TU SACH KHOA HQC DAI HOC QUOC GIA HA Npl VU CAO DAM G IA O T R IN H Khoa C h in h OCR] C©G , hoc sAc h NHA XUAT BAN DAI HQC QUOC GIA HA NOI DAI HOC QUOC GIA HA N I TRUONG DAI HOC KHOA HOC XA HOI VA NHAN VAN • • • • KHOA KHOA H O C Q U A N LY _ VU CAO DAM GIAO TRlNH KHOA HOC CHINH SACH NHA XUAT BAN DAI HOC Q U O C GIA HA NOI 0a dang ky b&o ho quyen tac gia Moi hinh thtfc sir dung phai thi/c hien dung quy djnh cua phap luait M UC LUC Viet t a t Md d Au f Vai tro cua chinh sach ddi song Y nghia cua mon hoc “Khoa hoc chinh sach” .10 Ddi tugng nghien cuu cua Khoa hoc chinh sach 11 Quan he cua Khoa hoc chinh sach vdi cac khoa hoc khac 12 Phuang phap nghien cuu Khoa hoc chinh sach 14 Cau hoi thao luan 16 Chuong I DAI C l/O N G VE CHINH SACH 1.1 Md dau .17 1.2 Khai ni$m “Chinh sach” 18 1.3 Phan loai chinh sach 32 1.4 Quan h? chinh sach vdi mQt so thilt che quan ly ! .40 1.5 Quan he giua chinh sach vdi xa hoi dan su .45 Cau hoi thao luan 52 Chuong II DAC DIEM CO BAN CUA CHINH SACH 2.1 Chinh sach xet tu tiSp can thiet che xa hoi 53 2.2 Chinh sach he th6ng thiet che quan ly 55 2.3 Chinh sach va bat binh ding xa hoi 61 2.4 Chinh sach va dong co hoat dQng cua ngudi 68 2.5 Ciu true cua chinh sach .73 2.6 Mdi trudng cua chinh sach 79 2.7 Vat mang chinh sach 83 Cau hoi thao luan .94 Chrnmg III TAC NHAN VA TAC DQNG CUA CHINH SACH 3.1 Khai niem 97 3.2 Tac nhan cua chinh sach 98 3.3 Muc tieu cua chinh sach 102 3.4 Phuong tien tac dong cua chinh sach 105 3.5 Doi tuong tac dong cua chinh sach 109 3.6 Dac diem tac dong cua chinh sach 113 3.7 Pham vi anh huong cua chinh sach 120 Cau hoi thao luan 125 Chuong IV KIEN TAO XA HQI CUA CHINH SACH 4.1 Khai niem kien tao xa hpi 129 4.2 Noi dung kien tao xa hoi cua chinh sach 133 4.3 Cac giai doan kien tao xa hoi cua chinh sach 146 4.4 Phan hoa xa hpi chinh sach 153 4.5 Xung dot xa hoi chinh sach 156 4.6 Phan ung xa hoi doi vdi chinh sach 160 4.7 Trach nhifm truoc kien tao xa hoi cua chinh sach 167 Cau hoi thao luan 173 Chiro’ng V HI£U QUA VA HIEU LtfC CUA CHINH SACH 5.1 Khai niem chung 177 5.2 Hieu qua cua chinh sach 178 5.3 Hieu lyc cua chinh sach 183 5.4 Nhan dang hieu qua va hieu luc cua chinh sach .197 Cau hoi thao luan 200 Chuong VL TO CHUC THy C HIEN CHINH SACH 6.1 Dan nhap 201 6.2 Co quan quyen luc cua Nha nuoc 202 6.3 He thong hanh chinh nha nude 204 6.4 He thong to chuc tu phap 205 6.5 To chuc dac nhiem thuc hien chinh sach 206 6.6 Xa hoi dan su 207 6.7 Truyen thong 210 Cau hoi thao luan 219 Chirtrng VII PHAN TICH CHINH SACH 7.1 Sir can thilt phan tich chinh sach .221 7.2 Dai cuong ve phan tich chinh sach 225 7.3 Cac budc phan tich chinh sach 230 7.4 Phuong phap phan tich chinh sach 242 7.5 Bao cao ket qua phan tich chinh sach 248 7.6 To chuc phan tich chinh sach 248 7.7 Mot vi du phan tich chinh sach 249 Cau hoi thao luan 251 Chirong VIII CHUAN BI QUYET DINH CHINH SACH 8.1 Dan nhap 255 8.2 Cac buoc chuan bi quyet dinh chinh sach 256 8.3 Soan thao va xin y kien v l v3n ban chinh sach 268 8.4 Nhung 16i thudng g3p tu chinh sach 276 8.5 Thong tin chinh sach 280 8.6 Vai tro cua cac to chuc hoach dinh chinh sach 282 Cau hoi thao luan 285 TAl LIEU THAM K H A O 287 PHU LUC 289 Phu luc Quylt djnh 175/CP va cac thong tu hudng dan 291 Phu luc Nghj djnh 35/HDBT 321 Phu luc Luat Chuyln giao cong nghe 329 Phu luc Mot phan tich chinh sach vTmo .363 VIET TAT Dang CSVN Dang Cong san Viet Nam KH&CN Khoa hoc va cong nghe KH&KT Khoa hoc va ky thuat HDBT Hoi dong bo trudng XHCN Xa hoi chu nghia XHDS Xa hoi dan sir TBCN Tu ban chu nghTa UBND Uy ban nhan dan M O DAU VAI TRO CUA CHINH SACH TRONG DOl SONG r f Trong cuoc song thirdng ngay, tir ngudi ngheo cho den ngudi giau, tir dan thudng cho den cac chinh tri gia, tir