LUAN VE NOI HAM "CONG"
TRONG CHINH SACH CONG
BUI NGHIA**'
Tom tat: Ld mot trong so cdc khdi niem trung tdm, quan trgng bdc nhat cua chinh sack cong, tuy nhien, d Viet Nam, noi ham thuat ngS "'cong' cua ngdnh khoa hoc mdi me nay vdn con nhieu nhan thiic chiia that dong nhat. Phdt trien mot ngdnh khoa hoc noi chung vd chinh sach cong noi rieng doi hoi tdt yeu phdt xay ditng di/Oc mot he thdng khdi niem day du, ro rang, thd'ng nhat Do do, bdi viei ludn ban vi mot sd'phitang dien, bieu hien mdi nhdm Idm sdu sac them vi ban chat cua "cong' trong chinh sach cdng thong qua khdi qudt tit he thdng ly ludn, thitc tien van dong, phdt trien cua ngdnh khoa hgc non tre nay d Viet Nam.
TU khoa: Chinh sach cdng; ngi ham; thuat ngS "cdng'; Viet Nam.
Abstract: As one of the central, most important notions of public policy, the conceptualization of
"public" in public policy research in Vietnam is still far from consistent. Developing a general sciences and public policy in particular requires the necessity of building a complete, clear, unified conceptual system. Through theoretical summary and historical review of public policy in Vietnam, the article discussed some new aspects and expressions of '"public" in public policy, thereby clarifying and deepening the nature of "public" in public policy.
Keyword: Public policy; internal; the "public" concept; Vietnam.
NgAy nhan bdi: 12/12/2018; Ngdy si^a bdi: 05/01/2019; Ngdy duyet ddng bdi: 27/02/2019.
1. Sfl can thiet phai thao luan noi ham tit "cong" trong chinh sach cong d Viet Nam hien nay
Nhflng thanh tiiu eda qua trinh doi mdi dat nUde thdi gian qua eho tha'y chinh sach cdng ngay cang cd vi tri dac biet quan trgng trong quan tri qud'c gia du van cdn la nganh khoa hgc non tre, mdi me d Viet Nam.
Trong nghien eflu ve nganh khoa hgc nay, ngi ham tfl "cdng" cd vai trd la hat nhan, dinh hfldng, la he quy chieu chi phd'i va giiip nhan thflc nhidu ndi dung cdn lai d phUdng dien ly luan, thiic tidn cua chinh sach cdng. Tuy nhien, hien nay, ehinh sach cdng d nfldc ta v l n cdn tdn tai nhieu nhan thflc chfla thflc sfl rd rang, ranh mach ve ham nghia cua tfl "cdng" trong
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thuat ngfl ehinh sach cdng, tham ehi chUa that sfl thdng nha't, ddi nghich nhau d nhieu chieu canh. Cd the ke ra nhfl chu the cdng, muc tieu cdng, ngudn Iflc cdng, khu vflc cdng, phUdng tien, cdng eu cdng,...
trdng ehinh sach cdng - nhflng vd'n de von ra't cd ban phan anh ndi ham "cdng" trong khoa hgc chinh sach.
Do dd, de gidi nghien eflu va ca nha hoat dgng thflc tiln khi ban luan den
"cdng" trong chinh sach cdng cd dUdc nhflng nhan thflc mdi me va thd'ng nha't thi vide nghien cflu va lam ro ndi ham
"cdng" trong chinh sach cdng qua dat nd trong cae phUdng dien bieu hien da dang.
'"' NCS Khoa Chi'nh sach cong. Hoc vien Khoa hpc xa hoi; Giang vien Hoc vien chinh tri khu viic H.
NHAN LUC KHOA HOC XA HOI Q
LUAN VE NOI HAM "CONG" TRONG CHINH SACH CONG
n h i e u chieu, phong p h u cua cac vd'n de nhfl "chu t h e chinh sach", "muc t i e u c h i n h sdeh", "pham vi chinh sach", "ngudn lUc",
"phUdng tien chinh saeh",... cd y nghia vd ciing q u a n trgng, gdp p h ^ n kiem chflng, bd sung, h o a n t h i e n kho t a n g n h a n thflc ndi h a m "cdng" ndi rieng va trong khoa hgc chinh saeh cdng ndi chung.
2 . K h a o lUdc v e t h u a t ngi? " c o n g "
De l u a n giai ndi h a m tfl "cdng" t r o n g chinh sach cdng, trflde h e t can diem q u a cac q u a n didm, n h a n thflc cd t i n h k h a i q u a t nha't eua t h u a t ngfl nay. Q u a n g h i e n cflu, h a u het d i n h nghia eua t h u a t ngfl
"cdng" (public) t r e n eac t r a n g tfl dien trflc tuyen va tfl didn i n ciing nhU q u a n diem eua mdt sd' hgc gia deu ed each h i e u k h a thd'ng nha^t, c h a n g h a n nhU: Tfl dien triie t u y e n E n g h s h Oxford living Dictionaries thi cho rang: public (cdng) m a n g h a m nghia nhU sau: (i) Of or concerning the people as a whole (the hien md'i q u a n t a m chung eua ta't cua mgi ngUdi), (ii) Open to or shared by all the people of an area or country (phuc v u gia tri, n h u cau va Idi ich chung eua mgi ngUdi d k h u vUc, cdng dong nha't dinh). Of or involved in the affairs of the community, especially in government...
