Giáo trình luật hành chính Việt Nam / Trần Minh Hương cb., [và những người khác ...]

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<i>'sfa</i><b>§ TR JONG DAI HOC LUAT HA NQI</b>

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<b>GlAO TR1NH</b>

VIETNAM

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<b>TRUONG BAI HOC LUAT HA NOI</b>

<i>Giao trinh</i>

<b>LUAT HANH CHINH VIET NAM</b>

<b><small>To. HO CHiMINH</small></b>

<b>NHAXUAT BAN CONG </b>

<b>AN </b>

<b>NHAN </b>

<b>DANHA </b>

<b>NOI -</b>

<b> 2014</b>

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Chii bien: TS. TRAN MINH HUONG

<b><small>Tap</small> the <small>tac gia</small></b>

PHAN CHUNG

1.<small> TS.TRANMINH</small> HUONG Chuang I, IV, VIII

<small>2.</small> TS. <small>NGUY&NMANH HUNG</small> Chuang II

4. TS.<small> BUI</small> THI<small> DAO</small> Chuang V

<small>5. </small>NGUYfiN <small>PHUCTHANH</small> Chuang VI

6. TS. NGUYEN THI <small>THUY</small> Chuang VII

7. TS. TRAN THI <small>HIEN</small> Chuang IX

<small>9. </small>ThS. NGUYEN <small>TRONG</small> BINH

Chuang XI

10. ThS. HOANG<small> VAN </small>SAO Chuang XII

PHAN RIENG

2. <small>TS.</small> NGUYEN VAN <small>QUANG</small> Chuang II

<small>3. </small>NGUYEN <small>PHUCTHANH</small> Chuang III

4. <small>TS. </small>TRAN THI <small>HIEN</small> Chuang IV

<small>5.TS.</small> TRAN <small>MINHHUONG</small> Chuang VI, VII

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<b>LdlNOI</b>

<b> DAU</b>

<i><b>"Gido trinh luat hanh chinh Viet Nam" dicqc bien soan</b></i>

<i>tren ccf scr Hien phdp va cac van ban phdp luat hien hanh quydinh ve qudn ll hanh chinh nha nic&c.</i>

<i>Gido trinh nay la tong ket kinh nghiem nghien ci'cu va gidngday mon hoc luat hanh chinh tai Tnt&ng Dai hoc Luat Ha Noi</i>

<i>tit nhieu nam nay.</i>

<i>Luat hanh chinh la ngdnh luat co he thong quy phqm phiCctap va thtf&ng xuyen dicac sica doi, thay the, bo sung de dap iengyen can nhiem vu qudn ll hanh chinh nha mede tren cac linhvice khac nhau ciia ddi song xa hoi. Dieu do doi hoi phdi khongngicng doi meh va hodn thien gido trinh. Trong vice thicc hiennhiem vu kho khan nay, cluing toi mong nhqn dicac y kien donggop ciia ban doc gdn xa.</i>

<i>Xin Iran trong gich thieu cling ban doc.</i>

TRUONG<small> DAI</small>_{• • • •} HOC LUAT <small>HANOI</small>

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<b>PHAN CHUNG</b>

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I. LUAT HANH CHINH - MQT NGANH LUAT TRONGHE THONG PHAP LUAT VIET NAM_{• • • •}

<b>1. Luat hanh chinh - nganh luat ve quan If hanh chinhnha nude</b>

<small>» • ■ ■ ■ </small>

-Luat hanh chinh la nganh luat dieu chinh cac quan he xahoi phat sinh trong hoat dong quan If hanh chinh nha nude.Cach dinh nghla nay phu hop vdi quan niem cho rang viec phanbiet cac nganh luat trade het can can cd vao nhung quan he xahoi duoc phap luat dieu chinh.

Hoat dong quan If hanh chfnh nha nude khong the tach rdinhung quan he xa hoi ma nd hudng tdi nhlm on dinh hay thaydoi cho nen doi tuqng dieu chinh cua luat hanh chfnh khongphai la ban than quan If hanh chfnh nha nude ma la nhung quanhe xa hoi hinh thanh trong qua trinh hoat dong quan If hanhchfnh nha nude. Viec phan Idn cac quy pham phap luat hanhchfnh lien quan den cac hinh thde to chuc, den hoat dong quanli hanh chfnh nha nude khong thay doi mot thuc te la chung batngudn tur nhung quan he xa hoi.

Luat hanh chfnh gid vai tro quan trong trong viec hoanthien hoat dong chap hanh - dieu hanh cua Nha nude. Cac quypham luat hanh chfnh quy dinh dia vi phap If cua cac co* quanhanh chfnh nha nude, xac dinh nhung nguyen tdc cor ban cua

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quan li hanh chmh nha nud’c va cac van de khac cd lien quantdi quan If hanh chfnh nha nude. Thong qua do, luat hanh chfnhbao dam viec cung cd, hoan thien bo may hanh chinh nha nudeva khong ngimg nang cao hieu qua cua hoat dong quan If hanhchinh nha nude.

Luat hanh chinh cung quy dinh quyen va nghia vu cua cacchu the khac cua quan If hanh chinh nha nude, nhung bien phapbao dam thuc hien cac quyen va nghia vu do, tao dieu kien chocac chu the tham gia mot each tich cue vao hoat dong quan Ifhanh chmh nha nude.

Luat hanh chmh xac dinh co che quan If hanh chmh trongmoi linh vuc, dac biet la trong ITnh vuc kinh te.

Luat hanh chmh quy dinh nhung hanh vi nao la vi phamhanh chinh, bien phap xu If, thu tuc xu If nhung to chiic va canhan thuc hien vi pham hanh chinh.

Tur nhung dieu da phan tich tren day cd the di den ket lu&n:Luat hanh chinh la nganh luat ve quan If hanh chinh nha nude.

Cung chinh vi vay, trudc het chung ta can tim hieu ve quanIf va quan If nha nude.

<i>a. Quan li</i>

Quan If la doi tupng nghien cuu cua nhieu nganh khoa hoc,trong do cd ca khoa hoc tu nhien va khoa hoc xa hoi. MOinganh khoa hoc nghien cun ve quan If tit goc dp rieng cua minhva dua ra dinh nghia rieng ve quan If. Dinh nghia chung nhat vequan li la dinh nghia cua dieu khien hoc. Theo dieu khien hocthl quan If la dieu khien, chi dao mot he thong hay mot quatrinh, can <small>clt</small> vao nhung quy luat, dinh luat hay nguyen tactuong ung de cho he thong hay qua trinh ay v£n dong theo ymuon cua ngudi quan If nh^m dat dupe nhung muc dich dadinh trudc.

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Dinh nghTa tren thich hop voi tat ca moi trudng hop tir sirvan dong cua mot co the song, mot vat the co gicri, mot thiet bitur dong hoa den hoat dong cua mot to chile xa hoi, mot don vikinh te hay co quan nha nude.

Trong chuong trinh luat hanh chinh, van de can nghien ctrula quan If xa hoi, quan If nha nude.

Cac Mac da coi “quan li la mot chitc nang dac biet <i>naysinh tit ban chat\xa hoi cua qua trinh lao ddng”S{} Nhan manh</i>

noi dung tren, ong viet: '‘<i>Tat cd moi lao dong xa hoi trite tiephay lao dong chung ndo tien hanh tren quy mb titan g doi Ian,thi it nhieu ciing deu can den mot sit chi dqo de dieu hoahoanhitng hoat dong cd nhan va thitc hien nhifrig chitc nangchung... Mot ngiteti doc tail vT cam tit minh dieu khien lay minh,con nipt dan nhac thi can phai co nhqc tritdng ”.(2)</i>

Luan diem tren cua Mac cd the ap dung vdi moi hoat dongchung cua con ngudi trong xa hoi.

0 dau cd su hop tac cua nhieu ngudi, o do can cd quan If,boi vi hoat dong chung cua nhieu ngudi doi hoi phai duoc lienket lai dudi nhieu hinh thilc. Mot trong nhung hinh thuc lienket quan trong la to chile. Xet ve noi dung, to chile tile la phoihop, lien ket hoat dong cua nhieu ngudi de thuc hien muc tieuda de ra, la yeu to quyet dinh dem lai hieu qua cho quan If.Khong cd to chile thi khong cd quan If.

Khang dinh van de nay, Lenin da viet: “Muon quan li tot

<i>ma chi biet thuyei phuc khong thoi thi chita du, ma can phaibiet to chitc ve mat thitc ti£n mta ”.(3)</i>_{• •}

De dieu khien, phoi hop hoat dong cua tap the nhung con

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ngudi. chung ta can co nhung phuong tien buoc con ngudi phaihanh dong theo nhung nguyen tdc nhat dinh, phai phuc timgnhung khuon mau, nhung menh lenh nhat dinh. Co so cua sirphuc tiing hoac la uy tin hoac la quyen uy. Trong nhung hoancanh lich sir nhat dinh, uy tin dong vai tro la co so quan trongcua su phuc tiing nhung nhin chung thi quyen uy van la co sochu yeu. Quyen uy la su ap dat y chi cua ngudi nay doi vo’i

nguoi khac buoc ngudi do phai phuc tung. Nhu vay, quyen uylay phuc tung lam tien de.

