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MINISTRY OF EDUCATION & TRAINING ---/--- MINISTRY OF HOME AFFAIRS ---/--- NATIONAL ACADEMY OF PUBLIC ADMINISTRATION NGUYEN THANH GIANG AN ASSESSMENT FROM CULTURAL PERSPECTIVE OF STAT

MINISTRY OF EDUCATION & TRAINING

-/ -

MINISTRY OF HOME AFFAIRS

-/ - NATIONAL ACADEMY OF PUBLIC ADMINISTRATION

NGUYEN THANH GIANG

AN ASSESSMENT FROM CULTURAL PERSPECTIVE OF STATE ADMINISTRATION PERFORMANCE

IN EDUCATION Major: Public Management

Code: 9 34 04 03

ABSTRACT – DOCTORAL DISSERTATION IN

PUBLIC MANAGEMENT

HÀ NỘI – 2024

The dissertation is accomplished at the

National Academy of Public Administration

Supervisors:

1 ASS PROF., DR PHẠM DUY ĐỨC

2 ASS PROF., DR NGUYỄN VĂN HẬU

The dissertation is upheld in the presence of NAPA Doctoral Assessment Board,

at the National Academy of Public Administration

Time: , date

The dissertation can be found at the National Library of Vietnam or the Library of the National Academy of Public Administration.

INTRODUCTION 1 Rationale

In their reform towards a powerful and civilized country in which democracy and justice prevail and people get better off, the Party and State have always upheld the role of education & training (E&T), asserting that it is the “top national policy” to be given top priority in the national development Investments in education amount to the investments in sustainable development for the country The Party’s Resolutions and the State’s legislations and policies in education, when translated into reality, are credited with positive changes and certain results Against the requirements for national development, E&T, however, still manifest several inadequacies and weaknesses "Actually, E&T has not become the top national policy to serve as a driving force for development E&T quality and performance are still unsatisfactory, especially in tertiary and vocational education … The managing and teaching staff still fall short of the requirements" [23, tr.113, 114] One of important missions raised by the Party is “Radically reforming E&T management to ensure the democracy, consistency and stronger autonomy for E&T institutions, along with their responsibility to the society; with importance being attached to quality management" [23, tr.116] As such, reform of educational management is an urgent task

Culture is progressively associated with the political, socio-economic domain, acting as both a driving force and a regulator for development In state management, such issues as leadership and managerial culture, official culture, office culture, and civil servant’s culture have appealed to much interest However, inadequate attentions have been paid to the academic gaps as well as the improper enforcement of official culture Culture has not served as the foundation on which state management is built, or the goal towards which it works, or the motivation with which it operates, including state management of education Culture has not been considered in the building of criteria against which state management of education is evaluated

Studies on state administration performance in education have been undertaken by international and domestic researchers, and certain results of both academic and practical significance have been delivered However, in the field of public management there has not been a specialized study on state administration performance in education from cultural

perspective As such, the research, built upon previous academic works, has its name "An

assessment from cultural perspective of state administration performance in education"

2 Research objectives and missions

2.1 Research objectives

Having well defined theoretical issues, the author has conducted survey and assessment on the practices of state administration performance in education from cultural perspective, by which to propose solutions for improvement

2.2 Research missions

To those ends, following research missions have been accomplished in the research: - Literature review of related past research so as to learn available findings for further study - Defining theoretical basis for assessing state administration performance in education from cultural perspective

- Assessing the practices of state administration performance in education from cultural perspective in Vietnam

- Pointing out strengths and weaknesses, by which to come up with proposals and solutions to improving state administration performance from cultural perspective

3 Object, scope and subjects of research

Research is conducted into the practices of state administration performance in education from cultural perspective; defining, surveying and assessing the practices of state administration performance in education within state organs in educational areas at various levels: MOET, DOETs, Sub-DOETs

3.3 Research subjects

Survey is conducted on and information is collected from civil servants, public employees, and managers from MOET, DOETs, Sub-DOETs, and public and non-public training institutions

The research subjects do not include civil servants or managers from organs in charge of general state management: National Assembly, Government, and People’s Committees Their role in state management of education is examined as a determinant on the performance of state management from cultural perspective in education

4 Research methodology and methods

The thesis provides answers for the following questions:

1) How are organs in charge of state administration of education organized, as viewed from cultural perspective?

2) How is the performance of state administration in education, as viewed from cultural perspective?

3) What determinants are there on state administration performance in education? 4) What are the views and solutions to improving state administration performance in education from cultural perspective?

