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

ỉ f t ( / ) Í4-

N A G O Y A U N I V E R S IT Y OF J A P A N
G R A D U A T G

S I I O O L O F LAVV

M A S T E R A S TI ÍILSIS

I1VĨPROVING T H E M E C H A N I S M FOR S E T T L E M E N T
O F A D M I N I S T R A T I V E DISPUTES: AN IM P O R T A N T
C O N T R I B U T I O N TO PUBLI C A D M IN IS T R A T IO N R E F O R M
IN V IE TN A M T O |5 Ầ Y T H Ư V |ệ NTRƯỜNG Đ A I H O C LỦÂT HẢ NÓI

PHÒNG DỌC

A 5
'1'hcsis p r e s e n l e d as pa rli al í u i r i l l m e n t o f r e q ii ir e n i e n ls Ibr a Mas lei '\s D c g r e e

THƯVỈEN GIAO VIEH

1M I A M M O N G Q U A N G

ĩ

S p e c i a l P r o g r a m for I n l c r n a l i o n a l S l u d c ĩ i T S l u d e n t ’s I D :

IV IZ

230003575

A c a d e m ic Advisor: P ro f. A I K Y O M A S A N O R l
S u b A d v i s o r s : P r o l . K A i V I I N O K E N J 1 - IVoỉ'. I C i m i Á S I I I K A T S U Y A
N A G O Y A , JU N E 2002


ABSTRACT

The

ío u n d a tio n

ín rp ro v c d

the

m e c h a n is m

dlemocnuizaúon,

A X cm in istra tio n

c :n ;o u n lc rc d

o f Ih c

and

R c ío rm

(he

A đ m in is tra liv e

1'or

S e U le in e n l

building

(P A R )"

D iv isio n

o l'

o f “ Nha

com m enced

p ro b lcm s o f Ih c c x is t in g

C o urts

in

A d m in is lr a tiv e

nuoc

from

m e c h a n is m

the

Phap

V ie tn a m

D is p u te s

(S A D ) 1,

q uy en” 2 addressed

b e g in n in g o f

ib r S A D

in J u ì ý 1 9 9 6

íe a lu rc d

by

has

s o c ia l

Pub li c

1 9 9 0 s. H o \ v c y e r , t h e

b y th e a p p c a m n c e o f

A \ c m i n i s l r a t i v e D i v i s i o n C o u r t s i n t h e p a s t s i x y e a r s h a s o n c c a g a i n I r i g g e r e d th e l c g a l d e b a t c s

om lo o k m g

1’o r th e b c s t r o s o l u t i o n

f o r its e x j s t e n c e . T h i s

r c s u l l li a s s u r e l y

i n r i u c n c c c l th e

SIUCCCSS o r l a i l u r c 0 í th e o v e r a l l P A R p r o c c s s . S u c h i m p o r l a n t i m p l i c a t i o n s , l l i c c l i o s c n t o p i c

a i i m s to c o n l r i b u l c a d i s c u s s i o n l o i h i s l i o l - i s s u e in V i e l n a m ,

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 ln cì s u p p l i c s an ovcrall VICVV o í t he \ vho le p r o c e s s íbr i m p r o v i n g llic m e c h a n i s m for S A D and

th ie 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 la lio n

behvccn

llic 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 :

Kirxtlv, tliis p a p e r c o n í i r m s Ihe imporlíint 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 vcr al ỉ p r o c c s s O Í P A R in Vi cl n am . SÍIICC thc f o r m c r a i m c d to

caanỵ out t hc mai n c o n l e n l s as wcll as llic o bj cc li 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' pcilorminu. tho “ D o iM o ì" policy 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 an ce 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 pre s en 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 clo p in c n l o l'lh e inteinatio nal 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 nccs 011 S A D

c o n lrib u lc such an opim on.

in .lapan vvcre also added lo


1996 ụ

7 F-Ị ^ h i - ^ ỷ ò ^ T i m m m m ^ ĩ &

( s A D ) ơ - ) tz iíb ơ ) /ý j^ .x j* y ? ± á ệ ố * j j 3 c ± M ư

i L ề h t c ^ k ^ x ^ T , 'n tm - M m

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 £[=•

lííiM íò t, '-C ,

1)' r í ĩỉư -J“ 6 |pj ẴS /j \ M-1>\

S A D cofcA/)í/)fi!£]ặ:c/> * -}j= --x is

ỶJ - - X 'i» co ĩặ |?c co tz. ti) ỉc n í-j J | I 'jỊịf. :f k &• t i

i ' £ /1: ồò
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-co J$L ĩby

fi®n í c

ì ỉ ớ W ' < t ¥ x . x ũ t c . 0 u < D m / v t s m 0 f :t , ^ ơ ) X õ ^ m m ^ B m z ỉ ò ^ x , - < H - is ic .- f o íj- £

n d í ĩ ơ m t í ù ^ & i ầ - f ò z . t k IẼI Ủ ^ L - C I/ ' ò o

zơyỉfa-xi-x, m í o Y ũ ĩ m m m o K Mcoíj££^u=U';£f!/>T/;:í£fc,
S A D ơ ì t - . V r t ) A i j '-?:£> % . CK PAR c O | ^ ± C O > S f ê á H * f - * J " t ồ l l ] ! f M & ^ U m a ^ h h o i

Il\]0)ft\K\&]i&<tlềỉ&-\'Z)i>ơrC&ìò„ fiJI:’€ ^ l'l;,í cí òi / ' - C, n K

I

' Ct ' ó o

MĨ--■{>!, C C / ;^ ỉ;ố :( C J :o T , -< H --M C :|o (j-< S S A D ơ ì f z V ) ư r / j j r z 7 ; J - M ỷ J g - J p PAR-C0j§

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
;cL'C« Ỹ Ằ'i íli 'C I' ■-)-Is ị£ Ỉ3 1/' X fti b i'i X V' 4' 1)' o J t"í ■
7 ứ í T í/.) ửj ỳi: ‘Hí tà ”í- *]• L tì-: l-il
-VU\

( > - < ! ' • i' J »co H] m H;IJìỹl & Iu- n co r|:i ị - & í j ' £ ỹ£d=í:c/) 3g )ji| {c i Ế V ' o / ) ' -ll-& t', c/) t L /;-.


