NGHIEN CCru-TRAO Ddi
VE TIEU CHI DANH GIA CHAT LUONG HOAT DONG CUA BO, CO QUAN NGANG BQ
NGUYEN MANH Cl/CJNG*
Xuit phit tav} tri, chdc ning liea quan cia Chinh pbi, do vay, boat ddng quin ly hinh cbinb nhi nadc cingli m0t trong nhiing phaong diin dope dit ra trong qui trinh nglriin ciu, dinh gii chit lupng boat d0ng cua b0, ca quan ngang b0. Hoat ddng niy dupc nhin diin trin 3 n0i dung chu yiu: thgc hign cblicning, nhiim vp; xiy difngvi ban hinh vin bin quypbam phip luit; xiy dpng vi ning cao chit lupng d0i ngu cdng chic, viinchic. Chinb vi v$y, di dc bd, co quan ngang bdhoat d0ng cd hiiu qui va chit lupng dn phii xiy dpng bi tiidng dc tiiu cbird ring, mach lac vdi nhing cbi sddupc lupngbda vi si dpng cie pbuong thic phi hpp nbim dinb gii vi bio dim chit Iupng boat d0ng.
Tikbda: Tiiu chi; dinh gii chitlaang; hoat ddng cua bd, caquan ngangbd; chisd; hiiu lac, hieu qua.
State adnmistrative management is one ofthe Issues to be studied In quahty evaluation of tbe practices of ministries and ministerial agencies as the Government bodies. There are three main areas of practices: performing functions and tasks; hrmulation and promulgation of legal normative documents; development and improvement ofthe contingent of civil servants and pubhc employees. Therefore, it is necessary to develop a system of dear and coherent criteria with quantitative indicators and appropriate methods for evaluation and quahty assurance to enhance effectiveness and quahty of the practices of ministries and ministerial agencies.
Keywords: Criteria; quahty evaluation; practices of ministries and ministerial-level agencies;
indicators; efficient, effective.
NGAYNHAN: 08/5/2020 NGAYPHANBI$N,DANHGIA: 05/6/2020 NGAYDUYfiT: 16/7/2020
I. Tdng quan chit lugng hoat dgng cia chung la bp) dl cM ylu td ciu thanh Chinh bfi, eo quan ngang bfi phi. Thep dd, bd li ca quan hanh chinh nhi Trgntii6gidi,cdmdtsdquannigmvgbd, """'' (HCNN) ed tiiam quyln tieng^Xuit dieodd, 'Bdli mdt bfi phan (DeparUnent) phittirvitti.chuenanglacaquaneuaCMnh
, . .• u- u I.'. ,^1.-1, phi, da vay, hoat dong quan ly HCNN cung ttong bp may hanh phap trang uong (CMM, f, ^ . ^ ^^^ ^ ^ ^ p ^ ^ ^ ^ ^ „ ^^^ ^ j , ^^
phu) chiu ttach nhilm vl mpt hpic mgt sp j^^^g ^^^ ^^^ ^^y^^„ ^^_ ^inh gia chat linh vtie cfing vige hay ehue ning cia Chinh
phi"'. 6 Vigt Nam, khii nigm bg thudng ttig
Men hai nhom: bp vi ea quan ngang bfi (gpi * ThS, Bd Npi vu
TAP CHf Q U A N LV NHA NUdC - Sd 294 (7/2020) | 9
NGHIEN CUU-TRAODdi
lupng boat ddng (DGCLHD) cua bd. Vige DG- CLHD cia bd cin nhin nhan tdng thi cie ylu td eiu thinh toin bd kit qua hoat dpng cia bd. Timg ygu td dd can tMgt dugc lugng hda bing nhiing tigu chi co bin dl do ludng, DG- CLHD va dugc the Mgn ehu ygu d phuong dign: boat ddng quin ly HCNN vi kit qua hoat dpng cia bd, trong do: thue Men chue nang, nhigm vu; xay dgng vi ban hinh van ban quy pham phip luat; xay dgng vi nang eao chit lugng dpi ngu cfing chue, vign chtte eua bd. Ngoii ra, cdn ed mot sd ylu td khie, nhu: tfi chiic bp miy, quy chg lim viee, quy trinh giii quylt cfing vige, hign dai hda...
eung li mdt trong nhiing yen to eiu thanh kit qua boat ddng cia bd.