- State administrative agencies in education still demonstrate arbitrary, subjective, and rigid attitude in their operational procedures and modality, without linking to cultural factors, or integration of cultural factors Determinants have not been adequately determined Neither are there any appropriate impacts on the determinants as a basis to ensure effective management from a cultural perspective Therefore, state administration from cultural perspective has not taken stable effect on a widespread scale

6 Academic novelties

6.1 In theoretical terms

The thesis has defined theoretical framework on assessing state administration performance from cultural perspective, by which to analyze and demonstrate the practices of state administration performance from cultural perspective by examining some state management agencies of education

6.2 In practical terms

- The thesis has built a tool kit as criteria against which to assess state administration performance in education from cultural perspective The application of this tool kit into reality has helped to demonstrate the practices of state administration performance from cultural perspective

- The thesis has judged the assessment of state administration performance from cultural perspective, pointing out strengths and weakness of administration of education from cultural perspective

- The thesis has raised proposals and solutions to improving state administration performance in education from cultural perspective

CHAPTER 1 LITERATURE REVIEW

1.1 INTERNATIONAL RESEARCH ON ASSESSING STATE ADMINISTRATION PERFORMANCE FROM CULTURAL PERSPECTIVE

1.1.1 Research on assessing state administration performance

International research papers on assessing state administration performance are

abundant Some of them may be listed as follows: Matzer J., Productivity Improvement

Technique-ISMA: Washington, 1986; Morley E.A., Practioner’s Guide to Public Sector Productivity improvement - Van Nostrand Reinhold: New York, 1986; Wholey J.F., Evaluation of Effective Public Management- Little: Boston, 1983…

In addition, many theoretical works have introduced concepts and classification of state administration performance, and theories on assessing state administration performance

Typical works of such kinds include: Wholey J.F.m., Evaluation of Effective Public

Management- Little: Boston, 1983…; Epstein P.O., Using Performance Measurement in local Government: A Guide to improving Decisions, Performance, and accountability Denver, 1988;

Cesar Cordova Novion, Evaluating the impact of Regulation and Regulatory policies on the

private Sector, WW.regulatoryreform.com.2007 In these works, the concept of effectiveness

is analyzed in comparison with relevant concepts such as efficiency, utility, effect, productivity, and distinguished from economic or financial efficiency

The said documents are presented in academic and concrete manner, which is highly applicable for assessing state administration performance They provide assessment from

economic or general perspectives Assessment from cultural perspective is included together

with other assessments without existing as a separate and systematic research work However, it provides a good idea of undertaking an independent study on assessing state administration performance from cultural perspective, developing tools to measure the impact of cultural factors on other factors in state administration performance as well as on the whole and partial performance of state administration, whereby measuring state administration performance from cultural perspective

1.1.2 Research on assessing state administration performance from cultural perspective

Typical works include those that discuss the concepts and various types of culture in management Authors of these works study culture from organizational and entrepreneurial perspectives as well as from angles of official culture and administrative culture Edgar H Schein (2010), Organizational Culture and Leadership, John Wiley &Sons, Inc.; Dean Tjosvold

& Mary M Tjosvold (2010): Psychology for leaders, HCM General Publishing House, 2010; Quyn và McGrath (1985), Types of organizational culture; Christopher Huhne (1993),

Economics: Public sector must change its culture; Brainard Guy Peters, Donald J Savoie

(1995), Governance in changing environment; Giovanni Crema (2003), Civil Service Reform in

Europe; Nadeem Ul Haque (2007), Why civil service reforms do not work, Pakistan Institute of

Development; Ahmed Shafiqul Huque, Grace O M Lee, Anthony B L Cheung (1998), The

Civil Service in Hong Kong: Continuity and Change, Hongkong University Press; Bill K P

Chou, Civil Service Reform in China, 1993-2001: A Case of Implementation Failure, China: An

International Journal, Volume 2, Number 2, September 2004; Alexander Kotchegura (2008),

Civil Service Reform in Post-communist Countries: The Case of the Russian Federation and the Czech Republic, Leiden University press; Methods for measuring and evaluating organizational management from cultural perspective

1.2 DOMESTIC RESEARCH ON ASSESSING STATE ADMINISTRATION PERFORMANCE FROM CULTURAL PERSPECTIVE

1.2.1 Research on assessing state administration performance

Research documents on state management performance include: Assoc Prof Dr

Nguyễn Đăng Thành, monograph: Measuring and assessing state administration

performance, Labour Publishing House, 2012; Dr Nguyễn Thị Thu Vân, monograph: General assessment framework – a tool for improving the performance of state agencies,

National Political Publishing House, 2013; Prof Dr Võ Kim Sơn, ministerial project on

Total quality management and ISO in administrative operation in Vietnam, NAPA, 2006;

