NGHIEN CCfU-TRAO BOI ///
CAICACH THE CHE HANH CHINH 6 NUCfC TA DAP tJNG YEU CAU HOI
N H A P Q U O CTE*
Nguyen Ba Chien **
Tom tdt: Cdi each thechehdnh chinh (TCHC) nha nUdc Id mot trong cdc noi dungcua chUdng trinh tong the cdi each nen hanh chinh nha nUdc. Ket qua thUc hien cdi each thechenhUng nam qua d niidc ta cho thay, cong cuoc cdi each dang di dung hiidng, bUdc dau dUdc ngUdi ddn ghi nhan, dap jingyeu cdu cua sUphdt trien dat nUdc vd hoi nhdp quoe ti. Bdi viet phdn tich cdc dac trUng chu yeu cm TCHC, y nghia, yeu cdu vd cdc yeu to tdc dong den cdi cdch TCHC vd nhvtng noi dung cd hdn edn edi cdch TCHC d niidc ta.
Tiikhoa: cdi cdch thechehdnh chinh; hoi nhdp quoe te
Abstract: One of four contents of public administration reform is the reform of public administration reform. The results of institutional reform in recent years show that the reforms are on the right track, initially recognized by the people, to meet the requirements of national development and international integration. The paper is a systematic review of the institutional reform and the basic elements that need to be reformed in institutional reform in our country.
Keywords: institutional reform; international integration
Ngdy nhan hdi: 12/11/2017 Ngdy siCa bdi: 15/11/2017 Ngdy duyet ddng: 03/12/2018
1. The eh^ hanh chinh - Lich su(, quan hdi bang quyIn Iflc nha nfldc. "The chi nha nilm va sfl menh nfldc la nhflng quy dinh do nh4 nfldc xac lap Bat ky mot xa hpi nao cd to chflc d i u can de xac dinh cd c h i vdn hanh cua xa hpi, dieu den t h i che, va the che la bp phan khdng the chinh eae moi quan he xa hpi. Vai trd cua the thieu dfldc trong xa hpi, dd la quy tac van che nha nfldc la vd eiing quan trpng va khong hanh xa hdi. Trong xa hpi ed nha nfldc, ed t h i thilu dfldc vi nd duy tri on dinh va thuc thi che nha nfldc ben canh eae the che khac day xa hdi phap triln" [1]. Trong t h i che nha eua xa hdi. Trong he thdng the che cua xa hdi, nfldc, the che hanh ehinh (TCHC) la bp phan the che nha nfldc la bd phan trung tam, gifl chu yeu, tac dpng sau rpng va m^nh me den vai trd quan trpng nhat, la ndi the hiln va xa hdi, dfldc xa hdi va ngfldi dan ehu y nhilu thflc hiln quyIn Iflc nha nfldc, van hanh xa nhat, ed y kien phan anh nhieu nhat. TCHC
*" PGS, TS, Hieu trUdng TrUdng Dai hoc Noi vu Ha Ndi
" Bdi viet dUdc trinh bay trong Hoi thao khoa hoc quoe te " Vietnam Symposium on Leadership and Public Policy"
tai Hoc vien Chinh tri Quoe gia Ho ChiMmh, ngdy 30/10/2018
V X NGHIEN COU - TRAO D6I
la the e h l ve to chflc bd may quan ly va viec thflc hiln chflc nang, nhiem vu, quyIn han cua cd quan cd tham quyen trong hoat ddng quan ly va thflc hien giai quylt cac thu tuc nham bao dam quyen va nghia vu cua cdng dan va to chflc.
Hanh chinh dflpc hieu theo nghia "quan ly". Vi the, TCHC la the chi ve quan ly, la he thong eae quy dinh ve to chflc bd may va boat dpng quan ly do nha nfldc ban hanh va bao dam thflc hien. Vay nen, khi xa hdi cd boat dpng quan ly cua nha nfldc thi TCHC dflpc hinh thanh de phuc vu cho hoat ddng quan ly. TCHC gan liln vdi to chflc va hoat ddng eua nha nfldc va xuat phat tfl yeu cau quan ly xa hdi. Quan ly xa hpi la van de Idn va cung la van d l quan trpng nhat ddi vdi mot xa hdi.
Vi the, viec quan ly xa hdi cd hieu qua chinh la ylu cau va muc tieu quan trpng cua mdi qudc gia ma bat ky ngfldi dan hay cd quan, to chflc deu mudn hfldng tdi. De quan ly xa hdi nhat thiet phai ed TCHC, gom bd may va he thdng quy tac de thflc hien hoat dpng quan ly.
Quan ly xa hdi mudn cd hieu qua ddi hoi phai cd TCHC phu hpp vdi ddi song xa hpi, dap flng ylu cau cua sfl phat trien. Qua eae giai doan lich sfl cho thay, TCHC chi chu yeu de cap den vai trd bao dam sfl on dinh xa hdi ma chfla hoac It chii trpng den vai trd thuc day sfl sfl phat trien cua xa hdi. Tuy nhien, trong nhflng thap nien gan day, TCHC ben canh vai trd "thfldng trflc" bao dam sfl dn dinh xa hpi, cdn dflpc tang cfldng vai trd quan trpng la thuc day sfl phat trien xa hdi. Trong dieu kiln xa hdi hien nay, do sfl phat trien manh me eua cdng nghe thdng tin, cdng nghe sd va hdi nhap qu6c te sau rdng, TCHC ddi hdi
phai cd chat Iflpng, phu hpp va bao dam sfl linh boat, nang ddng dap flng qua trinh phat trien nhanh chdng cua ddi sdng xa hdi.
