NGHIEN CC(U - TRAO 001
CAI CACH HANH CHINH
THEO MO HINH Q U A N TRI N H A N U 6 C
PCS.TS. NGUYIN THI HONG HAI'
1. K h a i n i f m q u a n t r i n h a ni^dtc Quan tri nha nUdc (QTNN) hay QTNN tdt duoc hinh t h a n h dua tren triet ly cho rang lam viec theo ca'u true "mang" se hieu qua hon ca'u triic thil bac. Su ddi thoai va ddng thuan c6 the dem lai hieu lUc va hieu qua.
Tuy nhign, trgn thUc te, chua cd m5t khai nigm thd'ng nha't v l QTNN hay QTNN tdt.
Theo Derick W. Brinkerhoff va Jennifer M. BrinkerhofT - hai giao su Trudng Dai hoc George Washington - Hoa Ky (nam 2002), QTNN la qua trinh phdi hop ta't ea loi ich khac nhau va cac nguon lUc de dat duoc muc tigu chung, bao gdm ca nhilng muc tigu d tam qudc gia va toan eau^. Theo hai tac gia nay, dua qua nhieu vao luat hoac cac quy dinh cd the pha vd cac gia tri n i n tang cua cflng ddng va xa hdi, do dd, can tap trung vao cac qua trinh nhU ddi thoai, thao luan, tham gia de tang cudng higu qua quan ly va tang cudng hieu lite cua luat phap. Vi vay, QTNN c6n duge xem la qua trinh ra quyet dinh va thuc hien quyet dinh dUa trgn sU tham gia, trao ddi giiila eae cliii the khac nhau (chlnh phu, khu vUc cdng, khu vUc tU va xa hoi dan sU) nham muc dlch nang cao chat luong dich vu.
Trong hang loat tai lieu chinh sach ciia UNDP nam 19972 vdi ten la
"QTNN td't nhkm phat tridn ngudn nhan luc b i n viing", QTNN dupe xem la viee thuc hien quyln luc vl kinh td, chinh tri va M n h chinh de quan ly cdng viec cua nha nUdc d cac ca'p dd.
QTNN bao gdm cac yeu to: (1) Su tham gia; (2) Nguygn tic luat phap;
(3) Dap Ung; (4) Thd'ng nha't/ddng thuan; (5) Cdng b i n g ; (6) Higu lUc va hieu qua; (7) Trach nhigm; (8) Tam nhin chie'n lupe.
Ngan hang Phat trien chau A ADB (nam 1995) dua ra khai niem:
QTNN la each thilc quyln lUc duoe thuc thi trong quan ly cac ngudn lite kinh te - xa hoi nhkm phuc vu mue tigu phat triln. Theo dd, QTNN cd 4 yeu td: (1) Trach nhiem; (2) Tham gia;
(3) Cd thd du doan duge; (4) Minh bach3. Ung hd quan diem nay, Higp hdi phat trien qudc te (International Development Association) cung quan niem 4 try cot eua QTNN la: (1) Trach nhiem; (2) Minh bach; (3) Hg thdng luat phap; (4) Tham gia.
Mac dii cd nhilu khai niem khac nhau v l QTNN nhung cic khai niem nay diu cd didm chung cho ring;
' Hoc vi$n Hanh chinh quoc gia
TAP CHi QUAN LY NHA NUCIC - S 6 223 (8/2014)
NGHIEN COU - TRAO DOI
QTNN la phuong thUe quan ly bao dam cac chinh sach, cac quy dinh dilu chinh boat ddng ciia eae td chUe, tao dilu kien cho td chUe dat dUde muc tieu va eae boat dpng dupe thUc Men mot each ed trach nhiem va dao diie nha't. Trong khu vite cong, QTNN lign quan den cac each thufe thiet lap mue tieu va thUe hien muc tieu, cac boat dpng bao dam uy tin ciia chinh phii, thiet lap he thd'ng cung cap dich vu bao dam cdng bang va bao dam eae cong chile cd hanh vi ilng xuf diing, giam cac nguy cd tham nhiing.