(nha'n m a n h , de cao t r a c h n h i e m vdi cdng ddng, dae biet p h a i la chinh phu)'^'.
T r o n g k h i do, tfl dien t r u e t u y e n C a m b r i d g e t h i n h a n m a n h : '^relating to or involvingpeople in general, rather tha nbeing limited toa particulargroup ofpeo pie..." (chu yd'u lien q u a n de'n va'n de t h u d n g n h a t , md'i q u a n t a m c h u n g c u a mgi ngUdi h d n Id de cap de'n v a n de rieng le, ca n h a n ) ; (ii) provided by thegovernment from taxes to beavailable to everyone (nha'n m a n h de'n t r a c h n h i e m eua c h i n h quyen/ e h i n h p h u cung ca'p gia t r i
Q NHAN LUC KHOA HOC XA Hdl
cho xa hdi tfl t h u e , h a y r g n g r a la cac k h o a n d d n g gdp c u a t o a n dan)^^'- D i n h n g h i a eda 2 t r a n g tfl dien ndi t i e n g n e u t r e n k h d t r i i n g h d p vdi q u a n diem c u a B r e n d a n M a r t i n , n h a n g h i e n cflu ddng thdi la ngudi s a n g lap td chflc Public World k h i d n g eho r a n g public: In general, and in most of the senses, the opposite of private..}^^ (tfle la, cdng d gdc do n h a n thtic c h u n g ludn tUdng p h a n vdi t u n h a n ) .
Tfl dien tie'ng Viet t h i cho r a n g , "cdng"
cd n g h i a la: (i) t h u g e vd cdng cdng, chung, cua mgi ngfldi"; (ii) Ldi leh n h a n dan...**' Bdn c a n h dd, d Viet N a m , "cdng" t h u d n g g a n lien vdi k h u vUc cdng ( k h u vfle n h a nUdc), ndi cd q u y e n Iflc cdng. T h e o do, k h u vfle cdng la k h u viie cd t a c dgng, chi phd'i, dieu ehinh, d i n h hfldng h o a t d d n g ciia xa hdi vdi n g h i a la p h a m vi r g n g nha't*^', vi
"ldi n h u a n xa hdi", d d n g thdi, "xay dflng, kien t a o m d t x a hdi nhfl m o n g mud'n cua eac n h a c^m quydn" nhU hgc gia Roland P a r e n t a u tflng k h a n g dinh*^*. T r o n g k h i dd, k h u vUc t u n h a n l a k h u vflc h o a t d d n g do t u n h a n q u y e t d i n h v a giai quydt eac va'n de cd b a n c h d ye'u t h d n g q u a cd che' t h i t r u d n g , deo duoi eac gia t r i cua
' " Oxford Dictionaries, Public, Oxforddictionaries-com, https://en.oxforddictionaries.com/defimtion/public.
'^' Cambridge Dictionaries, Public, Dictionary.
cambridge.org, https://dictionary. cambridge.org/
dictionary/enghsh/pubhc.
'^' Brendan M a r t i n (2004),The p a p e r "What is the public about Public services?". Public World
London, p g . l . ' '« Vien Ngon n g a h9c (I994), Til diin tiikg Viit,
N S I ^ i T s e . ' " " ' " ' ' ' ' " " ^ ' ™ '"*«"•>?>=• H^
'« lYong an phSm M sung Suppkmental Guidan.:e:
PublK sector defimuon duoc cong bo vao 12/2011 tS chflc IIA CThe Institute of Interna? AnH-l V k ? manh cac tS chflc cua kho ™ ? 4 " ' A"J°!J'S'''> " > ? "
mflc do; international ( q u o ^ t s r n , . f , > ' !* t (regional) vflng v M ! o c a l ) V a p h i o r ' ° ° ° ' < " " * ^ * '•' Bfli Huy Khien, Nguyin Thi Va u Quan ly c o ^ ,s^H cZln S o J ^ ^ , " " " " ^ f ° " > . H a n h c h I n h , H a N o i , t r . l l . ' ' " " ' > '"? "
$0 4-2019
BUI NGHL\
ban than cac td chdtc ^y hdn la hfldng dd'n gia tri chung, cho so ddng thanh vien khac cua xa hgi.
Nhu vay, nhin chung, tfl cac giac do tiep can trdn day, ndi ham tfl "cdng" cd each tidp can "md", "thoang" hdn vdi ham y la cua chung (nha nUdc, tap the, cdng dong, xa hdi, qud'c gia va toan cau); la hoat dgng sa dung quyen lac cong da dfldc tin nhidm, uy thac hoac thd chd hda, d6ng thdi, thdng qua s\i dung nguon lac chung nham giai quyet cac yeu cau, quan tam chung tren cd sd y mudn cda nha c^m quyen.