Assoc Prof Dr Lê Thị Vân Hạnh, article for PAR workshop: PAR from outcome

perspective, NAPA, Labour Publishing House, 2011; PAR in Vietnam – Practices and solutions, CECODES-UNDP, National Political Publishing House, 2009; Provincial Administrative and Performance Index in Vietnam (PAPI) 2010; Measuring by people’s experience, CECODES – Vietnam Fatherland Front - UNDP - Hanoi, 2009; Dr Nguyễn Thị

Thu Vân: Research for criteria against which to measure state management performance, State Management Review, July 2007; Dr Nguyễn Thị Thu Vân, “International indicators

for state management performance”, State Management Review, March 2014

In general, these works are focused on concepts and classification of state

administration performance, and theories on assessing state administration performance

1.2.2 Research on assessing state administration performance from cultural perspective

Typical works include: Nguyễn Mạnh Quân, Business ethics and corporate culture, NEU textbook, NEU Publishing House, 2012; Training materials Administrative culture (for

graduate training), Hanoi, 2010; Đào Văn Bình, Building and developing a culture of state

management for businesses in Vietnam, Social Science Publishing House, Hanoi, 2008; Dr

Huỳnh Văn Thới, Public service culture in Vietnam today, State-level research project, MOST, 2015; Assoc Prof Dr Lê Quý Đức, Leadership and managerial culture - problems

and solutions, Ho Chi Minh National Academy of Politics and Administration, 2008; Assoc

Prof Dr Nguyễn Thu Linh (project leader): Organizational culture - Theory, practices and

solutions to developing organizational culture in Vietnam, Ministerial-level research

project, Hanoi, 2004; Trịnh Thanh Hà’s doctoral thesis 62.34.82.01: Building a code of

conduct in the civil service for civil servants in Vietnamese state administrative agencies today, APA, 2009; Vũ Anh Tuấn, Administrative culture in PAR today, Journal of

Legislative Studies, Office of the National Assembly, issue No 15 (176), August 2010;

Nguyễn Văn Dung, Phan Đình Quyền, Lê Việt Hưng (2010), Organizational and leadership

culture, Transport Publishing House; Assoc Prof Dr Phạm Ngọc Thanh, “Innovating leadership and managerial culture in Vietnam today”, Project KX.03.21/06-10 referring to

leadership and managerial culture; Assoc Prof Dr Bùi Tiến Quý, “Discussing the building

and development of state management culture”, Industry Magazine, Issue No July 2006;

Vũ Anh Tuấn, “Administrative culture in PAR today”, Journal of Legislative Studies, Office of the National Assembly, Issue No 15 (176), August 2010, pp.39-41.; Đào Văn Bình, “The

impacts of managerial culture on market economic relations in Vietnam today”, Social

Science Publishing House, Hanoi, 2009

1.2.3 Research on assessing state administration performance in education from cultural perspective

Some research works are focused on quality-oriented culture in schools: Đỗ Đình Thái,

MA., Quality and capacity - determinants on quality-oriented culture in universities Education Magazine Issue No 322, November 2013; Nguyễn Thị Ngọc Xuân, MA., Model

of quality-oriented culture in Tra Vinh University, Education Magazine Issue No 362, July

2015; Nguyễn Thị Ngọc Xuân, MA., Some studies on university’s quality-oriented culture, Education Magazine Issue No 370, November 2015; Đặng Việt Xô, Building a quality-

oriented culture at the People's Public Security University of Technology and Logistics,

Education Magazine Issue No 390, September 2016; Nguyễn Thành Vinh, MA., Building a

quality-oriented culture in the educational environment, Education Magazine Issue No 264,

June 201; Lê Thị Phương, Building and developing quality-oriented culture at the

University of Information Technology - Vietnam National University, Ho Chi Minh City,

Education Magazine Issue August 2018 Researcher Đặng Quốc Bảo, Explaining school

culture and managing and building school culture, Educational Science Magazine, Issue

No 84, September 2012; Nguyễn Viết Chức, Building mindset, ethics, lifestyle and

cultured life in Hanoi in the industrialization and modernization of the country, Institute of

Cultural Studies and Culture & Information Publishing House, Hanoi, 2001); Building and

developing schools, Department of Educational Management, Hanoi University of

Education, 2014; Nguyễn Thị La’s doctoral thesis in Educational Management Managing

and building school’s culture at the National Academy of Public Administration, Institute of

Social Sciences, Vietnam Academy of Social Sciences, 2019; Trần Thị Tùng Lâm’s

doctoral thesis in Politics, Effective education of school culture for university students in

Hanoi today, Academy of Journalism and Propaganda, Ho Chi Minh National Academy of