QTNN doi hdi cac td chUe khu vUc cdng phai tap trung vao hai khia canh: bao dam thitc thi cdng vide cd hieu luc, hieu qua va tuan thu phap luat, quy dinh, cac chuan mUc da dUpe cdng bd; bao dam trach nhiem, cdi md va minh bach.
2. Cac n g u y e n t a c h o a t d g n g , c u a QTNN
Mac du con ed su chUa thd'ng nhat ve each hieu, qua trinh va thuc tien boat dpng eua QTNN nhung cac nguygn tac hoat dpng sau day ciia QTNN dupe nhilu to chile d ea tam qudc gia va qudc te thUa nhan:
Bao ddm cdc quy dinh cua luat phdp: nguygn tac nay doi hoi ta't ca mpi ngUdi phai tuan thd luat phap.
Cac quy dinh cua phap luat phai bao dam thitc hien khach quan, binh dang vdi ta't ea moi ngudi. Mot hg thdng luat phap bao dam cdng bang se la co sd de han che cd hoi lam dung quyln life nha nUdc cho eae loi leh ca n M n cdng chufc.
- Minh bach, cdi md: nguygn tac nay bao dam cho cdng dan cd quyen tiep can cac thdng tin. Cac thdng tin phu hop, tin cay, kip thdi ve hoat ddng cOa
chinh phd va cac co quan trong he thdng hanh ehinh nha nUdc phai cd sSn va d l tig'p can cho mpi cong dan, td chufc. cac thdng tin cdng bd vl hoat ddng cua chinh phii, bao gdm ca cac thdng tin bao cao tai chlnh cua eae cd quan kiem toan ddc lap se tao dilu kien cho cdng dan danh gia dupe ehinh phii.
- Bao ddm trdch nhiim: nguyen tac nay bao dam cho cdng chute cd trach nhiem vdi eae quyet dinh va hanh vi cua chlnh phii, dap ufng dudc cac nhu cau eua td chUc va cdng dan trong pham vi t h I m quyln dupe giao. Trach nhiem dUde danh gia thdng qua boat ddng. cac ea nhan va td chufc phai co trach nhiem vdi quyet dinh va hoat ddng cua minh, phai cd trach nhiem trong thuc thi cdng viec, trong suf dung eae ngudn luc... Dilu nay doi hdi cac bgn lien quan phai p h l n dinh rd trach nhiem va phai hieu rd v l trach nhiem.
- Bao ddm dao ddc cong vu vd tinh Mm khiet trong thUc thi cong vu:
nguyen tac nay bao dam cac cdng chdc phai tuan thu cac nguygn t i c cd tinh dao dUc, cac chuan mUc, cac gia tri dilu chinh hanh vi ilng xut cua ho va thitc hien hanh ddng hoan toan trung thuc va ligm khiet. Ndu luat phap la hg thdng kiem soat ben ngoai nham dilu chinh hanh vi ciia cdng chufc thi ehinh cac nguyen tac cd tlnh dao dilc lai la he thdng dilu chinh ben trong ddi vdi nhan thilc va hanh vi Ung xil cua cdng ehilc, giup ho nhan thufe va cd hanh vi ling xut dung dan. Neu nguyen tac nay khong dUdc b i o dam se khdng chi anh hUdng den hieu lUc, hieu quS cdng viec ciia nha nUdc ma con lim giam n i l m tin eua cdng dan, xa hdi vao nha nUdc.
TAP CHi QUAN LY NHA NU6C - SO 223 (8/2014)
NGHIEN CUfU - TRAO B 6 | - Nguyen tdc tham gia: nguyen tac
nay bao dam sU tham gia cda cac chu the trong cac boat ddng ra quyg't dinh, chlnh sach va thuc hien eae boat ddng quan ly. Vi vay, ca'u true cua cac co quan chlnh phu phai linh boat de dem lai loi leh va cai thien viee thuc hign cac chuong trinh, du an, cdng viec.
