a) Khai ni~m:
- Tham muu
CUQc s6ng cua bfit cu ngmJi dan nao trong xa hQi, cho diI it hay nl].iSu dSu chiu iinh huang cua cac chinh sach congo Noi mQt cach dan giiin, chinh sach cong la sv Iva chQn cach thuc hanh dQng cua nha nu6'c dS giiii quySt mQt . .
vfin dS nao do trong xa hQi thong qua vi~c ban hanh cac lu~t l~, quy dinh, :.
quySt dinh. Trong hO(;lt dQng cua dai s6ng xa hQi, chUng ta thuOrig g~p nhUng khai ni~m:
+ DS xufit: Ia neu fa, gop them y kiSn dS giiii quySt cho dUng, cho hgp ly; + Giup vi~c: la lam nhUng vi~ctrQ' giup cho cong vi~c chinh;
+ Tham gia: la dv vao, gop ph~nvao.
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B6i v~y, khai ni~m tham mUll dugc hi@u la: gop y kiSn v@ chu truang,
kS ho~ch va bi~nphap cho mQt nguai hay mQt t6 chilc trong th\lC thi cong VlJ. Trong ho~t dQng quful S\l, tham mUll la: gop y kiSn, giup nguai chi huy trong vi~c d~tra va t6 chilc th\lc hi~n cac kS ho~ch quful S\l.
Trong th\lC tS co nhUng chilc danh gfut li@n v6i ho~t dQng tham mUll, nhu: Tham mUll truang; co quan tham mUll, t6 chilc tham mUll; can bQ tham mUll....
- Tham muu hOf;lCh ajnh chinh sach c6ng
Tham mUll ho~ch dinh chinh sach cong la khi mQt t6 chilc ho~c mQt ca nhan tham gia vao vi~c d@ xu~t, thiSt kS mQt chinh sach, kS ho~ch, mQt chuang trinh va t6 chilc th\lc hi~n cac chinh sach, kS ho~ch, chuang trinh cua mQt chu th@ quy@n l\lc lanh d~o, quan ly nh~t dinh. Vi dv: T6 chilc can bQ la co quan tham mUll cho Thu truang co quan cling c~p v@ chu truang va cac chinh sach 100 thuQc lInh V\lC t6 chilc bQ may va cong tac can bQ cua co quan. B6i v~y, co quan Hinh d~o, qmin ly c~p nao, nganh nao thi co t6 chilc va can bQ tham mUll c~p ~y, nganh ~y.
Tham mUll trong ho~ch dinh chinh sach cong d6i v6i lanh d~o c~p s6 la: Gicim d6c s6 chiu trach nhi~m toan bQ v@ qua trinh nghien cilu, xay d\lllg, ban hanh, t6 chilc va danh gia chinh sach thuQc ph~m vi chilc nang, nhi~m V\l cua s6 thea quy dinh cua phap lu~t.
b) Y nghla, nguyen t~c trong tham mUll ho~ch dinh chinh sach cong cua lanh d~o c~p s6 va tuang duang:
- Yngh'ia
+ Tham mUll ho~ch dinh chinh sach cong dugc coi la mQt lo~i ho~t dQng quan ly d~c bi~t cho ca mQt giai do~ tBn ~i, phat tri@n cua th\lC th@ nh~m d~t m\lc tieu quan lY. NSu tham mUll dung d~n, khoa hQc se giup cho th\lc th@ quySt dinh dUng, co nhi@u thu~n 19i trong qua trinh v~n dQng dSn m\lc tieu, con tham mUll do sai se lam cho th\lc th@ quySt dinh sai, khong nhUng m~t phuang huOOg trong qua trinh v~ dQng, rna con gay ra nhUng h~u
qua khong mong mu6n cho m\lc tieu quan lY.
" ' -
+ Tham mUll ho~ch dinh chinh sach cfmg rna dUOng cho ca ti~ntrinh chinh sach. Chu trinh chinh sach la mQt h~ th6ng khep kin thea huang ng~y cang hoan thi~n, trong do ho~ch dinh chinh sach dugc xem la buac chuySn len b~c cao han trong chu trinh. Nhfmg vfin dS dugc duc k~t trong su6t ti~n trinh chinh sach se dugc coi la nSn tang dS cung c6 xay d\ffig chinh sach cho
kY sau. Nhu v~y,tham mUll ho~ch dinh chinh sach la diSm khai dfru cho mQt
ti~n trinh' chinh sach trong ca chu trinh chinh sach.