ỉ í ĩ * % ì k m I'1f 0 ) m ÍL

»ĩ 'X V á h o t z z t & m m LỶCo

TÍ.-.Ì1, -co*ằ:m,

XIÍ, v^^colĩ&xM/TríConseii

d 'E iai) -x-^r)V0-\lĩt£ r ^ l ỉ i L / t Í T l & ẳ l ^ / 3;? J < L 'L T fc n ? > ;ft£ $ rU ^ r v u - ^ ị í U í ^ Í T ? / . / '
{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 iì'L , A í i ơ í ^ SA D ơy/c
} J ) Ơ ) / j jr - x u ư )ĩ k i - / r “ #

|V.J4 ' 'jjỂ:$ Ị i§ Ễẳ " T ' M J v \ R c/>. £ (Ạ;i'i'j3g5.R (vi J(|> X . ó I ] ừ >J& w

-tĩìo
m

'

í

£

(

.

S

A

D

c o r a ,

1992 í p S K y ỉ c n e í c ĩ l i , Jk í M t t ơ ) A ‘M ( C

ỉiiíì ô ® m u u ĩ ơ m m ^ & ^ ^ T , ^ơníùscn, p£tĩ-ơ>ĩ;~r/i'ơ)t?m&$:fôL, M.ưịcm
t :W Jf j&,J;
'•-.V)',^ 1.1* { .:* ;{ )-/, SA D (CỈVJỶ'6>/

.]:/;-., ^-c/>,);•;/,;,íí |>ÌiSríiliv

I. ọ


IM PR OV IN Ò T H E MECMANISM FOR SETTLIiMlilNT O F A D M I N I ST R A T I V E
DISrU TE S: AN I M P Ò R T A N T C O N T R I B U T I O N T O PUB LIC A D M IN IS T R A T IO N
R E P O R M IN V I E T N A M T O D A Y

TADLE OF CONTEỈNTS

Pagc

INTRODII CTION

1

C I I A P m i I: P U B L I C A D I M I N I S T R A T I O N R E r O R M ( P A R ) IN V1ETNAIY1 A N D

8

ITS R E L A T I O N T O T H E O V E R A L L R E Q I U R E M E N T rORTIIIC

IiVIPROVEIMENT o r T H E M EC I I A N I S M F O R S E T r L K M K N T o r
ADIY1INISTRATI V E D I S P U T E S ( SAI) )

I. O v c r v i c w

8

1. Overvievv ol llie PAR process in Victnam

8

2. Ovcrvicvv o f the m c c h ỉ i n i s m íor S A D in V ic t na m
II. NVIiy

llic

im provcm cnt

<)f tlic

12

m cclm nism

for

SAI)

is

;in

ÌI11 |)()I ( ;ml

17

c o n f r i b u t i o n (o P A U in V i c t n a m ?

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 mpr ov eme nl o í llie m ec h a n i s m Toi' S A D consiclcrcd ns ;in clTcctive m ea su r e lo

20

Ciirry oul IỈ1C niỉiin oonlenls oí l’AR
3. I inprovcmcnl o f lỉic incclianisin í OI' S A D í úms lo Cíiiiy oul llie main o bị ecl ivcs o f

23

PAR lo builcl up s uc c cs s íu ll y “ Nha mioc Pliítp q n y cn ”( I ,cgal Slnle) III Viclnam
u p \vi111 llic

27

5. I m p r o v e n i e n l ol llic inccl iíi ni sm 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

4.

Improvcmcnl

ol

llic. me c li n n i s ni

for S A D

íilso n i ms

lo c a tc h

clcvelopnieiU oMcgal Science o f llie vvorld and region in llic íìckl o f S A D


ịnclicial review o f administralive action in Vietnam
III. C o n c h i s i o n

37

C MAP TE R II: P R O C E SS OI' T H E I M P R O V E M E N T O F T I Ỉ E M E C H A N I S M
FOR SAI) IN V I E T N A M

38

- ĨII STORY AN D O UT LI NK OF VIETNAiM ‘S

E X P E R I E N C E IN S A D l.

SAI)

prior

ío

July

1996

and

thc

need

for

the

establisỉim ent

A d m i n i s t n i t i v c Division C o u r t

of

the

38

/

1. Legal bíisis applied to S A D

38

2. Th e main characỉerislic o f the previous meclianisin for S A D

39

3. The s ho it comi ng s o f mecha ni sm for S A D prior lo July 1996

41

3.1 Lack o f an i ndependeiU judicial o rgan lo revicvv i mparlially a nd obịect ivel y the

41

compl ai neđ adminislrative decisions o r acti ons
3.2 The (leícct in llic p ro c c d u i c s o f S A D and implcmcnlation oí rcvi evv tlccisions

45

3.3 ImpciTcclion o f legíil l egulations applicci lo S A D

47

3.4 The limilccl lcgnl ciipacily oí slalc ol ĩicials and (lic nialprncliccs in S A D

50

3.5 The limiuilion pl leg;tl knovvlctlge íiinong p e op l e <111(1 (lic non-supporl knvard

52

slalc o íĩ i c i a l s

3.6 SiUiíìlion O Í S A I ) in Viclnam prior to J111Y 1996 and (he remnr kabl c probleins

53

■4. T h e cstablislimcnl o l l l i c Adminislralive Division C ou rl s (JIIly, r ' 1996)

55

■4.1 Th e indispcnsíiblc nccd í 01 llic esíablisliment o f Adminislnilive Oivision Courls

56

‘4.2 Proccss oí .sctl mg U|) ( he ì n o đ e l as Ađmi ni sl raúv e Division vvilliin p e o p l e ’s courl

63

4.2.1

The

m o d c l o(' i i đ m m i s l r a t i v e co ur l Í1S an

ii

indcpendcnl

S ys t e m

í b rm c d

hy

63


National Ass embl y, s epa rat i ng it (Vom llic a dmi ni str at iv e orga ns , in paraílel vvith llie
p e o p l e ’s court System
4.2.2 The model o f admi ni st rat i ve cour l as an i nd epende nt s ys tem í b n n e d and

65

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 dm i n i st r at i v e Division vvithin P e o p l e ’s Court

66

s ys l em (Administrative Divisions Cou rt ) and its íòrmaticm siuce July, r ' 1996
4.3
II.

