NGHIEN CCrU - TRAO DOI
XAY D ^ G COf CJfU LI/&NG TfNH - MQT XU Hl/tfNG
C H U Y I N Ddi CAC Md HINH CONG W H I | N NAY
PGS TS Li THI VAN HANH'
T
rong cai each hanh chinh nhim nang cao hidu qua quan ly ciia nha nudc, vi6c tim kiem mpt md hinh cdng vu hop ly, hieu qua trong dieu kien chinh trj - hanh chinh hien hanh ciia mdi qudc gia dang la xu hudng chung hien nay.Bai viet nay xuai phat tir gia thuyet ring:
mdi mpt he thdng cdng vu deu hap ly va thanh cong trong nhtfng dieu kien nhai djnh. Tren thuc te, viec chuyen doi ttr md hinh cdng vu nay sang md hinh cdng vu khac khdng phai la su lua chon tdi uu.
1. Sir khac nhau cua cac md hinh cong vu trong quan ly nhan sir.
Cdng vu la mpt khai niem duac xem xet tir nhieu khia canh khac nhau. Nhin chung, cd the nghien cuu cdng vu dudi hai khia canh: chiic nang (functional); to chiic va con ngudi (organisation and personnel).
Xet theo khia canh thif nhai, cdng vu thupc chiic nang ciia nha nudc, thupc cdng quyen de thuc thi cac nhiem vu ciia quyen hanh phap. Con xet theo khia canh td chiic va nhan su, cdng vu la khai niem de cap tdi cac van de co lien quan tdi nhifng ngudi thay mat nha nudc thuc thi cdng viec cua nha nudc - cong chifc, dac biet la trong ITnh vuc tuyen dung, duy tri va phat huy mpt each hieu qua nhat nang luc cua dpi ngu nay trong cdng vu. Vi vay, trong tai ca cac tai lieu nghien cifu cung nhu trong thuc tidn, khai niem "cdng vu" ludn gan lien vdi khai niem "cdng chifc".
Tuy nhien, tren thuc te, khdng cd su dong nhai vd quan niem ddi vdi cdng vu, cong chifc gitfa cac qudc gia. Dieu nay phu
thupc vao cac each tiep can khac nhau khi tra ldi nhtfng cau hoi nhu: Ai la cdng chifc?
LTnh vuc boat dpng nao dugc xem la cdng vu? Lao dpng ciia cdng chiic cd dugc xem la loai lao dpng dac biet khdng? Cdng chtfc cd phai la mpt "nghe" khdng? Nha nudc phai tuyen dung, duy tri va phat huy cdng chiic the nao trong cdng vu?... Viec nghien cifu cac nen cdng vu tren the gidi da khang djnh rang, cho den nay, khdng cd dap sd chung cho nhiing cau hdi tren. Vi vay, ben canh cac yeu to chinh trj, ljch sir va kinh te - xa hpi, su khac nhau cua cac md hinh cdng vu cdn the hien rai ro trong triet ly va phuang thifc quan ly nhan su, cu the la trong che dp phap ly ddi vdi ngudi thuc thi cdng vu; pham vi va dja vj cdng chuc; he thdng van ban phap luat dieu chinh cdng viec va hanh vi ciia cdng chiic;
phuang thifc quan ly cdng vu, cdng ehiie thdng qua tuyen dung, duy tri va phat huy nang luc cdng chiic trong cdng vu...
Mac dil cd su da dang, phong phii trong each giai quyet nhtfng van de tren giifa cac nen cdng vu tren the gidi thi van cd the khai quat thanh hai md hinh quan ly nhan su nhu sau:
a. Mo hinh cong VM theo chac nghiep (career - based system) vdi nhCfng net dat trung ca ban la:
- Ngudi lao dpng dugc dam bao viec lam nhtmg khdng phai la mpt vj tri cu the.
- Viec gia nhap he thdng cdng vu dugc
* HQC vi0n Hdnh chinh.
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thuc hien thdng qua mpt tien trinh canh tranh rieng re (khdng lien quan den cdng viec). Cac tieu chi quan trgng la bang cap, tham nien va kinh nghiem.
