ja VAI TRO CUA XA HOI HOC TRONG QUAN TRj CONG • TS BUI PHlTONG DINH Vipn Xd hpi hoc vd Phdt trien, Hgc vipn Chinh tr} qudc gia Hd Chi Minh • Tom tdt: Cdc nhd nghien cUu tren the gidi ve qudn tri cong deu khdng dinh mgt phdn nen tdng If luan cua qudn tri cdng dtidc xdy dting tren tri thiic xd hgi hgc to chiic vd ly thuyet mang ItiSi Tri thUc xd hgi hgc to chiic gop phdn quan trgng viec thiet ke vd tdi thiet ke tS chiic, bg mdy, quy trinh hoat dpng cho phit hgp vdi yiu cdu cua qudn tri cong Do vdy, cdn phdi tiep tiic nghien ciiu chuyen sdu ve ly thuyet vd thtic nghiem de diia xd hgi hgc tSchiic noi riengvd xd hgi hgc ndi chungphii hdp vdi vi the cua mot cdc khoa hgc nen tdng cho nghiin cUu qudn tri cdng • TH khda: qudn tri cdng xd hgi hgc Qua trinh phat trien nghien cihi v^ quan tri cong Qua cac thdi ky lich su khac nhau, hoEit dgng ciia nha nudc diu g ^ li6"n vdi bg may hanh chinh nhat dinh Chuc nang cua bd may la trien khai va td chuc thuc hi$n cac quyet sach cua lanh dao qudc gia, ddm bao sirpbat trien kinh te xa hpi, su dn dinh cua xa hpi va an toan trat tu cho qudc gia Mac du he thdng hanh chinh da cd tu lau, nhung nhung nguyfin ly chinh vi td chiic boat ddng that sudupc hinh va phat trien tii cudi th§ ky XDC vdi cdng trinh ndi ti§ng cua nha xa hpi hpc ngudi Diic Max Weber (18641920) vd" bp may quan lieu Dd la phuang thiic hoat ddng dua tren co sd thi hanh cac quy dinh mdt each "ciing nhde", My quy§n luc thii bac chat che, trinh tu, thii tyc va viec thuc hien nghiem ngat cac thii tuc dd lam bi^n phap tdi uu Hanh chinh cdng truyen thdng dupe hieu la cdch thiic td chiic va hoat dpng cua cdc ca quan nha nudc thugc cac md hinh nha nudc lich su cung nhu cac ca quan, td chiic khac, tren co sd nhiing nguyen tdc chinh tri - xa hdi va nguyen tdc td chiic - ky thuat nha nudc va gidi lanh dao dat ma ban chat chu y^u thifin ve "cai tri" Ngay nay, thuat ngii quan heu thudng lam chiing ta lien tudng dgn gidy td, thu tuc, chu ky va thdi gian dai vd tan d^ ngudi cdng ddn cd thi nhan dupe tat ca nhung thii dd Tuy nhien, uong thdi ky trudc day, theo quan diem ciia Weber, su tdn tai cua bd may quan heu (xuat phat tii gdc tieng Phap: Bureau - Van phdng) Icii dupe coi nhu mdt budc tien ciia xa hdi hien dai Nd chi d§n mgt ket qua ciia phan cdng lao dgng xa hdi: bd may quan lieu xudt hien nhu mgt hinh thiic ciia quyen lire hanh chinh va la ket qua cua qua trinh gia tdng quy^'n uy hgp phap va hpp ly uong xd hdi'" LY LUAN CHfNH TRI - So 10/2020 EL NGHIEN C\fU - P H A T T R I ^ N LY L U A N Gan 100 nam sau, vao thap nien 80 va nhiing nam dau thap nien 90 ciia thg ky XX da xuat Men trao luu nhat la cac nudc Anglo-Sacxon xem xet lai khu vuc cdng ve quy md, kha nang hieu qua quan ly Trdo luu dan dgn cac cude cdi cdch ldn khu vuc cdng vol tdc dpng khdng chi la nhimg thay ddi ldn hoat dpng eua bg may edng quyen ma cdn la nhiing thay ddi nhan thiic ciia xa hdi ve vai trd cua khu vuc edng va each thiic dieu hanh Cdch tigp can hudng den ket qua dau ra, hieu qua qudn ly, phan cap, phan quyen, dp dung cac yeu td cua Ihi trudng vao nen hanh chinh cdng trd mgt xu the ldn ciia cdc nudc phdt trien, hgp theo la cac nudc dang phdt trign Su dich chuygn tir md hinh hdnh chinh cdng truyen thdng sang md