Quyen uy la phuong tien rat quan trong de chu the quan libuoc doi tuqng quan 11 phai phuc tiing, la yeu to khong thethieu cua quan If. Khong co quyen uy thi hoat dong quan If se

khong dat duqc hieu qua.

Quyen uy - y chi thong tri cua ngudi dieu khien co the daidien cho loi fch chung va nham phuc vu loi fch chung cua cacthanh vien trong to chtrc. Nguqc lai, nd co the chi dai dien choloi fch cua mot nhom ngudi hoac mot ca nhan.

Trong truong hop thur nhat, su phuc timg quyen uy, tire lasu thong nhat y chi, duqc thuc hien chu yeu thong qua phuongphap thuyet phuc, bang ki luat tu giac cua cac doi tuqng biquan If.

Trong truong hop thtr hai, su thong nhat y chi va su phuctimg duqc dam bao chu yeu bang bao luc, cuong che va theo

<i>Lenin thi “sit dien khien cd the mang nhiing hinh thi'cc doc tai,nghiem khac</i>

Chu the cua quan If la con nguoi hay to chtrc cua con ngudi.Nhung ca nhan hay to chtrc cua con ngudi phai la nhung daidien co quyen uy, co quyen han va trach nhiem lien ket, phoihop nhung hoat dong rieng le cua timg ca nhan hud’ng tdi muctieu chung nham dat duqc ket qua nhat dinh trong quan li.

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Khach the cua quan If la trat tu quan If. Trat tu nay ducrc quydinh boi nhieu loai quy pham khac nhau: Quy pham dao dilc, quypham chinh tri, quy pham ton giao, quy pham phap luat v.v..

- Quan If duqc thuc hien bang to chlic va quyen uy.

Co to chile thi mdi phan dinh rd rang chile nang, nhiem vu,quyen han va mdi quan he cua nhung ngudi tham gia hoat dongchung. Cd quyen uy thi mdi bao dam su phuc tung cua ca nhandoi vdi to chile. Quyen uy la phuong tien quan trong de chu thequan If dieu khien, chi dao cung nhu bat buoc cac doi tuomgquan If thuc hien cac yeu cau, menh lenh cua minh.

<i>b. Quan li nha nicac</i>

Noi each khac, quan If nha nude la su tac dong cua cac chuthe mang quyen luc nha nude, chu yeu bang phap luat, tdi cac

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doi tupng quan If nhiim thuc hien cac chftc nang doi noi va doingoai cua nha nude. Nhu vay, tat ca cac cor quan nha nude deulam chuc nang quan If nha nude.

Phap luat la phuong tien chu yeu de quan If nha nude. Bangphap luat, nha mrdc cd the trao quyen cho cac to chdc hoac cacca nhan de ho thay mat nha nude tien hanh hoat dong quan Ifnha nude.

Quan If nha nude trong linh vuc hanh phap la quan If hanhchfnh nha nude.

Quan If hanh chinh nha nude la mot hinh thiic hoat dongcua Nha nude dupe thuc hien trudc het va chu yeu boi cac coquan hanh chinh nha nude, cd npi dung la bao dam su chaphanh luat, phap lenh, nghi quyet cua cac co quan quyen luc nhanude, nham to chiic va chi dao mot each true tiep va thubngxuyen cong cuoc xay dung kinh te, van hoa- xa hoi va hanhchmh-chmh tri. Noi each khac, quan If hanh chinh nha nude lahoat dong chap hanh - dieu hanh cua nha nude.

Tfnh chat chap hanh the hien o muc dfch cua quan If hanhchinh nha nude la dam bao thuc hien tren thuc te cac van banphap luat cua cac co quan quyen luc nha nude. Moi hoat dongquan If hanh chinh nha nude deu dupe tien hanh tren co sdphap luat va de thuc hien phap luat.

Tfnh chat dieu hanh cua quan If hanh chinh nha nude thehien o chd de dam bao cho cac van ban phap luat cua cac coquan quyen luc nha nude dupe thuc hien tren thuc te, cac chuthe cua quan If hanh chfnh nha nude phai tien hanh hoatdong to chtrc va chi dao true tiep doi vdi cac doi tupng quanli thupc quyen.

Trong qua trinh dieu hanh, co quan hanh chfnh nha nude cdquydn nhan danh nha nude ban hanh ra cac van ban phap luat

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d£ dat ra cac quy pham phap luat hay cac menh lenh cu the batbuoc cac doi tuong quan If co lien quan phai thuc hien.

Nhu vay, cac chu the cua quan If hanh chfnh nha nude strdung quyen luc nha nude de to chile va dieu khien hoat dongcua cac doi tuong quan If, qua do the hien mot each rd net moiquan he “quyen lire - phuc tung” giua chu the quan If va cac doituong quan If.

Hoat dong dieu hanh la mot noi dung co ban cua hoat dongchap hanh quyen luc nha nude, nd g^n vdi hoat dong chap hanhva cung vdi hoat dong chap hanh tao thanh hai mat thong nhatcua quan If hanh chinh nha nude.

Hoat dong quan If hanh chfnh nha nude duoc dat dudi sugiam sat cua co quan quyen luc nha nude nhung vin mang tfnhchu dong, sang tao. Tfnh chu dong, sang tao cua hoat dong quanIf hanh chmh nha nude the hien rd net trong qua trlnh cac chuthe cua quan If hanh chfnh nha nude de ra chu truong, bienphap quan If thich hop doi vdi cac doi tuong khac nhau, taodieu kien cho ho lua chon each thiic tot nhat de hoan thanhnhiem vu tren co so nghien cun, xem xet tinh hinh cu the.

Tat ca cac co quan nha nude deu tien hanh hoat dong quanIf hanh chfnh nha nude nhung hoat dong nay chu yeu do cacco quan hanh chfnh nha nude thuc hien. Hoat dong nay phananh chile nang co ban cua cac co quan hanh chinh nha nude.Mat khac, khong nen tuyet doi hoa su phan loai cac hinh thiichoat dong cua cac co quan nha nude va khong nen cho rangmdi loai co quan nha nude chi cd the thuc hien mot loai hanhvi nhat dinh, tuong ling vdi hinh thiic hoat dong va chile nangco ban cua nd. Tren thuc te mdi loai co quan nha nude, ngoaiviec thuc hien nhung hanh vi phan anh thuc chat cua chilenang co ban cua minh, con cd the thuc hien mot so hanh vi

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thuoc ITnh vuc hoat dong co ban cua co quan khac. Vi dir. Cacco quan quyen luc nha nude, cac co quan kiem sat, xet xuthuc hien nhung hanh vi quan li hanh chfnh nhat dinh con coquan hanh chfnh nha nude cung thuc hien mot so hanh vimang tinh chat tai phan v.v..

Chu the cua quan If nha nude la cac to chiic hay ca nhanmang quyen luc nha nude trong qua trinh tac dong tdi doituong quan li. Chu the quan li nha nude bao gdm: Nha nude, coquan nha nude, to chuc va ca nhan dupe nha nude trao quyenthuc hien hoat dong quan If nha nude.

Khach the cua quan li nha nude la trat tu quan If nha nude.Trat tu quan If nha nude do phap luat quy dinh.

Chu the cua quan If hanh chfnh nha nude la cac co quan nhanude (chu yeu la cac co quan hanh chinh nha nude), cac can bpnha nude cd tham quyen, cac to chiic va ca nhan dupe nha nudetrao quyen quan li hanh chfnh trong mot so trudng hop cu the.

Nhung chu the ke tren khi tham gia vao cac quan he quan Ifhanh chfnh cd quyen su dung quyen luc nha nude de chi daocac doi tuong quan If thuoc quyen nh^m thuc hien nhiem vuquan If dong thoi bao dam thuc hien cac quyen va nghTa vu cuacac ben tham. gia quan he quan If hanh chinh nha nude.

Khach the cua qUan If hanh chfnh nha nude la trat tu quan lihanh chfnh tuc la trat tu quan If trong ITnh vuc chap hanh - dieuhanh. Trat tu quan If hanh chfnh do cac quy pham phap luathanh chfnh quy dinh.