Phai coi trong su tham gia eua cdng dan va xa hoi vao hoat ddng quan ly nha nude, su hop tac giila khu vue edng va khu vitc tU; phan quyln, trao quyln eho td chUc dia phuong, hop tac vdi cac td chUc phi chlnh phii.
Nguyen tdc hieu lUc, hieu qua:
nguygn t i e nay cho phep cdng chile suf dung quyln life va ngudn life phue vu loi Ich chung. Cdng chdrc khdng sd dung sai quyln luc va lang phi ngudn life, c a c giai phap dua ra phai trgn co sd cd bang chiing rd rang de bao dam ngudn luc dang duoe suf dung tdt nhat.
Than trpng trong bao dam su dn dinh vl tai chinh. Nguyen tac hieu qua la CO sd quan trpng dd duy tri long tin ciia edng dan.
- Coi trong yeu to lanh dao: nguygn tac nay bao dam cho eae nha lanh dao trong cac td chiife nha nude thiie day va ung hd eae nguygn t i c eiia QTNN.
Nguyen t i c nay cung dbi hdi cac nha lanh dao phai cd tam nhin chien luge, cd tu duy chie'n luge vl QTNN va phat trien ngudn nhan luc eiing vdi nhChig ndi dung can cd de dat dugc muc tieu trong phat trien ngudn nhan lite dd.
Nhu vay, 7 nguyen t i c tren dIu cd sU Ugn quan den nhau, tao dilu kign va tang cudng Ian nhau.
3. QTNN la x u htfdng tat y e u cua cai e a c h h a n h chinh d n h i l u ni^clc t r e n thS' gidi
Trong nhilng nam dau thap ky 80 ciia the ky XX, khu vue edng da trai
qua mdt loat cai each nham vugt qua tinh trang khd khan, khung hoang.
Nhilu nude trong Td chile Hgp tac va P h a t trien kinh te (OECD) da tien hanh eai each hanh chinh (CCHC) de ddi phd vdi nhilng khd khan v l ehinh tri, kinh tg' - xa hdi dat ra d thdi diem dd.
Den giUa nhiMg nam 90 thd ky XX, md hinh QTNN (governance) hay QTNN tdt (good governance) dugc hinh thanh va phat trien vdi cac gia tri va nguygn t i e trinh bay d tren.
Day Cling dugc coi la chie'n luge cai each dugc nhilu nudc ap dung tren pham vi toan cau, dac biet la eae td chiie qudc td, nhu: WB, IMF, ADB..., coi cac yeu to cua QTNN nhu mot dilu kien, mot cam ket ciia eae nude dang phat trien trong cac chuong trinh tai trg ciia minh.
Ban chat cua nha nUdc tdn tai vdi hai chufc nang ed ban: eai tri va phuc vu vdi muc tieu la bao dam duy tri trat tu xa hdi va dap ufng eae nhu cau hgp p h i p cua eon ngUdi. Tuy nhign, de thue hien dugc cac chufc nang va thuc hien duge mue tigu dd, each thilc tU duy va each thUc quan ly luon dugc thay ddi vdi mong mudn dem lai higu qua cao ban. Vi vay, dii vdi tgn gpi
"hanh ehinh edng", "quan ly cdng mdi"
hay "quan tri nha nUdc" thi ban chaft v i n la chi cic cong viec cua nha nUdc va bd may hanh chinh phii qudn If, phai thuc hign, tuy nhien, sU khac nhau la d each thiife tig'p can va phuong thUc quan ly. Hanh chinh cdng (HCC) dugc tig'p can dudi gde do phap ly, quan ly edng (QLC) mdi tiep can dudi gde dp kinh td, cdn QTNN dugc tiep c&n dudi gde dp xa hdi. Do cich tig'p can khac nhau ngn phUdng thiic quan ly cOng ed nhilng diem k h i c biet.