2. The chi hanh chinh - Nhflng dac trflng chu yeu
TCHC khac vdi cac loai t h i chi khac d nhflng dac trflng sau day:
- Mot la, TCHC la the che ve quan ly, bao gdm he thdng cac quy dinh ve to chflc bd may va hoat dpng quan ly do cac ed quan nha nfldc ed tham quyen ban hanh va td chflc thflc hien; eae cP quan, td chflc, ca nhan cd nghia vu thflc hien de bao dam muc tilu cua hoat dpng quan ly. TCHC gan vdi mot ben ehu the quan ly la eP quan nha nfldc cd tham quyen, mot ben la chu the bi quan ly, gdm cac eP quan, td chflc hoac ca nhan;
- Hai Id, TCHC bao gdm he thdng cac quy dinh ve td ehfle bp may va boat ddng quan ly vdi sd Ifldng rat Idn so vdi the che lap phap hay the che tfl phap. "Trong eae thiet che nha nfldc, bd may quan ly hanh chinh gifl vai trd quan trpng nhat: do la mot he thdng rpng khap cua cac td ehfle do cac quan chflc dflpc bd nhiem dieu hanh" [2]. TCHC la rpng Idn, da dang va phfle tap. Dilu nay dflpc quy dinh bdi ehinh ddi sdng xa hdi vdi rat nhilu linh vflc va nhflng moi quan he xa hdi cu the, ket ndi, dan xen va van ddng, phat trien khdng ngflng;
- Ba la, TCHC bao gom he thdng cac quy dinh ve thu tuc cu the, chi tilt va phflc tap.
Chinh yeu cau chat che eua hoat ddng quan ly ddi hdi nhieu thu tuc va sfl chat che eua thu tuc. Cac quy dinh ve thti tuc khi khdng cdn phu hdp yeu cau va thflc tien se la rao can ddi vdi vile thflc hiln, gay ton kem ngudn Iflc con
NGHliNCITU- TRAODdl -^^
ngfldi, vl vat chat va thdi gian thflc hien, can trd sfl phat trien;
- Bon Id, TCHC dflpc hinh thanh tren cd sd ylu cau cua hoat ddng quan ly, thay ddi do ylu cau cfla hoat ddng quan ly thay doi.
Nhflng TCHC thfldng thay doi chSm hdn so vdi sfl phat trien cua ddi sdng xa hpi. Ban than TCHC cung nhfl the che nha nfldc la do con ngfldi xay dflng nin, vi the cung khd tranh khdi yeu to chu quan. Khdng it the che cham thay doi so vdi thflc tien, do khdng dfl lieu hit dflpc thflc tiln cua eupe sdng. TCHC thfldng xuat hiln nhflng han che nhfl: cd nhflng ndi dung khdng phu hpp vdi thflc te, khdng dap flng dfldc yeu cau cua sfl phat trien va hdi nhap; nguon Ifle eon ngfldi va vat chat chfla dflpc sfl dung va phat huy tdi da hieu qua;
thilu ddng bd; thu tuc hanh chinh edn rfldm ra chfla phuc vu tdt cdng dan va td chflc, chfla phat huy day du quyen lam chu cua nhan dan.
Hien nay, mot sd TCHC trong cac linh vflc cu the nhfl: td chflc, nhan sfl, san xuat, kinh doanh, van hda, y te, giao due... cdn cd nhflng han che, bat clip.
3. Cai each the che hanh chinh - Ly do, y nghia va nhSng yeu can dat ra
The ehl nha nfldc ndi chung va TCHC ndi rieng thfldng khdng theo kip vdi sfl phat trien cua xa hdi, tflc la thfldng bi lac hau hdn so vdi xa hdi. Nhin tong the, ngay tfl trong tfl duy eua chu the xay dflng the che, yeu to thfldng trflc trfldc tien la xay dflng the che de van hanh cac mdi quan he xa hpi theo hfldng dn dinh, can bang. Yeu td md - thuc day sfl phat trien xa hdi thfldng it dflpc chu y bang va cung thfldng kho khan do he thdng cac quy dinh hien hanh ed lien quan da d trang thai
"dn dinh", cho du cd nhflng quy dinh khdng phu hdp hoac it phu hdp vdi xa hpi. The che nha nfldc cung nhfl TCHC la khdng t h i thilu dflde de van hanh xa hpi nhflng cung cd thi la rao can ddi vdi sfl phat trien xa hpi khi nd c6 nhflng quy dinh khdng phu hdp, nhat \k trong dilu kiln hiln nay, khi khoa hpc cdng nghe phat trien qua nhanh thuc day nhilu mli quan h i xa hdi khac phat trien theo. Cho nin, xu hfldng chung trIn the gidi hiln nay la thuc day cai each the che nha nfldc ndi chung va TCHC noi rieng, nham lam cho t h i chi phu hdp vdi yeu cau, tao dieu kien thuan Ipi cho sfl phat trien cua xa hdi; phue vu tdt nhu eSu va quyen Ipi cua cdng dan, td chflc.