<b>2. Doi tirpng dieu chinh cua luat hanh chinh</b>

Doi tuong dieu chinh cua mot nganh luat la nhung nhomquan he xa hoi xac dinh, c6 dac tmh co ban giong nhau va donhung quy pham thuoc nganh luat do dieu chinh. Doi tuong

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dieu chinh la tieu chuan chu yen de phan biet nganh luslt nayvdi nganh luat khac. •

Luat hanh chinh Viet Nam dieu chinh nhung quan he xa hoihinh thanh trong Imh vuc quan li hanh chinh nha nude. Nhungquan he nay cd the goi la nhung quan he chap hanh - dieu hanhhoac nhung quan he quan li hanh chinh nha nude. Npi dungcua nhung quan he nay the hien:

<small>• %</small>

- Viec thanh lap, cai tien co cau bo may, cai tien che dplam viec, hoan chinh cac quan he cong tac cua cac co quannha nude;

- Hoat dong quan li kinh te, van hoa-xa hoi, quoc phong, anninh chinh tri va trat tu xa hoi tren ca nude, o tung dia phuonghay tirng nganh;

- True tiep phuc vu cac nhu cau ve vat chat va tinh than cuanhan dan;

- Hoat dong kiem tra, giam sat doi vdi viec thuc hien phapluat cua cac co quan, don vi true thupc, cac to chile va ca nhan.

- Xu li cac ca nhan, to chile cd hanh vi vi pham trat tu quanli hanh chinh.

Cac quan he xa hoi thupc pham vi dieu chinh cua luat hanhchinh dupe chia thanh 3 nhom sau:

<i>a. Cac quan he quan li phat sinh trong qua trinh cac ccfquan hanh chinh nha mtdc thuc hien hoat dong chap hanh -dieu hanh tren cac ITnh vitc khac nhan cua dcri song xa hoi</i>

Nhom quan he xa hpi nay la doi tupng dieu chinh co bancua luat hanh chinh. Thong qua viec thiet lap nhung quan heloai nay cac co quan hanh chinh nha nude thuc hien chile nangco ban cua mlnh. Nhung quan he loai nay rat phong phil, chu ’yeu la nhung quan he:

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- Giua co quan hanh chmh nha nude cap tren vdi co quanhanh chinh nha nude cap dudi theo he thong doc (nhir giuaChinh phu vdi Uy ban nhan dan thanh pho Ha Npi) hoac vdi coquan chuyen mon thuoc uy ban nhan dan cap tinh (nhir giua Bogiao due va dao tao vdi So giao due va dao tao Thanh pho HoChi Minh);

- Giua co quan hanh chinh nha nude cd tham quyen chungvdi co quan hanh chmh nha nude cd tham quyen chuyen monciing cap (nhu giua Chmh phu vdi Bp cong an) hoac vdi coquan chuyen mon true thuoc nd (nhu giua Uy ban nhan dantinh Thanh Hoa vdi So tu phap tinh Thanh Hoa);

- Giua co quan hanh chmh nha nude cd tham quyen chuyenmon o trung uong vdi co quan hanh chinh nha nude cd thamquyen chung o cap tinh nham thuc hien chdc nang theo phapluat (nhu giua Bp tai nguyen va moi truong vdi Uy ban nhandan tinh Binh Duong);

- Giua nhung co quan hanh chmh nha nude cd tham quyenchuyen mon o trung uong, co quan nay cd mot so quyen handdi vdi co quan kia trong linh vuc quan li chiic nang nhat dinhsong giua cac co quan do khong cd su le thuoc ve mat to churc.Trong cac quan he loai nay, chu the quan li la cac co quanchuyen mon cd chirc nang tong hop, phu trach mot linh vucchuyen mon nhu co quan tai chmh, lao dpng-thuong binh va xahpi v.v.. Cac co quan nay cd quyen han nhat dinh ddi vdi cacco quan chuyen mon khac trong cac linh vuc chuyen mon mahp phu trach (nhu giua Bp tai chmh vdi Bp giao due va dao taotrong viec quan li ngan sach nha nude);

- Giua co quan hanh chmh nha nude d di a phuong vdi cacdon vi true thuoc trung uong dong tai dia phuong do (nhu giuaUy ban nhan dan quan Dong Da vdi Trudng dai hoc ngoai thuong).

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- Giua ca quan hanh chinh nha nude vdi cac don vi co so •true thuoc (nhu giua Bp tu phap vdi Truong Dai hoc Luat Ha Npi);

- Giua co quan hanh chinh nha nude vdi cac to chile kinh tethuoc cac thanh phan kinh te ngoai quoc doanh. Cac to chilekinh te nay dupe dat dudi su quan If thuong xuyen cua cac coquan hanh chinh nha nude cd tham quyen (nhu giua uy bannhan dan huyen vdi cac hop tac xa san xuat nong nghiep, thucong nghiep tren dia ban huyen);

- Giua co quan hanh chinh nha nude vdi cac to chile xa hoi(nhu giua Chinh phu vdi Mat tran to quoc Viet Nam va cac tochile thanh vien cua Mat tran);

- Giua co quan hanh chinh nha nude vdi cong dan, ngudinude ngoai, ngudi khong quoc tich (nhu giua co quan cd thamquyen giai quyet khieu nai vdi ngudi khieu nai).

<i>b. Cac quan he quan li hinh thanh trong qua trinh cac ccfquan nha ntfefe xdy ditng va cung cd che do cong tac noi bo cuaccf quan nham on dinh ve to chi'Cc de hoan thanh chitc nang,nhiem vu cua minh</i>

MOi loai co quan nha nude cd chile nang co ban rieng va dehoan thanh chile nang co ban cua minh cac co quan nha nudephai tien hanh nhung hoat dong quan li hanh chinh nhat dinh.

Nhung ngudi lanh dao va mot bp phan cong chile cua cacco quan trong bp may nha nude dupe trao quyen tien hanhhoat dong to chile trong gidi han co quan. Hoat dong nay condupe gpi la hoat dong io chile npi bp, khac vdi hoat donghudng ra ben ngoai. De co quan nha nude cd the hoan thanhchile nang, nhiem vu cua minh, hoat dong quan li npi bp candupe to chile tot, dac biet la nhung hoat dong nhu kiem tranpi bp, nang cao trinh dp chuyen mon, nghiep vu cua can bpcong chile, phoi hop hoat dong giua cac bp phan cua co

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quan, cong viec van phong, dam bao nhung dieu kien vatchat can thiet v.v..

Hoat dong to chuc noi bo giu vai trd dac biot quan trong,tao dieu kien can thiet cho cac co quan nha nude thuc hien totchile nang co ban cua minh. Tuy nhien, can luu y neu cong tacto chuc noi bo vuot qua gioi han binh thirdng, neu bo may nh^nude danh qua nhieu thdi gian va sue luc cho edng tac to chilenoi bo, neu cd qua nhieu co quan trung gian thi hieu qua cuaquan If se giam sut.

<i>c. Cac quan he quan li hinh thanh trong qua trinh cac cdnhan va to chicc dtfac Nha mtac trao quyen thicc hien hoatdong quart li hanh chinh nha mtdc trong mot so tnaJng hetp cuthe do phap luat quy dinh</i>

Trong thuc tidn quan If hanh chfnh nha nude, trong nhieutruong hop, phap luat cd the trao quyen thuc hien hoat dongchap hanh - dieu hanh cho cac co quan nha nude khac (khdngphai la co quan hanh chfnh nha nude), cac to chuc hoac canhan. Hoat dong trao quyen duqc tien hanh tren co so nhung Ifdo khac nhau: chfnh tri, to chile, dam bao hieu qua v.v.. Vi vay,hoat dong quan if hanh chfnh nha nude khdng chi do cac coquan hanh chfnh nha nude tien hanh.

Hoat dong cua co quan nha nude, to chile hoac ca nhanduqc trao quyen cd tat ca nhung hau qua phap li nhu hoat dongcua co quan hanh chfnh nha nude nhung chi trong khi thuc hienhoat dong chap hanh - dieu hanh cu the duqc phap luat quydinh. Hoat dong nay can duqc phan biet rd vdi hoat dong coban cua co quan nha nude duqc trao quyen (chfnh cai do quydinh tfnh chat cua co quan va cua cac moi quan he). Xem xctvan de tir hudng khac cho thay co quan hanh chfnh nha nudekhdng chi thuc hien hoat dong chap hanh - dieu hanh ma con

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duoc uy quyen lap phap va tien hanh hoat dong tai phan trongnhung trirong hop nhat dinh.

Nhu vay, can cii vao doi tirong dieu chinh la cac quan hexa hoi da de cap tren day, co the dinh nghia lu&t hanh chinhnhir sau:

Luat hanh chinh la mot nganh luat trong he thong phap luatViet Nam bao gdm tong the cac quy pham phap luat dieu chinhnhung quan he xa hoi phat sinh trong qua trinh hoat dong quanIf hanh chinh cua cac co quan hanh chinh nha nude, cac quanhe xa hoi phat sinh trong qua trinh cac co quan nha nude xaydung va on dinh che do cong tac noi bo cua minh, cac quan hexa hoi phat sinh trong qua trinh cac co quan nha nude, to chucxa hoi va ca nhan thuc hien hoat dong quan If hanh chinh doivoi cac van de cu the do phap luat quy dinh.