- Su bien dpng nhan su dugc thuc hien trong npi bp he thdng cdng vu. Qua trinh nay cd the kem nghiem ngat va minh bach (a mpt sd nudc).
- Cd nhiing luat le chinh thiic cho he thdng cdng vu va quan ly cdng vu mang tinh tap trung cao.
Thuc tidn quan ly cdng vu, cdng chiic cua cac nudc theo md hinh chiic nghiep nhu Phap, Diic, Tay Ban Nha, Nhat Ban...
da khang djnh nhiing uu the ca ban cua he thdng nay la:
- Ca hpi hinh thanh cac he thdng gan bd, trung thanh (nhu mpt su ddi lap rat viing chac vdi cac he thdng cdng vu viec lam).
- Khuyen khich tinh chuyen nghiep, su thanh thao ve chuyen mdn, nghiep vu.
- Thiic day su phat trien van hoa va cac gia trj chung ben vifng trong he thdng.
- Dam bao tdt han su tuan thu theo cac tien trinh va ap dung dung theo phap luat.
- Su chuyen nghiep trong dao tao cdng chiic...
Tuy nhien, cac he thdng cdng vu dugc to chifc theo md hinh nay cung thira nhan nhifng nbuge diem can khac phuc la:
- Cd xu hudng tao nen mpt dpi ngu cac nha tong hgp ban la cac nha chuyen mdn.
- Hudng tdi mpt nen cdng vu "tinh" va thieu linh hoat (day la diem bj chi trich manh bdi cac he thdng cdng vu viec lam).
- Cd xu hudng hinh thanh chii nghia
"quan binh" trong thuc thi cdng viec.
- Cd xu hudng khuyen khich su "lang tranh riii ro" ban la sang tao, mao hiem vi hieu qua cdng viec.
- Vi thieu cac can cii cu the cua vj tri viec lam de tuyen dung, sir dung, danh gia
va tra luang nen co nguy ca xay ra tieu cue trong cac ITnh vuc nay.
- Dao tao cong chiic co nguy ca "sach vd" ban la giai quyet nhifng van dd thuc tidn...
Theo danh gia chinh thifc ciia Ngan hang The gidi (nam 2008), cac he thdng cdng vu chirc nghiep dugc xem nhu nhtmg he thdng "dong", theo do, cac vj tri cong vu trung ca'p va cao ca'p dugc "Mp day"
bdi su thang tien dan dan ciia cac cdng chiic tir cac vj tri thap ban trong npi bp cdng vu.
Cung vi viec tuyen dung khdng dugc thuc hien can cii vao cac vj tri cong viec cu the, nhan su ciia cac ca quan nha nudc dugc sir dung rat "linh boat". Hg cd thd dugc thuyen chuyen ttr vj tri nay sang vj tri khac, bp phan nay sang bp phan khac hay ca quan nay sang ca quan khac trong npi bp cdng vu vi viec thuyen chuyen dd khdng anh hudng de'n ngach, bac cung nhu miic luang ma hg dang dugc hudng.
b. Mo hinh cong vit theo vi tri (position - based system) hay con ggi la md hinh cdng vu viec lam (Job system), dugc xem la mpt md hinh quan ly nhan su "md" vdi nhtmg dac trung chii ye'u nhu:
- Viec tuyen dung mang tinh canh tranh dd'i vdi mdi vj tri viec lam cu thd.
- Ngudi lao dpng khong co quydn chuyen tif vj tri cong viec nay sang vj tri cdng viec khac ma khong qua thi tuyen canh tranh, cong khai.
- Su tuyen chgn chii ye'u dua tren su danh gia nang luc phu hgfp dd'i vdi timg vj tri cdng viec cu the.
- Cac quyet djnh tuyen dung cd thd dugc ban hanh duoi hinh thifc phan quyen quan ly nhan su cao: cac co quan sir dung lao dpng dugc uy quyen cao trong cac quyet djnh lien quan de'n quan ly nhan su.