TAP CHi QUAN LY NHA NU(3C - SO 223 (8/2014)
NGHIEN CUU - TRAO COI
Qua so sanh cac md hinh trong HCC {xem bdng cuoi bai) cho thay ro qua trinh phat trien cua eae mo hlnh hanh chlnh va sU khac nhau giOa chung.
Nhu vay, mdi md hinh boat dpng cua HCC dIu ed nhCfng ifu va nhugc diem nha't dinh. Md hinh HCC truyin thdng cd UU diem la tao ra sU dn dinh va trat tu nhung thig'u linh boat, nhilu tang na'c, kdm hieu qua. Mo hinh QLC mdi dUa trgn each tie'p can kinh te - ap dung cac yeu td eua thi trudng mang lai hieu qua kinh te cao trong quan ly nhung lai khong dap Ung dugc cac ygu cSu vl mat xa hdi. Md hinh QTNN kg't hgp duge nhOng yeu td ein thiet cda hai md hinh trudc dd va dugc coi la md hinh trudng thanh ban -n vita hudng den sU phat tridn b i n vitng, bao dam higu qua boat ddng cua bd may hanh chinh nha nude, vUa hudng tdi sU hai long cua ngudi dan va phdc Idi xa hdi.
Vdi nhitng Uu the nhu vay, QTNN dUge coi la xu the CCHC d nhilu nUdc tren the gidi, ca d nude phat trien va dang phat tridn trong ban hai thap ky qua.
4. Mpt so giai phap cd ban nh&m CCHC theo xu hi^dng QTNN
ThiC nhat, cdi cdch th^ chi nham xay dung vd hoan thien cdc vdn ban phdp luat, too mdi trudng phdp ly cho
QTNN CO the van hanh. QTNN chi cd thd van hanh dugc trong mot mdi trudng phap ly cd du cd sd cho cac gia tri va nguygn t i e cua no hinh thanh va phat trien. Do dd, xay dung va hoan thien t h i chd d nhilu nUdc duge thuc hign theo hudng bao dam dugc sU tham gia cua nhilu chu thd trong quan ly nha nude; bao dam cdng khai, minh bach; trach nhigm (bao gdm ca trach nhiem giai trinh) cua td chUc va ca nhan.
Tren thitc td, nhilu nude da xay dung va ban hanh cac van ban phip luat nhu Luat Bao dUc cong chUc vk Bp quy t i c Ung xuf cho cdng chUc, Ludt Tiip can thong tin, Luat ThUc thi cong vu... NhOng luat nay dugc coi la cdng cu hOu hieu de dua cac nguyen t i c eua QTNN vao trong cac td chUc nha nUdc.
Thu hai, xay dung cdc ca che bao ddm trdch nhiem ben trong vd ben ngoai to chiic. De bao dam trieh nhiem bgn trong td chiic, phai xac dinh va quy dinh rd cac trach nhigm cu thd g i n vdi timg vi tri cdng viec ma cdng ehUc dam nhigm. Trong nghign eOu va xac dinh trach nhigm d bat cd mdi quan he cdng vu nao cho ca nhan hay td ehOe dIu phai tra Idi duge ba cau hoi sau day: Trdch nhiem vdi ai'!
Ai la chu the cua trdch nhiem vd trdch nhiem vi vdn di gi?
Ngoai he thdng k i l m soat ndi bd, de bao dam trach nhigm vdi bgn ngoai (cd the vdi CO quan lap phap, edng dan), nhilu nUdc da xay dUng cd chd bao cao h i n g nam (ca bao cao tai chinh) cho CO quan lien quan; giao tiep vdi eae bgn lien quan thdng qua web- site va thanh lap cd quan kilm toin doe lap; tang cudng cie cude ddi thoai true tiep ciia cac co quan, cdng chde ed t h i m quyln. Ngoai ra, tang eudng phat huy vai trd cua cac td chOe ehlnh tri - xa hdi, cua cac td chOc xa hdi, eo quan bao chi, cac phuong tien truyin thong dai chung...