Conclusion

68

S A D in V i e t n a m s i n c c ll 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

69

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
1. S Á D

by

ịudicial

r e v i e w in the Aclministrative

Di Vision C o u rl s under (he

69

O rd 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 amcnđ me nl ciiaclecl 01) D e c e m b c r 25*1 1998 lo dale
1. I Wh;il is an ỉidiiìinistrativc ca sc?

69

1.2 Rcqmrcmcnt ÍOI inilialing adiiìinislralive c a se s

70

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

73

1.4 Adminisliaíive Division C o u r t ’s c o n i pe le n ce 011 S A C

75

1.5 S ome rcmm kable íealures in the p r oc c ed i ng s o f S A C

77

1.6 .ludgmcnts and execut ion oT judginenls o f adminislrative cnscs

79

2. S A I ) by a dm ini s lr at i ve revievv c o n d u c l e d by the svslem o( the iulminislnitivc

80

agcncies unclcr tlie O S C C D o f 1991 and llie L O C D oí' 1998
2.1 T h e conl radi 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

III

81


2.2 S A D bv llie c om pe le nl aclminislralive a g c n ci es u n d e r (he L O C D

82

2.3 Co ncl us io n

84

3. P r o b l em s e n c o un le r eđ in the exi st i ng m ec l i a n i s m for S A D and the d i s c u s s i o n lo

85

look íor a beller moclel
3.1 Sit nati on in S A D s i n ce the es tablisliinent o f Adi ni ni strat ive. Di v i s i o n C o u r t s in

85

Vietnam.
3 . 2 P r o b l e m s e n c o u n t e r e đ in t h e e x i s t i n g m e c h a n i s m

94

ÍOI' S A D

3 . 2 . 1 T h e p ro b le ms re ma i ne d in (he deí mi ti on o f c o m p e t e n c e in S A C

94

3.2.2 S A D in the pre-iitigation Ịieriod by ad mi ni str at ive a g e n ci es

99

3.2.3

N o n l e a s a n c e o f llic c o m p e t e n t a d m i n i s t r a t i v e a g e n c i e s a nd

non-effeclivc

103

3.2.4 S o m e pr obl ems e n c o u n t c r e d in S A C p r o c e e d i n g s at A d m i i i is l ra ti v e Di vi s io n

106

c n f o r c c n i e u l o f COIII'1 ‘s r c m e d i e s

C ourl s
3.2 5 Tlic impciTecl and contradiclion in lcgal rcgulal ions involved in S A D

110

3.2.6 Qualily oí ịiidges, p e o p ! e ’s a s s e s s o r s and pr o c u r at o r s in par licipation o f S A C

113

3.3 T h e di scussi on lo look í'or ;i bctter modcl íor S A Ỉ ) in (lie prcs cnl liinc

116

3.3.1 A crilicism of( li c exisliiig inodel for S A D

116

3.3.2 Sonic cliscussions to look íor a bcttcr inodcl for S A D

1 17

3.4 C on cl us i on

121

CMAIK[ KR III: T H E D I R E C T I O N F OR IMPROVIiNG T H E EX I S T I N G
MECHANISIM F O R SAI) AND ITS I M P L I C A T I O N IOVVARI) T H E
OVKRALLPROCESSOFPAR

iv

123


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 tlic e x i s t i n g m c c h a n i s m f o r S A D

'

123

1.The improvement o f l a w d o cu me nt s ys tem

124

2.The iinprovement o f llie existing model for S A D

134

3 . The improvement o f public Service s y s t e m

135

4 .The impiovcment of administrative revievv o f admi ni slrat ive action and the

137

responsibilily o f adininislratỉve a g e nc i es

5.The rolc o f administrative ịudges

138

6. The rolc o f procurat ors and p c o p l e ’s a s s e s s o r s

140

7.Tlie role oípolilicíil socia! organizat ions and all individuals

1.41

8.The devclopmenl of' iiitcrnational co - op er a li o n and íoreign lcg.ilI aid

143

II. L c a n i i n g e x p e r i c n c e s <)f S A D in . l a p a n

145

1. Overvievv

145

2. S o m c cxpcri cnces o l S A D in .lapan.

150

III. I m p l i c a l i o n (>f i i ì i p r ov i n g t hc m c c h a n i s m f o r S A I ) lo\ vít id t h e o v c r a l l

159

p r o c c s s o f I>/ \ R

I . Ht corclicnl aspcct

ICO

2 IVaclical aspcct

161

( O N C U IS IO N

163

mHUOGKAP II Y
AIMMINDIX I
AIM’ ENI)IX 2

V


IN T R O D U C T IO N
í. TOIMC AND R A T I O N A L E

Public Ad mi ni st rat io n R e f o r m ( he r ei n af te r r e f er r ed lo as PAR) is a “ c o m m o n p h e n o n i e n o n ” in
m o d er n soci el ies and bcen conckicled b y a l m o s t all g o v e r n m e n t s tlirouglioiit the w or l d , ai i ni ng to
calch up tlie clianges o f e c o n o m i c , political, s oci al c i r c u m s t a n c e s at di fferent levels o f eacli
coiintiy. Viclnam, sincc the i m p l e m e n t a h o n o f “ Do i M o i ” 2pol icy in 1986, a l o n g \villi ílic v i g or ou s
e c o n o m i c reíbr m, has laken in a parallel r a n g e o f r e f o r m s sucli as the l egislalive, ị uđi ci ary and

public admi ni slral ion reforms . T h e 811' P l e n u m o f the 7 ,h Part y C o ng re s s ^ c o n s t i t n t e d a l urni ng
poinl

ÍI1

b ui lding and i mp 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 imies to face witli m a n y ob st ac le s to its p r o g r e s s and Pailcd to
m ecl the expectalion o f (lie leadershi p o f llie c o u n t r y as vvcll as llie peop le. Tlie lĩiain o b ị e ct i ve s
oí l’AR are to sct up a s t r o n g and e í ĩ c c li v e State aclministralion, build up s u cc e s s f ul 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 1he lavv is a bs o l u t c l y rc s pc cl cd , a nd
pi olcct ing tlic lcgal (lemocratic riglits o f c i t i z e n s .
lu llic (i 111e being, the s lro ng d e v e l o p m e n t o f t he vvelfare State, llie i nf or ma ti o n s o ci et 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 ak e all g o v e r n m e n t s in (lic w or l d , iiìcluding Vi et 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 tra li on . A s a resull, tlic
S cl i le me n t o f Adini ni slrat ive Di spul es (l ierei naft er referr ed (0 ns S A D ) in Vi cl nam noNvadnys is