Thuc tidn ciia cac ri^n cdng vu theo mP hinh nay nhu Anh, Ot-xtray-lia, Niu Di- lan, Ca-na-da va My da ehumg minh tinh
10 TAP CHI QUAN L^ NHA NUdc - S6 171 (4-2010)
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im viet trong quan ly nhan su ciia md hinh cong vu viec lam thdng qua viec tao kha nang phan quyen quan ly nhan su cao; dd thich nghi ban vdi viec tuyen dung can cii vao nhu cdu nang luc cu the trong cac ITnh vuc boat dpng khac nhau; dd hinh thanh he thdng tra luong binh dang, xac dang dua tren su phan biet ro rang, khach quan ket qua thuc thi va cac dieu kien cdng viec (day la mpt lgi the cd kha nang canh tranh trong viec thu hiit, duy tri ngudn nhan luc chai lugng cao cho cdng vu trong nen kinh te thj trudng); co xu hudng hinh thanh djnh hudng thuc thi mpt each manh me...
Tuy nhien, cting nhu md hinh cdng vu theo chiic nghiep, md hinh cdng vu viec lam cung bpc lg mpt so nhugc diem nhu:
- Chi phi cao, dac biet la cho viec tuyen dung cac irng vien ttr ben ngoai.
- Cd nguy co thieu dn djnh.
- Khdng thiic day viec hinh thanh van hoa va cac gia trj chung ben vting.
- Su trung thanh cd the bj "de dga".
- Cd nguy co din den tinh thuc dung trong cdng vu.
- Viec hudng tdi cac iing vien "ttr ngoai" vao cac vj tri quan ly trong cdng vu khdng khich le duac cac iing vien "ndi bp"...
Cting theo mpt danh gia chinh thiic ciia Ngan hang The gidi, he thdng cdng vu viec lam dugc md ta nhu mpt he thdng "md"
ma d dd ngudi ta chgn iing vien thich hgp nhai dua tren kinh nghiem va kien thiic dugc dao tao phu hgp vdi yeu cau va trach nhiem ciia vj tri cin tuyen bai ke kien thiic hoac kinh nghiem ma ling vien co dugc ttr trong hay ngoai cdng vu. Khdng gidng nhu md hinh cdng vu chiic nghiep, trong md hinh cong vu viec lam, cac boat dpng quan ly nhan su dugc phan ca'p manh cho cac co quan sir dung lao dpng va cac quyet djnh nhan su cd miic dp ca nhan hda cao, theo do, cac CO quan sir dung lao dpng co nhieu quydn hon trong viec tuyen dung va tra
luong theo co che thj trudng.
Mpt nghien ciiu ciia OECD va EU ve quan ly ngudn nhan luc d cac nen cdng vu mien Tay Balkan (nam 2006) chi ra rang mpt ban che quan trgng cua md hinh nay la su khd khan khi thu hiit cac iing vien cd trinh dp ddi vdi cac vj tri dugc chuyen mdn hda vi khdng san cd cac chuyen gia tren thj trudng, ddng thdi, viec tuyen dung tdn kem cac iing vien ttr ben ngoai co the lam nan long nhtrng nguoi dang trong cdng vu neu cac iing vien dugc tuyen ttr ben ngoai lap tlie dugc dua vao cac vj tri quan ly.
Kinh nghiem lam giam bdt tinh trang nay ciia nhieu nudc hien nay la tao co hpi nhieu hon cho cac ifng vien npi bp trong trudng hgp ca hai iing vien trong va ngoai dugc xem la ciing thich hgp nhu nhau ddi vdi mpt vj tri cu the nao dd.
Nhu vay, thuc tidn td chifc va quan ly d cac nen cdng vu theo ca hai md hinh deu chimg minh nhtmg diem manh va diem yeu ciia md hinh cdng vu theo chifc nghiep va md hinh cdng vu viec lam. Cung vi ly do nay ma hang nira the ki qua, cac qudc gia deu dau tu nhtfng nd luc dang ke vao cac chuong trinh cai each cdng vu nham xay dung dugc mpt md hinh cdng vu hieu qua, phti hgp vdi cac didu kien chinh trj - hanh chinh hien hanh trong mpt nen kinh te thj trudng phat trien.