Luat hanh chinh dieu chinh toan bo nhung quan he quan Ifhanh chinh nha nude duoc thuc hien boi nha nude hoac nhandanh nha nude va doi tuong dieu chinh co ban cua Luat hanhchinh la nhung quan he quan If hinh thanh trong qua trinhhoat dong chap hanh - dieu hanh cua cac co quan hanh chinhnha nude.

Tit dinh nghia ve luat hanh chinh cd the rut ra ket luan dinghoat dong quan li hanh chinh nha nude duoc thuc hien thongqua cac quan he xa hoi duoc cac quy pham cua luat hanh chinhdieu chinh.

Cd tieu chuan khach quan nao de xac dinh nhung quan hexa hoi nay hay nhung quan he xa hoi khac can duoc dieu chinhbang chinh luat hanh chinh hay bang nhung quy dinh cua cacnganh luat khac hay khong? Su can thiet dieu chinh boi luathanh chinh xuat hien khi nha nude mong muon bang nhungphuong tien cua luat hanh chinh tac dong den su hinh thanh cac

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quan he xa hoi thong qua viec quy dinh su can thiep cua cac coquan hanh chfnh nha nuoc vao cac quan he xa hoi do hoac itnhat la cho phep co quan hanh chinh nha nude can thiep vaocac quan he xa hoi do.

Tren thuc te chung ta thay cd nhung trubng hop cd nhungmat nhat dinh ciia cac quan he xa hoi trudc het duoc dieu chinhbilng quy pham phap luat hanh chinh, con sau do duqc quypham cua nganh luat khac dieu chinh. Cd nghia la su dieuchinh phap If hanh chinh trudc het lac dong den nhung linh vucchua bi su dieu chinh phap If dung chain den. Cd the lay vi duve dieu chinh viec cai tao cac thanh phan kinh te phi xa hoi chunghia trudc day cung nhu quy dinh che do quan If nen kinh tethi trubng hien nav.

Tren thuc te cung ton tai nhung quan he xa hoi dbi hoi suphoi hop dieu chinh cua cac quy pham phap luat hanh chinh vaquy pham cua nganh luat khac. Dien hinh la cac quan he phapluat tai chfnh, dat dai. lao dons. Viec dieu chinh noi dung nhungquan he loai nay thuoc ve luat tai chinh, luat dat dai, luat laodong edn viec dieu chinh thii tuc thuoc ve luat hanh chinh._{• • • • •}

Nhieu dieu khoan cua luat hien phap la ngudn cua luathanh chinh, duoc phat trien trong luat hanh chinh, cd duqckha nang dieu chinh true tiep la nhd luat hanh chinh. Nhungdieu khoan do vua thuoc luat hien phap, vira thuoc luat hanhchfnh (vz du: Nhung quy dinh cua hien phap ve quyen vanghia vu cua cong dan).

Chi cd the noi den dieu chinh phap If hanh chfnh khi trongquan he quan li mot ben cd quyen (thuong thi quyen dong thbila nghia vu) vol tu each la chu the thuc hien chiic nang chaphanh - dieu hanh cua Nha nuoc. Neu co quan hanh chfnh nhanude hoat dong khong phai trong linh vuc tham quyen cua

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mlnh, khong sir dung quyen lire nha nude nghia la trong quanhe blnh dang vdi chu the khac (hop dong mua ban) thi hoatdong do duqc thuc hien khong phai tren co sd dieu chinh phapIf hanh chinh.

<b>3. Ph iron g phap dieu chinh cua luat hanh chinh</b>

Doi tuong dieu chinh la tieu chuan chu yeu de phan biet cacnganh luat. Nhung cung co nhung trudng hop cung vdi doituong dieu chinh con phai sir dung phuong phap dieu chinh thimoi co the phan biet rd rang.

Phuong phap dieu chinh la each thii'c ma nha nude ap dungtrong vice dieu chinh bling phap luat de tac dong vao cac quanhe xa hoi. 1 .

Phuong phap dieu chinh cua luat hanh chmh la phuongphap menh lenh duqc hinh thanh tir quan he “quyen luc - phuctimg” giua mot ben cd quyen nhan danh nha nude ra nhungmenh lenh blit buoc doi vdi ben kia la co quan, to chiic hoac canhan cd nghia vu phuc tiing cac menh lenh do. Chinh moi quanhe “quyen luc - phuc timg” the hien su khong blnh dang giuacac ben tham gia quan he quan If hanh chinh nha nude. Sukhong blnh dang do la su khong blnh dang ve y chi va the hienro net o nhung diem sau:

- Trude het, su khong blnh dang trong quan he quan If hanhchmh nha nude the hien 0 chd chii the quan If cd quyen nhandanh nha nude de ap dat y chi cua mlnh len doi tuong quan If.Cac quan he nay rat da dang nen viec ap dat y chi cua chu thequan If len doi tuong quan If trong nhung trudng hop khac nhauduqc thuc hien dudi nhung hinh thii’c khac nhau:

+ Hoac mot ben co quyen ra cac menh lenh cu the hay datra cac quy dinh blit buoc doi vdi ben kia va kiem tra viec thuc

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hien chung. Phia ben kia cd nghTa vu thuc hien cac quy dinh,menh lenh cua co’ quan co tham quyen.

Vi du dien hinh cho trudng hop nay la quan he giua cap trenvoi cap duoi, giua thu truong vd’i nhan vien.

+ Hoac mot ben cd quyen dua ra yeu cau, kien nghi conben kia cd quyen xem xet, giai quyet va cd the dap ting hay bacbo yeu cau, kien nghi do.

<i>Vi dir. </i>Cong dan cd quyen yeu cau (cung vdi nhung giay tornhat dinh) cdng an quan, huyen giai quyet cho di chuyen hokhau. Cong an quan, huyen xem xet va cd the chap nhan yeucau (neu ho so cua cdng dan do la hop le) hoac khong chapnhan (neu ho so khong day du, khong hop le).

+ Hoac ca hai ben deu cd quyen han nhat dinh nhung bennay quyet dinh dieu gi phai dupe ben kia cho phep hay phechuan hoac cung phoi hop quyet dinh.

<i>Vi dir. Quan he giua </i>Bp giao due va dao tao va cac bp khacve viec quyet dinh hinh thiic, quy mo dao tao. Viec cac bp khacquyet dinh hinh thuc, quy mo dao tao phai dupe Bp giao due vadao tao cho phep hay phe chuan.

- Bieu hien thu hai cua su khong binh dang the hien d chd motben cd the aprdung cac bien phap cudng che nham bupc doi tupngquan If phai thuc hien menh lenh cua mlnh. Cac truong hop naydupe phap luat quy dinh cu the npi dung va gidi han.

Su khong binh ding giua cac ben tham gia quan he quan lihanh chinh nha nude luon the hien rd net, xu£t phat tur quy dinhphap luat, hoan toan khong phu thupc vao y chi chu quan cuacac ben tham gia vao quan he do.

Su khong binh dang giua cac ben la cac co quan trong bpmay nha nude bat ngudn tir quan he giua cap tren va cap dudritrong to chiic cua bp may nha nuorc. Su khong binh dang giua

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cac <i>ccf quan hanh chmh </i>nha nude voi cac to chile xa hoi, don vikinh te, cac td chile va ca nhan khac khong b&t ngudn tCr quanhe to chile ma ttr quan he "quyen luc - phuc tung". Trong cacquan he do, co quan hanh chmh nha nude nhan danh nha nudede thuc hien chile nang chap hanh - dieu hanh trong linh vuc ,duqc phan cong phu trach. Do vay, cac ddi tuqng ke tren phaiphuc tung y chi cua Nha nude ma nguoi dai dien la co quanhanh chmh nha nude.

- Su khong binh ding giua cac ben tham gia quan he quan Ifhanh chmh nha nude con the hien rd net trong tmh chat donphuong va bit buoc cua cac quyet dinh hanh chmh.

Cac co quan hanh chmh nha nude va cac chu the quan Ifhanh chmh khac, dua vao tham quyen cua minh, tren co sophan tich, danh gia tinh hinh cd quyen ra nhung menh lenhhoac de ra cac bien phap quan li thich hop ddi voi t£mg ddituqng cu the. Nhung quyet dinh ay cd tmh chat don phuong vichung the hien y chi cua chu the quan li hanh chinh nha nudetren co sd quyen luc da duqc phap luat quy dinh.