Khi TCHC cd nhflng han chi, bat cap, khdng dap flng tdt yeu cau cua sfl phat trien trien xa hdi, van d l cai each TCHC dflpc dat ra. Khi TCHC dflpc cai each se cd y nghia v6 cung quan trpng la lam cho nd phu hdp vdi yeu cau cu t h i cua sfl phat trien xa hdi, tao dilu kiln thuan Idi cho cac cd quan, to chflc, ca nhan thflc hien eae quyen va nghia vu, tilt kiem chi phi ve thdi gian, ngudn Iflc t^i chinh, vat chat, con ngfldi cho vile thflc hien thi che, phat huy toi da ngudn Iflc phuc vu va tao ra nhflng cu hieh cho sfl phat trien xa hdi. Khi the che cd nhiing han che, bat cap, chi phi cho viec thflc hiln the e h l 1^ rat Idn. Dd la mot sfl lang phi ngudn Iflc Idn doi vdi xa hdi.
Trfldc ylu cau phat trien manh me cua dat nfldc, phat trien nen kinh te thi trfldng dinh hfldng XHCN, xay dflng va hoan thien Nha nfldc phap quyen XHCN, hdi nhap khu vflc vk qudc te, vile cai each TCHC can phai dap flng dfldc nhflng yeu cau ehu yeu sau:
- TCHC phai phu hpp vdi quy luat khach
VX. NGHIEN COU - TRAO B6I
quan cua sfl phat trien kinh te - xa hdi va hdi nhap, nhat la trong dieu kiln nin cdng nghiep 4.0 hiln nay;
- TCHC phai gdp phan quan trpng xay dflng bd may nha nfldc tinh gpn, boat dpng hieu Iflc va hieu qua, xay dflng md hinh "Nha nfldc nhd, xa hdi Idn", phuc vu cdng dan va td ehfle;
- TCHC phai gdp phan quan trpng sfl dung va phat huy tdi da hieu qua nguon Iflc eon ngfldi va vat chat phuc vu sfl phat trien xa hpi;
- TCHC phai thuc day vile phat huy day du dan chu trong xa hpi, dam bao quyen va Idi ich chinh dang eua cdng dan va td ehfle;
- TCHC phai phu hdp vdi thdng I | ehung ciia the gidi hien dai, tao dieu kien thuan Idi thuc day nhanh qua trinh hdi nhap cua Viet Nam vdi khu vflc va t h i gidi;
- TCHC phai bao dam tinh dong bd trong he thdng the chi nha nfldc va the ehl ehinh tri cua dat nfldc.
4. Cai each the che hanh chinh - Nhiing yeu to tac dpng va nhflng khd khan
TCHC khdng tdn tai ddc lap, tach biet ma cd quan he gan bd vdi the che nha nfldc ndi chung va the chi chinh tri ciia qudc gia. TCHC la the che ve quan ly, tdn tai trong mdi trfldng xa hdi, tac ddng din cac ddi tflpng quan ly, nhflng TCHC eung chiu sfl anh hfldng ma nd cd lien quan, gan bd. Cai each TCHC la de dieu chinh, thay ddi quy tac quan ly. Do dd, vile cai each TCHC ddi hdi phai tap trung vao nhflng ylu td tac ddng tren cac phfldng dien cua ddi sdng xa hdi thi viec cai each the ehl mdi cd nhilu cd hpi thanh cdng. Nhflng yeu td tac ddng chu ylu la:
- Mot Id, dUdng loi doi mdi cua Ddng
Dfldng loi ddi mdi cua Dang vfla la dinh hfldng vfla cd tac dpng Idn ddi vdi cai each TCHC. Cai each TCHC dfldc can cfl vao chu trfldng, nghi quyet cua Dang. Cd nhieu nghi quylt cua Trung fldng Dang lam cd sd dinh hfldng cho vile cai each the che nha nfldc ndi chung va cai each TCHC ndi rilng. Trong hdn 30 nam ddi mdi vfla qua, cac Van kien Dai hdi Dang toan quoe Ian thfl VI, VII, VIII, IX, X, XI, XII la ed sd quan trpng cho viec cai each TCHC nha nfldc. Trong nhflng nam gan day, cd nhflng nghi quyet rat quan trpng cho vile cai each TCHC nhfl: Nghi quyet sd 39-NQ/TW ngay 17/4/2015 cua BCH Trung fldng vl tinh gian bien che va cd cau \^i dpi ngu can bd, cdng chflc, viln chflc; Nghi quyet sd I8-NQ/TW ngay 25/10/2017 eua Hpi nghi Ian thfl sau BCH Trung fldng (khda XII) ve mot sd van d l v l tilp tuc ddi mdi, sap xep to chflc bd may cua he thdng chinh tri tinh gpn, hoat ddng hieu Iflc, hieu qua; Nghi quylt sd I9-NQ/TW ngay 25/10/2017 cua Hdi nghi Ian thfl sau BCH Trung fldng Dang (khda XII) v l tiep tuc ddi mdi va quan ly, nang cao chat Ifldng va hieu qua boat dpng cua cac dpn vi sfl nghiep cdng lap; Nghi quylt sd 27-NQ/
TW ngay 21/5/2018 cua Hpi nghi Ian thfl bay BCH Trung flpng Dang (khda XII) ve cai each chinh sach tien Ifldng ddi vdi can bp, cdng chflc, vien chflc, Iflc Iflpng vu trang va ngfldi lao ddng trong doanh nghiep...