2. Co cau lirdng tinh - md hinh cdng vu thich hgp nhat?
Nhieu nghien ciiu gin day, khi phan tich nhiing luan diem iing hp va chi trich cac md hinh cdng vu da dua ra ket luan ring trong thuc te hiu nhu khdng cd nudc nao ap dung triet de mpt md hinh cdng vu theo each "thuan khiet" ma van dung cac yeu td tich cue ciia ca hai he thdng theo each phu hgp nhit vdi nhu ciu cu the ciia qudc gia dd tai mpt thdi diem cu the va kha thi trong he tho'ng chinh trj hien hanh.
Nen cdng vu Phap, theo cac tieu chi truyen tho'ng, la mpt nen cdng vu theo
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chiic nghiep vdi mpt he thdng nghe nghiep da dugc chuyen mon hoa cao va vdi phuang thiic quan ly nhan sir dac thii ciia mpt ndn cdng vu chiic nghiep. Tuy nhien, hien nay, Phap dang tim kiem each thuc de nang cao tinh nang dpng ciia he thdng cdng vu chiic nghiep thdng qua viec cai tien triet ly va quy trinh quan ly nhan sir, dac biet la tuyen dung ban diu va co che thang tien ciia cdng chiic.
Cac nudc khac nhu Diic, Hy Lap, Nhat, Han Qudc va Tay Ban Nha co cac yeu td rat manh ciia he thdng cdng vu dua tren chifc nghiep cting dang trong qua trinh cai each de tang cudng ap dung cac yeu to tich cue ciia he thdng cdng vu viec lam. Trong he thdng cdng vu ciia cac nudc nay, ngudi ta da chap nhan mpt co cau luang tinh vdi su chi phdi cua cac.ngach, bac va hgp ddng lao dpng. Cac nuac theo md hinh cdng vu viec lam nhu Phin Lan, Niu Di-lan, Thuy Dien, Vuong Qudc Anh va Thuy Sy ciing dang thuc hien nhiing cai each tich cue nhim khic phuc nhCfng ban che cua he thdng cdng vu viec lam, dac biet la nguy CO thieu on djnh va tinh thuc dung eiia cdng vu. Cac nudc nay, mac diu viec quan ly theo cac quy djnh chat che ciia nha nudc da dugc thay the bing che dp hgp ddng va cac CO quan trong he thdng hanh chinh nha nudc dugc uy quyen nhieu ban trong viec ra cac quyet djnh tuyen dung va de bat nhan su thi md hinh quan ly cdng vu theo chiic nghiep vin cdn ehinh thiic ton tai trong quan dpi, canh sat, toa an va ngoai giao. Trong mot so co quan cd quy md Idn ciia chinh phu, viec quan ly cdng vu, cdng chifc theo md hinh chifc nghiep con tdn tai mot each khdng chinh thifc (xem so do 1 a cuoi bdi).
Kinh nghiem cai each cdng vu cua nhieu nudc tren the gidi cho thiy:
- Su da dang trong td chiic va quan ly cdng vu cQng nhu miic dp thanh cdng khac nhau gitfa cac nen cdng vu da khing djnh ring khdng co mpt md hinh cdng vu chung
cho tit ca cac nudc.
- Mdi mpt mo hinh cong vu ddu thanh cdng trong nhtfng dieu kien nhat djnh. Vi vay, viec chuyen doi ttr mo hinh cong vu nay sang mo hinh cong vu khac mpt each thuin khiet khong phai la phuong an tdi uu va can co nhtfng dieu kien nhat djnh.
- Mdi he thdng cong vu deu co nhtfng mat manh, ye'u, ca hpi va thach thiic. Vi vay, su ket hgp gitfa hai md hinh la su lua chgn tuang ddi phd bie'n d nhieu nudc tren the gidi.