21 Ni l s

D r u n s s o n a n d J o h a n P O I s c n , T l i c re.forni ing o r V
g. a n i z a t i o n , I (Ị 9 9 3 )
^
T h i s t c r m m e a n s “ R e n o v a t i o n ” tliat lias b c e n p o p u l a r l y u s e d in V i e t n a m s i n c c tlie 6 ' C o r m m m i s l Pa r t v C o n g r e s s

III

1986

"

I lic t c r m o f ilie 7 "' 1’ariy C o n g r e s s is Prom 1991 t o 1 9 9 6 . T h e 8 11' P l c n u m o f tlic 7 '1’ Pnrl y C o n g r e s s is in 19 95 .
r i n s lcu,al t c m i m c a n s “ R c c h t s t a a t ” o r " L e n a l S t a t e ” tlial is o r i g i n a l c d ( r o m G e m i n n y l c g a l s y s t e m , h c r e i n a t ì e r
r c l c r r c d lo “ Nlia IHIOC p h a p q u y e n


icunrdccl as an imporlant con tri 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 out One o f
tlic niain ob ịe cl i ve s o f PAR (liat allo\vs peop le,

apart fr om

t hos e m a k i n g c o m p l a i n t s (0

íidininislrative ag enci es or State Inspect orat e s y s te m feattired by the m e cl i a ni s m for S A D prior
to 1996, lo initiatc admi ni st ral 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 oí ’ admi ni sl rat i ve pcnver. L e t ’s gi ve an e x a i n p l e to illuslrale llie n al ure o f the
problem.
í ma ui n e tliat citizen A w a s g ra nt ed the certíficate 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 id e n c e and agriculUiral p u r p o s e s í01' a long
lime, and tlicn s udd en ly 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 el 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 derived 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 on a! p u r p o s e ? O r e vc n in c as es o f public
purpose, vvlial lcvel o f c o mp e ns a t i o n for liis labor and living is r e a s o na bl e ?
IỈIUS, llio cxaitiplc m en l i o n e d a bov e is not a civil i natter c o n c c r n m g ihc civil riglils bc(vvcci) tvvo
private parties vvlio are equal in legal status, but an aclministrative d i s p u t e a r is i ng b e t w e e n a
privatc person 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 crenl es a sl rong
incclianism

íbr S A D thíit ai ms to prot ect the i nfri ngcd p e op l c

íroni

m al p r a c t i c e s by tlie

íidininistration like sucli a b o v e ca ses OI! the o n e liand, a nd (0 r e c o v e r the i ni s ta kes f0 r llic belter
opcration

on

llic

ollter.

V i et name se

administrative

law,

s ince

tlie

e sl ab lĩ sl ime nl

of

the

Admi ni st ral ive Division C o u r t in .1IIly 1996 lias nllovvcd citizens to initiate (he admi ni st rat i ve
línvsuit to a c om p cl e n l courl (hat r e - m a r k s ỉlie birlli and 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 pr ovi 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 . lanuar y, ỏ ' 1' I 9 9 7 in
\vhicli 1h e citi7.cn N g u y c n Van D o a n i nr l i at cd t he 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 eo di s t r i c t


revievv o f a dmi ni str at iv e a c t i o n ” in Vi et nam. Th e founđation o f the Admi ni st ral ive Division
C o ur t since -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 ndi ci ary reíbrm
la.mclied from (he b egi nni ng of' I990s. A n u m b e r o f ađmi ni st rat i ve c a s es we r e resolved by courts
an 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 protecli ng p e o p l e ’s d e m oc r al ic riglits as wel l as setting up tlie “ N ha IUIOC

Phiip q u y e n ” as a dđ res sed in llie o bị ect i ves o f PAR. Hovvevcr, altliougli liaving been in exi st enc e
í o r o vcr rive ycars, the m cc h a n i s m for S A D lias revealed m a n y defect s that Pailed lo Í\||FiU the
c.\ pectalion o f llie pcop le as well as l a w m a k e r s , resulting 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- step i mp le me n ta ti o n o f the Iiiain obị ecl ives oí' PAR, the
Iiiiiprovcinent of the m e c h a n i s m for S A D is also a “ co nt i nu 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 simplistic ị udgi nenl s in t cr ms o f s u c c es s or Pailure vvilliout dccply understaiiđing
vvhal lias c a u s cd llic dcíects. 1'liere has still be e n in di scus si on o f eitlier m a i nt ai m ng the modcl as
A( Immisỉralivc Division C ou rt vviih s o m e a ppr opri at e clianges in (he bolh lcgal and practical
iiS|j)CClíi ÔI l ookihg ỈOI 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):
.1 I I I im p o r ía n í c o n trib 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 oki ng back the hi st ory o f V i e( nam’s cxp eri ence in S A D , aiiiily7.es thc.
d o s c rclnlion bcl wccn ihe i mp 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 bl cm s eiicounlerctl in llic cxisling mecl ui ms m, c o n í i m n n g ihc
Iieccd l'or lurtlicr m i pr o v e m e n t o f the mccl inni sm for SAI), ÍIIKỈ gi vi ng proposnls í01 Iievv
(lircclioiis.
Tlnc scope o ( ' l h e cliosen topic may a p pe a r bro ad, so tiial llirce morc speciTic quesí ions a c co rd i ng
10 Ihc conlcnl o f e n c h chnpl cr (tlircc chnplers 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 cch a n ỉsn t f o r S A D is r e g a r d e d a s an im p o rta n t co n trib u lio n to PAR in p r e s e n í V ietnam ?
S m c e thc p u r p os e oClliis cliapter is to m a k e cl ear the mutual relatioi) b et we en the p ro c es s o f PAR
in Vi etnam t owar d the overall r e q u i r e m e n t for i mp rov ing 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 analyze o f tliis mutual relation tiirough five
main points is prcsenl ed an d e m p h a s i z e s lliat tlic i m pr ov em cn t o f the exi sl ing mc chnni sm for
S A D is ai med lo carry o ut the mai n c o nt en t s as vvell as the objectives acklressed by PAR, and
needs to speeding up lurtlicr to ineet the r e qui rement o f the present, s lrong renovaí ion process.
í he main tlieorelical issues as well as the us e o f legal t e n n s co ve ri ng tlirough tlie co nt en t o f the
lliesis such as “j udicial r e v i e w o f a dm i n i st r at i v e act ion ”, “ Nh a IHIOC Pliap q u y e n ”(Legal State)