Dieu kien tien quyet d l dfldng loi doi mdi cua Dang gifl vai trd dmh hfldng tot la dfldng loi dd can phan anh dung quy luat phat trien khach quan cua xa hpi, dfl bao tfldng lai. Khi dfldng loi, chu trflpng eiia Dang khdng phan anh dung quy luat khach quan thi khd cd the
NGHliNCOU- TRAODdl ///
cd sfl cai each the che nha nfldc ndi chung va TCHC ndi rieng cd chat Ifldng, dap flng dfldc yeu cau cua sfl phat triln xa hdi;
- Hal Id, sU dong bo cua cdi cdch the che nhd niidc
The che nhanfldebao gdm theehe lap phap, TCHC va the che tfl phap. TCHC khdng the tdn tai ddc lap, tach biet vdi the che lap phap va the che tfl phap. De cai each TCHC thanh cdng can phai dat nd trong tong the cai each the che nha nfldc, tflc la bao dam sfl ddng bd cua cai each the chi nha nfldc. Vi thi, sfl ddng bp cua cai each the che nha nfldc tac ddng rat nhieu den cai each TCHC. Chlng ban, cac quy dinh hanh chinh ve phdng ngfla va chdng tham nhflng dflpc cai each de bao dam sfl day du, chat che, phu hdp vdi tinh than ndi dung ma cac quy dinh cua phap luat hinh sfl hfldng tdi dd la tinh phdng ngfla tdt, ran de cao va sfl trflng phat nghiem khac khi vi pham;
- Ba Id, nhu cdu phdt trien ciia ddi song xa hoi
Nhu cau phat trien eua ddi song xa hdi vfla la muc tieu, vfla la ddng Iflc, va la ylu to tac ddng manh me den cai each TCHC. TCHC nham dieu chinh cac moi quan he xa hdi, bao dam sfl dn xa hpi va thflc day sfl phat trien xa hdi phu hpp vdi quy luat khac quan. Chinh sfl van ddng, thay doi, phat trien cua ddi sdng xa hpi la ylu to quan trpng nhat thuc day cai each the ehl ndi chung va TCHC ndi rieng.
Nhu cau ddi song cua ngfldi dan ngay cang cao, xa hpi cang hien dai, nen ngudn Iflc trong xa hpi ddi hdi phai dflpc sfl dung hdp ly va hieu qua. Vile thflc hien dan chu trong mpi boat ddng cfla ddi sdng xa hpi cung vi the ma thflc chat hdn. Trfldc thflc tien xa hdi nhfl vay
ddi hdi h i thdng TCHC phai dap flng dflpc nhu cau phat trien cua ddi sdng xa hdi, taio sir thuan tien trong mpi thu tuc hanh chinh, khai thdng ngudn Iflc, lay muc tieu phung sfl nhan dan, phuc vu dat nfldc la tren het.
Vdi sfl phat trien manh me cua cdng nghe so va cudc each mang Cdng nghiep Ian 4.0 da tao ra khdng it ap Iflc doi vdi qua trinh cai each t h i e h l ndi chung va cSi each TCHC noi rilng. Do vay, neu chung ta khdng ddn bit va thieh flng kip thdi vdi xu t h i ehung cua xa hpi vdi rat nhieu van d l khac nhau, trong do cd vSn d l v l cai caeh TCHC, thi the che nay se Igic h | u nhanh chdng so vdi xa hpi, khdng dap flng sfl phat trien ma cdn can trd sfl phat trien xa hdi;
- Bon la, hoi nhap khu vUc vd quoe te Hdi nhap khu vflc va qudc t l da va dang dien ra sau rdng tren eae linh vflc cua ddi sdng xa hdi. Qua trinh nay cung gdp phan tao quan trpng cho Viet Nam cd nhflng thu|n Ifli trong cong cudc xay dflng va phat trien dat nfldc. Mdi quoe gia tren the gidi hien nay ky ket hoac gia nhap rat nhieu dieu fldc qudc te. Die'u nay lam cho the e h l trong mdi nfldc cd nhflng thay ddi phu hdp, nhieu quy dinh phap luat trong nfldc dflde thay doi d l phii hdp vdi quy dinh va thdng 11 qudc te, trong dd ed nhflng quy tac ve quan ly. Ngoai ra, nhflng ddi mdi TCHC thanh cdng eua mot nfldc la nhflng bai hpc kinh nghiem cd gia tri tham khao tdt cho eae nfldc khac hpc tap trong viec ddi mdi TCHC. Xu hfldng hiln nay la mdi qudc gia deu quan tam, tich cflc tham khao, hoc tap kinh nghiem cai each the the ndi chung va TCHC ndi rieng cua nfldc dd.
"Khdng mdt dat nfldc nao ed the thanh cdng
VOfc. NGHliNCifU- TRAODdl
ve kinh te (trfl khi rat giau ve tai nguyen thien nhien), n l u khdng ehiu tiep thu tfl tfldng hay cua nfldc ngoai" [3]. Thflc tien hiln nay minh chflng rang, "Toan cau hda cd tac ddng den hau hit eae linh vflc quan ly cua chinh quyen tai hau hit cac nfldc, va han chi kha nang hanh dpng ddc lap cua cac chinh quyen qudcgia. Cai ngay ma nhflng quyet dinh quan trpng ve quy md va hinh thflc can thiep cua nha nfldc dflpc tien hanh mdt each biet lap ma khdng can tinh den nhflng phan hdi tfl t h i gidi ben ngoai hay d i n t h i gidi b i n ngoai daquardi"[4].