3. Noi ham tit "cong" trong chinh sach cdng tvi thiic tien Vi§t Nam
Cau hdi ludn dat ra la, lieu rang ndi ham tfl "cdng" theo each tie'p cdn phd quat da dfldc phan tich tren day van diing trong trudng hdp gan vdi nganh khoa hgc chinh sach cdng d Viet Nam? Dong thdi, vide khai quat hda ve ban chat eua thuat ngii "cdng" nhU tren heu ed ddp flng dUdc nhu ciiu nhan thflc mdt each d^y du, trgn ven, thdng nha't ve ban cha't cot ldi trong chinh sach cdng d nfldc ta hidn nay hay khdng? Do dd, p h ^ nay, tfl each hieu ve ngi ham "cdng" d mflc do phd quat, ngfldi vidt se lam rd ham nghia cda tii "cdng"
trong ehinh saeh cdng theo cac phfldng dien, khia canh hieu hien khae nhau. Tfl ddy, dac trflng cua chinh sach cdng vdi tfl each la nganh khoa hgc, la hoat ddng ed tinh thUe tidn se dUde nhin nhan mgt each c^ md, d^y du, khai quat va ddng thdi, kham phat ra cae nhan thflc mdi me ve m^t thflc tien, khoa hgc cua va'n dd nay hdn so vdi each tidp can nguyen ban va nhan thflc ban dau cda gidi nghien cflu.
3.L Mot so quan niem ccf bdn ve chinh sach cong
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Quan diem eua Thomas Dye (1972) thi cho rang "chinh sach cdng la bat ky nhiing gi nha nfldc lUa chgn lam hoac khdng lam". Dang luu y, ehinh sach cdng theo each tidp can cda Dye la san pham hanh ddng eua nha nUdc chfl khdng phai eua eac chu thd phi nha nUdc.
Theo nha nghien eflu William Jenkins (1978) thi: "Chinh sdch cdng la tap hdp cac quye't dinh hen quan vdi nhau dfldc ban hanh bdi mdt hoac nhdm cae nha hoat ddng chinh tri lien quan de'n Ifla chgn muc tieu va cac phUdng tien de dat muc tieu trong tinh hud'ng xdc dinh thudc pham vi th^m quyen"'''^. Quan didm cua Jenkins lam rd hdn nhieu ndi dung mang tinh ban cha't cua chinh saeh cdng. Dd la sfl md rdng ve chd the chinh sach cdng - nha hoat ddng chinh tri (ngoai the che, nha nfldc), xac dinh tinh hd thd'ng eua chinh saeh cdng - "tap hdp cae quye't dinh cd lien quan vdi nhau" va nhiLt la lam rd ca'u true eua ban ehinh saeh bao gdm muc tidu va phUdng tien thiic hien chinh sach.
Thomas (1985) ed quan nidm het sflc ngan ggn ve chinh sdch cdng: "Chinh saeh cdng la cai ma Chinh phu liia chgn lam hay khdng lam". Thomas eho rang nhiing hanh dgng ma Chinh phu lam hay khdng lam deu dfldc ggi la chinh sach cdng.
Ngoai ra, hai tac gia la Kraft va Furlong (2004) eho rang, chinh sach cdng la mdt qua trinh hanh ddng hoac khdng hanh ddng eua ehinh quyen de dap lai mdt vd'n dd cdng cdng. Nd dfldc ke't hdp vdi eac edch thfle va muc tieu chinh saeh da dfldc cha'p thuan mdt cdeh chinh thflc, cung nhfl cac quy dinh va thdng le cda
<" Michael Howlett and M. liamesh: Studying Public Policy: Policy Cycles and Policy Subsystems, Ibid, pg.6
NHAN LUC KHOA HOC XA Hdi Q
LUAN VE NOI HAM "CONG" TRONG CHINH SACH CONG
cac cd q u a n chflc n a n g thfle h i e n nhflng chfldng trinh'®'.
Tfl dien Tfl va ngfl Viet N a m cho r a n g
"ehinh sach la ehu trUdng va cac bien p h a p eua mdt dang phai, mdt chinh p h u trong cdc Hnh vUe chinh tri - xa hdi"*^'.
Le Chi M a i (2008) dUa r a each hieu ve t h u a t ngfl chinh sdeh cdng la t h u a t ngfl d u n g dd chi mdt chudi cae quye't d i n h h o a t ddng cua N h a nfldc n h a m giai quye't m d t vd'n de c h u n g d a n g d a t r a t r o n g ddi sd'ng k i n h te' - xa hdi theo m u c tieu xac dinh.
N h a n g h i e n eflu Nguydn Hflu H a i cho r a n g "chinh sdch cdng la ket q u a y chi chinh t r i c u a n h a nfldc dUde t h e hien b a n g mdt t a p hdp cac quye't d i n h ed lien q u a n vdi n h a u , bao gdm t r o n g do d i n h hUdng muc tieu va each thflc giai quyet nhflng va'n de cdng t r o n g xa hdi"*^''\
Tdc gia Dd Phii H a i (2017) "Chinh saeh cdng la mdt t a p hdp cac quyet d i n h e h i n h t r i cd lien q u a n cua D a n g va N h a nfldc n h a m lUa chgn muc t i e u va giai p h a p , cdng cu chinh sach n h a m giai quyet cae va'n de xa hdi theo mue t i e u tdng t h e da xac dinh"'^^'.