‘Pliap clic”(Piinciplc o f Legali(v) íire al so intentỉonally present ed and an al yz ed in lliis chapter.
Si nce (lic d e vc l o pm cn t o f legal S ci en c e in v i e t n a m is a imc đ lo catcli up lo ílie d c ve l op in e n t s in

llic worl(l, tliis chapter will al so i n ak 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
Admmislrative Division Courl 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 proces s of PAI^ in Vi et nam loday, tlicte is an indi 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 en ce in SAD. As II) ment i on ed abovc, llic sec ond
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 by th e p r o c e ss o f
im p r o v in g tn e c h a n ism f c r S A D in i^ietn a in ? vvill be c onc cnt ni tc d 011 to p rovi de an ansvver. Tliis
represents the most ii nporí ant part o f the tlicsis, so llial tliis c ha pl er aims lo an;ilyze and prove the
proccss 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 prior lo .JIIly, 1996 k n o w n as 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 hoi l co mi ng s , leading (o (lie i nd i sp en s ab l e n ee d o f sel ti ng up a b el ler i nođ el for S A D knovvn as
Aclininistrative Division witliin P e o p l e ’s courl s ys tem liandỉing oul a đ m i n i s t r a l i v e di sput es. Tlie
s ccond c on c e r n s tlic p er iod 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
cíĩorts (o an al yz e the mai n e n c o u n t e r e d p r ob l ei n s o f the ex is ti ng i n ecl i ani s m tliat n e e d to be
rccov cr ed for its existence. In addi ti on, liie a p p a re nt s l ì o r tc om in gs o f t he n e w m e c h a n i s m for
SAI ) cxp o se d in the r ecent y ea r s lias o n c e again i n ad e a goocl c o n di t io n for (lic lcgal debates
d ev el ope 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 existing mo del . O n e , tliere sliould cl i ang e the exi st i ng mo del as the
Ailministralivc Division C o u r l to auotlier 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 nown
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 exi st i ng State In spc ct or 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 an 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 ike (he

modcl of tlic CohsgìI d ’Etat in Pranec. Tlie olliei is to imiinlain the exi st i ng inodel and n ỉ on g wilh
s omc a ppr opr i ate c ha n ge s o f llic present C o ns t i t ut i o n

19 9 2 ,C0 I1 t imi ousl y i m p r o v e botli llic

organizational structures a nd lcgal regulalions concernetl 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 rd (he o v e r a ll PA R p r o c c s s in ì ĩetn 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 gcnc 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 li 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 hc p u b i c
p o w c r a n d a l s o m a k i n g llie íìnal 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 ca r ec ) . S c e L . N e v i l l c Br ovvn a n d .lolin.
s lìcll. ÍTcnch Adnnnistrati v c Invv, '17 (1 9 9 8 )

5


toriav? S in c e s o me ap pr opri al e cl ianges (0 (he Consli lut ion o f 1992 vvas m ad e by the lo " ’
Nati onal A s s e m b l y in De c cm bc r 2001 and tlie i mpo rt an ce o f (lie d e v e l o p m e n t o f international
c o - oper at io n and íbreign legal aid has been fu!ly realized, the lasl cha pt er aims lo present s o me
p r o po s al s for thc direction o f i m pr ov 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 ts to bri eí ly identiTy and an al yz e the
posi tive p oi n ls as well as s o m e r e m a i n i n g issues o f S A D in J ap an tliat are really usePul to dr aw
s o m e lessons for Vi et nam‘s ex pc r ie nc e s in SAD.
RATIONALE

Tliere are tvvo main re a sons tha! require such a study.
First, c o n c e n i s the cont roversi 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 Ad mi ni st rat iv e Di vision witltin P e o p l e ’s Court. T h e íbi mdati on and inaugurat ion o f
Aclminislrativc Division C o u r t for o v er p as t five y ea r s re-t narked an ep oc li - ma k in g st ep t oward
llic ini provei nenl o f tlie mecl tanỉ sm f'or S A D in Vietnain by a pp l yi n g “ juclicial revievv o f
a d in in is lr a liv c íic lio n s ” lh.1 t lia v e Iiot b cc 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 tin p

Micchanism lias also leíì beliind a lot o f s li orl coni ings lliat Iieed to be r e cov er ed loi' existcnce. T h e
l o\ v- cí Tect ivencs s in S A I ) in SOIÌ1C past ycars OI1CC again enl i a nc cs the legal sci enti sls íind llie

|) ub l ic ‘s attention to looki ng for a bet ter m e ch a i ii s m for S AD. All tliese points mak e tliis topic far
Irom b ei ng out o f date and still a liot-issue in Vi ct nam, even lliougli Adininistrative Division
C o u r t lias cxistcd since 1996. Besi des (liat, PAI? in Vielnam p ro m o l c d by C o m m i m i s l 1’arly sincc
llic beg i nn i ng o f I99 0s is a nevv la.sk, “ witliout p r e c e d e n t s ” tliat n ecds lo be proi not ed slcp by slep.
'I liis lliesis íìncls a need lo pu( the PAR in i(s relation lo llie overnll re qu ir emen t for i mp ro vei nen t
o f llic mecliaiiisin for S A D lodíiy in o r d e r to íìnd out bolli llic legíi! and praclical basis for
cxplíiining the remnining issues, and to thiuk o f i(s beỉter deve lo pme nl in the íului e.

