A R Adiniiiislralive procedural r eíbr m has í o cu s ed OI)

s c v e n lie!dsr’" c o n c e m i n g 01) iiiiliating d i s p ut e s , foi i nslances: compl ai nts and đemmci al i ons; cranling o f c o n s t n i c t i o n per mi ts and c e rt i f i cat e s o f l a n d - u s e riglits; granting permits o f b u s i n e ss

csl ablisliments and b u s i n e s s adiniiiislration; f oreign direct investment; iinport and c x p or t e t c

The administr ative insliUition, in fact, has a lot o f sl iort comi ngs during llie operation pr oc es s In respect o f the legislative, it is co ni i no n thíit s u p er i o r and subordinate regulalions are inconsistent

Provi si ons in supcri or rc g ul at io ns are s o i n e t i m e t o o general, l eaving too mticli discretion lo lovvcr

lcvcl i oịui l í i ti ons llial Cỉiuso c l i í l i c t i l l i c s fot c o m p e t e n t í i g e n c i e s in nppl i c í i l i on o ( l;t\v lo i c s o l v e

dispules, i c s s c n i n g llic c í ĩ c c t i v e n e s s o f S A D as we l l as d e c re a s i n g the trust o f p e op l e tovvard

present m e c h a n i s m íbr S A D Tliis vvill be the ÍO C I I S o f discnssion in clvapter II [n r espect oPllie

application o f law llic probl eni líìid d o w n í ìnds tliat tlie local auỉliorities e m p o w e r e d to rcnder too

m a n y a d m i n i s t r a t i v c c l i s p o s i t i o n s , s o m e o f t l i e s e a re far f rom l e gal and in i mi í b r m \vitli l e g i s l n t i v c

provisioiis, tliat nalurnlly res ul l s in c o m p l a i n t s or courl acl i on by people.

The n d m i n i s t r a ú v e i n s t i t u l i o n r e f o r m t l ms lias a i m c d to r e c o v e r ỉ l i e s e e n c o u n t e r e c l p r o b l e m s sucli

ns i mproving the qtialily o í l e g a l d o c u m e n t s i n c l u d i n g d o c u m en t s involved S A D, securing

d c mocr at ic righls of peo pl e Wha t restilt sltall be scor ed, vvhedicr good or not, surely d e p en ds 011 Ihe cíTeclivcncss o f tlie c o n t e m p o r a r y mecli anism for SAD

of utmost coiicern A n a l y z i n g d e v e l o p e d legal sys tems sucli as in coimtries like France, Ge rma n

( b c l o ng i n g lo Continental l a w f ami l y) , l ìngl and, Ame ri ca ( be l o n g i n g lo c o m m o n law fnmily) 01'

C V C I1 l a p a n k t io v v n a s a m i x e d l e g a l s y s t e m , t l i c “ ị u d i c i a l r e v i e w o f a d m i n i s l r a t i v e a c t i o n " l in s

c x p e r i e n c c d n l o n g h i s t o r y t o p r o t c c t p c o p l c f ro m í KÌ mmi s l i al i ve íilnise in vvliicli (he

ađminislrativc clisịHiỉes c a n be s o l v e d by the vari ous enlitics sucli ;is aciminislmlivc courls,

adminislralive Iribunals, ordinary c o ur t s, or by the System o f ombuclsmcn In Vietmim, S A I ) , up

to í ul y 1996, vvas o n i y in c o m p e l c n c e o f (iie syslem o f adminislralive age nc i es inclucling llic sysl cm o f Slate I n s p e ct o ra t e Ir an a d mi ni slr al ive dispule vvanls lo be i csol vcd by <1 juclicinl court, tlic rcquir emcnl for t he o r ga n i z a l i on a l s truclure r e íor m (sucli as.tlie crention o f Administraỉive Division C o u rl ) \vill b e inevi tabl e T h e d i scnssi on o f vvhich modcl o f nclminislrnlive court slioukl

bc a ppl ie d in Victnani o r the redefinition o f tlie íìmclicm o f llic State ỉ ns pecl or a t e or tlic

procuratornlc íigciicy i nv c l v i n g S A D a r e really goocl exompl es loi llic nbovc mcntionec! mnllcr lliat will bc c o n l i n u o u s K p r e s e n t c d in dclail in llic next clmpler

22

2 ? I m p r o v i n g a n d ( l c v c l o | ) i n g c a c l r c s 63 a n d c i v i ! s c r v a n t s 6'1

Civil ser vants represenl tlic “ ke y r e s o u r c e ”r° i n b r i n g m g aboul the s u c c e s s or railure OÍ PAR The proimilgalion oTllie O r d in a n c e 011 ca d re s a nd publ ic s er vant s is seen as the uiosl significaiit resull

III tlic creation o f a Iievv legal frainework 011 d e v e l o p i n g tlic cadrcs and civil servants.