Trong b a i nghien cflu B d n vS khdi niem chinh sdch cong, tac gia Hd Viet H a n h vdi 7 each tie'p can chinh sach cdng ta goc do quyen lac trong sa so sdnh vdi chinh sdch tl/ da cung ca'p n h i e u n h a n thflc mdi me, cd t i n h gdi md cao ve chinh sach cdng g a n vdi thflc t i e n Viet N a m . T r e n cd sd tie'p cdn do, tdc gia cho r a n g : "Chinh saeh cdng la nhiing quye't dinh cua c h u t h e dUde t r a o quyen lUe cdng n h a m giai quye't cac v a n de ve ldi ich c h u n g cua cdng ddng"*^^'.
Tfl dd, cd t h e k h a i q u a t mdt so va'n de cot ldi eua chinh sach cdng n h u sau:
Mgt Id, e h i n h sach cdng t h u d n g dUde g a n vdi v a i trd cua ehu t h e n h a nude. Tuy
Q NHAN LUC KHOA HOC XA HM
nhien, p h a m vi ve c h u t h d c h i n h saeh cdng d a n g ed x u hUdng dUdc "ndi long", md r g n g c h a n g h a n nhU ed t h e m eac d a n g c h i n h t r i . Hai la, t i n h tai: y e u r a ddi c u a c h i n h sdch cdng n a o ciing ve cd b a n tfl n h u c a u giai quye't eac va'n de cdng didn r a t r e n eac phUdng dien ddi sd'ng xa hdi.
Ba la, chi'nh s a e h cdng l u d n dUdc k e t ca'u c h a t ehe, it nha't p h a i t h e h i e n r o t i n h m u c dich, ndi d u n g va cae bien p h a p thiic t h i d a m b a o h i e u q u a eua e h i n h s a c h ay.
3.2. Nhan thac ve ngi h&m ta "cong"
trong chinh sdch cong qua cdc phUOng dien bieu hien khdc nhau
a) "Cong" bieu hien d khia canh chu the chinh sdch cong
C h u t h e chinh saeh cdng dUde hidu d khia canh la ea n h a n , td chflc va p h a p n h a n cd tac ddng m a n g t i n h quyet dinh, chi phdi, a n h hfldng de'n cua t o a n bd vdng ddi ehinh sach. Xac d i n h c h u a n xac c h u t h e chinh sach cdng h i e n n a y la eau hdi v a t r a n h luan Idn cua eac n h a nghien eflu. Dieu dfldc coi la nguyen n h a n , xua^t p h a t diem cda cac t r a n h luan bdi cac q u a n diem k h d n g dflng t r e n cung mgt phfldng dien dd tfl duy, h a y ldi tiep can hoac p h a m vi tie'p c a n khdng gid'ng n h a u nhUng hdn ca cd le ehUa n h d n thflc rd rang, thdng nha't ve b a n c h a t ve "cdng"
trong ehinh saeh cdng (trfldng hdp n a y p h a n a n h thdng q u a chu the chinh sdch).
'«> Dang Ngoc Loi (2015), ChCnh sdch cdng d Viet Nam:
Ly luan va thUc tien, http://wwwl.napa.vn, http://wwwl.napa. vnfljlog/chinh-sach-cong-o-viet- natn- ly^luan-va-thuc-tien. htm, dang tai: 24/4/2015.
N x ^ T r H J c M ^ r S t ? 2 g " '' - ^^ ^-^ ^^-'
:2S2i;^N2?srts-^^
'-'Do Phu Hai (2017), Tong quan vTch^l '.'•?• .^^•
Nxb. Chinh tri quoc gia su thlt, Ha N J f f m ' " " ' '
"^'Ho Viet Hatih (2017), "Ban ve-kL^-''-'" C^"
c o n g , ^ c « ^ „ , ^ . , » 4 ^ - ^ « * . ^
sOVzoig
BUI NGHLV Tha nhat, chu thi ehinh sdch cong co
the Id cdc to chac, phdp nhan trong khu vac ta vdi day du gid tri, loi ich chung cua to chac ay daoc xem xet trong moi quan he taong quan vdi gid tri, lai ich trdi ngUdc md to chac ay hadng den. Neu tie'p can ngi ham "cdng" vdi tfl each la dat dfldc cac muc tieu chung, nham phuc vu so ddng thanh vien trong td ehflc bieu hidn dudi cae dang ldi ich cae nhdm, ldi ich tap the,... thi chu the cua chinh saeh cdng ci phUdng dien nay cd the la cd quan, ddn vi vdi cac ten ggi nhU cac loai hinh doanh nghidp (chUa ban de'n doanh nghidp nha nUde), cdng ty, td chflc xa hdi (chinh thflc, phi ehinh thfle), td chflc xa hgi nghe nghiep, to chflc nghe nghiep, tham chi la cac thiet che' tdn giao,....
thudng ham y tdn tai trong khu vflc tU
"private sector" cung chfla dflng chinh sach vdi nghia "cdng" nhfl vay... Chang han, Cdng ty da qud'c gia X cd giai phap cai thien ddi sd'ng vdt cha't, tinh than cho ngudi lao ddng thdng qua tang tien/ sua't an trua, td ehfle hoat ddng van hda - van nghe, hay Tdng Cdng ty H cd chd trUdng huy ddng ngudn liie, xin cd ehe', chu trfldng ehinh quyen dia phUdngde xdy dflng thiet che xa hdi cho cdng nhan (nha tap thd, nha tre va khu the thao,...). Cau lac bd A cd ehu trUdng va da kien quyet thuc hien tie't kiem chi tieu, keu ggi gdp vdn tfl hdi vien, ung hg cua manh thUdng quan de hd trd cho hdi vien ngheo vay tin dung de phat trien kinh td', lam giau chinh dang.