hinh quan ly edng mdi (New Public Management - NPM) dupe coi nhu mgt each tiep can ddi mdi nhdm cai bien nen hanh chinh truyen thdng la sir phan chia chuc nang giiia lam ehinh sdch va thiic thi chinh sdch; (5) Dich chuygn sang cff che canhttanhldn hon ngayttongbd may nha nude; (6) Nhdn manh vao phong cdch thuc hanh quan ly khu vuc tu nhan; (7) K^ luat vd dgt kiem honttongsii dung ngudn luc Trai qua tten 30 nam phdt tnen md hinh quan ly cdng mdi da cd nhiing cdng nhdt dinh d cac qudc gia phatttienva cd anh hudng manh me dgn cdc qude gia khac, dac biet la cac nudc dang phdt trign nhu Viet Nam Ben canh do, md hinh NPM cung ehiu nhieu tae ddng bien thg manh me nguyen nhan gia tang tign trinh toan cau hda va dac biet la ky nguyen intemet vd sd hda td dau nhiing nam 2000 Mpt sd nhd nghien eiiu da dat van de ve tiep can mdi ddi vdi hoat ddng nhd nude va ddi khdi niem Qudn tri cdng mdi (New Public Governance -NPG) hay Quan tri ky nguyen sd (Digital Era Governance DEC) Cde cdch tigp can mdi phan anh nhu eau Thuat ngii "qudn ly cdng mdi" dugc dua cdi cdch manh me boat dgng ciia bd mdy nhd vdo dau nhiing nam 90 eiia the ky XX va duoc sii nudc ca tir khdu xdy dung thg ehe, hoach dinh vd dung tuong ddi rdng rai va thdng nhat ndi thuc thi chinh sach edng, van hanh bd mdy cdng den md hinh hdnh ehinh cong theo cdc tieu chi quyen vd nang luc ddi ngu cdng chiic, dgn mdi hien dai, chii ddng, ndng ddng, nhay ben, thich quan he nhd nudc - cdng dan nghi cao nhdm dap iing cac yeu cau quan ly va Quan tri nhir mot each tiep can mdi cho dich vu tdi da digu kien kinh tg thi trudng hoait dgng quan ly phat trien m^inh me va nhiing quan he qudc tg Ndm 1995, ijy ban qudn tri toan cauttongBao ngdy edng phu thude chdt ehe lan ngi cao Our Global neighbourhood da dua khdi dung CO bdn ciia Qudn ly cdng mdi - NPM niem ve qudnttidupe nhieu ngudi thua n h ^ : (Christopher Hood, 1991) gdm'^': (1) Thuc hanh QudnttiId tdng hda nhieu phuong thiic ma odd quan ly chuyen nghigp khu vuc cdng; (2) eac diiet ehe khu vuc cdng va khu vuc m cung Cd nhung chudn muc edng khai va ludng tham gia quan ly nha nudc vd xa hdi'^' Qudn tri dupe viec thuc hien Thay doi ehinh qudn cd dac digm: Quan tti khdng phai la mgt he ly cdng mdi Id tap trung vao cac kgt qud ddu ra, thdng quy chg ding khdng phdi la mgt lo^ hoat hay edn gpi la tap trung vao kgt qud thay vi tap dgng ma Id mdt qua ttinh rich hop; Ca sd ciia mmg vdo dau vao va quyttinhndi bg nhu trudc qudn hi la su phdi hpp giiia cdc chu the; Quan day; (3) Ddtttpngtdm manh hon vdo cdc bien tri mang tinh lign quan va phu thugc giug kh phdp quan ly dau ra;(4) Su chia tdch chinh vuc edng va khu vuc tu; Quan tri khdng ph^ IA L V L U A N C H I N H TRI-So 10/2020 ja mdt thidt chg chinh thiic ma Id qud trinh tuong nhu Ngan hang Thg gidi Quan tri tdt dugc eoi tac giiia cac chii thg nhu phi bdo hiem dua tten phucmg phap tiep Trong mgt cdng trinh nghign ciiu ndi tigng can dua tten thi trudng dg phan bd vd quan tri dupe cdng bd vao ndm 2006 vg quan tri edng, eac ngudn luc cdng cgng Stephen Osborne dat van dg nghien eiiu rim Quin tri cong mdi lattpngtdm va thg hien cu higu lieu quan tri cdng ed phai Id mgt md hinh thg loai neng bietriengbiet: mdi cho vide cung cap cac dich vu cdng (1) Quan tri chinh tri - xa hdi, hen quan dgn the ky XXI hay khdng va cung cdp mdt loat cdc cde mdi quan he thg che bao qudtttongxa hdi quan diem quanttpngvg nd - cd vg ly thuy gt ldn Cdc mdi quan he vd tuong tac phdi dupe thue hanh'*' Stephen Osborne nhan dinh rdng hieu ttong tdng thg cua chiing de hieu su sdng eachtiepcdn hdnh chinh cdng vd quan ly cdng tao va thue hien chinh sdch cdng Trong cdch mdi da bdt ddu tut hau so vdi thuc nSn phiic tap tigp can nay, ehinh phu khdng edn ddc quyen cua vigc thidt kg, phdn phdi vd quan ly cdc dich hoach dinh chinh sdch cdng ma phai dua vao vu cdngttongthg k^ XXI Do dd, dd dgn liic ddt cde tdc nhdn xa hdi khdc vg tinh hpp phdp va tdc cdu hdi lieu cd can phdi cd mdt su hieu bidt ddng cua ndttonglinh vuc phiic tap hon vg viee thuc hien chinh sach cdng (2) Quin tri chinh sach cong, lign quan dgn vd cung cap dich vu cdng edng hay khdng - mdt cdch cdc nhdm tinh hoa chinh tn, chinh saeh va su chuygn dich vupt qua su phan chia ly cua mang ludi Ipi ich tuong tac de tac dgng vd digu "quan tri so vdi quan ly" va cho phep tiep can chinh qud trinh chinh sach cdng toan dien va tich hop hon cho viec nghien ciiu (3) Quan tri hanh chinh, lien quan dgn viec dp va thuc hanh, thue hien chinh sach cdng va dung hieu qua hdnh chinh edngttongbdi cdnh eung cap dieh vu cdng Tii ca sd nhdn thiic nhu phiie tap cua nhd nude hien dai Vi vay, quan tri vay, can thidt tun higu cdch tigp can ciia Quan - gpvernance gan nhu la mgt thudt ngii tdng tri cdng mdi (New Public Governance) nhu mdtquat cho viec thuc hdnh chung cua viec thue giai doan phdt trigntigptheo ciia tu quan hien chinh sach cdng va eung cdp dieh vu cdng tti nha nudc vd xd hdi Quan tri cdng mdi da cdng Thudt ngii eiing dupe sii dungttongly phan biet ba linh vuc quan tri: quan tri doanh thuygt todn dien ve thuc hien chinh sach edng nghiep, quin tri "tdt" va quan tri cdng vd cung cdp dich vu cdng Quan tri doanh nghiep cd lien quan den cde (4) Quin tri hop ddng, lien quan den hoat he thdng va quy trinh ndi bd cung cap phuang ddng ben cua quan ly cdng mdi, vd ddc hudng vattdchnhiem ddi vdi bdt ky td ehiie nao biet la quan tri cac moi quan he hgp dong ttong Trong cdc dich vu edng, nd thudng dupe quan viec cung cap cae dich vu cdng Trong bdi canh tdm nhdt vdi mdi quan he giiia cdc nha hoach nay, cde ca quan nhd nudcttongtinhttanghgp dinh chinh sach vd /hoae ngudi dupe iiy thae ddng da tid "chiuttdchnhiem ve mgt he ciia ede td chiic cdng va cae nha qudn ly cdp cao thdng (dich vu cdng cdng) ma ho kigm soat" dua cdc ehinh sach (5) Quan tri mang ludi, lien quan den cdeh Quan tri "tdt" ed Uen quan den viec ban hdnh"tu td ehue eac mang hen td chiic" hoat dgng ca eac md hinh quy dinh vg qudn tri xa hdi, chinh cd va khdng cd chinh phii de cung cap cac tti vd hdnh chinh ciia cde td chiie da qudc gia dich vu cdng cgng Trai ngugc vdi quan tri chinh LYLUAN CH(NHTR!