In íact, Vietnam lacks a stable and pr of es si onal c o n t i n g e n c e o f civi! ser vants in coi npar ison witli llic a v e r a g e lcvcl o f otlier countries The t wo main p robl eni s laid d o w n in Vielnam are Ihe

inadequate reimmentlion and low quality o f civil s er va nt s Tlie c ur rent salary levels fail to

molivalc civil ser vanls to p c r í b r m bcKer OI1 the o n e Iiand, and (lic lack o f (raining and u pg r a ding llic mạịor kncnvlcdgc in llic ol her m a y b e se e n as llic inain ren so 11 s ca us in g law violalion, bribe, coi rupt i on, l o w p e r f o n n a n c e and q u a l i ty o f S e r v i c e C a d r e s and c i vi l s e r v a n t s d o not s c r v e llie

public in a maniier o f b e i n g “ s er va n ls o f c i l i z e n s ”66

The nllcgcd (lcíccỉs lias resullcd in a great mi mb e r o f admiiiistralive dis|)ules arising bcUveen pcople and pubiic aưtlioriúes, and al so d e c r e a s c d tlie effec ti vene ss o f sctllcment o f di spul es since public íuilliorities vvlio are in c o n i p e t e n ce o í S A D fail to mee( llic expectation of people T h e qunlily o f p n b l i c aulliorilies in cliarge o T S A D sn ch ns aclminislmlive ịudges, p e o p l c a s sc ss or s, procurators, inspectors or the lieads o f r e v i ew a g e n c i e s is also in s er ious debate As a rcsull, tlie

i n i p r o v e m e n t 0 1 ' m e c h a n i s m for S A D iTiight fail to g e t c c r l a i n SIICCCSS u n l e s s i( is d ef i nĩ t el y a b l e

Th e legal conc ept s o f “ Pliap c h e ” ( Pri nci pl e o f Legality, h e r ei naí ìer r e f e i r e d to as Pliap c h e ) and “ Nha I1UOC Pliap q u y en ”(Legal State) ar e pop ul arl y used in Vielnnm at present.

Kirstly, it is important to explain wliat ma y be a c o ní li sin g d i í ĩ e r e n c e in t er ms “ Pliap c li e” can be

c o mp a r e d witli “ Rule o f L a w ” k n o w n as a legal c o n c e p t o f the Ang l o- Ame ri ca i i law “ R ul e o f Lavv” , in llie e ye s o f vvestern l awy er s , is not u nf a mi li ar a nd s e e n as a f u n d a m e n t a l c o n t e n t o f the administrative law, closely attaclied witli tlie “ s e p a ra t i o n o f p o w e r ” A d m i ni st r a t i v e lavv

meainvliile is deílned as “ the l a w relating to c ont rol 0 f go ve r mn e nt al p o w e r s ”67, llie Rule o í ' L a w requires the “ recognition o f the p r e d o m i n a n c e o f tlie regular law, as o p p o s e d ỉo a r bil ra ry o r vvide discretionary povvers” 1™ I lence, in e s s c n c e , the R ul e o f Lavv r e quir es all g o v e m m e n t a l povvcrs lo

be boi md by law and i( is r e g a r d e d as a “ useful d o ct r i n e in o r d e r to i n e a s u r e a n y u n đu e shitì o f

p o w e r lovvard e.xecutives”69 In the c a s e o f Vi ct na m, (leeply i iiíluenced by f o r mc r Soviel U n i o n ’s lega! s ys tem in Stíilin period, llic c o n ce p t o f “ R ul e o f L a w ” w ns tmknovvn, Ilic c o n c e p t o f “ Pliapchc Xa hoi chu i)ghin” (Prii)ciplc o f S o c i a l i s t Le g a l i ỉ y 70) lias b ec n c o m m o n l y u s e d instead Willi

liic aííii DKilion oí llic principlc o f socialist legalily, “ l aw lins hecii given the cl iar act er and

aulhoriỉy llial i! híis in capilalis! c o i m l ry ”71, hovvcver the r c ason wliy llic ;icijeclive “ s o c i n l i s m ”

wa s adclcđ lluil, líke tlie formcr Sovici Uni on, the strict c o n í b n n i l y to llie Soviet legal o r d e r or to socialism oricnlcd stat e’s !aw in c a s e o f Vi ct nnm vvas íibsolulely impcr a ti vc aticl it íiimcd to