Co the tha'y, d each tie'p can nay ve chu the, trong chflng mflc nao dd, cac chinh sach eda Cdng ty X, H, Cau lac bd A (du ton tai trong khu vUc tU) song cung cd the goi la chinh saeh cong, "cdng" hieu theo Sd4-Z019
nghia vi da hUdng den ldi ich cua tap thd, so' ddng eda ndi bd cda td chflc. Mac khae, cac chu thd d gdc do nay tuy khdng nam gifl quyen liie nha nfldc ma ddn thuan chi dfldc uy thac, tin nhiem, ung hd eua thanh vien trong td ehflc do, cd the khdng dUde tie'p can, sd dung ngudn lUc qud'c gia, muc tieu khdng han hUdng de'n phuc vu cho ddng dao cdng chiing, cdng ddng, xa hgi nhUng eac quye't dinh, chinh sach ay lai anh huSng, mang lai gia tri cho phan Idn thanh vien cua to ehflc a'y. Vdi each tu duy mdi nhu vdy, chu the chinh sach cdng se dUdc md rgng va da dang hdn so vdi cdeh nhan thflc nhfl hien nay va phan nao cung phan anh day du, trgn ven hdn ndi ham tfl "cdng".
Tha hai, chu the chinh sdch cdng ton tai trong khu vac cdng vdi sa dot lap ve muc tieu, cong cu, phadng tien vd nguon lac doi vdi khu vUc tU
C) gdc do nay, ehu the ehinh sach cdng dUdc phan da so cdc nha nghien cflu hien nay nha't tri, cae tai lieu nghien cflu tai Viet Nam thfldng xuyen de cap, bao gdm nha nUde vdi tU cdeh la ngUdi nam gifl quyen cdng, dai dien cho khu vUc cdng so vdi khu vUc tU. Tuy nhien, trong gdc do ndy, cung xua't hien 03 nhdm chu the chinh sach cdng ra't khac nhau, phan liet kha rd rang va vi vay da phan anh tinh phong phu, da chieu khi nghien cflu ve chu the chinh sach cdng cung nhu phan anh tinh "cdng" eda chinh saeh cdng. Cu the:
Mot la, chu the duy nha't cua chinh sdch cong la nhd nadc
Vdi vi tri, vai trd la trung tam trong he thd'ng chinh tri ndi chung, dd'i vdi chinh sach cdng, cac nha khoa hgc, nhd't la gidi khoa hgc phUdng Tdy (da dang chi'nh tri, NHAN LUC KHOA HOC X A H O I [ Q
LUAN VE NOI HAM "CONG" TRONG CHINH SACH CONG nhieu dang dd'i lap) deu cho rang day la
ehd the duy nhat trong vdng ddi ehinh sach, dac biet la khau ban hanh chinh saeh. Su tham gia eua eac dd'i tUdng khac ngoai nha nU6e (dang ehinh tri, to chflc chinh tri xa hdi, xa hdi dan su,...) thudng khdng dUde cdng nhan la ehu the cua chinh sach. Chi duy nha't Nha nUdc vdi day dd 03 nhanh quyen nang, he thd'ng bd may cdng quyen va ddi ngu nhan sU hung hdu, dUdc nhan dan dy thac trach nhiem trUdc xa hdi, dan tdc mdi ed toan quyen trong viec quye't dinh, to chflc thflc thi, danh gia, giam sat toan bg qua trinh giai quye't cac va'n dd phat sinh eua ddi sd'ng xd hgi bang ehinh sach cdng.
Hai Id, chu the cua chink sack cong con CO ddng chinh tri cam quyin
Tie'p can quan diem nay, nhieu nha hgc gia, chinh khach, chuyen gia (nha't la eac nfldc thudc ehe do ddn dang, dang ehinh tri la dang cam quyen, hinh thfle chinh thd nha nfldc la nha nfldc ddn chu xa hdi ehd nghia), ngoai nha nfldc vdi vai trd trung tdm cda he thd'ng chinh tri thi vai trd "hat nhan" cua dang chinh tri cam quyen lanh dao nha nfldc va xa hgi cung dUde thfla nhan la chu the "gian tie'p" cua chinh saeh cdng. Cac dang ehinh tri cam quyen trong trudng hdp nay deu thdng qua phfldng thflc, cong cu lanh dao nha't dinh eda minh de "hda thdn" toan bg vao hoat dgng eda nha nfldc, trong do cac hoat ddng trong chu trinh chinh sdch. Vi vay, eac muc tidu chinh tri cua dang cam quyen (hudng de'n giai quye't vd'n de cdng theo quan diem eua dang cam quyen), trong dd cd giai quye't cae van de cua chinh sdch cdng dUdc thiic thi bdi nhd nUde du each Q ] NHAN LUC KHOA HOC XA HOI
nay hay each khac deu hi chiu tac dgng, chi phd'i, dinh hudng, ddn dat bdi dang chinh tri cam quyen.