+ Ho~ch dinh chinh sach cong rna ra nhfmg vfin dS rna Nha nuac cfrn giai quy~t nhfmg t6n t~i. vfin dS t6n t~i trong dai s6ng xa hQi rfit phong phu, da d~ngva v~ndQng khong ngimg thea cac quy lu~t khach quan. M6i lo~ivfin dS co lien quan d~n mQt hay nhiSu qua trinh kinh t~ - xa hQi va dugc giai quy~tb~ng cac cong C\l va cach thuc khac nhau. Co nhfmg vfin dS nay sinh va t6n ~i thea quy lu~t, no tac dQng co ky h~n d~n m\lc tieu phat triSn cfrn phai dugc giai quy~t b~ng chinh sach. DiSu nay co thS nh~ bi~t dugc qua nQi dung chinh sach nhu ly do ban hanh chinh sach hay 19a chQn vfin dS chinh sach. Day la y nghTa quan trQng dfru tien cua ho~chdinh chinh sach.
+ Tham mUll ho~ch dinh chinh sach cong giup cling c6 niSm tin cua nguai dan vao nha nuac. Tham mUll ho~ch dinh chinh sach khOi xuang nhfmg vfin dS chinh sach, do la nhfmg vfin dS buc xuc cfrn dugc giai quy~t dS duy tri ho~t dQng xa hQi thea dinh huang. N~u nhfmg vfin dS chinh sach dua ra phil hgp vai yeu cfru cua ngum dan, lam cho hQ yen tam lam thea nha nuac, cling c6 niSm tin cua nhan dan v~osg lanh d~o, diSu hanh cua Nha nuac.
+ Tham mUll ho~ch dinh chinh sach dung se thu hut dugc cac bQ ph~ chuc nang cua toan h~ th6ng quan ly vao nhfmg ho~t dQng thea m\lc tieu. Cac qua trinh kinh t~ - xa hQi diSn ra rQng kh~p tren dia ban ca nuac, d6ng thai
con diSn ra thea nganh, thea cfip dQ quan ly, bai v~yn~ukhong 4.iSu ti~t dugc .' cac ho~t dQng do mQt cach hgp ly, khoa hQc thi rfit kho d~t dugc m\lc tieu
phat triSn chung. Nhung khi co chinh sach, cac ho~t dQng C\l thS da dinh hu~gdugc cho minh vS ca m\lc tieu va bi~nphap. M~c dil m6i co quan quan ly nha nuac dSu phai thgc hi~n chuc nang, nhi~m Y\l dugc giao mQt cach dQc
:.
l~p, song nSu co chinh sach cac cO" quan nay se phai lien h~ph6i h91' v6i nhau dS th\lc hi~n m\lc tieu quan lY.
+ Tham mUll ho~ch dinh chinh sach se thS hi~n dUQ"c cO" chS quan ly cua nha nu6c trong timg thai kYo DS quan ly co kSt qua nSn kinh tS - xa hQi, nha nu6c phai chu dQng t~o l~p cO" chS v~n dQng thich h91' v6i timg diSu ki~n vS khong gian va thai gian. CO" chS v~ dQng bao g6m cO" chS v~ hanh cua nSn kinh tS t6n t~i thea cac quy lu~t va coo chS quan ly do nha nu6c l\la chQn. NSu cO" chS quan ly tuang thich v6i cO" chS v~n hanh cua nSn kinh tS hay trinh dQ phat triSn cua xa hQi se thuc dAy kinh tS, xa hQi phat triSn, con nguQ"c l~i no se kim ham cac qua trinh v~ndQng.
Nh~n thuc dAy du vS vai tro cua tham muu trong ho~chdinh chinh sach nhu tren giup chung ta co y thuc han khi nghien cUu xay d\lng chinh sach cong dS cac chinh sach dUQ"c ho~ch dinh ngay cang gAn v6i tieu chuAn cua mQt chinh sach t6t.