lcgiíimi/.c llie oblignlion lo llie lavv a nd (0 m a k e Ihe pri nci pl e of' lcgalily m e a m n g í u l 72 ỉn Vi cl nnm, the c o n c ep t o f “ Pliap c h e ' ’(Principl e o f Legality) that to s o me an cxtcnt can be c o i n p a r e d wi(h lliat

o íRti le o f L a w in the a s pe c t o f ( l i e l a w ’s autliority is newly ad op lc d and b c c o m e s c o m m o n in us e

today E s p e c i a l l y , a f i e r a c o u p l c o í y c a r s o f i m p l c n i e n l i n g “ D o i M o i ” p o l i c y , lliis VVÍ 1S o í í i c i a l l y

iccognized in llie Party C o n g r e s s d o c u m e n l s 71as well as slipulaled in the Constiliition o f I 9 9 2 7\

“ Pliap clie” vvas int roduce d in Vi et nam in its relation to tlie tlieory o f (lie “ cenlralization o f

p o \ v c r s ” , a c c o r d i n g to tliat, all State p o w e r s w e r e c e nt r a l l y i n t e g r a t ed , but c l e a r l y divided a m o n g

legislalive, exe cul ive and j ud ic i al p o w e r “ Pliap c h e ” is seen as the íundamení al legal p ri nci pl e75, provided in Article 12 o f tlie Cons li tut ion 1992 tliat requires all S tate entities and individuals to act respeclíully and lliorouglily a c c o r d i n g to (lie lavv

Scconđly, it sliould be explainecl tliat the notion o f “ N h a IUIO C Pliap q u y e n ” is a ÍÃirtlier

d e v elopme nt o f “ Pỉiap c h e ” in Vi et nam T h e “ Overall p r ogr am for PAR in Vielnam in (he per iod

o f 2 0 0 l - 2 0 ] 0 ' ,7í’ lias r e al ĩ ìr n i ed the main o b ịe c t iv es o f P A R is to builđ u p “ a strong, m o d e r n and dcmocr al ic admmi slr al ion ” 77a » d “ Nha ntioc P h ap quyei) V i c l n am ”™

“ Nha I1UOC Phĩip qt i yen” in V i e l n a m e s c is d e í ì n c d as a State bas cd 011 llie “ dcitiocralic and

scicnliíic a(lininislralion” 7), puls ílself in llie g o o d o b e d i cn c e o f llie law in Nvlìicl) “ Ihe supcr ior ily

oi l;)w''KO;ibsoliiỉely r e s p e c l c d a n d llie (l cmocnil ic righls oí'cilÍZCMS clĩeclivcly gu a r an l cc d by la\v

s l The applicnlion o f “ Nh a mi oc P h a p q t i y e n” in Vietnain, tlìrougliout llie p ro ce s s o f PAR, has hccn íaced vvitli obslíicles, sucli ;is the cr iticism involving Ịlie ndoplioii of “ Rnĩe o f La\v " k mn v n

;is n tlieory closely linkcd lo “ s epa r at ion o f p o w e r s ” wliile Vielnam political s ysl em b a s e s 011 (he

‘centralization o f p o w e r s ” ; (he criticisin surrounding the impleinentation o f democrati za(l on

I

process8 ; es pecially the p r o b l em laid d o w n in the i mma lnr ity o f legal sy s l e m and s o 01), I lovvever tlie leadersliip as \vcll a s tlie law inaker s in Vi etnam believe that the Rule o f L a w could be

appropriately applied in the c ount ry a d o p t e d the tiieory o f “ conc enl rat ion o f p o w e r s ” likc

Vietnam, Cliina and its result d e p e u d s 011 the ranges o f reforms m a d e sl ep-by-step

Looking back al the liislory prior (o Ihe birlli o f “ Doi M o i ” policy, mecli anism for S A D in

Vietnam vvas still not m a t ur e enougli (0 be s een as an effective m ea su r e lo gu ar anl ee (he riglits íind lcgitimatc inlercsts o f people A typical facl k n own in Victnam b e í or e is tlie superiorily and doininance o f Party r esolutions, State plans for the deve lo p me nt slnge o f eacli five years,

aclminislrative orde rs and llicy s e e m e d p r o b a b ly equal (o law As a result, tlie build up o f “ Nh a mioc Plinp qtivcn'' in wl)icli “ Ihe p r e d o m i n a n c c o f the regular l a w ” x1 is r e cogni zed, llie

democratic riglits o f llie pe opl e are vvell pr o le c te d by law lias bcen vigorotisly s nppor t ed by the

lcíKỈclsliip, law lìiíikcrs a n d gencral public and lias b c c o m c the cssential obịecti ves adclressed by PAR I he impr ovemenl ol m c c h a n i s m íor S A D , llms lo s om e exlenl, will obtain llie alleged

objective o f PAR ir it síitisíles llie r e q u i r e me n t a d d r e s s e d by “ Nha IHIOC pliap q u y e n ” , sucli as: the