Ba la, chu. the cua chinh sdch cong rgng nhat Id phdp nhan cong quyen
Dieu nay cung ed nhidu quan diem ddng tinh, khdng chi dflng lai gdc do ly luan ma tren ca thUe tidn. Neu tie'p can phUdng dien chu the ehinh sach cdng la phap nhan cdng quyen, tfle la chu the thoa man cae dieu kien cd ban sau: (i) Do cdc ccf quan nhd niCdc co tham quyin thdnh lap theo trinh ta, thu tuc luat dinh (ham y cd doi ngu. nhan sa chu chot dacfc nhd nUdc bo nhiem); (ii) Sa dung nguSn lac quoc gia; (Hi) Nhan danh nhd niidc, sa dung quyen ndng nhd nUdc nhdm qudn ly, phuc vu xd hgi d mgt so phdn linh vUc, hoan thdnh nhiem vu nhat dinh nao do. 0 Viet Nam, each tie'p cdn nay cho tha'y ehd the chinh sach cdng la r^t rgng va khd day du, ed the dUde chia thanh cac nhdm ehu the sau:
Chu the la cac cd quan trong he thd'ng ehinh tri:
+ Cd quan Dang Cdng san Viet Nam tfl Trung Udng dd'n dia phfldng;
+ Cd quan quan ly Nha nfldc (cd quan thUe hien chflc nang lap phap, cd quan thuc hien chflc nang hanh phap, cd quan tu phap);
+ Cd quan la td chflc chinh tri - xa hdi nhu Mat tran Td qud'c Viet Nam, Doan TNCS Hd Chi Minh, Hdi Lien hiep Phu nfl Viet Nam, Hdi Ndng ddn Vidt Nam, Hdl Cflu chie'n binh Viet Nam, Hdi Ndng dan Viet Nam, Tdng Lien doan Lao ddng Viet Nam.
- C h u t h e - l a c a o d c n v i s u n g h i g p e o n g l&P (trUdng cong. benh vien cong, cong ty dich vu cong ich,...) khong CO chflc nang
Sa«-2019
BUI NGHL\
quan ly xa hdi, chi ed nhidm vu cung ca'p dich vu cdng ich eho xa hgi.
- Chd the la thflc the kinh td' cd vd'n nha nfldc. Tuy thiic hidn hoat dgng kinh doanh, song sd hflu vd'n thanh lap cd mdt p h ^ tai san nha nUdc va hoat dgng chidm gifl nganh nghe, linh vUc trgng yeii cua sa hdi, phuc vu nhidm vu ehinh tri la cdng cu didu tid't vi md cda nha nUdc, cung ling hang hda, dich vu thiet yeu, cd ban cho xa hdi (dudi hinh thflc doanh nghidp nha nUde).
NgUdi vid't cho rang, viec xem xet ndi ham "cdng" trong chinh sach cdng d phUdng dien khach thd chinh saeh cdng la each tie'p can mdi, dang suy ngam. Dieu nay cd the li giai bdi le, cac gdi y neu tren vda cd tinh khdi quat, dam bao tinh he thdng, tdn trgng gia tri khoa hgc ehinh sach cdng trUde do, nhUng cung rd't thuc tidn, cap nhat bdi quan diem, nhan thflc nay phan anh toan dien, day du ban cha't td "cdng" trong ndi ham chinh saeh cdng hien nay d Viet Nam.
b) "Cong" bieu hien d khia canh Id khach the chinh sdch cong
Dflng d gdc do nay cung phan anh ro ndi ham cua tfl cdng trong chinh sach cdng. Chinh sach cdng la ban chfldng trinh hanh ddng cd tinh hfldng dich va hudng d^n khach the rd rang. Dd la thflc trang xa hgi, van de bflc thiet, cd'p bach, khd lu6ng (ggi chung la va'n de chinh sach cdng) de dga de'n sU tdn tai va phat trien on dinh, ben vflng ed the d mdt nhdm dan cu dia ban nha't dinh nhU mdt ddn vi hanh chinh, vflng, khu vflc, vdi tap the thanh vien, ddi vdi cdng ddng ngUdi, xa hdi hay rgng ra la vdi qudc gia, dan tdc va nhan loai,... Dd cung cd the la khoang trd'ng, chenh nhau ra't Idn gifla nhu eau,
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mong ddi, ky vgng va thiic trang thiic td eua xa hgi khdng the dap flng va can phai cd su hanh dgng tieh ciic, thiet thiie cua cd quan ehflc nang dd giai quyd't.
c) "Cong" bieu hien d khia canh pham vi tdc dgng ciia chinh sdch cong
Dieu nay nha'n manh mflc do cua sfl tae ddng, chi phd'i ma chinh saeh cdng phan anh thdng qua bidu hien ve pham vi, quy md, cd'p bac,... Thdng thudng, pham vi tae ddng, anh hudng cua chinh sach didn ra d eac cap do nhU sau:
Mgt Id, pham vi qud'c gia vd qud'c te'.