Trong thuc tidn quan li cd nhung truong hop co quan hanhchmh nha nude ra quyet dinh do yeu cau cua co quan cap dudi,don vi true thuoc hay cua ca nhan. Cung cd nhieu truong hoptruoc khi ra quyet dinh. cac chu the quan If hanh chmh nhanude to chile trao ddi, thao luan ve nqi dung quyet dinh vol sutham gia cua dai dien cho co quan cap dudi, don vi true thuochoac nhung ddi tuqng cd lien quan. Ngay ca trong nhungtrudng hop nay quyet dinh cua co quan cd tham quyen vin cdtmh chat don phuong boi vi yeu cau cua cac ddi tuqng cd lienquan, cua cap dudi hoac y kien dong gdp trong cac cuoc thaolufm khong cd tmh chat quyet dinh ma chi la nhung y kien dechu the quan If hanh chmh nha nude nghien cuu, xem xet, thamkhao trudc khi ra quyet dinh.

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Nhung quyet dinh hanh chfnh do*n phuong deu mang tinhchat bat buoc doi vdi cac doi tuqng quan IL Tinh chat bat buocthi hanh cua cac quyet dinh hanh chinh duqc bao dam bang cacbien phap cudng che nha nude. Tuy nhien, cac quyet dinh hanhchinh don phuong khong phai bao gid cung duqc thuc hien trenco so cudng che ma duqc thuc hien chu yeu thong qua phuongphap thuyet phuc.

Tom lai. phuong phap dieu chinh cua luat hanh chfnh laphuong phap menh lenh don phuong. Phuong phap nay duqcxav duns; tren nsuven tac:

- Xac nhan su khong binh dang giua cac ben tham gia quanhe quan If hanh chfnh nha nude: mot ben duqc nhan danh nhanude, su dung quyen luc nha nude de dua ra cac quyet dinhhanh chfnh, edn ben kia phai phuc tung nhung quyet dinh ay.

- Ben nhan danh Nha nude, su dung quyen luc nha nude cdquyen don phuong ra quyet dinh trong pham vi tham quyen cuaminh vi loi ich cua nha nude, cua xa hoi.

- Quyet dinh don phuong cua ben cd quyen sir dung quyenlire nha nude cd hieu lire bat buoc thi hanh doi vdi cac ben huuquan va duqc bao dam thi hanh bang cudng che nha nude.

<b>4. Phan biet luat hanh chfnh vol mot so nganh luat khac</b>

<i>a. Luat hanh chinh vc/i luat hien phap</i>

Luat hien phap dieu chinh nhung quan he xa hoi quan tronggan lien vdi viec xac dinh che do chfnh tri, kinh te, van hoa-xahoi, chfnh sach doi ngoai va an ninh quoc phong, dia vi phap Ifcua cong dan, to chuc va hoat dong cua bo may nha nude v.v..Nhu vay, pham vi dieu chinh cua luat hien phap rong hon phamvi dieu chinh cua luat hanh chfnh.

Cac quy pham luat hien phap la co so cho viec ban hanh cac

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quy pham luat hanh chinh. Do vay, co nhieu quan he xa hoidong then duqc dieu chinh boi cac quy pham luat hien phap vacac quy pham lufit hanh chinh. Cac quy pham luat hien phapquy dinh nhung van de chung va co ban, con quy pham luathanh chinh cu the’ hoa quy pham luat hien phap de dieu chinhcac quan he xa hoi phat sinh trong qua trinh hoat dong chaphanh - dieu hanh cua nha nude. Noi each khac, cac quy phamluat hien phap quy dinh ve to chuc va hoat dong cua bo maynha nude trong trang thai tlnh, con cac quy pham luat hanhchinh quy dinh ve to chuc va hoat dong cua bo may nha nudetrong trang thai dong.

<i>b. Luat hanh chinh veri luat dan sif</i>

Vice phan biet hai nganh luat nay chu yeu dua vao phuongphap dieu chinh. Phuong phap dieu chinh chu yeu cua luat dansir la binh dang, thoa thuan; phuong phap dieu chinh cua luathanh chinh la menh lenh don phuong. Trong quan he phap luatdan sir cac chu the binh diing ve quyen va nghTa vu. Trong quanhe phap luat hanh chinh cac chu the khong binh dang ve quyenva nghTa vu: Mot ben cd quyen ra menh lenh con ben kia cdnghTa vu phai phuc tung.

Ngoai ra, de phan biet hai nganh luat nay con cd the can cu:vao doi tuong dieu chinh cua chung. Doi tuong dieu chinh cualuat dan su la nhung quan he tai san mang tfnh chat hang hoa -tien to va cac quan he nhan than. Doi tuong dieu chinh cua luathanh chinh la cac quan he xa hoi phat sinh trong Imh vuc chaphanh - dieu hanh. Trong mot so trudng hop, hai nganh luat naycimg dieu chinh nhung quan he ve tai san nhung o cac goc dokhac nhau. Luat dan su quy dinh noi dung quyen so him, nhunghinh there chuyen nhuong, su dung, dinh doat tai san... Luathanh chinh quy dinh nhung van de nhir tluun quyen giai quyet

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va thu tuc cap phat, thu hoi von, quy dinh tham quyen ciia cacco quan hanh chinh nha nude doi vdi viec quan li nha vdng chu,trimg dung, trimg mua tai san, quan li viec cho thue nha cua Nhanuoc, to chile hoac ca nhan...

c. Luat <i>hanh chinh vdi luat hinh sit</i>

Hai nganh luat nay deu cd cac che dinh phap li quy dinhhanh vi vi pham phap luat va cac hinh thiic xu li doi vdi nguoivi pham.

Luat hinh su quy dinh ve toi pham va hinh phat. Luat hanhchinh quy dinh ve cac vi pham hanh chinh, cac hinh thiic xuphat vi pham hanh chinh va cac van de khac co lien quan toiviec xu li doi vdi ca nhan, to chiic vi pham hanh chinh.

Tren thuc te viec phan biet toi pham vdi vi pham hanh chinhkhong phai liic nao cung don gian, dd dang boi vi cd nhungtruong hop vi pham hanh chinh cd kha nang "chuyen hoa"thanh toi pham. Do la nhung hanh vi nhu budn lau hoac vanchuyen trai phep hang hoa, tien te qua bien gidi Viet Nam,hanh vi tron thue v.v.. Nhung hanh vi tren neu dupe thuc hienlan dau vdi so lupng khong Idn thi la vi pham hanh chinh, conneu vdi so lupng Ion hoac da bi xu li hanh chinh ma con taipham thi do la toi pham. Trong nhung trudng hop tuong tu,muon xac dinh nhung hanh vi do la toi pham hay vi pham hanhchinh thi can phan tich dong thdi cac quy pham tuong ling cuaca hai nganh luat.

<i>d. Luat hanh chinh vdi luat tai chinh</i>

Ca hai nganh luat deu dieu chinh hoat dong tai chinh cuaNha nude va deu sir dung phuong phap menh lenh.

Luat tai chinh la tong the nhung quy pham dieu chinh hoatdong tai chinh cua Nha nude. Do la nhung quan he ve thu chi

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ngan sach, quan If va phan phoi nguon von cua nha nude, congtac tin dung, quan If luu thong tien te v.v..

Cac quy pham cua luat hanh chinh chu yeu quy dinh thamquyen cua bo may quan If tai chinh, co cau to chiic cung nhutrinh tu, thu tuc hoat dong cua bo may do va thu tuc tien hanhcac quan he tai chinh. Con cac quy pham cua luat tai chinh chuyeu dieu chinh ban than cac quan he tai chinh, xac dinh noidung cac quyet dinh cua cac co quan tai chinh.

<i>e. Luat hanh chinh v&i luat lao dong</i>

Hai nganh luat nay ciing dieu chinh cac van de ve tuyendung, sir dung, cho thoi viec doi vdi can bo, cong chuc, vienchiic nhung tir nhung goc do khac nhau.

Luat lao dong dieu chinh cac van de co lien quan true tieptoi quyen va loi ich cua ngudi lao dong nhu quyen duoc nghingoi, quyen duoc tra luong, duoc huong cac che do bao hiemxa hoi va bao ho lao dong v.v..

Luat hanh chinh xac dinh tham quyen cua cac co quan hanhchinh nha nude trong Imh vuc lao dong dong thoi dieu chinhnhung quan he lien quan den viec to chiic qua trinh lao dong vaquy che cong vu, quy dinh thu tuc tuyen dung, cho thoi viec,khen thuong, ki luat v.v. doi vdi can bo, cong chifc, vien chuc.

<i>g. Luat hanh chinh vdi luat to tung hanh chinh</i>

Luat hanh chinh quy dinh tham quyen va thu tuc giai quyetcac khieu nai hanh chinh. Thu tuc giai quyet cac khieu naihanh chinh do luat hanh chinh quy dinh la thu tuc hanh chinh.

Luat to tung hanh chinh quy dinh tham quyen va thu tucgiai quyet khieu kien hanh chinh. Thu tuc giai quyet khieukien hanh chinh do luat to tung hanh chinh quy dinh la thutuc to tung.