6


S e c o nd l y tlie lopic is íittractive by botli its tlieoretical and logical character. As nienlioned,
Vi et namese legal s ci en c es in general as wcll as the ricld o f a dmi ni str at iv e l aw in particular are
still i mma tu re and need to be s upporl 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 ti o n s ” , “ N h a ĨHIOC P hap q u y e n ” , “ adminislrative 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 are in neeđ o f lĩìucli attention
;iikI c om pl et e sl udy hy llie legal scicntists a nd admi ni str at ive g ov er n or 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 exn mi ned
s cpamt cly bti( also put in mut ual relation tovvard the overall pro ces s o f P AR ; the p roc es s o f
improvi ng the mecl iani sm for S A D in V i e t n a m is ana lyz ed in its relation lo the d e v e l o p m e n t o f
Vi cl namese liistory as vveỉl as 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 prcscnt cd Ĩ11 the llicsis.

2.

i\H:ri!OD 0 F RESEARCH

Whilc conclucling llic rcscarcli, the mai n usetl metliods vvcre llie annlysis and synlliesis o í b o t h
llic lcgal nnd praclical issucs rclaíing lo S A D and P A R in Viclnam. The \viitcr colleclcd llie
ni.Ucrinls c o n c c m i n g on S A D in V i el n am i ncl ud in g llic updal e (iala sucli as llic annual reporls 011
ịudgnienl aclivilics 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 na ly zed llie p r o c es s o f i m pr ovi ng (he nieclianism fbr S A D ; prescnỉetl the
0WI1 opinions upon llie b ei ng d eb a te d issues and to a certain extenl proposec! dí rect 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 and col lat ion betvveen V iet name sc law and soiìie otlier
lorcij.il laws such as .lapan, Pranc c and s o m e ollier coimlries in llic vvorld and the Asi an region
| 0 \v;iiJ Ihc lcual issucs involvcd.

7


CHAPTERI
P U B L I C A D i M I N I S T R A T Ĩ O N R E F O R M '( P A R ) IN V Í E T N A M A N D ỈTS R E L A T I O N T O T H E
O V E R A L L R EQ U IR EM EN T FOR IM P R O V E M E N T OF T H E M E C H A N ISM FOR
S E T T L E M E N T O F A D M I N I S T R A T I V E D I S P U T E S 2( S A D )

The p u r p o s c o f t h i s cliapter is to m a k e cl ea r the muliial relalion b e ( w e e n llte P A R and llic
ovcralỉ requiremei it for i mp rov in g llic mecl iani sm for S A D in Vi el nam b y Cirst gi vi ng an
ovcrvievv o f botli the p r o c e s s o f P AR and the mecl iani sm for S A D, llien di rect ly a na lyz ing tliis
nllcgcd imitual relation (lirougli five main poinls and c o n íĩ rm i ng the ỉ mport ant contributioii o f (he
lalter to llie former.
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, Piesi denl Ho Chi Minh r c ad llic Dccl arati on o f IndcpciKÌence, (he Nc\v
Dc moc ral i c Re pu b li c ol’ Viclnanv c amc in to e.xisỉcnce a nd a State ađmi ni slrat ion vvas íbrmed.
Viclnam i mmcdial cl y expcriencecl lwo conliiiuous b l o o d y Wíirs for liberalion and ( l c l c n s c 1. On
July 2 ,ul I976,imciìlcrecl 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 sl Parly lias c o p e d vvilli iTiany (liííìcullics in tlie buikl up ;i
MCW d c m o c i n l i c s o c i c l y in c o n l b r m i l y vvilh l l ic d c v c l o p m c n l o l l l i c r c ị i i o n a n d l l i c \ v o r k l , u l n c h

rcciuircd a c o m p l c l c renovatioii í'or ils c.xisícd bcing. T h e 6 lh National C o n g r e s s o f Vi cl nn mcs e

1 H c r c i n a í l c r rcTcr r ed lo (’AR
l l c r c i n n n c r r c í c r r e d lo S A D
I lic lìrst n a m c oí V i e t n a m , llicii II c l i a n g e d lo “ T h e S o c ì a l i s t R e p u b l i c o f V i e t n n m " s i n c e .Uily

2'"'

I 9 7 6 b y llic

r c u n i d c d Na t i o n n l A s s c m b l y a f t e r llie w n r ’s e n d , ( o r m a l l y p r o v i d e đ in llie f o r e w o r d s o f C o n s l i l u t i o n o f I 0 8 0

S c c Polilic al Rcport of ihc Central committee, 8 ,h tciuirc at 9 ,h Naúonal Ccmuress
< l it tp// \y\y\y c p v . o r g , v n / c l i u y e i u l e / n a t i o i i a l c o n g r e s s 9 / đ o c s / p r o m o l c h i m > .

8


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 ame sl ly re co g» i ze d the mi stakes a nd sl io it co mi ng s result ed in the less

d ev el op me nt o f the wliole co un t iy o ver the p as t ten y e a r s since the reunií lcati on w a s laid d o w n in
ihc “ P a rl y ’s ideological and organizational acti vi ty’ a nd c o u r a g e o u s l y called up on the
renovation, lias been see n as a signiíĩcant tuni ing -p oi nt in V i e t n a m e s e liistory. As a result, since
1986, u nder the l eadership o f tlie Coi ninuni st Party, 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, bureaucratic m e c ha n i s m in to a imilti-sector econoiTiy o p e r a l e d througli a market
mcclianism, subịecl to (he monitoring by the St at e8. P A R is see n as a n e c e s s a r y c om p o n e n l in the
ovcrall reiiovation p roc 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 el op me n ! o f c on c ep l s
and basic principles for P AR as well as ílie í bnn u la ti on o f gui del ines an d d irect ions for P AR by
tlic Party and llic State lias resulled in a c ont i mi ous d e v e l o p i n g pr oc e ss .
I.ooking bíick íil llic ỉiislory prior lo 1986, íìltliougli the wat ‘-resistnnl g ov cr nm en t (period 1945 -

1975) and tlic reunided go ve r nmc n t (aíter 1975) liad al re a dy coi ul ucl ed soine r e ma r k a b l e rcíbrin
policies concerniiig 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 col lectivist or

soúnl isl r c l b r m 10, and (he c onc epl o í ' “ Public Ad mi n is lr a li ve R e l b r m ” \vas not slill inenỉ ioned .
Durmg Iliis pcriod, tlic facl remains lliat the organizational 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 Hl c x [ l i m >

'• Id
I l us l cr m m c a n s “ R c n o v n l i o n ” a n d il is p o p u l a r l y u s e d i n V i c t n a m s i n c e ( h c 6 lh C o m m i m i s t p.irly C o n g r e s s in
I 9 8 6 , h c r ei n a f t c r rcfer r ed a s “ Do i M o i l
' l i c n p h a p V i c t n n m 1992. Ị V i c t n a m e s e C o n s t i t u t i o n I 9 9 2 , h e r e i n a í l e r r e ĩ c r r e d to V i e t n a m e s e C o n s t i u i t i o n 10 9 2 ] .
Ar l I 5

S cc “ I he rcvicvv of reform activ itics carricd ont in Ihe pasl 5 years o f im plem cntntion o f Party R cso lu lio n No 8 (the
c o n g r e s s ) a n d U c s o l u l i o n N o 3 ( 8 11' c o n g r c s s ) b y G o v e r n m e n t O l l ì c c o f V i c l n n m ", 3 ( 2 0 0 0 )
Sucl 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 he Nor 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 am! 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 .