- Nguyen tac tham muu hOflCh ajnh chinh sach cong
Nguyen t~c tham muu trong ho~ch dinh chinh sach cong la nhUng quy dinh b~t bUQc rna cac cO" quan, can bQ tham muu phai tuan thea trong qua trinh lam chinh sach. Tuy thea dinh huang chinh tri va cac diSu ki~n kinh tS, van hoa, xa hQi cua m6i dia phuang dS l\la chQn h~ th6ng nguyen t~c thich h91', song co mQt s6 nguyen t~c cO" ban sau:
+ Tham muu ho~ch dinh chinh sach cong la mQt nghS chuyen sau, co tinh chuyen nghi~pcao. Tham muu khong chi la cO" quan, ca nhan tham d\l, dS xudt chu truang, chinh sach cho cO" quan lanh d~o, quan ly cdp minh rna con la cO" quan huang ddn va chi d~o th\lc hi~n vS lInh V\lC minh dam trach cho cdp lanh d~o, quan ly va cO" quan tham muu cdp du6L Xet ca vS chuc nang tham d\llfin chuc nang huang dfin t6 chuc th\lc hi~n thi cO" quan va can bQ tham muu dSu co thuQc tinh lanh d~o, quan ly va d6ng thai phai c~ng chiu trach nhi~mv6i cO" quan lanh d~o, quan ly vS lInh V\lC minh tham muu;
+ Cdp sa co trach nhi~m tham muu ho~ch dinh chinh sach cong thi d6ng thai cung phai co quySn h~, cAn co quy dinh ra vS quySn va trach nhi~m cua cO" quan va ca nhan nguai lam cong tac tham muu ho~ch dinh
'"---
chinh sach cong dS nSu hQ dS xuAt sai ho~c bi> sot thi phai chiu tnich nhi~m. Trong truemg hgp hQ dung ma Hinh d~o khong nghe thi ca nhan ho~c cO' quan Hinh d~o phai chiu trach nhi~m. Tham muu phai co quySn bao luu y kiSn va dugc trinh bay, bao v~ y kiSn cua minh tru6c ij,p thS cO' quan Hinh d~o, quan ly co thAm quySn va trach nhi~mra quySt dinh chinh sach;
+ Tham muu ho~ch dinh chinh sach cong phai vi 19i ich qUBc gia, dia phuang ~acQng d6ng;
+ Bao dam nguyen t~ch~ thBng. Co tinh h~ thBng thi m6i dam bao cho mvc tieu, bi~n phap cua chinh sach dugc phat huy, vi no khong gay ra mau thuan trong h~ th6ng;
+ Nguyen t~cphu hgp v6i th\fc tiSn dam bao cho chinh sach dugc ban hanh phu hgp v6i cac diSu ki~n hi~n co, him cho chinh sach co tinh kha thi cao va dam bao dugc tinh kS thira, lien tvc trong h~thBng;
+ Nguyen t~c quySt dinh da sB dam bao chinh sach dugc lam cho mQi nguai va dugc xay dlJIlg bai nhiSu nguai.
c) NQi dung tham mUll ho~ch dinh chinh sach cong:
- nJ xudt chinh sitch
DS xuAt ly do ho~ch dinh chinh sach dugc coi la phfuI ma dau cua mQt van ban chinh sach nh~m cho thAy dich th\fc dBi tugng huang t6i cua chinh sach la thuQc kinh tS, xa hQi hay moi truemg dS nguai tiSp c~n chinh sach co thS cam nh~n dugc S\f can thiSt khach quan va tam quan trQng cua vi~c giai quySt vAn dS cua chinh sach.
Ly do ho~ch dinh chinh sach can t~p trung m~nh vao vAn dS chinh sach. vAn dS chinh sach dug~ hiSu la nhUng mau thuan nay sinh trong cac linh V\fC ho~t dQng can dugc ghii. quySt b~ng chinh sach dS thi>a man nhUng nhu cau nhAt dinh cua xa hQi. Nhu v~y co thS thAy vAn dS chinh sach la'h~t nhan cua chinh sach, no huang cac mvc tieu, giai phap cfuI co cua Nha nu6c vao giai quySt vAn dS xa hQi.