Khi thflc hien cai each TCHC, can quan tam den nhflng khd khan cua cai each TCHC.
Do la:
- Ban than he thong TCHC: He thdng the e h l nha nfldc ndi ehung va TCHC ndi rieng bao gdm vd van nhflng quy dinh cu the va trong nhilu trfldng hdp trd nen nang ne, qua tai nay lai cang nang nen hdn. Ngay trong mot linh vflc hanh chinh eiing bao gdm vd sd nhflng quy dinh cu the. He thdng cac quy dinh cu the nay cd mdi quan he gan bd, rang bupc nhau. Viec cii each TCHC la cai each he thdng quy dinh, bao gdm nhflng quy dinh cu the. Cai each nhflng quy tac quan ly cu t h i chiu sfl rang bupc eua nhieu quy dinh khac trong he thong TCHC. Dieu nay dat ra cho chu the thflc hien cai each trong nhilu trfldng hdp khdng biet nen bat dau cai each tfl dau, bat dau cai each tfl nhflng quy dinh cu the nao de cd the giai quyet mdt each hdp ly cac quy dinh cd lien quan nham bao dam sfl ddng bd cua cai each. Day cung chinh la khd khan cua cai each TCHC, can den nhilu thdi gian, cdng sflc va can phai giai quyet nhieu khd khan khi
thflc hien;
- Tam ly bao thu, ngai thay ddi cua can bd, cdng ehfle: Cai each TCHC do nhflng can bd, cdng ehfle cu the thflc hien. Neu can bd, cdng chflc cd tam nhin, cd mong mudn va quyet tam cai each thi cdng cudc cai each TCHC de thanh cdng. Thflc tien hien nay cho thay, ty 11 nhflng can bd, cdng ehfle cd thiln hfldng va mong mudn cai each TCHC chfla phii la phd biln n l u khdng mudn ndi la edn h^n ehl. D4y chinh la rao can va cung la khd khan Idn cho vile thflc hiln cai each hanh ehinh. Tam ly bao thu ed the do tam nhin han che, trinh dp han e h l hoac do Ipi ich ca nhan chi phoi hoac cung cd t h i do thieu ddng Iflc de thay doi.
"Tam ly ngai thay ddi dien ra kha phd bien, khdng chi ddi vdi nhflng ngfldi thflc thi cdng vu ma cdn ca ve phia ngfldi d4n, vi dd la yeu to tim ly ehung eua con ngfldi. Tuy nhien, ddi vdi nhflng ngfldi thflc thi cdng vu, tam ly ngai thay ddi rat dang quan tam, vi dd la nhflng chu the van hanh nen hanh chinh" [5], Khi mdt can bd, cdng chflc ed tam ly bao thu, ngai thay ddi thi khdng ed trang thai tich cflc trong vile ddng gdp y kien cai each TCHC, khdng quylt tam va khdng trien khai thflc hien tot nhflng bien phap, ndi dung de tien hanh eai each. Va mdt khia canh cung r3t quan trpng la trong trfldng hdp TCHC da dfldc cai each bang viec ban hanh nhflng quy tac dieu ehinh hoac nhflng quy tac mdi thi vdi nhflng can bp, cdng chflc cd tam ly bao thu, ngai thay ddi, van la rao can cho viec thflc hien cai each TCHC thanh cdng.
5. Cai each the che hanh chinh - Vai trd quylt dinh eua yeu t6 lanh dao, quan ly
Bat ky mdt cudc cai each nao mudn thanh
NGHliNCOU-TRAODdl jXf
cdng thi deu can yeu td dan dat. Yeu to dan dat thupc vl can bd lanh dao, quan ly. Vai trd cua yeu td lanh dao, quan ly la vd eiing quan trpng, mang tinh quylt dinh. Khdng cd ylu to nay thi cai each TCHC se khong thanh cdng.
Lanh dao, quan ly cang xuat sac thi eai each TCHC cang nhieu thanh cdng. Ylu td lanh dao, quan ly trong cai each TCHC the hien d nhflng khia canh quan trpng sau day:
- Tam nhin ciia ngfldi lanh dao, quan ly ddi vdi viec cai each TCHC: Tam nhin cua ngfldi lanh dao, quan ly gifl vai trd dinh hfldng cho viec eai each TCHC. Cai each TCHC tflc la thay ddi quy dinh hiln hanh, dieu chinh cho phu hdp vdi dilu kiln phat trien cua thflc tien. Trong dilu kiln xa hdi phat trien nhanh chdng nhfl hiln nay, hdi nh4p qudc te dien ra manh me, nhilu tinh huong bat ngd eua cudc sdng cd the dien ra cang ddi hdi tam nhin cua ngfldi can bp lanh dao, quan ly ddi vdi viec eai each TCHC lam cho the ehl thflc sfl phu hdp va dap flng ylu cau eua sfl phat trien;
- Nang Iflc to chflc cai each TCHC : Cai each TCHC ddi hdi phai ed k l hoach, cd sfl chi dao, sap xep bd may, nhan Iflc trien khai, tinh toan Id trinh hdp ly, phfldng phap va ky thuat phu hdp, bien phap g\ki quyet nhflng khd khan dat ra... Nhflng yeu td dd ddi hdi nang Ifle td chflc cua ngfldi lanh dao, quan ly ddi vdi cai each TCHC.