4 í n i p r o v c n i c n t o r < lic m c c h a n i s m f o r S A I ) a i m s to c a t c h II |) w ỉ t h ( h c d c v c l o p m c n t o f l c g a l

Science of the \vorld and region in tlic field of SAD

In Vi et na m, lliougli the S A D wa s not imfamiliar, b e c au se riglư after the birtli o f Deinocratic Republ ic o f Vi et nam 011 S e pt em bc r 2 ni11945, the “ Special Inspect orat e C o m m i s s i o n ”8'1 wa s founded a n d e m p o w e r e d “ lo deal vvill) c ompi ai nt s o f the p e o p l e ” 83 H o we ve r , since then, S A D was v e st e d o n l y vvitli (he s y s t e m o f ađministrat ive a g e n c i e s including llie System o f Inspectorates

.Iudicial revievv o f adininistraíive action w a s U!iknown until llie crealion o f Administrative

Division C o u r l in luly 1996 In llic c ont exl o f c ont eni por ar y inlem;itional d c ve lopme nl , Í1 judicial rcvie\v System h as b e c o m c “ an e s s e n ú a l s y s l e m ’ r’for thosc counlrics lliat are i no de mi zi ng (lieir

c c o n o m y a nd j oi ni ng llie i ntemat ional coinimmily T h e objcclivcs laid d o w n in P AR iias also aimetl to m a k e Vi el nam quickly inlegrated in to the d e v e lopme nt o f tlie region and the world incltiđing tlic respccl oMcgíil scientiric d e v e l o p m e n l .As a resull, the impr ovement o f l l i c

inechani sm íor S A D will be a really important contributỉon lcnvard P AR if it calches up the ( levelopmcnl o f lcgal Science of Ihc legioi) and tlie vvoiỉd in tlie íielcl o f S AD As a bove

implicalion, llie Iiext part is to present brieíly the vievv o f s ome inạịor lcgal syslems in the vvorld towar d S A D in o r d e r ỉo dravv soine l cs so n s to Viclnam

4.1 S A D ỉn t h e v i c \ v o f C o n t i n e n t a l L a \ v F a n i i l y

'I hc Conl inc nla l La\v íainily, also kiiown íis llic R o m a n o - G e r m a n i c sysl em*7 vvas cr ealcd 01) the

t ù i r o p e a n c o n l i n c n l in t he 1 3 ’ 1 centiM-y, a n d a s a re sul l o f co) onỉ zat i oi > a n d r e c e p l i o n , many 1)011

-s ' S p c c i a l I n -s p c c l o r n l e C o n i m i -s -s i o n w a -s -s et u p b y (lie D c c r c e N o 6 o( S l a l c P r e s i d e n t 011 N o v e m b c r , 2 y l 1945

kí

Y o m i Z l i a n u C o m p a r a l i v e s t u d i c s o n tlic ludi ci nl r evi evv S y s t e m m r.ast a n d S o u l h c a s t Asin 7 1 ( I 0 9 7 )

S c e K c n c D a v k l Ẵí J o l i n l : C B r i e r l e y s u p r a n o l c 4 7 , a t 33

linropean coimlriesxx liave a c c e p t e d o r borrovvecl s o m e cerlain e l e m e n t s a n d íluis h a v e becoiĩie incnibers o f tliis law family Tliis l a w í ami l y ori gi nat ed froni the legaỉ c o n c e p l s o f a nc ie nt RoiHe and der ive d from R om a n RIIle o f L a \ v R u l e o f L a w is s ee n a s “ a rule o f c o n d u c t ” 8<;close!y relalcd lo tlie iclcns o f ịustice a n d mor a l i t y a nd a f unda me nt al legal tlieory lo d e v e l o p juc1icial revievv in tlicse countries.