DS xuAt ly do ho~ch dinh chinh sach can phai ng~n gQn, ro rang, chinh xac, co suc thuySt phvc cao. Tranh tinh tr~ng Ian man, lam sai l~ch vAn dS
ho~c lam cho nguai tiSp oo~ hiSu khong dung, khong dAy dii vS tAm quan trQng cua chiOO sach, til do rna khong tg giac thgc thi chiOO sach.
- Xac tJjnh can Cll- hot;lch tJjnh chinh sach
CAn phai triOO bay ra OOfrng can cu khoa hQc dS ho~ch diOO chiOO sach. Can cu ho~ch dinh chiOO sach duQ'c dS xufit la OOfrng cO' sa vS chiOO ttl, phap ly, quan ly va thgc tiSn cua cO' quan OOa nuac co thAm quySn dS xac diOO va ban haOO chiOO sach. Vi~c xac diOO cac can cu do la khiing diOO vS tiOO hi~u 19c, hi~u qua cua chiOO sach, giup cho vi~ccling c6 long tin cua OOan dan van chiOO sach cua Nha nuac.
Nhfrng can cu cAn duQ'c neu ngfuI gQn, xac thgc vai diSu ki~n hoan caOO cua dfit nuac, dia phuang, oofit la OOfrng vk dS dang buc xuc rna th\lc tiSn adia phuang dang yeu cAu thuQc chuc nang quan ly cua sa.
-D~xudt nQi dung cua chinh sach
+ Xac diOO m\lc tieu chiOO sach:
M\lc tieu chiOO sach duQ'c coi la HOO h6n ciia chiOO sach, no huang mQi nQi dung van vi~c thgc hi~ny chi cua chu thS ho~ch diOO chiOO sach. Til ly do dSn can cu ho~ch diOO chiOO sach cling chi OO~m lam cho chiOO sach duQ'c thgc thi thea mong mu6n cua Nha nuac.
Tuy thea lo~i chiOO sach, m\lc tieu chiOO sach co thS co m\lC tieu lau dai va m\lc tieu truac m~t; m\lc tieu diOO tiOO va m\lc tieu diOO IUQ'llg; m\lc tieu chung va m\le tieu rieng.... MQt chiOO sach co thS huang dSn OOiSu m\lc tieu, trong do co m\lc tieu trQng tam va cac m\lc tieu bQ ph~. Tuy nhien mQt chiOO sach khong nen huang tai qua OOiSu m\lc tieu, vi OOu v~y se lam giam tiOO kha thi cua chiOO sach. Cac OOa ho~ch diOO cAn phai th~t cAn trQng trong vi~c triOO bay ~\lC tieu chiOO sach. Trong thgc tS, co OOfrng m\lc tieu chiOO sach kho diSn d~t, nSu khong chu y rfit co thS lam sai l~chca chiOO sach.
+ Xac tJjnh bi¢n phap cua chinh sach
M\lc tieu va bi~nphap chiOO sach co m6i quan h~ ch~t che vai OOau. Vi thS, cac bi~n phap duQ'c triOO bay trong nQi dung chiOO sach cAn phai huang van m\lc tieu.
Bi~nphap chiOO sach bao g6m:
• CO' chS tac dQng cua Nha nu6c dSn cac d6i tugng th1Jc thi chiOO sach, giup cho h9 ho~tdQng thea m\lc tieu quan lY.
• Cac bi~nphap C\l thS phai mang tiOO giao d\lc, thuySt ph\lc, tinh kiOO tS hay haOO chiOO my thea m\lc tieu cua chiOO sach. D6i v6i m\lc tieu phat . triSn kiOO tS thi bi~nphap thuOng mang tiOO kiOO tS OOu trong chiOO sach thu hut dAu tu trong nu6c va nu6c ngoai 6 Vi~t Nam thuOng ap d\lng cac bi~n phap OOu thue ddt gia re, miSn hay giam thuS, duqc yay v6n Uti dai....