Vige DGCLHD cia bd la qui trinh xac dinh cac chi sd kgt qua cung vol muc dp hii ldng cia ea nhan, td chuc cing vdi vige ning eao, eii thign chit lugng cung d p dich vg cdng. Cic tigu ehuan, tigu ehi vi phuong phip dinh gia la cong eg dg dinh gia, do ludng chit lugng boat dpng eua bp.
2. Thuc tiang tigu cW dinh gii chit lugng hoat ddng cia bd
a.DanhgiathdngquahetbSngdcbiodo Day li cich dinh gii duge cic co quan HCNN ap dgng phd biln. Cic bd thgc hign cdng tie bio cao ve kgt qua boat ddng tap trang qua mdt sfi nfii dung hoat dpng nhu:
bao cio cai each hanh ehinh hing quy, 6 thing vi hing nam; bio cio tinh hinh kgt qua thge hign nhiem vu duge Chinh phi, Thu tudng Chinh phu giao; bao cio cfing tic tu phap, thi tue hanh ehinh (TTHC); bao cio ve cfing tie dao tao, bfii dudng cdng chuc, vign chuc; bio cio ting dgng cdng nghe thdng tin va chinh phi dien ti...
Mac du cac bio cao vl kit qua boat ddng till hign uu digm ndi bit li cae kgt qua duge lu(;mg hda ngiy cing tang Ign; giup cic bp va xi hdi Mnh dung rd htm ve cic kgt qua dat duge, tuy nhign, md Mnh dinh gia ttgn bpc Id nhung ban chg trong viec DGCLHD cua
cae eo quan dd. Cg tiig la kgt qui chua dupc till Mgn bing d c Mnh tinic so sinh (so sinh vdi muc tieu dl ra, so sinh bing ty lg, tiieo thdi gian hay so sinh vdi co quan tucmg ddng khic.) vi ehuahudng duge dgn dinh gii kit qua cudi cung. Do vay. vige dinh gii chat lugng ehua dugc tiiuc hign vi ehua dugc till hign trong bio cio.
b. Dinh gii thdng qua cic chi so Higu qua quin ly nha nude, xet ve bin chit li kit qua boat ddng eua cic chi till quan ly HCNN, bao him c i boat ddng cua ngudi thge tM cdng vu, ttong mdi tuong quan vdi mitc do cM pM eic ngudn lgc (tai ehinh, sue lao ddng, thdi gfan...). Cic kit qui dugc xie dfnh bdi eic cM sfi tang trudng Any tri sg dn dinh vi phit triln, xet ttong nMlu mdi quan he nhu giiia hieu qua kinh tg va hieu qua chinh tri, Mgu qui xa hdi, giiia vige thge higneiemgetigu trade mit vi muc tieu liu dai, giiia lgi ich trang uong va dia phuang, gida nhi nude vi cfing dan, xa hgi Vi viy, ning luc, chit lugng cia nln hanh ehinh la mdt ttong nhung ylu td tac dgng dgn hieu qui quin ly HCNN, ttong dd chit lugng cia ngn hinh chfnh bao gfim: hg thdng the ehg; td chuc bg miy hanh chfnh;
dfii ngu can bg, cfing chiic, viln chire; tai ehinh vi eg sd vit chat, ky thuit. Trong moi quan hg tdng the niy, chit lugng boat dfing cua bfi li mfit dfii tugng quan ttgng ttong ddng chiy xuyen sudt cia mdi quan hg nguygn nhin vi kgt qua, gitta chit lugng va Mgu qui.