9


systeni vvas implcniented and more attention w a s paiđ to tlie clevelopment o f Icgal institulions as
vvell as the s t af f manageiTient.
The concep(ualizalioii O Í P A R has i niproved s t ep - 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 oc u mc n l sl)owed tlial “ in o r d e r to sct up llic ncvv mecl ianí sm íbr State
adminislrative manage ment , tliere n ee d ed a t r e m e n d o u s r eí br m o f the State organizat ional
st ru cl urc” 1 Tlius, the concep! o f P A R w a s not fnlly men li oned, c.xcepl for “ the r e í or m o f ihe
slnte organizalional st ru ct ure” to be seen as a m aj o r c o m p o n e n t o f (he reíbr m.
Du rmg the per iod 1992-1995, the 711' Parly C o n g r e s s 12 r ep res enl s a lime o f s t ro ng d c ve lo pm e nl o f
thc P a rt y ‘s t hi nkmg per cept ion and c on cep ti on o f public ađministralion and P AR . Resolulion 011
“adminislrativc p ro c ed ur e r e f o r m ” u w a s ena c le d by ll)e g o v e r n m c n t in 1994 and c o n si đ cr 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 nbị ect s in a new e c o n o m i c and social context. T h e 8 lh Plemim o f (he 7 ,h temire 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 on c c r n e d vvith tlirec maj or c ompo nei i ls suclì as: tlie “ íìdministralivc instiliiỉional r e lo r m" . llie
“ organizalional struclure r e í b n n ” , and 1he “ đ e v e lo p in e nt o f c a d r es and civil s e r v a n l s ” ‘\ v e r c
sysl cmat ical ly present ed for (lic rirst (ime in the signiíicant poliỉical đ o cu me nl s .
Diiring thc s e c o n d liíi iroí tl ie d e c a d e oí llic 90 s, the V i et n a m e s c g o v c m m c n l , bnscd 011 tlìc
gu idel mes oí ỉlie Parly Resol ut ion No 8 o f tlie 7 lh Part 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 cn Dai ho 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*' Par 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’nrty C o n i ; r c s s D o c t i m c n t < lìltp// 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 ary R e f o r m l5lhat lias resull ed in the i mportant inilial
acl 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 integrated in to the d e v e l o p m e n t o f tlie Asi an region and the worl d. Hovvever, P A R Iias
Iiot yet b ee n able lo meet tlie re qu ir e me nt s o f re nov at i on , e spe ci al ly e c o n o m i c 111 vvliiclì the
remnant s o í ' a State admmi strat ion d es i gn ed for a centrally p l an n ed a nd b ur eaucr at ic mcchani sm
slill l emain. PAR lias Taced o b s t ac l e s to its p r o gr e ss , sucl) as “ !o\v a n d i rresolule” 16 rcíorni and
mconsisíen! implcmeiitalioii. T h e Polilical R epo rt o f llie laíest 9 lh Party C o n g r e s s (April, 2 001 )
fVankly criticized llie \ v c akne ss and sli oil coni ings in the i mplenientalion o TP A R. Tliis reporl
especially poi nt ed out the situation o f the co un try in tlie past íìve y e a r s and the Iiiain lessons o f 15
ycars o f renevval con cerni 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 ing ['unclions, m i m e ro us int ermedi aries 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 nd e m p l o ye e s who hnve
bcen “ subslanđíirđ in hotli etliics a nd j o b (]Uíilificalions, p roí cs s io na l ca paci ti es and vocnlional
skills

Tl.us, Vielnam lias sỉill b ce n l o ok mg íor e íĩ ec li ve mcíisurcs lo cnrry onl s ucccs sí ull y llie

PAR pr oc e ss , and (Itis o bj ec li v e is al so empl i as ized in the “ OITiciíil R e p o r í " ol llie lalesl session
of llie I 0 th Nalioiinl A s s em b l y ( D e c e m b e r 2 0 0 1 ) thai llicre ne e ds lo be ftir!her spcc din g Iip o f the
p r o c es s O Í P A R , pmmoii it g (he el ĩ ec li v e o p er al i on o f a d m i n i s l r a l i v c íipparnlIIS1 PAR is ;i broad
cn(cjzory in holl) llioorclical and practical a sp ect , 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 si rc 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 em e n l o f ( h e i necha ni sm lor S AD.
.1IicỉiciÍ 1 ( r c f o r m \ vas c o n đ u c t e đ SII1 CC llie 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 ct No 92-98-.15. V . ludicinl

r e í b r m m V i c l n n n i 71 ( 1 9 9 1 )
lí, cỈMipra nolc 4

'I

' Sce llic Oíĩìcial Rcporl oí Government in (he I0'1' session of llic I o"1lemi Nnlional Assembly in Dcccmher 2001


2

O v c r v i c w o f ( h c m e c h a n i s m f o r S A D in V i e t n n m

In orclcr to fuíly understand “ the i m pr ov em en t o f ihe m ec ha n is m for S A D ” in Vietnam seen as an
important contribution t o wa r d P AR p r oc e s s , t here is an indi spensabl e need to attach it (0 the
d ev e lo p m e n t o í liie ad mi n i sl rat iv e l a w as w e l l a s the a dmi n i s t ra t ive S ys t e m vvith the r e s p e c t o f
hislory.
2 . 1T h e c ỉ c v c l o p m e n t o f V i e t n a n i e s e a d m i n i s t r a t i v e l a\v c o n c e r n i n g S A D