- Xay dflng nhflng chinh sach cu the phu hpp: Cai each TCHC la eai each nhflng quy dinh cu the ve to chflc va hoat ddng quan ly.
Dfldng Idi ddi mdi eua Dang ta la nin tang cho vile cai each TCHC, nhflng dfldng Idi cua Dang chu yeu ddng vai trd dinh hfldng ma khdng chi tiet, cu thi. Trong khi cac quy
dinh trong TCHC lai la sfl chi tiet, cu the cac chu trfldng, dfldng loi cua Dang. Vi vjiy, viee xay dflng va hoach dinh dfldng Idi cung can hfldng tdi tinh cu the, mach lac va tfldng minh. Cac quy dinh trong TCHC thflc chat la hinh thflc chfla dflng nhflng van de cu the trong td chflc va boat ddng quin ly. Viec cai each TCHC thflc chat la sfl dieu chinh nhflng chinh sach cu the cho phu hpp vdi dilu kiln phat trien khach quan ciia xa hdi. Cai each TCHC cin den nhflng chinh sach eu thi phu hdp vdi ylu cau cua sfl phat triln trong thflc tiln.
6. Cai cdch th^ c h i hanh chinh - M6t vai npi dung cd ban
Cai each TCHC la cai each nhieu npi dung quan trpng va rdng Idn, bao gdm rat nhieu linh vflc cu the. Vay van de dat ra la cai each bat dau tfl dau va can tap trung vao nhflng ngi dung cd ban nao? TCHC bao gdm td chflc b6 may va cac quy dinh ve quan ly. Cai each thi che trfldc het la eai each ve bd may quan ly.
Bd may quan ly phu hdp thi boat ddng quan ly mdi bao dam hieu Iflc va hilu qua. Cai each bd may quan ly can t?p trung vao nhflng khia canh sau day:
- Trfldc het la eai each cd cau td chflc cua Chinh phu. Chinh phu can dflpc cai each theo hfldng gpn nhe, boat ddng hieu Iflc, hieu qua. Chinh phii khdng the nang ddng va hoat ddng hieu Ifle, hieu qua neu ed cau to chflc cua Chinh phii cong kenh, nang ne, trung lap.
Chinh phu can dfldc xay dflng theo hfldng:
Chinh phu nhd, xa hpi Idn. Xu hfldng chung cua cac nfldc tren the gidi hiln nay la cai caeh td chflc bp may ciia chinh phii theo hfldng gpn nhe. d mdt sd nfldc cd nen kinh te phat
VSV NGHliNCCfU- TRAODdl
trien va cd ed cau td chflc bd may hanh chinh nha nfldc gpn nhe nhfl: Nga cd 21 bd; Phap ed 18 bd; Hoa Ky ed 15 bd; Dfle cd 14 bd;
Singapore cd 16 bd; Nhat cd 10 bd... Cac nfldc dang ed xu hfldng tien tdi viec td ehfle eae bd quan ly da nganh, da linh vflc. Van d l quan trpng can dflpc ehu y la td chflc bd may Chinh phu phai bao dam khdng bd sdt cac van d l eua ddi sdng xa hdi, can phai cd dau mdi quan ly va chiu trach nhiem, nhat la nhflng van de Idn cua dat nfldc. Can xac dinh rd pham vi gifla cac nganh, linh vflc vdi nhau de lam ed sd cho viec phan dinh chflc nang, nhiem vu, quyen han gifla eae bd, nganh. Viec td ehfle quan ly cac bd da nganh n l u khdng tinh toan ky se dan d i n tinh trang cd nganh, linh vflc khdng liln quan vdi nhau nhflng lai bi ghep mdt each khiln cfldng, phan khoa hpc thi ehac chan se bosit ddng khdng hieu Iflc, hieu qua. Do do, ehiing ta cd the tilp tuc thflc hien viec cai each ed cau td chflc cua Chinh phu theo hfldng hinh thanh bd da nganh, da linh vflc, cd pham vi quan ly rpng Idn hdn nhflng can phu hpp va khoa hpc. Chang ban, viec sap nhap mdt sd bd nhfl: Bp Giao due va Dao tao vdi Bd Khoa hpc va Cdng nghe thanh Bp Giao due va Khoa hpc; Bd Ke hoach va Dau tfl vdi Bd Tai ehinh thanh Bd Kinh te va Tai chinh; Bd Xay dflng vdi Bp Giao thdng van tai thanh Bp Giao thdng - Van tai va Xay dflng.