-SolO/2020 m^ NGHliN Ctfu - P H A T T R I ^ N L * L U A N sach cdng, dieu ndy tdp trung vdo cac mang hieu rdng, khdng cd tri thtic xa hpi hpc thi se w^^ thuc hien chinh saeh cdng va cung cap cdc dieh kien gidi dugc ede qua trinh va quan he giiia cdc chii the qudntiicdngttongxd hgi Bgn canh dd, vu cdng cdng Do do, Quan tri cdngmdilk phuong thiie van tri thirc xa hdi hpc td chiic cdn gdp phan ddc liK hanh nen hdnh chinh cdng nhdm iing phd vai ttong viec thiet ke vd taitiiietke td chuc, bd may, ban chat ngdy cang phiic tap, da dang vd phan quy trmh ho^t ddng cho phu hop vdi yeu eau manh ciia viee thuc thi ehinh sdch cdng vd phdn quan tii cdng Vdi su khdng dinh nhu vdy rdt can phdi dich vuti:ongthg k^ XXI Cae yeu td ehinh tiiiet phai xem xet 1^ cae lg.p luan chii yeu cua xa ciia NPGttongsu so sdnh vdi hanh ehinh cdng hdi hpc td chiic hoae rdng ban la nganh nghien truyen thdng va qudn ly edng mdi dupe trinh bdy ciiu td chuc Mdt sd y tudng quan ttpng cd thg giup hieu rd ban vaittdngn tang ciia xa hpi hgc ttong bang dudi day Dong gop cua xa hpi hoc d6i vol quan ddi vdi quan tri cdng Td chiic (organizations) Id mdt hinh thiic tri cong Nhieu nha nghien ciiu ve quan tri cdng da quan he xa hdi, dd cac hinh thiic quan h^ xa khdng dinh mdt phan ngn tang ly luan ciia qudn hdi ben ngodi sg tde ddng, dnh hudng vd tai tgo tri cdng dupe xay dungttentri thuc xa hdi hge td lai ttong bdt ky td ehiic nao vdi cdc miic dg vd chiic vd ly thuyet mang ludi Cdch nhin nhdn ndy higu hien khae Cae td chiic cua bd may da vupt khoi pham vi tinh chat cdng cu nghien cdng quygn (qude hgi, tda an, chinh phii ) ciiu cda xa hdi hgc ddi vdi Idnh dao, quan ly dg ciing chi la mdt loai hmh td chire ddc thii dd khdng dinh tinh chat tri thiie nen tang ciia xa hdi ndm su digu chinh cua lap luan ndy Md hpc td chirc ddi vdi qudn tri edng Digu ndy dugc rdng ra, su thay ddi ciia cdc hinh thdi quan hg Bang So sanh Hanh chinh cong truyen thong, Quan ly cong mdi va Quan tri cdng m(H T r i o luu Nen t i n g B i n chat cOa bo Ttong t a m Linh vifc Co che Co sol ly thuyet lyluan may cong quyen hoat dong chu dao quanly gia tri H^nh chinh Khoa hoc chinh Th6ng nhat tap Tochi2cnhiJcdngcu Hoach dinh Thiibic fiao diic khu cdng (tir cu6i trj va chfnh sach quyen (ra quyet cua qua trinh chinh vathifcthi the ky XIX) cong dinh) tri va chinh sach chfnh sach Quan ly cong L;^ thuyet loa PhSn quyen vJ Quan ly ben Qudn ly nguon Hffp dong m6i{Ti(nam chon cong cong; (tieu (hinh tS chiit It/cdauv^D- niang tinh thi 1991} khoa hgc quanly daura tn/dng Qudn trj cang Xahpi hoc to Dadangcautnjc, TodiiJcvamoi Thaong thuyet Niem tin vd mdt(T£fnam chi?c;ly t h u y i t lai ghep cac tnicmg hoat ddng vad^gthuclnve hop dong 2006) mang Itldi phiitmg thiJc gid tnva khudn mau quan he virc cong Oao diic khu virc cdng Canh tranh vd dong thuan ve gia W chung Ngudn; Stephen Osborne (2010) The NewPubUc Governance Emerging perspectives o theory and practice ofpublic governance Roudege Publication L Y L U A N C H I N H T R I - S o 10/2020 ja Can thidt phai tiep tuc nghien ciiu ehuyen sau xa hdi ben ngodi se dupe phdn dnh vdo s\i thay ddi cac quan hg chux; ndng bgn ttong cua mgt ve ly thuygt ciing nhu trien khai cae nghien eiiu td chiie Trpng tam nghign ciiu cCia xa hpi hpc thuc nghiem de dua xd hgi hpc td chiic ndi rieng ttong qudn ly phdt ttign xa hgi chinh la bign ddi vd xa hdi hpc ndi chung phii hgp vdi vi thg mgt xd hgi vdi tu each la qua trinh thay ddi cdc ttong cac khoa hgc ngn tang cho nghign ciiu khudn mdu hdnh vi vd quan he xa hdi giua cac quan tri cdng D ehii thg ciing nhu ben timg chii thg ciia