Hign nay, Chinh p h i ngiy cing chi trgng tdi sg tiiam gia cia toin xi hdi vao viec giim sit va DGCLHD, higu qui thuc thi ehinh sich, coi y kign dinh gii la ngufin thdng tm diu vao huu ich eho cdng tic hoach dinh ehinh sich nhim phin inh nhung ygu d u , nguygn vgng cMnh ding cia ngudi din. Trong khoang 10 nim ttd lai diy, cie bg ehi so dinh gii vl nln binh chuih, quin ly HCNN, chit lugng hoat ddng cia cic CO quan HCNN da bit dau dugc nghign eihi
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TIJIP CHf Q U A N L* N H A NUdC - Sd 294 (7/2020)NGHIEN cau-TRAO Ddi ip dung d Vigt Nam, dugc xa hdi quan tim
vi ddng tinh hudng img. Mdt ttpng nhung phuang phap dugc thgc Mgn ttang dinh gii la vige thgc Mgn thdng qua khao sit thim dd cu thi dfing bg va dinh ky eic y kiln phan hfii cia xa hdi ndi chung va cia cic ddi tugng chiu sutie ddng true tigp cia quin ly HCNN hoac cu thi cac bd ndi rigng vi dirih lugng kit qui khio sit. Kit qui dinh gii khfing chi dga ttgn thfing tin mgt cMlu tu phia cic co quan nhi nude mi dua ttgn thfing tin phan hfii tu phia xi hfii, vi viy, mang tinh khich quan eao.
Bgn canh d c cM sd dinh gii chfnh quygn dia phuang nhu: dinh gfi quan ly HCNN thdng qua Bp cU sfi ning lgc canh ttanh cap tinh (PCD; chi sd Higu qua Quan tri va Hinh chinh cdng eip tinh (PAPI); khao sit muc do hai Ifing cia ngudf din ddf vdi co quan nhi nude vi cdng ehiic cua mdt sd dia phutrng...
tM d eic bg di ed cdng cg do ludng dl dinh gia mfit sd khia canh boat dpng, nhu: DG- CLHD xiy dtmg vi tU hanh phip luat cia eic bfi Ugn quan dgn doanh nghigp; dinh gii kgt qua triln khai cdng tic cai cich hanh ehinh thdng qua vige xic dinh Chi sd cai each hinh chinh cia cie bd, co quan ngang bd, Uy ban nhan din eic tinh, thanh phd tmc thupc ttung uong (PAR INDEX); danh gii Mgu qui hoat dfing xiy dgng vi tM hanh phip luit vl kinh doanh cia cic bfi (cM sd MEl); dinh gii chit lugng dichvgytledngvi dinh gii chat lugng giio due cdng. Mfii bfi ehi sd dinh gii ttIn cg sd he thdng cic tigu chf cing vol phuang phap khie nhau vi cd sg giao thoa nhit dinh vl hg thdng tigu cM. Vi du nhu chi sfi Mfii vi cM sd PAR INDEX khi cing dinh gii Hnh vuc thi ehl. Tuy nMgn, nhiing digm ndi bat ma mfii cM sfi dem lai cung da gdp phin xay dgng vin hda danh gii ttong boi cinb diy manh cai each hinh chmh d nude ta hign nay. Cu thi li:
Thu nhit, chi so DGCLHD xay dung vi till hinh phip luat (LDEA): dfii vdi vige DG- CLHD xay dtmg vi thi hanh phap luat cia
eic bd, sau qua triitii khap sit giai doan tu nim 2005 - 2009, Phdng Thuang mat va Cdng nghigp Vigt Nam da cdng bd bao cao dinh gia vdi kit qua xip hang cia 14 bfi, eo quan ngang bg vl chit lugng boat dfing xiy dtmg vi till hanh phip luat (LDEA), gdm: Bp Cfing Thuang; Bfi Giao thfing van tii; Bfi Kl hoach va Diu tu; Bd Khpa hpe vi Cdng nghg;
Bp Lap ddng - Thuong binh va Xi hdi; Bd Ndng nghigp vi Phit trign ndng thdn; Bd Tai ehinh; Bfi Til nguygn vi Mfii tradng; Bd Thfing tin vi Trayin thfing; Bfi Tu phip; Bfi Vin hfia, Thi thao va Du lich; Bfi Xiy dgng;
Bd Yte; Ngin hing Nhi nude Viet Nam^. Diy li nhung bp ed cie boat ddng xiy dung vi ban hanh the ehl hen quan dgn doanh nghigp, cic higp hdi doanh nghigp. Chit lugng boat dpng xay dung phip luit va thi hanh phip luat cia cic bfi dugc dinh gii thdng qua 2 chi sd (chi sd xay dung phip luat, ehi sd thi hinh phap luit) va 4 ehi tigu (boat ddng lay y kign xiy dgng phip luit, chit lugng cua van bin quy pham phip luat do d e bfi chi tri soan thio, khi ning tigp can thfing tin phap luit, chit lugng cia mgt sd hoat ddng thi hinh phap luit)^.