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Khai niem quyet dinh hanh chinh trong luat to tung hanhchinh hep hon khai niem quyet dinh hanh chinh trong luat hanhchinh. Theo luat hanh chinh thi quyet dinh hanh chinh bao gomquyet dinh chu dao, quyet dinh quy pham va quyet dinh cabiet; con theo luat to tung hanh chinh thi quyet dinh hanh chinhchi gom cac quyet dinh ca biet.

<b>5. Nguon cua luat hanh chinh</b>

Nguon cua luat hanh chinh la nhung van ban quy phamphap luat do co quan nha nude cd tham quyen ban hanh theothu tuc va duoi nhung hinh thuc nhat dinh, cd noi dung la cacquy pham phap luat hanh chinh, cd hieu lire bat buoc thi hanhdoi voi cac doi tuqng cd lien quan va duoc bao dam thuc hienbans cuons che nha nude.

Dieu 1 Luat ban hanh van ban quy pham phap luat nam2008 quy dinh: "Van ban quy pham phap luat la van ban do co

<i>quan nha nuoc ban hanh hoqc phoi hop ban hanh theo thamquyen, hinh thuc, trinh tic, thu tuc duoc quy dinh trong Luatnay hoac trong Luat ban hanh van ban quy pham phap luatcua hoi dong nhan dan, uy ban nhan dan, trong do co cac quytac xu sic chung, cd hieu luc bat buoc chung, duoc Nha nuocbao dam thuc hien de dieu chinh cac quan he xa hoi".</i>

Chi cd nhung van ban quy pham phap luat mdi tao ra tiende can thiet cho viec thuc hien phap che xa hoi chu nghia - mottrong nhung nguyen tac co ban cua quan If hanh chinh nhanude. Tmh chat che va on dinh tuong doi cua trat tu phap luatxa hoi chu nghia doi hoi phai cd nhung van ban quy pham phapluat de xac dinh rd co cau, tham quyen, trach nhiem cua cac coquan nha nude cac cap, nhung mdi lien he cong tac chu yeugiua chiing nham bao dam cho hoat dong cua ca bo may nhanude duoc tien hanh dong bo, cimg hudng tdi viec thuc hien

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nhung nhiem vu dat ra trudc bo may nha nude noi chung vatrudc tirng co quan nha nude noi rieng.

Nguon cua luat hanh chmh khong phai la tat ca cac vanban quy pham phap luztt ma chi bao gom nhung van ban quypham phap luat co cac quy pham phap luat hanh chinh, tuc lanhung quy pham phap luat duoc ban hanh de dieu chinh cacquan he xa hoi phat sinh trong hoat dong quan 11 hanh chinhnha nude.

Phan lorn va la phan quan trong trong nguon cua luat hanh‘ chinh la nhung van ban quy pham phap luat do cac co quanquyen luc nha nude va cac co quan hanh chinh nha nude banhanh trong pham vi tham quyen cua tung co quan.

Thong thudng, cac van ban quy pham phap luat hanh chmhduoc ban hanh bdi mot co quan nha nude cd tham quyen. Tuynhien, cung cd nhung van ban do nhieu co quan nha nude cd thamquyen hoac mot co quan nha nude cd tham quyen va co quantrung uong cua to chdc chinh tri-xa hoi phdi hop ban hanh.

Tur nhung dieu da phan tfch o tren cho thay luat hanh chinhcd he thong nguon kha phuc tap. Neu xem xet ki hon thi dieudo cd nghia la khong cd co quan chuyen ban hanh chi rieng cacvan ban quy pham phap luat hanh chmh. Chung duoc ban hanhbdi nhieu co quan khac nhau, cd chdc nang va nhiem vu khacnhau, o nhung cap khac nhau. Tuy nhien, nhung van ban quypham phap luat hanh chinh deu xuat phat th mot nguon - do laluat hien phap.

Can cd vao co quan ban hanh, nguon cua luat hanh chmhgom sau loai:

- Van ban quy pham phap luat cua cac co quan quyen lucnha nude.

- Van ban quy pham phap luat cua Chu tich nude.

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- Van ban quy pham phap luat cua cac cor quan hanh chmhnha nude.

- Van ban quy pham phap luat cua Toa an nhan dan toi caova Vien kiem sat nhan dan toi cao.

- Van ban quy pham phap luat cua Tong kiem toan nha nude.- Van ban quy pham phap luat lien tich.

<i>a. Van ban quy pham phap luat cua cac ccf quan quyen lirenha nirdc</i>

- Luat:

Luat la hmh thuc cao nhat cua viec thuc hien quyen luc nhanude khdng chi vi hieu luc phap If cua nd ma con vi su uyquyen phap li - luat do chmh nhung dai bieu dan cu lam ra.

Loai van ban phap luat nay cd hai dac diem la do co quanquyen luc nha nude cao nhat ban hanh va cd hieu luc phap li caohem tat ca cac van ban quy pham phap luat khac. Vi tn cao nhatcua luat the hien d chd chi Qudc hoi mdi co quyen ban hanh, suadoi, bo sung, thay the hay bai bo luat. Mat khac, moi van banquy pham phap luat do cac co quan nha nude ban hanh deu b^tbuoc phai cd noi dung phu hop vdi luat va nh^m thi hanh luat.

Can cu vao noi dung, tmh chat va y nghTa cua nhung dieuquy dinh trong luat, cd the phan biet hien phap va luat.

Hien phap (gdm hien phap va cac luat bo sung hay sua doihien phap) la luat co ban cua Nha nude, quy dinh che do chmhtri, kinh te, van hoa xa hoi, chmh sach doi ngoai, an ninh, qudcphong, dia vi phap If cua cong dan, to chdc va hoat dong cua bomay nha nude v.v.. Nhu vay, hien phap quy dinh nhung dieu coban cd tmh nguyen tac, lam co sd cho loan bo he thong phapluat, trong do cd luat hanh chmh. Hien phap la nguon quantrong nhat cua luat hanh chmh.

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Cac luat quy dinh cac van de co ban thuoc Imh virc kinh te,xa hoi, quoc phong, an ninh, tai chinh, tien te, ngan sach, thue,dan toe, ton giao, van hoa, giao due, y te, khoa hoc, cong nghe,moi trudng, dd'i ngoai, to chiic va hoat dong cua bo may nhanude, che do cong vu, can bo, cong chiic, quyen va nghTa vucua cong dan. ‘

Cac luat deu co noi dung la nhung quy dinh cu thd, chi tietnhung van de co ban duqc ghi nhan trong hien phap. Thye tidnlap phap cho thay luat quy dinh nhung van de quan trong trongquan li nha nude va xa hoi khi nhung van de do da chin mudiva co du dieu kien de Quoc hoi quy dinh on dinh trong thoigian dai.

Trong cac luat do Quoc hoi ban hanh, nhung luat cd chtfadung quy pham phap luat hanh chmh la ngudn quan trong cualuat hanh chmh (nhu Luat to chiic Chmh phu, Luat Can bo,Cong chuc v.v.).

- Nghi quyet cua Quoc hoi:

Nghi quyet cua Quoc hoi dune ban hanh de quyet dinhnhiem vu phat trien kinh te-xa hoi; du toan ngan sach nha nudeva phan bd ngan sach trung uong; dieu chinh ngan sach nhanude; phe chuan quyet toan ngan sach nha nude; quy dinh che'do lam viec cua Quoc hoi, Uy ban thudng vu Quoc hoi, Hoidong dan toe, cac uy ban cua Quoc hoi, doan dai bieu Quochoi, dai bieu Quoc hoi; phe chuan dieu udc quoc te va quyetdinh cac van de khac thuoc tham quyen cua Quoc hoi.

Nhung nghi quyet hoac phan cua nghi quyet co chua dungcac quy pham phap luat hanh chinh duoc coi la ngudn cua luathanh chinh. Vi dir. Nghi quyet cua Quoc hoi so 64/2013/QH13ngay 28/11/2013 quy dinh mot so diem thi hanh Hien phapnude Cong hoa xa hoi chu nghia Viet Nam.

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- Phap lenh cua Uy ban thudng vu Quoc hoi:

Phap lenh do Uy ban thudng vu Quoc hoi ban hanh de quydinh ve cac van de dupe Quoc hoi giao, sau mot thdi gian thuchien trinh Quoc hpi xem xet, quyet dinh ban hanh luat. Phaplenh co hieu luc phap If thap hem luat.

Trong thuc tidn d nude ta, phap lenh dung de dieu chinh cacquan he xa hpi quan trong ma chua co luat dieu chinh, noi eachkhac, chua co du dieu kien de ban hanh luat.

Co nhieu phap lenh cd chiia dung cac quy pham phap luathanh chfnh va dupe coi la ngudn cua luat hanh chinh. Vi du,Phap lenh hop nhat van ban quy pham phap luat so01/2012/UBTVQH13 ngay 22/3/2012.