Now, the question is that there needs to be specialized research on culture and cultural factors in state administration These studies are expected to deliver measurable results and determine the level of impact on the overall performance of state administration State administration performance should be measured from not only economic but also cultural perspectives It is necessary to build a tool kit to measure, evaluate and quantify this factor in the overall performance of state administration to form a basis for analyzing determinants on PAR performance That is the thesis mission

CHAPTER 2 THEORETICAL BASIS FOR ASSESSING STATE ADMINISTRATION

PERFORMANCE FROM CULTURAL PERSPECTIVE

2.1 RELATED CONCEPTS

2.1.1 State administration 2.1.2 State administration of education and training 2.1.3 State administration from cultural perspective 2.1.4 State administration performance in education from cultural perspective 2.1.5 An assessment from cultural perspective of state administration performance in education

In this thesis, assessing state administration performance in education from cultural perspective is defined as the use of tools and methods to measure the performance of education against cultural values

ADMINISTRATION OF EDUCATION

2.2.1 Contents of state administration of education 2.2.2 Machinery for state administration of education 2.2.3 The Party and State’s attitude, guidelines, policies and goals towards education

2.3 SOME THEORIES FOR ASSESSING FROM CULTURAL PERSPECTIVE STATE ADMINISTRATION PERFORMANCE IN EDUCATION

2.3.1 Value theory

The outstanding value in culture is Truthfulness, Compassion and Beauty In the course of national and human civilization, these virtues are the goals towards which to promote progress In the building of culture in state administration, the trend towards Truthfulness, Compassion, and Beauty is very necessary to improve the science, humanity, and practicality in management

2.3.2 Theory on administrative culture

Culture in state administrative agencies has become indispensable for state administrative activities Culture helps people to unite and to become better and more conscious Culture helps organization’s members to fulfill jobs with the highest performance It is thanks to culture that the organization is held in high regard to win recognition from the public The same is true for administrative culture, which is formed within an administrative agency, representing the traditions of an agency in charge of

serving the people However, they are an indispensable element in the formation of an agency It plays a role not only in the development of a society or an agency, but also in the formation, development and improvement of civil servants’ personality

2.3.3 System theory

An approach to state management from cultural perspective necessarily involves the application of system theory As management is inherently a strictly systematic activity, which is expressed by the management apparatus, management mechanism and management objects For an organic system of material and spiritual values, studying any object from a cultural perspective must always use systems theory and systems approaches In general, as management is a complex system, its characteristics can only be well defined by approach in the light of system theory Therefore, study of state management performance from cultural perspective should be placed within the system theory

2.4 SIGNIFICANCE AND PRINCIPLES FOR THE ASSESSMENT FROM CULTURAL PERSPECTIVE OF STATE ADMINISTRATION PERFORMANCE IN EDUCATION

2.4.1 Significance of the assessment from cultural perspective of state administration performance in education

Approach to the assessment of state administration performance in education from cultural perspective is the means by which to introduce universal cultural values, namely Truthfulness (science), Compassion (ethics), and Beauty (harmony), into the assessment in order to find out the strengths and weaknesses in state management of education This is the point where culture is further associated with developing state administration of education, in response to the existing practice "to imbue culture into the whole social life and activity" By doing so, culture serves as a goal, a driving force and a regulator for development Universal values, namely Truthfulness, Compassion and Beauty, are selected and translated into relevant standards for improving state administration of education

2.4.2 Principles for assessing state administration performance in education from cultural perspective

Target at assessment objective Subjectivity and concretism Openness

Stability Logicality

2.5 CRITERIA AGAINST WHICH TO ASSESS STATE ADMINISTRATION PERFORMANCE IN EDUCATION FROM CULTURAL PERSPECTIVE

Requirements for criteria against which to assess state administration performance in education from cultural perspective: In this thesis, the author chooses to build one criteria set

which is fundamental and general, with specific guides How assessment is carried out will depend on the assessed subjects, by which to design a suitable framework as guided

The criteria against which to assess is divided into two systems: First, criteria against which to assess “the course of exercising state administration” Secondly, criteria against which to assess “state administration performance”

PERFORMANCE IN EDUCATION FROM CULTURAL PERSPECTIVE 2.7 ANALYTICAL FRAMEWORK

Having built the theory on state administration performance in education from cultural perspective, the author proceeds with defining criteria against which to assess cultural norms according to the goal, and continues to consolidate the contents and theories These criteria will serve as a basis to assess educational management activities and educational management performance by which to demonstrate the performance of state management of education from cultural perspective Assessment activities will be combined with assessing determinants in state management and political, socio-economic environment in the researched period Upon analysis and judgment of determinants, the author defines relevant measures to impact state management of education from cultural perspective These contents further help to consolidate theoretical basis on the performance and how to assess the performance of state management of education from cultural perspective