Tha hai, chi sd chat lugng vi higu qui boat dfing xiy dgng vi thi hinh phap luit vg kinh doanh cia eic bp (chi sd MEI): ehi sd nay duge bit diu tign hinh tu nim 2011 sau khi cd Cong van sfi 2353/VPCP-PL ngay 18/4/2011 cia Tbi tudng CMnh phi. Day la Bfi ehi sd dugc xay dgng nhim dua ra hue tranh vl hieu qui boat ddng xiy dung va thi hanh phap luat ve kinh doanh eua 14 bfi efi chtte ning, nMem vg gin veil doanh nghigp d 5 khia canh (mfii kMa canh li mfit ehi sfi) theo mdt phuang phap he thong va dugc dinh gia 2 nim mdt lin*. Chi sd MEI dugc xay dgng chi ylu diia ttgn co sd dilu tta cam nhin cia cie higp hfii doanh nghigp (HHDN). Cae higp hfii niy sg bing trii nghiem thgc tg, quan nigm, cich nhin eua minh dl danh gii mue do hieu qui trong hoat ddng xiy dtmg vi thi hinh phip luit
TAP CHf Q U A N Vi NHA NUdC - Sd 294 (7/2020)
NGHIEN COrU-TRAO D d i
cia cic bd. Chi sfi MEI dua trgn 5 chi so thinh phin. Mdi ehi sd thanh phan li danh gia ve mpt nhdm eac boat ddng xiy dung, tM hanh pbap luat ed tinh chit tuong tg nhu:
soan thio van ban quy pham phap luat (VBQPPL); chat lugng VBQPPL; cdng khai thfing tin, tuygn trayin va phd biln phip luat; td chitc thi hinh phap luit; ra soit, kigm tra, tdng kgt thi hinh phip luit.
Vige dua ra eic tigu chi dl do luong dinh gii boat dpng nay gan nhu da bao quit toan bd boat dpng xay dgng vin bin quy pham phap luit trong linh vue kinh doanh. Kgt qua cia chi sd MEI la dga trgn cam nhin cua doanh nghiep va cie HHDN. Do dd, kM mi chit lugng can thigt phii duge danh gii mdt each tdng thg, bao quit trgn nMeu yen to tic ddng, inh hudng dgn boat ddng cia bfi, thi can thigt phai ed mgt bfi cM so vdi hg thfing khung tigu ehi dinh gia dugc toin dign eic mat hoat dfing eua bfi.
Tha ba, ehi sfi cai cich hinh chinh (PAR INDEX): dfii vdi chi sd PAR INDEX, Bfi Npi vg, CO quan thudng trgc Ban Chi dao cai each hinh chinh cia Chinh p h i da ehi tti, phdi hcip vcri eac co quan cd lign quan ttong ca qui ttinh tu nam 2006 - 2012 ngMIn eiiu, xiy dung, ehinh sia, bd sung va hoin thien cic tigu ehi, tigu ehi thinh phan (TCTP) va thuc Men thi diem tai mdt sd bd, tinh va thinh phd. Cic tigu ehi dugc xiy dgng vdi nguygn tie bio dam danh gia mpt eich khich quan, minh bach, thue chat, phan inh dugc tinh hinh triln khai cii each hinh chinh cua cac bfi vi cae tinh, thanh phd theo mdt chu ky danh gii.