- Nghi quyet cua Uy ban thudng vu Quoc hpi:

Nghi quyet cua Uy ban thudng vu Quoc hpi dupe ban hanhde giai thich hien phap, luat, phap lenh; hudng dan hoat dongcua hpi dong nhan dan; quyet dinh tuyen bo tinh trang chientranh, tong dong vien hoac dong vien cue bp; ban bo tinh trangkhan cap trong ca nude hoac titng dia phuong va quyet dinhnhung van de khac thupc tham quyen cua Uy ban thudng vuQuoc hpi.

Nghi quyet hoac phan cua nghi quyet co chiia dung quypham phap luat hanh chinh dupe coi la ngudn cua luat hanh

<i>chfnh. Vi du: Nghi quyet cua Uy ban thudng vu Quoc hpi so</i>

1053/2006/NQ-UBTVQH11 ngay 10/11/2006 giai thfch khoan6 Dieu 19 Luat kiem toan nha nude.

- Nghi quyet cua hpi dong nhan dan:

' Theo quy dinh cua Luat ban hanh van ban quy pham phapluat cua hpi dong nhan dan, uy ban nhan dan nam 2004 thinghi quyet la hinh thde van ban quy pham phap luat duy nhat

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ma hoi dong nhan dan cac cap ban hanh va diroc ban hanhtrong cac trirong hop sau day:

+ Quyet dinh nhung chu trirong, chinh sach, bien phapnham bao dam thi hanh hien phap, luat, van ban cua co quannha nude cap tren;

4- Quyet dinh ke hoach phat trien kinh te-xa hoi, ngan sach,quoc phong, an ninh o dia phirong;

+ Quyet dinh bien phap on dinh va nang cao ddi song cuanhan dan, hoan thanh moi nhiem vu cap tren giao cho;

4- Quyet dinh trong pham vi tham quyen diroc giao nhirngchu trirong, bien phap co tmh chat dac thii phii hop vdi dieukien phat trien kinh te-xa hoi cua dia phirong nham phat huytiem nang cua dia phirong nhirng khong diroc trai vdi cac van

ban quy pham phap luat cua co quan nha mrdc cap tren;

4- Van ban cua co quan nha nude cap tren giao cho hoi dongnhan dan quy dinh mot van de cu the.

Khi trong nghi quyet co cac quy pham phap luat hanhchinh thi nghi quyet (hoac mot phan cua nghi quyet) duoc coila ngudn cua luat hanh chinh.

<i>Vi du: Nghi quyet</i> cua Hoi dong nhan dan thanh pho HaNoi so 08/2013/NQ-HDND ngay 17/7/2013 ve so luqmg, chiledanh, mile phu cap ddi vdi ngudi hoat dong khong chuyentrach o xa, phubng, thi tran va o thon, to dan pho tren dia banthanh pho Ha Noi.

<i>b. Van ban quy pham phap luat cua Chu tich mcac</i>

Chu tich nude cd quyen ban hanh lenh va quyet dinh dethuc hien nhung nhiem vu cua Chu tich nude do hien phap,luat, nghi quyet cua Quoc hoi, phap lenh, nghi quyet cua Uyban thudng vu Quoc hoi quy dinh. Phan Idn cac van ban do

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Chu tich nude ban hanh la van ban ap dung phap luat. Nhungvan ban (hoac phan van ban) co chua dung quy pham phap luathanh chmh dupe coi la nguon cua luat hanh chmh. Vi <i>chi:</i>

Quyet dinh cua Chu tich nude so 207/QD/CTN ngay 06/7/1994ve chuc nang, nhiem vu, quyen han, to chtrc cua Van phongChu tich nude.

<i>c. Van ban quy pham phap luat cua cot quan hanh chinhnha nicac</i>

- Nghi dinh cua Chinh phu:

Nghi dinh cua Chinh phu duoc ban hanh de quy dinh cac vande sau dav:

+ Quy dinh chi tiet thi hanh luat, nghi quyet cua Qudc hoi,phap lenh, nghi quyet cua Uy ban thubng vu Qudc hoi, lenh,quyet dinh cua Chu tich nude;

+ Quy dinh cac bien phap cu the de thuc hien chinh sachkinh te, xa hoi, qudc phong, an ninh, tai chmh, tien te, ngansach, thue, dan toe, ton giao, van hoa, giao due, y te, khoa hoc,cong nghe, moi truong, doi ngoai, che dp edng vu, can bp,edng chtrc, quyen, nghTa vu cua edng dan va cac van de khacthupc tham quyen quan If, dieu hanh cua Chinh phu;

-f- Quy dinh nhiem vu, quyen han, to chile bp may cua cacbp, co quan ngang bp, co quan thupc Chinh phu va cac co quankhac thupc th^m quyen cua Chinh phu;

4- Quy dinh nhung van de can thiet nhung chua du dieu kienxay dung thanh luat hoac phap lenh de dap ling yeu cau quan Ifnha nude, quan If kinh te, quan If xa hpi. Viec ban hanh nghidinh nay phai dupe sir dong y-cua Uy ban thudng vu Qudc hpi.

Nhu vay, nghi dinh cua Chinh phu c6 the chia thanh hailoai. Loai thii nhat la nghi dinh quy dinh chi tiet thi hanh lufit,

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nghi quyet cua Quoc hoi, phap lenh, nghi quyet cua Uy banthudng vu Quoc hoi, lenh, quyet dinh cua Chu tich nuoc; quydinh nhiem vu, quyen han, to chirc bo may cua cac bo, co quanngang bo, co quan thuoc Chfnh phu va cac co quan khac thuoctham quyen cua Chinh phu; cac bien phap cu the de thuc hiennhiem vu, quyen han cua Chfnh phu. Loai thii hai la nghi dinhquy dinh nhung van de het site can thiet nhung chua du dieukicn xay dung thanh luat hoac phap lenh de dap ung yeu cauquan If nha nude, quan If kinh te, quan If xa hoi. Doi vdi loaithus hai thi viec ban hanh nhung nghi dinh nay phai duoc sudong y cua Uy ban thudng vu Quoc hoi.

<i>Vi dir. Nghi dinh cua Chfnh phu so 15/2014/ND-CP ngay</i>

27/02/2014 quy dinh chi tiet mot so dieu va bien phap thi hanhLuat hoa giai o co so.

- Quyet dinh cua Thu tudng Chfnh phu:

Quyet dinh cua Thu tudng Chfnh phu duoc ban hanh de quydinh cac van de sau day:

+ Bien phap lanh dao, dieu hanh hoat dong cua Chfnh phu vahe thong hanh chfnh nha nude tu trung uong den co so; che dolam viec vdi cac thanh vien Chfnh phu, chu tich uy ban nhan dantinh, thanh pho true thuoc trung uong va cac van de khac thuoctham quyen cua Thu tudng Chfnh phu;

+ Bien phap chi dao, phdi hop hoat dong cua cac thanh vienChfnh phu; kiem tra hoat dong cua cac bo, co quan ngang bo,co quan thuoc Chfnh phu, uy ban nhan dan cac cap trong viecthuc hien chu truong, chfnh sach, phap luat cua Nha nude.

<i>Vi dir. Quyet dinh cua Thu tudng Chfnh phu </i>so 06/2014/QD-TTgngay 20/01/2014 ve vice ban hanh Quy che phdi hop lim kiem, cun nantren bien va trong vung nude cang bien.

- Thong tu cua Bo trudng, thu truong co quan ngang bo

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duqc ban hanh de quy dinh cac van de sau day:

+ Quy dinh chi tiet thi hanh luat, nghi quyet cua Quoc hoi,phap lenh, nghi quyet cua Uy ban thudng vu Quoc hoi, lenh,quyet dinh cua Chu tich nude, nghi dinh cua Chinh phu, quyetdinh cua Thu tudng Chinh phu;

+ Quy dinh ve quy trinh, quy chuan ki thuat, dinh muc kinhte-ki thuat cua nganh, linh vuc do minh phu trach;

+ Quy dinh bien phap de thuc hien chile nang quan 11nganh, linh vuc do minh phu trach va nhung van de khac doChinh phu giao.

<i>Vi dir. Thong tu cua Bo trudng Bo xay </i>dung so BXD ngay 31/10/2013 ban hanh Quy chuan ki thuat quoc gia vephuerng tien quang cao ngoai troi.

19/2013/TT-- Quyet dinh cua uy ban nhan dan:

Quyet dinh cua uy ban nhan dan cap tinh duqc ban hanhd6 thuc hien chu truong, bien phap, chinh sach trong cac linhvuc quan li nha nude tren dia ban tinh; quyet dinh cua uy bannhan dan cap huyen duqc ban hanh de thuc hien chu truong,bien phap trong cac linh vuc quan li nha nude tren dia banhuyen; quyet dinh cua uy ban nhan dan cap xa duqc banhanh de thuc hien chu truong, bien phap trong cac linh vucquan li nha nude tren dia ban xa phu hop vdi cac quy dinhcua Luat to chile hoi dong nhan dan va uy ban nhan dan vacac van ban quy pham phap luat khac cd lien quan cua coquan nha nude cap tren.