Thu ba, dp dung quan ly thUc thi theo ket qua (QLTTTKQ). Muc dich i p dung QLTTTKQ n h i m tang cUdng trach nhigm va kilm soat ket qua, hidu qua boat ddng cua td chute va ca nhSn.
QLTTTKQ bao gdm nhilu boat ddng cu the ma mgt to chOc p h i i thuc hien dd
TAP CHi QUAN LY NHA NU(3C - s 6 223 (8/2014)
NGHIEN ClJfU - TRAO D 6 | ap dung nhOng thdng tin khach quan
vao quan ly va hoach dinh ehinh sach n h i m eai thien ket qua boat ddng.
Quan ly thUc thi cdng viec sOf dung nhOng thdng tin "do lUdng" dugc dd phuc vu cho viec lap kg' hoach boat dpng va phan bd ngan sach. Thdng tin cang chat lugng cang giup cdc nha quan ly xac dinh duge nhOng thanh cdng, h a n che va cd bien phap can thiep phu hgp, tren co sd dd phuc vu nhan dan tdt ban.
QLTTTKQ dugc ap dung n h i m chuyen tO tU duy "kiem soat vide tuan thij cac quy trinh thu tuc" sang tU duy
"quan ly thuc hien cdng viec de dat duge kdt qua". Cach thOc quan ly tap trung vao "thuc hign edng viec" va
"kg't qui cdng vige" khien cho cac nha hoach dinh chlnh sach thay ddi tO vige quan tam tdi va'n d l quy trinh
"quyet dinh dugc lam nhu the nao"
sang kg't qua va tO vige quan tam xem bd may hanh ehinh nha nude chi tigu niiu thd nao sang quan tam tdi va'n dl bp may hanh chlnh nha nUdc lam dUde nhOng ^ .
b e trien khai QLTTTKQ toong khu vue edng, can: (1) Phat trien va suf dung eae cdng cu nhU: hgp ddng thUc thi (performance contract) hay ke hoach thuc thi (perfomance plan), trong dd lam ro eae ket qua can phai dat cung nhu cac ngudn lue, cdc hoat ddng... de ed the dat dugc ket qua da xac dinh; (2) Xay dung cac eo chd' phan hdi thdng tin va tiep nh|in thdng tin phin hdi, co chd giam sat va theo ddi viec thuc hien cdng viee; (3) Xay dung he thd'ng do lUdng va danh gia, trong dd bao dam xac dinh rd chu the, quy tiinh, chi sd danh gia, ke hoach phat trien ca nhan, he thd'ng chlnh sach vl khen thudng, ky luat; (4) Ap dung tra
luong theo kg't qua thuc thi cdng viec.
Thd tu, Ung dung manh me vd hiiu qua cong nghe thong tin trong hoat dong quan ly hanh chinh nhd nUdc. O nhilu nude, cdng nghg thdng tin dugc eoi la cdng cu hOu higu de ban chd tham nhung, nang cao tinh minh bach va trach nhigm cua cac co quan hanh chlnh nha nude, tfng dung cdng nghe thdng tin cd the dugc thuc Men thdng qua cac kMa canh sau:
- Cung ca'p cac loai thdng tin cda ehinh phu cho cdng dan, cac nha doanh ngMep ngay tai edng internet;
- Trao ddi thdng tin giOa chinh phd va cdng dan, cac nha doanh ngMdp, cac td chOc khac thdng qua mang dudi hinh thOe: e.mail; dudng day ndng, qua internet;
- Cung cap cac loai dich vu (dich vu hanh chlnh/phap ly) cho edng dan, doanh ngMep: dang ky kinh doanh;
giay phdp lai xe; tra thud; tra thanh toan cac dich vu khac; ddn dang ky khai sinh, khai tuf, ket hdn...
Thu nam, phdt trien vdn hod to chUc phu hap vdi cdc gid tri cua QTNN. c a c gia tri va nguyen t i c QTNN cM cd thd van hanh dugc trong mot mdi trudng van hoa td ehUc phii hdp. Vi the, trong qui trinh cai each, niiilu nude tap trung vao phat tridn van hoa td chde phu hgp vdi eae gia tri va nguygn t i c ciia md hlnh QTNN.