Tlus law famiỉy lias clearly distinguislied betvveen private l aw and publ ic l a w since public interestand inlcrest oí privale inclividuals c a n n o t b e vveiglied in the s a m e b a l a n c e 90 Wliiie private law issccn as the l aw c onc er ni ng the p r i va l e relationsliips b e l w e c n individual cit izens in b us ines s, civi!contracts, public liuv regulal es tlie re la l ions b e l w e c n lliose vvlio g ovcr n and tliose vvlio are

gove r ne d , b eh v c en slate aul hori li es a n d individuals, a n d a m o n g public entilies'

T h e c l c a r (lislinction a b o v e l e a d s to Ihc f o u n d a t i o n a n d d e l i m i t a t i o n o f c o m p e t e n c e in d e a l i n g

vvitli (lispules nrising in cacli o f l h e lavv rields A c co r d i ng l y , ađmi ni st r at ive d i s p u t es i nvolve c a s e s

i cl al i ng to tlic “ lcgal c o u s c q u c n c c s 01'ÌỊỊÌiialiiig in or by (hc applicaúcm ol tlie publ i c lavv”'12

b c ỉv v c c n State ín ilh o r it ic s a n d i n c l i v i đ i i í ìl s , b e lv v e e n p u b lic in t e r e s ls n n d p r iv a t e in t e r e s ls , \ v h ilc

civil dispulcs o r i ý n a ú n g (Yom llic p r i va t e interests a ni on g i ndi vidua l s91 '

JucliciíìI revievv o f a c l mi ni s l r a l i v e a c t i o n in ( l i e s e c o u n t r i e s is a p p l i e d l o e m p o v v e r t he c o u r l

s y s l e m l o IISC jii(lici;il c o n t r o l l ovvard a d n i i n i s t r a t i v e đ i s p u l c s C o n r l s l o r m e d l l i r o i i g h o u ỉ llie

(cn itory ol llic coimtry in qucs ti on íire tlie íirsỉ level Sonie f’e w cour ls o T a p p e a l ar e thc cour ls o fuppcr-lcvcl wi(h Ihe S u p r c m c C o m ( as the Iiead Tlie diíTerent structiires o f cour l to deal vvilhíiclniinistrativc ciisputes lias b ee n clearly r e al iz e d sucli as an i nde pe nde nt adinini str ative courl

System is established in c a s e o f P r an ce , G e r m a n , Itnly, S w e d e n ; in Bclgium, Spain and in most

I rciich s pea king Africa coi mt ri es, llie ac lmini stnuivc dispule is sol ved by a s ep a r a l e division

vvitliin tlie o r d i n a r y c o u r t s ; o r í l n a l l y it is r e s o l v c d b y o r d i n a r y c o u r l s and not d i v i d e d in to a n y

spccial đivision as in the c a s e s o f D e n m a r k , N o n v a y 'M elc

4 2 S A O in tl i e v i e \ v o f C o m m o n L a \ v P a m i l Y

Co in mo n lavv is cleíìnecl as “ the l a w coiiiinon lo 1)11 E n g l a n d ” bui dicl Iiol exist unlil I 0 6 6 <)5 and

C o m m o n Jaw íamily consisl s o f all llie lavv o f Englisl) s p ea k i ng counlries willi a fe\v ex ce p l í on s 96

C o m m o n l aw w a s cr ca t cđ nol by i neans o f l e g i s l a ( i o n but byj ud i ci al dec isi ons oCllic previous

courts as p re c e d e n ls 97 u n d e r “ the pri nci pl e o ĩ s l n r e líecisis"™ A.ltliougli the theori es o f Rule o f

Lavv and juđici;il rcvievv liave b e e n liiglily (l eve l opcd in tliese counl ri es and nclminislrntivc

di sput es arising belvveen g o ve r n i ne nt al povver a n d private interests are cleílnitely r e c ogni ze d, but leatur cd by 110 clear distinction bctxveen public mui private law, s o thai mosl dispules iiicluding Mclministrative one ar e liandcc! by (lie lovvcr c o m t s , var ions nclminislrntivc bonrtls, tribimnls,

commi ssioits ;iml privnlc íitbiliíilors All nclmimsti alivc (lispulcs ;irc íìrslly resolvcd bv “ inỉcmal

r c v i c w ” m Ihc h a n đ o l a d i u i i i i s l r a l i v e a g e n c i c s Iluil r e n d e r llic d i s p u l e d a c i mi n i s l r a ỉ i v e d e c i s i o n s

In c a s c s o f clissatisfaction wit.il llic original revic\v decisi ons, pe opl e c o n c e m e d can initinte cases

lo OI(linnry ịmlicial cour ts by virluc oí (lic c o nc cpl ol “ no hi cmr c hv ornclminisỉnilivc COUIỈS

( l i s l mc l from llic orciiiiíiry c o u i l s ’ 1 wl)icli VVÍIS SCI Iip to (lcal vvilh sncl) s a 1(1 d i s p u l e s