Cai each theo hfldng nay se giam 03 bd xudng cdn 19 cd quan ngang bd lam cho cd cau cua Chinh phu gpn nhe hdn, phu hdp hdn vdi xu the cai each hien nay. Bin canh dd, ehung ta cung cd the thflc hien viee cd cau lai td chflc bd may theo hfldng tinh gpn tfldng tfl d dia
phfldng dflpc sap nhap d l bao dam cd quan quan ly d dia phfldng dflde thu gpn hdn;
- De cd mdt Chinh phu gpn nh?, nang ddng, hieu Iflc, hieu qua, viec chi giam ed cau Chinh phu bang vile tang cfldng bd quan ly da nganh, da linh vflc la du. Dd mdi chi vl cd cau to chflc bd may. Chinh phu can tranh tinh trang 6m ddm qua nhieu vile, giai quylt nhieu sfl vu eu the. Chinh phu "cam lai" chfl khdng phai la "bdi cheo". Mdt nha nghien cflu nfldc ngoai da chi ra rang: "Chung ta can ed mdt chinh phu manh me, chac chin va rat nang ddng, nhflng qua that chung ta dflng trfldc sfl Ifla chpn gifla mdt chinh phii to xac nhflng bSt Iflc vdi mdt ehinh phu manh vi nd chi lam cai vile quyet dinh va lanh dao va giao viee thflc hiln cho nhflng ngfldi khac" [7]. Quan dilm ciia Dang ta ve ddi mdi Chinh phu, cac bp, nganh la: "Chinh phu, cac bd, nganh tilp tuc thflc hiln ddi mdi, kiln toan, sdp xep td chflc bd may theo hfldng tap trung vao quan ly vi md, xay dflng chien Iflpc, quy hoach, k l hoach, luat phap, ed che, ehinh sach" [7]. Can thflc hiln tdt nguyen ly: eang len tren thi cang it viec hdn, nhflng la viee vl md hdn va trach nhiem cang cao. D l Chinh phu khdng dm ddm nhieu vile thi Chinh phu cSn tap trung vao xay dflng va hoach dinh chinh sach la chu yeu. Khi Chinh phu va eae bd phai 6m ddm qua nhieu vile, nhieu sfl vu cu the se lam cho bd may va dpi ngu nhan sfl bi qua tai cdng viee. Dieu do se dan din he luy la he thdng bd may eua Chinh phu khd ed the hoat ddng hieu qua tdt nhat va nhiem vu xay dflng he thdng ehinh sach eung vi t h i ma khd ed the ed chat Iflpng tdt nham dap flng nhu CSM cao
NGHliN COU- TRAO DOI MT
sfl phat trien ddi sdng xa hdi hien nay.
- Phan dinh rd tham quyen (nhiem vu va quyIn ban) gifla chinh quyen Trung fldng va ehinh quyIn dia phfldng, gifla chinh quyen cap tinh, cap huyen va cap xa. Rd viee va rd tham quyen la yeu to quan trpng lam cho bd may quan ly boat dpng c6 hi^u Iflc, hieu qua.
Han che tinh trang mdt viec dfldc giai quylt qua nhieu cap ehinh quyln. Day eung ed the hieu la tinh trang chdng cheo vl tham quyln.
Tinh trang nay se dan den tinh hieu Iflc cua bd may bi ban ehl, hieu qua thap, lang phi ngudn Ifle trong xa hdi trong qua trinh giai quyet cdng viee. Khi phan dinh rd tham quyln gifla cac cap ehinh quyln gdp phSn quan trpng lam cho bd may quan ly khdng cong kenh, gpn nhe hdn, hojit dpng hieu Iflc, hieu qua hdn.
Xu hfldng chung eua cac nfldc trIn the gidi la thflc hien phan cap, phan quyen manh me tren cd sd cd sfl nghien cflu, tinh toan tflng linh vflc cu the cho phu hpp vdi dieu kiln lich sfl, phap ly va thflc tien cua mdi nfldc. Quan diem, dfldng loi doi mdi eua Dang la: "Ra soat nhiem vu, quyen han de phan cap, phan quyen manh me, hpp ly gifla Chinh phu vdi cac bd, nganh; gifla Chinh phu, cac bd, nganh vdi chinh quyen dia phfldng d l gdp phan tinh gpn bp may, tinh gian biln ehl, nang cao hieu Iflc, hieu qua hoat dpng; phat huy tinh chu dpng, sang tao, dl cao tinh than trach nhiem eua tflng cap, tflng nganh gan vdi cd che kiem soat quyln Iflc" [7].
- Cai each TCHC vdi nhflng yeu td chu yeu va quan trpng nhfl tinh gpn bd may, phan dinh rd tham quyen, day manh phan cap, phan quyen cung chfla du de lam cho bo
may quan ly boat dpng hilu Iflc, hieu qua neu thieu di sfl chuyen nghilp cua bd may. Mudn cd tinh chuyen nghiep cua bp may quan ly can chu trpng cai each che dp cdng vu, cdng chflc. Cai each che dp cdng vu, cdng chflc bao gdm nhieu ndi dung nhfl: day manh phan cap, ph&n quyen trong quan ly cdng chflc, gan tham quyln tuyen dung vdi tham quyln sfl dung; giam quy md cdng vu, sap xep to ehfle bd may gpn nhe, tranh chdng cheo; doi mdi c h i dp cdng vu, cdng chflc theo hfldng nang dpng, linh boat; xac dinh danh muc vi tri vile lam; hoan thien he thong tieu ehuan, chflc danh cdng chflc; nang cao chat Iflpng thi tuyen, thi nang ngach cdng chflc; de cao trach nhiem trong hoat dpng thflc thi cdng vu cua can bd, cdng chflc va gan che dp trach nhiem eung kit qua thflc thi cdng vu vdi eae che tai ve khen thfldng, ky luat, thang tien, dai ngp, dac bi$t la d l cao trach nhiem va thSm quyln cua ngfldi dflng dSu; tilp tuc doi mdi cdng tac danh gia can bp, cdng chflc; thflc hiln chinh sach ve phat hien, tuyen chpn, tien cfl, bdi dfldng, trpng dung va dai ngp ngfldi cd tai nang trong hoat dpng cdng vu; doi mdi cdng tac bd nhi?m cdng ehfle lanh dao, quan ly; kiln quyet thflc hiln chinh sach tinh gian bien che gan vdi cdng tac danh gia de nang cao chat Ifldng dpi ngu can bd, cdng chflc.