Day la each tie'p can vdi nhan thflc mdi rang ehinh sach cdng khdng ehi tdn tai trong khdng gian lanh thd qud'c gia ma vUdt ra tam khu vUe, qud'c te dat trong bd'i canh toan c^u hda hidn nay cung la phu hdp. Thuc td hien nay eho thd'y, xet trong pham vi qudc gia va qud'c te thi ngay khia canh qud'c te eung dang doi didn vdi cac vd'n de ehinh sach cdng rd't Idn, can cd thid't che' qud'c te vdi tidm luc, cdng phap qud'c td',... de ed the giai quydt eac vd'n de toan eau, phiic vu nhan loai.
Hai la, pham vi trung Udng va dia phUdng. Chinh sach cdng khdng chi xua't hien d trung Udng, giai quye't cac vd'n de pham vi qud'c gia ma eung ed the va phai xua't hien, la cdng cu dieu tiet, quan ly xa hdi d dia phUdng vdi pham vi nhd hdn va ea'p bac hanh ehinh tha'p hdn. Dieu nay xda bd nhan thflc cho rang, ehinh saeh cdng la cdng cu, san pham cua ehinh quyen trung Udng, giai quye't vd'n de qudc ke dan sinh qud'c gia ehfl khdng phai va khdng the la cdng eu quan ly, khdng the xua't hien d chinh quyen dia phfldng.
Thdng qua pham vi cua chi'nh sdch cdng cung mdt phan phan anh ban chd't cua tfl
"cdng", ngi ham cda chinh sach cdng.
NHAN LUC KHOA HOC XA HM Q
LUAN VE NOI HAM "CONG" TRONG CHINH SACH CONG d) "Cong" bieu hien d khia canh nguon
lac chinh sdch cong
Dd la ngudn Iflc cong. Ngudn Iflc cdng cd the hieu la toan bd cd sd vdt chat - ky thuat cua xa hdi dd do nha nfldc dd tao dflng, quan ly va sd dung va dai didn sd hflu, la ngan saeh qud'c gia ed dfldc tfl sfl ddng gdp dudi dang thue, sac thud' va tai nguyen thien nhien cua qud'c gia, ngudn nhan luc cua qud'c gia do.... Tat ca tao nen ngudn liic to Idn cua chinh sach cdng.
Dieu dae biet d day ehinh la ngudn gdc tao ra ngudn lUe (phd bie'n, ehd yd'u nhat la ngudn luc tai chinh hay tai chinh cdng) chinh la sU ddng gdp eua toan xa hdi thdng qua thue', le phi, phi, ddng gdp tU nguyen, tai trd,... hinh thanh ngan sach qud'c gia. Dd giai quye't cac van de chinh sach, chu the ehinh sach vdi tu cdch dUde thd che hoa va dUdc trao quyen cd the dai dien sd dung ngudn lUc nay giai quye't hieu qua eac va'n de xa hdi phat sinh, phuc vu. td't eho xa hgi, vi sii phat trien eua xa hdi. Quy trinh nay la su khep kin, bat dau chinh la nguon lUe trong dan, thdng qua chinh sdch cdng ma tr6 lai phuc vu ldi ich, yeu cau chinh dang cua nhan dan, xa hdi.
e) "Cong' bieu hien a khia canh cong cu, phU(fng tien cua chinh sdch cong
Mdt trong nhflng bieu hien quan trgng, phan anh ndi ham cua tfl cdng trong chinh sdch cdng chinh la thdng qua cdng cu, phfldng tien chuyen ehd va to chflc thflc thi ehinh saeh. Chu ye'u gdm:
Mgt Id, he thong phdp luat. Ddy la hinh thflc bieu hien cua ehinh saeh, la vat chuyen chd ehinh saeh de dam bao chinh sach cd tinh quy pham, dfldc thfle hien nghiem tuc, thd'ng nhd't, hieu lUc, hieu qua tren thflc te'. Suy cho cung, he thd'ng Q l NHAN LUC KHOA HOC XA HOI
phap luat la be dd cho chinh sach cung xua't phat tfl xa hdi, vi xa hdi. Bdi le, cac cd quan quyen lUc, cd quan thiie thi quydn hanh phap, cd quan tU phap nha nude tfl trung Udng de'n dia phfldng deu dUdc nhan dan, xa hdi uy thac quydn lUc, thay mat nhan dan giai quye't va'n de xa hdi, phuc vu nhdn dan. Do vliy, tinh
"cdng" thd hien d chd he thd'ng phap ludt chuyen chd chinh sdch cdng la hd thd'ng phap luat ban tinh nhan van cao, quy tu d tinh eua nhan dan, do nhan dan va vi nhan dan.