nhan vien bo may cong quyen den nhung ngudi ban hang rong tren dudng pho, v.v , ai cung noi ve chinh sach, ai cung phan tich cai lgi, cai thiet cua ban than minh hoac cong ty cua minh moi mot chinh sach cua nha nude dugc cong bo f y * r f r Ngudi dan thi quan tam den chinh sach cua nha nude doi vdi cuoc song va cong viec lam an cua minh; cac nha quan ly thi quan tam den viec nghien cuu va cong bo chinh sach gi de lam lgi cho sir phat trien quoc gia va lam tron bon phan cua bo may quan ly trudc dan chung; cac chinh trj gia thi quan tam den viec tim kiem va sir dung chinh sach de gianh uu the tren trudng chinh tri Tom lai, moi ca nhan, moi nhom xa hoi quan tam den chinh sach xuat phat tir lgi ich cua ban than Cung chinh vi vay, danh gia mot chinh sach la mot cong viec kho khan, theo cach nhin ve lgi ich cua mot nhom xa hoi nao Tuy nhien, khong phai viec danh gia mot chinh sach la qua phuc tap, neu chon diem xuat phat tir lgi ich cua toan he thong noi chung, va mot he thong cu the la toan xa hgi Cai kho (va rat kho) d day la lam xac djnh dugc tieu chi ve lgi ich cua toan he thong t ■» f f f •> r f \ Chinh la noi dung quan tam cua khoa hoc chinh sach Theo truyen thong, chinh sach la chu the quyen luc hoac chu the quan ly dat Ben canh cac chu the quyen lire hoac chu the quan ly luon co nhung ngudi tham muu chinh sach Ngay cac vua chua thdi xa xua cung luon co ben canh minh cac vien quan ngu sir chuyen phan tich cong viec trieu chinh, nghien cuu va hien cac ke sach cho trieu dinh f f \ Khi xa hoi cang phat trien, cac quan he xa hoi cang trd nen phuc tap, thi nhung co gang cua cac chinh khach viec hoach djnh f chinh sach cang tra nen han che, va cong viec nghien cuu va phan tich chinh sach cang trd nen mot cong viec mang tiinh chuyen nghiep va doi hoi nhung co sd ly luan Tir day xuat hiien nhung nha nghien cuu di theo thien hudng tong ket cac co sd ly luian cua ban than chinh sach va cua qua trinh hoach djnh chinh sach, co nhung nha nghien cuu cac ITnh vuc chuyen biet, nhu chiinh tri hoc, xa hoi hoc, tam ly hoc, luat hoc, v.v Dong thdi co nhumg ngudi trudng tir qua trinh hoat dong thuc te lam chinh sach,, di tim toi, kham pha ca sd ly luan cua cac nganh khoa hoc khac de tao dung nhimg co sd ly thuyet chung cua khoa hoc chinh sach f f Cac khoa hoc ve chinh sach ddi vi le Y NGHIA CUA MON HOC “KHOA HQC CHINH SACH” Co phan tich mdi biet dugc cac cach thuc van hanh cua chiinh sach, tac dong cua chinh sach tdi ddi song xa hoi, thai cua xa lhoi doi vdi chinh sach Do do, mdi co the de cac bien phap thuc hien co hieu qua mot chinh sach, nam dugc nhtrng mat yeu cua chinh sach va de cac bien phap hoan thien chinh sach hoac ban hanh chinh saach mdi thay the chinh sach da khong phu hgp nua f * Mon hoc “Khoa hoc Chinh sach” chinh nham cung cap cho ngiudi hoc nhung kien thuc ly luan va ky n&ng thuc hien cong viec nghiien cuu chinh sach, phan tich chinh sach, chuan bi quyet dinh chinh saach va thuc thi mot chinh sach ddi song xa hoi Cd the noi, Khnoa hoc Chinh sach, ciing vdi Ly thuyet QuySt dinh, Ly thuyet He th6rng, Ly thuyet Xung dot, Ly thuyet Tro chai, Ly thuyet Xep hang, v.v la nhung bo phan hgp quan nhat he th6ng ly luan va phuang phap luan quan ly Khoa hoc Chinh sach la mot ITnh vuc nghien cuu xuat hieni tir lau, nhung den van la mot khoa hoc non tre No nghien c:uu cac lien he ben cua chinh sach va nhung moi lien he ben ngcoai cua chinh sach vdi cac thiet che quan ly va cac hoat dong khac nhiau ddi song xa hoi / Lien quan “Khoa hoc Chinh sach” dugc ban den giao triinh hang loat phuang hudng nghien cuu khac co quan he tdi cqua 10 trinh hoach dinh va dieu hanh chinh sach, chung ta co the goi chung la “Cac Khoa hoc Chinh sach” Thuat ngu “Cac Khoa hoc Chinh sach” dugc su dung de chi tat ca cac phuong huong nghien cuu co moi lien he true tiep hoac gian tiep toi qua trinh chuan bj quyet dinh chinh sach, phai ke den nhung ITnh vuc nghien cuu nhu Ly thuyet Quyet dinh (quyet dinh chinh sach), Phan tich Chinh sach, Khoa hoc Du bao (du bao chinh sach), v.v r t t •> f t r t DOI TUONG NGHIEN CUU CUA KHOA HQC CHINH SACH Mac du da co rat nhieu nha nghien cuu quan tam nghien cuu ly luar ve chinh sach va phan tich chinh sach, song co le van chua du iihung co so ly thuyet de co the xep “Khoa hoc Chinh sach” vao hang cac ly thuyet khoa hoc vugt qua giai doan bat djnh hinh (prepartdigmic) debudc vao giai doan cua mot khoa hoc chuan tac (normal science) theo cach hinhdung cua Thomas Kuhn1,trong ton tai not doi tugng nghien cuu, mot lich su nghien cuu, mot he thong ly thuyet, mot he thong phuong phap luan va mot muc dich ung dung f t / t •> Tuy nhien bai giang cung co gang trinh bay nhirng luan diem tuong doi co he thong ve ly thuyet, vdi mong muon, no cang marg day du thuoc tinh cua mot khoa hoc chuan tic, hy vong gop phai hinh he thong ly thuyet cua khoa hoc quan ly d nude ta f * t \ f t t t Trong khuon kho nhung noi dung da dugc lam ro, chung ta co the so bo xac djnh doi tugng nghien ciru cua khoa hgc chinh sach la biftt phap ddi x u v&i cac nhom xa hoi de tao dong ca hoat dgng cua hg vi muz dich chung cua su phat trien xa hoi Thuoc doi tugng nghien cuu, Khoa hoc Chinh sach tap trung mo quan tam cua minh vao nhung noi dung nghien ciru nhu sau: Vai tro cua chinh sach quan ly va ddi song xa hoi Tlco Kuhn tac pham n6i tieng “The Structure o f Scientific Revolutions”, thi sy plat trien cua mpt bp mon khoa hpc luon trai qua hai giai doan Giai doan dau duoc g(i lii giai doan “pre-paradigmic science”, la giai doan phoi thai cua khoa hpc, chua dnh hinh mpt h? thong ly thuyet; Giai doan thu hai la giai doan “normal science”, la gui doan da hinh mpt h? thong ly thuyet hoan chinh 11 ^ r Nguyen nhan chinh cua lam phat la mac du nen kinh te kem hieu qua nhung lai phai hap thu mot luang von qua l&n Tong lugng von tu ben ngoai chay vao nen kinh te nam 2007 udc chung len tdi 22 - 23 ty USD (tuang duang 30% GDP)2 Dong thai, ting cung tien, tin dung, va dau tu deu dat muc ky luc, mot ty le rat lan dugc danh cho cac doanh nghiep nha nude kem hieu qua Khi lugng tien vao nen kinh te qua nhieu, lai khong dugc su dung mot cach hieu qua de san xuat hang hoa va djch vu thi se dan tdi tinh trang “qua nhieu tien nhung qua it hang” > X > \ A f \ Nhu vay, chien luge tang trudng dua vao dau tu cua Viet Nam (tuc la tri ti le dau tu noi dia cao han ti le tiet kiem npi dia) da day nen kinh te vugt qua gidi han hien tai cua no Vi vay, nang cao hieu qua cua dau tu phai dugc xem la mot muc tieu quan hang dau trung han Trong thai gian trudc mat, Chinh phu can khoi phuc lai sir can bing vi mo lap tuc bang cach giam ti le dau tu cong D6ng thdi, dau tu cong can dugc tap trung vao cac du an co kha nang thao ga nhung “nut that cd chai” cua tang trudng ma khong dugc phep phung phi vao nhung dy an hoanh trang nhung khong dem lai hieu qua kinh te Chinh phu cin tiep tyc dau tu phat trien he thong cang bien va dudng bo ket noi cac nha xuat khau Viet Nam vdi thi trudng the gidi Chinh phu cung cin dau tu manh me cho giao due tieu hpc va trung hgc ca sd, y te ca sd va y te cQng dong, ca sd tang thi v.v Khong nen su dyng nhung nguon dau tu cong khan hiem de thyc hifn cdc dy an ma khu vuc tu sin sang tham gia nhu xay ciu, ducmg co thu 1? phi Chinh phu can tim cach khuyen khich sy tham gia cua khu vyc tu vao vifc cung urng cac ca sd ting thiet yeu de co the tang cung, giam chi phi, nang cao chat lugng Mot nhan t6 quan tr