qud trinh qudn tri edng'^' Td ehiic Id vdi tu cdch Id he thdng co qua ttinh tign hda tii giai doan he thdng ca hge (mechanical), hg thdng sinh hpc (natural) den he thdng md (open) vd he thdng thich nghi phiic hpp (complex adaptive system)'^' Vdi dinh hudng xuyen sudt vg xdy dung vd hodn thign thg chg kinh tg thi trudng dinh hudng xa hdi chu nghia ttong gdn 35 ndm Ddi mdi, viec cdi cdch hanh chinh td ehiic bd mdy nhd nudc vd sau rgng hon nua la viec ddi mdi, sdp xgp td ehiic bd may eiia he thdng chinh tri d Vigt Nam theo yeu eau ciia Nghi quyet sd 18 Trung uong khda XII la nhung hoat ddng ttgng tam va mang tinh quydt dinh cho su bai cua su nghiep Ddi mdi Qudn tri cdng ttong thdi dai ngdy khdng thg chi dua ttdn mdi quan hd quygn Iuc ciing ttgn - dirdi ma bd mdy quan lieu dd tung thdnh cdng tiong qud khii Rdng hon vd xa hon, quan tri cdng ndi ddn tign trinh thuong thuygt vd tun kigm ddng thudn ciing nhu chu ttpng cdc ygu to hgp ttOi ciia dai hd thdng Trong tam giac Nhd nude - Thi tnrdng - Xa hdi thi cdc chii the Xd hdi va Thi ttudng vdn dugc coi Id ddi tugng bi nha nudc qudn Iy, sg cd rapt vi thg cdng bdng ban, chii ddng va tt'ch cue ban ttong quan hd vdi nhd nude Mong mudn vd quyet tam ddi mdi phuang thiie boat dpng nha nudc theo hudng Nha nudc phuc vu vd kign tao chi cd the cdng ca quan td chiic nhd nudc nhin nhan diroc vi the binh ddng cua cdc chii thg xd hdi va thi trudng (1) Max Weber; The theory of Social and Economic organization Edited by and inttoduced by Talcott Parsons The Free Press, 1947 (2) Cliristopher Hood: A public management for all seasons? Quarterly Journal on Public Administtation, Vol.69, Issue 1,1991 (3) The Commission on Global Governance: Our global neighbourhood, 1995 (4) Stephen Osbome: The NewPubhc Governance Emerging perspectives on the theory and practice of public governance Routlege Publications, 2006 (5) Dang Nguyen Anh (chu bi6n): Bien ddi xa hoi & Viet Nam truyen thdng va hien dai, Nxb Khoa hpc xahpi, HdNdi 2016 (6) Scott lUchard: Organizations: Rational, Natural and Open Systems Upper Saddle River, NJ: Prentice-Hall 5tii ed, 2003 Tai lieu tham khao: DCSVN: Ban chdp hanh Trung uong, Nghi quygt sd 18-NQ/TW 25-10-2017, Hgi nghi ldn tiiii sdu Ban Chap hanh Trung uong Dang khda XII: Mot sdvan de ve tiep tuc ddi mdi, sip xep td chuc bo may cua he thdng chinh tri tinh gon, boat dpng hiiu luc, hieu qua, 2017 Chinh phii Viet Nam: Nghi quygt 30c/NQ-CP Ban hdnh Chuong trinh tdng the ve Cai each hanh chinh nha nudc giai doan 2011 - 2020 Ngan hang the gidi: Nha nuoc U-ongmot die gidi chuyen ddi, Bao cdo phat trien nam 1997 LYLUAN CHfNH TRI-So 10/2020 ... la quan tri cac moi quan he hgp dong ttong Trong cdc dich vu edng, nd thudng dupe quan viec cung cap cae dich vu cdng Trong bdi canh tdm nhdt vdi mdi quan he giiia cdc nha hoach nay, cde ca quan. .. (1) Quan tri chinh tri - xa hdi, hen quan dgn the ky XXI hay khdng va cung cdp mdt loat cdc cde mdi quan he thg che bao qudtttongxa hdi quan diem quanttpngvg nd - cd vg ly thuy gt ldn Cdc mdi quan. .. bdy ciiu td chuc Mdt sd y tudng quan ttpng cd thg giup hieu rd ban vaittdngn tang ciia xa hpi hgc ttong bang dudi day Dong gop cua xa hpi hoc d6i vol quan ddi vdi quan tri cdng Td chiic (organizations)