6 Viet Nam, vdi mpt he tho'ng quan ly cdng vu, cdng chifc theo chiic nghiep (tuy khdng bai bin nhu cac md hinh cdng vu chifc nghiep truyen thdng), viec tang cudng ap dung cic yeu to' tich cue cua he thdng cdng vu viec lam cung la mpt bien phap tao nen nhung thay doi Idn ban trong quan ly cdng vu, cdng chiic. Tuy nhien, day la viec lam khong dd, can nhieu nd luc va thdi gian. Viec tang cuang cac yeu td tich cue trong quan ly nhan su ciia md hinh cdng vu viec lam trong tuyen dung, quan ly thuc thi vi tra luang cung nhu cac bien phap tao dpng luc lam viec... se la mpt hudng di an toan va tich cue cho viec chuyen ddi nen cdng vu Viet Nam trong khi vin phat huy cac yeu to' tich cue ciia cdng vu chiic nghiep.
Xay dung mpt co cau cong vu "luong tinh", thuc hien thanh cdng nguyen tic dam bao "diing nguoi, dting viec" se gop phin nang cao hieu qua thuc thi cua ea nhan, nhdm va toan bp he thdng cac td chifc cdng. Bang viec ap dung cac kinh nghiem thanh cdng trong tuyen dung, danh gia thuc thi, tra luong va thudng hap din, vj the canh tranh vdi khu vuc tu nhan trong viec thu hiit va duy tri ngudn nhan luc c6 chit lugng cao ciia nen cdng vu Viet Nam CO the se dugc nang cao. Mpt he thdng cdng vu vdi qua trinh tuyen dung, quan ly thuc thi va tao dpng lire lam vipc hieu qua se la su "trtmg phat" theo mpt khia canh nao dd ddi vdi thoi quen y lai
12 TAP CHi QUAN LY NHA N U 6 C - S 6 171 (4-2010)
NGHIEN CL/U - TRAO DOI
vao cac mo'i quan hp than quen, tham cung eip cac djch vu cdng. Dieu nay cung nhiing, mua ban chiic tudc trong cac quyet cd the gop phin tao nen su thanh cdng cua dinh nhan su va nang cao tinh hieu qua cai each hanh chinh d Viet Nam.
Sd do 1: Cd cau quan ly cong vu theo tinh chat cong viec Cac he thong cong vu
theo vi tri (viec lam)
Cac he tho'ng cong vu theo chijrc nghiep
Cdc hoat dong chuyen mon
Cdc chuc ndng truyen thong rhii veil run nhn nuirc
Theo phap luat
Sd do 2. Su chuyen doi mo hinh cua mot so nen cong vu
Theo hop dong
y"^ Mc
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\ hinh chiirc nghifp truyin thdng
\ CH S16-va-ki-a
^A Lu^ch-xam-bua Nhat Ban
r
Hung-ga-ry Ai-Ien Han Qudc Hy Lap Phap Tay Ban Nha
Co c&'u luong tinh
My Ca-na-da Y Ao Bi Ba Lan
M6 hinh vi^c lam truydn N^
thdng y
Thuy Di^n NaUy Due B6 Dao Nha Cong hoa Sec
ThuySy Phan Lan Anh Dan Mach NaUy
6t-xtray-li-a Niu Di-ian Ai-len
Mile do uy quyen trong quan ly nhdn su
Nguon: Tong hop tir WB va UNDP, 2008
1. Analytica. (2008, April). "Introducing C!areer-Based System in Civil Service."
2. Ascher, W. and Rondinelli, D.A. (1999). "Restructuring the Administration of Service Delivery in Vietnam: Decentralization as Instiution Building." In Litvack, J.I. and Rondinelli, D.A. Market Reform in Vietnam. Westport, CT: Quorum Books. 138.
3. Canada, Sachiko Ikari, et. al. (1990). Flexible Persoimel Management in the Public Service, Paris:
OECD, PUMA.
4. Implementation of Civil Service Legislation in Vietnam: Strengthening Elements of a Position-Based System, UNDR 2008
5. Painter, Martin. (2006, April). "Sequencing Civil Service Pay Reforms in Vietnam:
6. World Bank. (N.d). Administrative and Civil Service Reform.
TAP CHI QUAN LY NHA NUOC - SO 171 (4-2010) 13