Tu dau nam 2012 din nay, da tiln hanh dinh gia hing nim kit qui ehi sd PAR INDEX. Vige danh gii cac bd, cM sd PAR INDEX da qua 4 lin ehinh siia, bd sung theo cac phign ban khic nhau. Theo dd, sd lugng tigu chi, TCTP thudng xuygn dugc thay ddi eho phi hgp vdi hoin cinh eg thg, sg thay ddi chinh sach, mgc tieu quan ly vi quan dilm ehi dao cia CMnh phi.
Chit lugng eua cii each hanh ehinh cung li vin de duoc quan tim, thi hign rd thfing qua 38 tigu ehi, 88 TCTP cia Bg cU sfi dupc dua ra dinh gii d nam 2018. Cg till, efi 28 TCTP duge danh gii qua dilu tta xa hgi hpc vl tie ddng eda eii each hinh chmh trgn 7 nfii dung: (1) Tie dpng cua cai each dgn till ehl, CO che, chfnh saeh thufic pham vi quin ly nha nuoic cua bd; (2) Tie dfing cia cai dch dgn chit lugng quy dinh TTHC; (3) Tie dfing cia cai cich dgn td chiie bfi miy hinh chinh;
(4) Tie dfing cia cai cich din quan ly cfing chue, vign chue; (5) Tie dfing cia cai eich dgn chit lugng dpi ngu cfing chiic cia bfi; (6) Tie dfing cia cii cich din quan ly tai chinh cfing; (7) Tie dpng cia cai each din Men dai hda hanh chinh*. Cac TCTP niy da gin nhu thg hien nhiing kMa canh chit lugng thdng qua su dinh gia miic do hii ldng cia eic doi tugng thu hudng true tigp cia qui ttinh va kgt qua cai d c h hinh ehinh cia bfi. Nhuvay, qua kit qua dilu tta xa hfii hge dl xic dinh ehi sfi PAR INDEX cia cic bg eung phan nao phin anh nhting danh gii vi mong muon ning cao chat lugng boat dfing han nua cua d c ddi tugng dinh gii dfii voi kit qui boat dfing khdng cM trong triln khai cdng tie cai each hanh chinh ndi rigng, ma cdn bao gIm ea biic ttanh tdng thg boat ddng cia bg ttong thdi gian via qua.
3. Mdt sd d l xuit nhim ning cao higu qui thgc hign cic tigu cM dinh gii chit lugng boat dfing cia bfi, co quan ngang bfi
Mpt li, hg thdng bio cio vi cie cM sd IS bude diu dinh gii mfit cich toin dign, thgc chit vi khich quan vige triln khai thgc Mgn boat dfing quan ly nhi nude cia bp.
Hai li, cic chi sd da dugc ap dgng vk triln khai li mdt ttong nhiing giai phip gfip phin thic diy vige trien khai cdng tic cii cich hanh chfnh ndf chung, cfing tic linh dao, chi dao dilu hinh, cii cich thi ehl, ning cao chat lugng ddi ngu cfing chuc, vign ehue, ung dgng cdng nghg tiidng tin cia timg bfi.
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TAP CHf Q U A N LV N H A N U I S C - Sd 294 (7/2020)NGHIEN CtfU-TRAO o d i
Ba la, thfing qua bg thdng cie tigu chf, tigu cM thinh phin cia cic chi sd, die bigt cia ehi sd MEI vi chi sd PAR INDEX da phin nao xac dinh rd mit manh, mat ygu ttong thgc hign eic ndi dung boat ddng quan ly nhi nuoc, thge hign chue ning, nhiem vg theo tham quyln, qua dd giup bfi ed nhung dilu ehinh cin thilt vl mgc tiiu, ngi dung va cac giii phap thich hctp nhim ning cao chit lugng boat dgng.
Bdn la, thdng qua danh gii kit qui trien khai eac nhigm vg quan ly nhi nude bing dinh lugng cia d e cM so, tren co sd do, so sinh, xip hang kgt qui thuc hign hing nim cua cic bfi. Day la mgt tiong nhiing phuang phap quin ly miii tiong cfing tie chi dao, dilu hinh.