Hai Id, quyen lac cong vd thiet che kem theo. Ben canh he thoiig phap luat, quydn luc cdng va eac thiet ehe' kem theo (nha nude, nha tii, quan ddi, cd quan dieu tra, he thd'ng cd quan cdng quyen,...) cung phan anh ro ndi ham
"cdng" trong chinh saeh cdng. Quydn lUc cdng la quyen lUc nha nUdc, la ket qua da'u tranh eua giai ca^p, lUc lUdng ddi khang trong xa hdi ed mdu thuSn, phan chia dd gianh ehinh quydn va thflc hien mue tieu ehinh tri, khat vgng cua giai tang dd. Dd'i vdi nha nfldc xa hdi chu nghia, quyen lUc cdng la kd't qua da'u tranh cua nhan dan lao ddng, quang dai quan chiing vi xa hdi, che do tie'n hd vd nhan van. Chu thd quyen Iflc td'i eao a'y chinh d nhdn dan, xa hdi dUdc uy thac cho nhdm nhan su dai dien nam gifl, sd dung va phuc vu nhan dan va xa hgi. Doi vdi chinh sach cdng, quyIn luc cong dUdc sd dung lam phUdng tien dd dam bao eac van de xa hgi, khat vgng, ygu edu, ddi hoi ehinh dang, eac muc tieu ehinh tri, y chi cua nhan dan dUdc hien thue hda mdt each nghiem tuc. Quyen luc nha nude la quyen lUc eua nhan dan va vi vay nd phai dudc sd dung mdt each thich hdp dd
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BUI NGHLA phuc vu nhan dan, phai la be do cho
chinh sach cong.
f) ^Cdn^' biiu hien d khia canh trgng track doi vdi hieu qua chinh sdch cong
Ban cha't tiif "cong" trong chinh sach cong ngoai viec dildc hieu hien tron ven diia tr§n cac phUdng dien neu tren con dildc bieu hien cf mot khia canh m6i me, do chi'nh la trong trach do'i vdi hieu qua chinh sach cong. Chu the chinh sach cong la ngilcii dUdc trao quy^n, nguon lUc va d^y du cd che de co the quyet dinh, thay mat xa hoi giai quyet van de ma xa hoi dang dUdng dau, gap phai va tham chi co the noi do la vlin menh cua cong dong, quoc gia, dan toe. Do do, tinh "cong" con dildc the hien 6 diem do la chu the chinh sach phai chiu trach nhiem tru6c vlin m§nh lich sit quoc gia, dan toe, trUdc nhan dan va dan toe ve toan bp quyet dinh cua minh trong qua trinh giai quye't cac vfo de chinh sach nay sinh, trUSc yeu c^u va doi hoi cua nhan dan, quoc gia.
Dieu nay phan anh khia canh dao dtic trong chinh sach, nhiing cao nhat v^n la trach nhiem cong vu, tinh than tan tuy, phuc vu nhan dan.
Ket luan
Bai viet mong muon dem den each hiiu h6 thong, m6i me va khoa hoc ve n6i ham tii "cong" trong chinh sach cong th6ng qua viec phan tich cac phUdng diin bieu hien khac nhau ca tren goc do thiic tiin va ly lu&n ve khoa hgc chinh sach c6ng. Nhan thflc dly dii, sau sac ban cha't cua tH "cong" trong chinh sach cong khong chi co y trong qua trinh nghien cflu ma con trong qua trinh van hanh ca chu trinh chinh sach cong 3 Viet Nam khi day vftn dang la mot nganh khoa hoc con non tre.
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TAI LIEU THAM KHAO 1. Ho Viet Hanh (2017), "Ban ve khai niem chinh sach cong". Tap chi Nhan li/c khoa hoc xd hoi, 12 (65)/2017.
2. NguySn Hiiu Hai (2014), Chinh sdch cong • nhiing van di ca bdn, Nxb. Chinh tri quo'c gia. Ha Noi.
3. D6 Phii Hai (2017), Tong quan ve chinh sdch cong, Nxb. Chinh tri quoc gia su that. Ha Noi.
4. Nguyin Lan (2000), TU dien til vd nga Viet Nam, Nxb. TP. Ho Chi Minh, TP.
Ho Chi Minh.
5. Dang Ngoc Loi (2015), Chinh sdch cong d Viet Nam: Ly luan vd thiic tien, http;//wwwl.napa.vn,http://wwwl.napa.vn /blog/chinh-sach-cong-o-viet-nam-ly-luan -va-thuc-tien.htm, dang tai: 24/4/2015.
6. Biii Huy Khien, Nguyto Thi Van Hudng (2013), Qudn ly cong (sdch chuyin khao), Nxb. Chinh tri - Hanh chinh. Ha Noi.
7. Vien Ngon ngii hoc (1994), TO dien tie'ng Viet, Nxb. Khoa hoc xa hoi - Trung tam ta dien hoc, Ha Ngi.
8. Cambridge Dictionaries, Public, Dictionary.cambridge.oiB, https:// dictionary.
Cambridge, org/ dictionary/ enghsh/public.
9. Brendan Martin (2004),The paper What is the public about Public services?, Pubhc World, London, pg.Ol.
10. Michael Howlett and M. Ramesh:
Studying Public Policy: Policy Cycles and Policy Subsystems, Ibid, pg.6
11. Oxford Dictionaries, Public, Oxforddictionaries.com, https://en.
oxforddictionaries.com/definition/puhlic.
12. IIA (2011), Supplemental Guidance: Public sector definition, the Institute of Internal Auditors.
NHAN LUC KHOA HOC X A H U Q ]