The i nodern 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 ovc r nmc n ls vvhicli are neither legislatures 110r cou rt s n iak e dec is ions ” °and lio\v lo govern llie
relationship b e t wc e n the citizens and g ov er n ni en t ag enc ie s and tlic ỉnlerrelatioMship ainong
gover nmcní a g e n c i e s 21. In addition, ịudicial r e v i e w of' adminis!ralive action knovvn as (he main
parl o f acimiiiislralive law 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 nder st andi ng about administralive lavv,
Vielnanicse ađministralive 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 đcvelopmcnỉ, s o m e otilslanclmg ícnltircs
couỉd be dravvn and explained as íollovvs:
M o d er n lúslory wi lncs sed the íbiindatioii o f D e m o c r a t i c Republic o f Vielnam III1945 (11aI cnded
SO y ca r s o f l 7reiicli co!onizaỉion. Vietnam ỉlien experieiicec) 30 vears o f suíTcrinịi Crom vvars to

libcrate tlic coimtry, consecỊiieiilly the V ie t n a m e s e administralive 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 . Adminislrative lavv vvas

VVilliam F f ' ox , 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 er 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, . ludicinl 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 inn 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 . lur i sdi cl i on 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 bul e (0 the land and
ímricultural r e fo nn s in 1 95 3-1954, trađe and industrial re fo rm, ovvnership nationa!ization in
\vliich iiidividuals vvere not a ll owed 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 was f)lso p r o h i b i l c d . ^ D u r m g tliis time, it đid noỉ mean llial llie p e o p l e alvvays w e r e
sa 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 , or 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 the p e o p l e ‘s

\vill In f'aci, Ibc system o f I n s p e ct o r at e 25 w a s set up a nd i naug ura ted froin 1945 to deal wit!i
coinplnints o f people t o w a r d the State, but d u e to r e a s o n s laid dovvn by vvars and all íor the
suc c es s o fr ev o! ul i on ar y vvorks, (liese ki nds o f d i s p ut e s s e e m e đ less developecl and llms
ndininislralive lavv lacked gr ou n ds for re v ie wi n g it.
'I he Vi et name se administralive law, aí ìer the liberation o f tlie c oun tr y in 1975, can be 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.
Administralive law in (he í br me r ai med (0 coiilribute to the socinlist regiine in vvhicli collecỉivism
was liiglily conccnlralcđ. Sin ce ađmi mstr at ion had pl ay ed an imporlnnt role in ruling (he coimtry
thiough llic State plans by cacli flve ye ai s, ÍIS lo ad mi ni str at ivc liivv, lliougli m nn y lcgal no 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 if orce i ) i cn( and 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 an d ci ti /.cns. D i s p u l c s b c h v c e n

pco pl e and (!ic stníe liad slill not đ ra wn mucli altenlion meanvvỉiiỉe lliose amoi iụ c n t c r p n s e s vvere
resolvcd u nd cr llic (brin o f arbilralion “j ust like (aking n ioncy íVom o ne p oc ke l and pulliim it in lo
anollicr p ockcl, bollì p o ck c ts bel on gi ng (0 thc State” 26. Aclminislraúve lavv altcr “ Doi M o i " 1986
1.1p 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

S c e V u D i n h H o e . Licli s u n h a IHIOC va p h a p l u a t V i e t n a m ,[ T h e h i s l o r y o f S l a t e a n d l a w o r v i e l n a m ], ) 56.
( I % 7 ) , a n d s e c al s o d o c u m e n l s o f VIli 0 2 - 9 9 2 p r o ị e c t in V i e t n a m s i n c e 11 8 6 to 2 0 0 0
S i a l c In s p c d o r a l c wa s Cormed o n N o v e m b e r 2 3 " 1 9 4 5 in tlie n a m e o f “ S p e c i a l I n s p e c t o r ( o m m i s s i o n

llianh 1ra dnc biet Ị
M ichncl Doiỉclnn. ConiịKirnlive l.avv, 204 (1 9 9 4 )

13

Ị Uy ban


riuhts and legitimale interests, calcliing up with the íìill mea ni n g o f the administrative law iliat
vvas niarkcd by the reception o f “judicial r e v ic w o f administrative acti ons” resulted in the crealion
and o pe r at i on o f the Adininistralive Division C our 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 luenced by the c o u n t r y ’s political system, especially in the
míillcrs o f consliluíional and administrative l a w. 27 The polilical system, in ils tuni, is iníluenced
so many otlier íactors, sucli as the c oi mt ry ‘s e c on o mi c structure. In o rd e r (0 (liorouglily grasp the
m ec ha m sm for S A D in Vi et nam, (he mutiial relation to the political and econonii c structure in the
hislorical d c v e l o p i n e n t inust b e s t uđ i e d as w el l .

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

Vi cl namcs e Constitution refus es llic c onc ept o f separat ion o f p owe rs . It is more correct lo lalk
about (he “ division o f funcli on” 2K. All State povvcr is centrally in hands o f the National A ss em bl y ,
tlic llighesl rcprescnl ati ve o rga n of the peo pl e, accordi ngl y it is llie only organ vvitlt conslilulíona!
and lcgislative povvers, vvhicl) then delegates execut ive p o w e r to the g o v e m m e n t and ịudicial
pcnvcrs to the com ( and llic p ro cur al or a te age ncy. 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
nppca r c on í us i ng lo \ vcs lcm o b s c r v c r s 10s m ce |I)C pr eamb le oí lhc Conslilulion o f 1992 stalcs llint
“ llic peoplc are tlic mas ters , while tlie stale pro vi des inanageiTienỉ and Ihc Pnrly provides llie
lcadersliip” . Tliis cxplains vvliv all rc íor ms in Vi et nam are found lo be originating írom tlie PcirtV

:7 ícl, al 19
l’c r B e r g l i n g cl al, T h e V i e t n n m c s c lcgnl s y s t e m , 7 7 ( I 9 9 8 )
V i e l n a m e s c C o n s t i l u l i o n 1 9 9 2 , A l t '1
I h e s o l c III1in

Parl y is tlic l cn d c r s l i i p o f llic w l i o l e pol i l i c a l s y s l c m o f V i c t n n m , no l a Sl a t e o r gnn bui n po l i l i c a l

socinl organizatio»

14