Nim la, thfing qua cdng tic dinh gii vi xiy dgng cic tieu ehi danh gia cia bfi, co quan ngang bfi da bude diu ed nhttng eii cich, dfii mdi va tiing bude hoan thign ehinh saeh, the chg, gdp phin ning eao higu lue, bigu qua quan ly nha nude ndi chung.
Bgn canh dd, trong cdng tic DGCLHD cua bfi, CO quan ngang bfi d n tilp tuc tap tnmg vao cac vin dl sau:
Tha nhit, vige xiy dgng cfing cg DG- CLHD d n thilt phai lam rfi ndi ham cia chit lugng vi boat dgng cia bd, co quan ngang bfi li gi? Ciu hdi dat ra la viee xac dinh nay cd dl hay khdng, cd thg dinh lugng mfit each tudng minh, rinh mach d c ylu td eau thinh chat lugng boat ddng hay khdng?
Thahai, vile xac dinh cic tigu ehi dinh gia ed y nghia quan trpng trong cdng tie dinh gia. Tuy nhign, cin thigt bao nhilu tigu ehilidivadungdido ludng dugc chinb xie chit lugng hoat ddng cia bd?
Thu ba, hien nay ehua cd mpt vin bin chinh thitc nao quy dinh cg thi va trgc tigp vl vige DGCLHD bd, co quan ngang bd. Day cung la vin dl dirge dat ra. Mpt quy dinh cd gia tri phap ly se tao ngn mpt eong eg danh gii tdt, gdp phin ning cao chit lugng boat
ddng nfii chung, ttich nhigm ci nhin ngudi diing dau cic bfi, co quan ngang bd.
Thii ttr, cic bd chi sd dinh gia mpt so linh vuc boat ddng ttong thiii gian via cho thay, kgt qui dinh gii cia ngudi din, tfi chiic hoac dpi ngu cdng chue, lanh dao ed lign quan din cic hoat ddng quin ly nhi nude trgn mptsd linh vgc cia bp, co quan ngang bfi da dfing gfip quan trpng vio tign trinh nang cao chit lucmg the chg, eii eich hinh chinh, ting dgng cfing nghe thfing tin cia bfi, eo quan ngang bfi. Tuy nhign, can efi thgm nhiing tigu chi khae dg thu thap y kiln ngudi din, doanh nghigp, higp hpi doanh nghiep dfii vdi ttmg bd, thim chi tting cdng ehue cg thi vl toin bd boat dpng cia bfi, eo quan ngang bfi.
Tha nim, chit lugng boat dfing cia bg va cie CO quan ngang bfi li tip hgp nhiing die tnmg, hoac nhdm cie tigu cM ttgn ea sd xie dinh rd cic nfii dung, nguygn tie, tigu chuin boat dpng. Nhuvay, vige dat ra eac tigu chuin chp chit luong ed y ngMa quan ttgng dl tu do xac dinh kit qui boat ddng nay efi dat chit lugng: Chi thi nio sg dat ra cae tigu chuan niy? Phuang phap danh gii chit lugng dfii vfii bd, CO quan ngang bd sg ra sao? Mfii bfi efi chtte ning, nMgm vg khie nhau, viy cd hieu qui hon hay khfing kM dinh gia bfi theo cung mgt chuan ddng nhit vdi nhau vi tu dd so sinh, xep hang cie bfi vdi nhau...n
Chitbicb:
1. Ngo Thanh Can, Nguyin Thi Ngoc Lan. TS chiichanh chinh nha node - Lyiuan vathac tiin.
H. NXB Tu phap, 2016.
2,4. Phong Thuong mai va Cdng ngUep Viet Nam (VCCl). Cbi so hieu qua boat ddng phap luit cua cic Bd MEI - 2014. http://mei.vibon- Une.com.vn.
3. Bp diu chi dinh gii chisd danh gii LDEA giai doan 2005 - 2009. Bao do cua Phdng Thuong mai va Cdngnghlip VietNam giai doan 2005 - 2009.
5. Bd Chisd cii dch hinh chinh. Bio do Chi sd cii each hinh chinh (PAR INDEX) giai doan 2012-2018.
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