Trudc bet, mudn cai eich theo md hinh QTNN ddi hoi phai thay ddi van hoa quan ly va lanh dao. Ndi each khac, sU ap dung thaiih cdng md hlnh nay dua tren kha nang tao ra yeu td van boa lanh dao va quin ly hudng vao nhOng gia tri va nguygn t i c cua QTNN, nhu: minh bach, t r i c h nMem, ket qua va hieu qua... Trong mdt thdi
TAP CHi QUAN LY NHA NU^C - s d 223 (8/2014)
NGHIEN ClJfU - TRAO DOI
gian dai, cac td chOc hanh ehinh nha nude trong md hinh HCC truyin thd'ng da hinh thanh va tac ddng sau sic tdi hanh vi va ilng xuf ciia cdng chde nhU vige ap dung cac luat Ig tMch hdp, cac quy dinh va thu tuc, kidm soat eae ydu td diu vao; nhung trong md Mnh QTNN hudng ddn sU minh bach, tham gia, kdt qua va Mgu qui. Dilu nay ddi hdi eae nha quan ly va lanh dao phii thay ddi tu duy, phkt Men van dl, dua ra cac giai phip, bidt chap nhan riii ro va phat tridn eae phuong phap thUe Men phii hgp.
CMnh vi vay, can xay dung mdt van boa td chde, bao gdm ca van boa lanh dao, quin ly, tdn trpng cac gia tri lien quan ddn trach nhigm, sU tham gia, tuan thd phap Mat, kdt qua cdng vide...
va Idy dd lam dinh hudng hanh vi cua mdi ca nhan trong td chUc. Dong thdi, phai tao ra mot mdi trudng lam viee khuydn kMch su cdi md, dan ehu, tao dilu kign dd hieu biet va cMa se giup
dd Ian nhau, cac nha quin ly va cac thanh vign ludn cam thay tin tUdng l i n nhau, dl dang trao ddi cac quan diem va suy nghi vdi nhau. D l xay dung dugc moi trUdng lam vide vdi niiOng dac didm trgn, nhilu nUdc da xay dung quy chd v i n hda cdng sd phu hgp vdi tOng loai td chde va ap dung thd'ng n h i t trong pham vi cac CO quan hanh chinh nha nudcQ
Chu thick:
1. Derick W. Brinkerhoff and Jennifer M. Brinkerhoff , 'Governance Reforms and Failed States: Challenges and Implications', International Review of Administrative Sciences, Vol. 68, No. 4, 2002, pp. 511-531.
2. UNDP, Governance for Sustainable Human Development, A UNDP Policy Document, United Nations Development Programme, January 1997.
3. IFAD International Fund for Agricultural Development - executive boad- Sixty-Seventh Session (1999). Goad Governance Overview, Rome, 8-9 September 1999.
Bang: SO SANH CAC MO HINH TRONG HCC
Quan h$ nha nvC6c - cong d&n
Trach nhi^m giai trinh cda cac quan ch^c cao c&'p Cac nguyen t^c dinh hvCdi^
Tigu chf t h a n h cdng
Cac thuQC tinh chinh
Lo^i hinh quan h$
txiftng tac
HCC (tiep c$n phap ly)
Phuc tung Chinh tri gia
Phuc tung quy t^c Dau ra Khong thiSn vi Cil8ng che
QLC mdi (tiep c^n kinh te)
Ducfc phep lam K h d c h h ^ g
Kg't quS va hieu qua Kg't quS dku ra Chuygn nghigp hoA Uy quyln
QTNN (ti€^p c$n xa h^i) Giao quyln C5ng dan v^ cAc bgn tham gia
Gidi trinh, minh bach v^ tham gia
Tig'n trinh Ddp uTng Cong t^c
TAP CHi QUAN LY NHA NU(3C - S 6 223 (8/2014)