Cai each che dp cdng vu, cdng chflc bao gdm rat nhieu npi dung, nhflng suy cho eung, eon ngfldi van la yeu td quyet dinh den chat Ifldng va hilu qua eua n i n cong vu. Vi vay, eai each ehl dd cdng vu, cdng chflc can hfldng tdi xay dflng cho dflpc dpi ngu can bd, cdng chflc ed chat Iflpng, dap flng ylu eau phat trien xa
V X NGHliN CUfU - TRAO Ddi
hdi hien nay. Cd rat nhieu ndi dung can phai lam de xay dflng dflpc dpi ngu can bp, cdng ehfle cd chat Iflpng va cac npi dung nay cd mdi quan he gan bd vdi nhau. Tuy vay, ehung ta can tap trung hpn vao nhflng npi dung sau day: kiln quyet thflc hiln ehinh sach tinh gian bien che, chu trpng che dp dai ngp can bp, cdng chflc va kit hdp chat che vdi cdng tac danh gia can bd, cdng chflc; kien quylt thflc hien chinh sach tinh gian bien che de bao dam bd may gpn nhe, co cau va so Ifldng can bd, cdng ehfle hdp ly va cd dieu kien de thflc hiln tdt ehl dp dai ngp can bd, cdng chflc; thflc hiln tdt che dp dai ngp ddi vdi can bd, cong chflc de can bp, e6ng chflc yin tam va toan tam, toan y phuc vu n i n cdng vu, phung sfl To qudc, phue vu nhan dan; chfl trpng cdng tac danh gia can bd, cdng chflc, can chu trpng thanh tich, cdng trang, ket qua cdng tac cua can bd, cdng chflc va coi dd la thflde do ehinh d l danh gia pham chat, tam nhin, trinh dp, nang Iflc eua can bp, cdng ehfle. Day la khau kiem soat cac phfldng dien lien quan tfl dau vao, qua trinh va kit qua hoat ddng, cho den dSu ra ddi vdi can bp, cdng chflc, khdng nen thflc hien e h l dp cdng chflc sudt ddi, de tao sflc i eua cdng ehfle. Can cd chinh sach phu hpp de cham dflt nghe nghiep cdng chflc va chuyin sang nghi nghiep khae, tao dflpc "loi thoat" de cP cau lai va bao dam chat Ifldng dpi ngu can bp, cdng ehfle cao hdn...
Tdm lai, cai each t h i che ndi chung va eai each TCHC ndi rilng da va dang ngay cang trd nen la chu d l rat quan trpng, thu hut sfl quan tam eua cac chii the cd tham quyln, trach nhiem va eae td ehfle, ca nhan trong xa
hdi. Cai each TCHC chiu sfl tac ddng ciia eae ylu td khac nhau va chung gan bd mat thilt vdi nhau. De eai each TCHC thanh cdng ddi hdi tam nhin, dinh hfldng, nang Ifle to ehfle trien khai eai each the che, cd chinh sach cu the phu hpp nham dap flng yeu eau cua xa hdi hien nay khi ma kinh t l - xa hdi, cdng nghe thdng tin, cdng nghe so phat trien nhanh chdng va hdi nhap qudc te va khu vflc dang dien ra manh me.
TAI LIEU THAM K H A O 1. Luc thuc day manh me cdi cdch thi'chi nhd niidc. Tap chi Nghien cflu Lap phap, so thang 4/2016, trang 8.
2. David Held (2004), Cdc mo hinh quan ly nhd nUdc hien dai, Nxb Tn thflc, trang 230-231.
3. Vien Phat trien quoe te Harvard (1994), Viet Nam cdi cdch kinh te theo hudng rdng bay, Nxb Chinh tn quoe gia, Ha N6i, trang 62.
4. S.Chiavo-Campo va P.S.A.Sundaram (2003), Phuc vu vd duy tri: Cdi thien hdnh chinh cong trong mot the gidi canh tranh, Nxb Chinh tri qudc gia, Ha Noi, trang 3.
5. Vu Thi Hifdng Thao, Tdm ly ngai thay dSi - rdo cdn trong cdi cdch hdnh chinh. Tap chi T6 chflc Nha niidc, so 8/2012, trang 40.
6. Devit Axbot va Tet Gheblo (1997), Doi mdi hoat dong cua Chinh phu, "Nxh Chinh tri quoe gia.
Ha Noi, trang 90.
7 Nghi quyet so 18-NQ/TW ngay 25/10/2017 cua H6i nghi Ian thfl sau Ban chap hanh Trung fldng (khda XII) ve "Mot so van de ve tiep tuc doi mdi, sap xep to chdc bo may cua he thong chinh tri tinh gon, hoat dong hieu lUc, hieu qud".