Nhung quyet dinh, trong do quy dinh cac bien phap cu thebao dam viec thi hanh cac van ban quy pham phap luat cuacac co quan nha nude cap tren va nghi quyet cua hoi dongnhan dan cung cap; quy dinh ve to chile va hoat dong cua cacco quan, don vi true thuoc va cac bien phap ve quan li nha

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nude trong pham vi dia phuong duqc coi la nguon cua luathanh chinh.

<i>Vi dir. Quyet dinh cua</i> Uy ban nh£n dan tinh Ca Mau so18/2013/QD-UBND ngay 18/11/2013 ban hanh quy dinh vephan cap quan li to chile bo may, cong chile thuoc tham quyenquan li cua Uy ban nhan dan tinh Ca Mau.

- Chi thi cua uy ban nhan dan:

Chi thi cua uy ban nhan dan cap tinh va cap huyen duqc banhanh de quy dinh cac bien phap chi dao, phoi hop hoat dong,don doc va kiem tra hoat dong cua cac co quan, don vi truethuoc va cua hoi dong nhan dan, uy ban nhan dan cap duditrong viec thuc hien van ban cua co quan nha nude cap tren,cua hoi dong nhan dan cung cap va quyet dinh cua minh. Chithi cua uy ban nhan dan cap xa duqc ban hanh de quy dinh cacbien phap de chi dao, kiem tra hoat dong cua cac co quan, tochile, ca nhan thuoc pham vi quan li trong viec thuc hien vanban cua co quan nha nude cap tren, cua hoi dong nhan dancimg cap va quyet dinh cua minh.

Neu trong chi thi cd chila dung quy pham phap luat hanhchinh thi diroc coi la nguon cua luat hanh chinh.

<i>Vi du:</i> Chi thi cua Uy ban nhan dan Thanh pho Ho ChiMinh so 17/2008/CT-UBND ngay 08/9/2008 ve quan li nha nudeve vat lieu xay dung tren dia ban Thanh pho Ho Chi Minh.

<i>d. Van ban quy pham phap luat cua Tod an nhan dan toicao va Vien kiem sat nhan dan toi cao</i>

- Nghi quyet cua Hoi dong tham phan Toa an nhan dan toi cao:Nghi quyet cua Hoi dong tham phan Toa an nhan dan toicao duqc ban hanh de hudng dan cac toa an ap dung thong nhatphap luat.

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Nhung nghi quyet co chua dung quy pham phap lult hanhchinh duoc coi la neudn cua luat hanh chinh.<small>• •</small>

<i>Vi du:</i> Nghi quyet cua Hoi dong thlm phan Toa an nh&ndan toi cao so 02/2011/NQ-HDTP ngay 29/7/2011 huong dinthi hanh mot so dieu cua Luat to tung hanh chinh.

- Thong tu cua Chanh an Toa an nhan dan toi cao, Vientruons Vien kiem sat nhan dan toi cao:

Thong tu cua Chanh an Toa an nhan dan toi cao duqc banhanh de thuc hien viec quan li cac toa an nhan dan dia phuongva toa an quan su ve to chu:c; quy dinh nhung van de khac thuoctham quyen cua Chanh an Toa an nhan dan toi cao.Thong tu cuaVien trudng Vien kiem sat nhan dan toi cao duqc ban hanh dequy dinh cac bien phap bao dam viec thuc hien nhiem vu,quyen han cua Vien kiem sat nhan dan dia phuong, Vien kiemsat quan su; quy dinh nhung van de khac thuoc tham quyencua Vien trudng Vien kiem sat nhan dan toi cao.

<i>Vi du:</i> Thong tu cua Chanh an Toa an nhan dan toi cao so03/2009/TT-TANDTC ngay 05/3/2009 huong din viec gidithieu bau va de nghi miln nhiem, bai nhiem hoi tham toa annhan dan huyen, quan noi khong to chuc hoi dong nhan dan.

<i>e. Van ban quy pham phap luat cua Tong kiem loan nha mtcrc</i>

TOng kiem toan nha nude ban hanh van ban quy pham phapluat duoi hinh thuc quyet dinh. Quyet dinh cua Tong kiem toannha nude duqc ban hanh de quy dinh, hudng din cac chuan muckiem toan nha nude; quy dinh cu the quy tiinh kiem toan, ho sokiem toan.

<i>Vi dir. </i>Quyet dinh cua Tong kiem toan nha nude so02/2013/QD-KTNN ngay 29/3/2013 ban hanh Quy tiinh kiemtoan ngan sach nha nude.

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<i>f. Van ban c/uy pham phap luat lien tich</i>

- Van ban quy pham phap lu<it lien tich giua cac bo truong,thu trirdng co quan ngang bo.

Van ban quy pham phap luat lien tich giua cac bo trirdng,thu trirdng co quan ngang bo diroc ban hanh dudi hinh threethong tu lien tich.

Thong tu lien tich giua cac bo, co quan ngang bo dirge banhanh de hudng dAn thi hqnh luat, nghi quyet cua Quoc hoi; phaplenh, nghi quyet cua Uy ban thuong vu Quoc hoi; lenh, quyetdinh cua Chu tich nude; nghi dinh cua Chmh phu; quyet dinhcua Thu tudng chmh phu cd lien quan den chrec nang, nhiem vu,quyen han cua cac co quan do.

Phan Idn thong tu lien tich loai nay la ngudn cua luathanh chmh.

<i>Vi du: Thong</i> tu lien tich cua Bo edng an, Bo quoc phong,Bo ngoai giao, Bo lao dong-thuong binh va xa hoi so03/2008/TTLT-BCA-BQP-BNG-BLDTBXH ngay 08/5/2008hudng dSn trinh tu, thu tuc xac minh, tiep nhan phu nu, tre embi buon ban tir nude ngoai trd ve.

- Van ban quy pham phap luat lien tich giua Chanh anToa an nhan dan toi cao vdi Vien truong Vien kiem sat nhandan toi cao; giua bo truong, thu truong co quan ngang bo vdiChanh an Toa an nhan dan toi cao, Vien truong Vien kiemsat nhan dan toi cao.

Van ban chung cua nhung co quan ke tren duoc ban hanhdudi hinh three thong tu lien tich. Chung duoc ban hanh dehudng dan viec ap dung thong nhat phap luat trong hoat dongto tung va nhirng van de khac lien quan den nhiem vu, quyenhan cita cac co quan do.

Phan cua thong tu lien tich cd chira drmg quy pham phap

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luat hanh chfnh dupe coi la nguon cua luat hanh chfnh.

<i>Vi du: Thong tur lien </i>tich cua Toa an nhan dan toi cao, Boquoc phong, Bo noi vu so 01/2011/TTLT-TANDTC-BQP-BN Vngay 20/10/2011 ve viec hudng dan thi hanh mot so quy dinhcua Phap lenh tham phan va hoi tham toa an nhan dan, Phaplenh sua doi, bo sung mot so dieu cua Phap lenh tham phan vahoi tham toa an nhan dan.

- Van ban quy pham phap luat lien tich giua Uy ban thuongvu Quoc hoi hoac Chfnh phu voi co quan trung uong cua tochile chfnh tri-xa hoi:

Van ban quy pham phap luat giua Uy ban thubng vu Quochoi hoac Chfnh phu voi co quan trung uong cua to chile chfnhtri-xa hoi dupe ban hanh dudi hinh thiic nghi quyet lien tich.

Nghi quyet lien tich dupe ban hanh de hudng dan thi hanhnhung quy dinh cua phap luat ve viec to chile chfnh tri-xa hoido tham gia quan If nha nude khi dupe phap luat quy dinhquyen tham gia quan If nha nude. Nhung *nghi quyet nay languon cua luat hanh chfnh.

<i>Vi du: Nghi quyet lien tich cua Chfnh </i>phu va Uy ban trunguong Mat tian to quoc Viet Nam so 05/2006/NQLT-CP-UBTUMTTQVN ngay 21/4/2006 ve viec ban hanh Quy che“Mat tran to quoc Viet Nam giam sat can bp, cong chile, dangvien o khu dan cu”.

Ben canh nhung van ban quy pham phap luat da dupe gidithieu tren day con co mot so loai van ban quy pham phap luatkhac dupe ban hanh trudc khi Luat ban hanh van ban quy phamphap luat nam 2008 co hieu luc. Do la: Nghi quyet cua Chfnhphu; chi thi cua Thu tudng Chfnh phu; quyet dinh, chi thi cuabo trudng, thu trudng co quan ngang bp, Chanh an Toa an nhandan toi cao, Vien trudng Vien kiem sat nhan dan toi cao; van

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