• Cac bi~n phap t6 chirc th1Jc thi chiOO sach. Bi~n phap t6 ChlTC th1Jc thi chiOO sach thuQc vS cO' quan quan ly OOa nu6c cac cdp dS triSn khai, ph6i hQ'P th1JC hi~n chiOO sach. Thong thuOng cac bi~nphap t6 chirc th1Jc thi chiOO sach mang tiOO quy diOO, hanh chiOO, giao nhi~m V\l cho cac cO' quan co thdm quySn th1Jc hi~n.
• ~ac bi~nphap chiOO sach cling cAn duqc triOO bay ng~n g9n, co d9ng phan aOO ban chdt cua bi~n phap chiOO sach dS nguai th1Jc hi~n dS dang v~n d\lng.
• Bi~nphap chinh sach duqc xdy dlJOg phai dap irng OOiing yeu cAu sau: Phai luon huang t6i m\lc tieu, coi m\lc tieu la dQng l1Jc cua bi~nphap. Phai phu hQ'P v6i m\lc tieu trong su6t qua triOO t6n t~icua chiOO sach. Phai phu hQ'P v6i diSu ki~nth1Jc tS dS co thS v~n d\lng duqc.
Phai liOO dQng, thich irng v6i cO' chS v~ haOO trong tUng thai kY, traOO go bo cdp thira haOO b&ng OOiing bi~n phap qua C\l thS.
+ Xac atnh thai hgn duy tri chinh sach
Xac diOO thai h~n duy tri chiOO sach co y nghla d6i v6i chu thS ban haOO va d6i tugng th1Jc thi chiOO sach. Co dn diOO thai h~1 m6:i lam cho cO' quan OOa nu6c cac cdp n6 l1Jc tim kiSm cac bi~nphap t6 chirc th1Jc hi~n chin4 sach t6i Uti dS hoan thanh OOi~m V\l, d6ng thai giup Nha nu6c chu dQng tim kiSm cac ngu6n l1Jc cho th1Jc thi chiOO sach. Ngoai ra, vi~c xac djnh thai h~n duy tri chiOO sach can cung c6 duqc long tin cua nguai th1Jc thi chiOO sach
vao Nha nu6c va con giup h9 chu dQng tham gia thlJc hi~n chinh sach vi lqi ich cua chinh minh va cua xa hQi.
Thai h~n duy tri chinh sach ph\l thuQc rdt 160 vao vi~c thlJc hi~n m\lc tieu chinh sach, nSu m\lc tieu chinh sach la tru6c mdt, co thS dinh lugng duqc thi thai h~n duy tri chinh sach se ngdn nhu: chinh sach hao hQ hang san xUdt trong nu6c, chinh sach trq gia nang san hang hoa.... Tuy vi~c dlJ tinh thai h~n dUy tri chinh sach la kho chinh xac, nhung cling cAn dB c~p trong nQi dung chinh sach. Truang hgp th~tkho khan, co thS xac dinh qua cac chuong trinh, dlJ an C\l thS.
- Xac ainh cac yiu t6 anh huang ain hoc;zch atnh chinh sach
Lanh d~o sa khi tham muu dB xUdt ho~ch dinh chinh sach cAn quan tam dSn cac ySu t6 anh huang dSn qua trinh xay dlJIlg, thlJc thi chinh sach. Trong th\fc tS co rdt nhiBu ySu t6 anh huang, tac dQng dSn xay dlJIlg va thlJc thi chinh sach cang. C\l thS la:
+ Nhfing ySu t6 chu quan;
+ Nhfing ySu t6 khach quan.
NSu can cu vao chu thS va d6i tugng cua chinh sach thi co:
+ Nhfing ySu t6 thuQc chu thS quan ly;
+ Nhfing ySu t6 thuQc khach thS quan lY .... Ho~c:
+ Nhfing ySu t6 hen trong;
+ Nhfing ySu t6 hen ngoai.
- Xac ainh phuong phap hoc;zch ainh chinh sach
+ Phuong phap hoc;zch ainh chinh sach a(Jc l~p
Phuong phap ho~ch dinh chinh sach dQc l~p chao ra dai nhfing chinh sach m6i chua co trong thlJc tS. Phuong phap ho~ch dinh nay thuang tinh tS hon chinh sach dang t6n t~i ca vB m\lc tieu va hi~n phap, vi cac nha ho~ch