NHiN RA Nl/dC NGOAI
THUA T NGir "QUAN L Y CONG M&l
VA UNG DUNG THUC TliN TAi OT-XTMY-U-A
LUU KliM ANH*
-hi ban ludn vd cdc thuat ngfl "hanh chfnh cdng" vd "quan ly cdng", .cdc nha nghidn e t a khoa hpc thudng quan nidm trong mpt sd trudng hpp, cdc thuat ngfl nay cd thd dupe thay thd cho nhau, trong mdt sd trudng hpp khde lai dupe sfl dung vdi ndi bam khde bidt. Trong bai vidt nay, hai thuat ngfl
"hdnh chinh cdng" va "quan ly cdng" dupe sfl dung vdi npi ham tuong duong nhau.
L Sy ra ddi ciia "quan ly cdng mdi"
Vdo nhtag thap nidn 70 thdky XX, mdt sd "ydu td mdi" xudt hidn trong hd thdng quan ly edng tai Hoa Ky va chau Au.
Khung hoang kinh td', tai chfnh, sy thay ddi trong nhan khdu, cac vdn dd vd^di cu va tai chfnh da budc C3ifnb phu 6t-xtray-li-a phai clt giam chi tidu va nang cao hidu qua boat dpng. Quan ly cdng kdt hpp quan ly tu dupe cdc nha cai each "tan ty do" dua ra xem xet nhu mpt cdng cu hay mpt lidu thude bach bdnh nhim dat dupe mdt chfnb phu hidu qua hon'
Thuat ngfl "quan ly cdng mdi" dupe dua ra ldn ddu vao nam 1989 bdi Christopher Hood nhim nhin lai va md ta cdc "hoc thuydt hanh chfnh tuong ty nhau" cua Ot- xtray-li-a, Ca-na-da, Niu Di-ian, Anh va Hoa Ky vao nhtag nam 1970 1980.
Christopher Hood dua ra cac dac tnmg cua quan ly cdng mdi (QLCM), gdm cd: (1) thay ddi tfl vide tap trung vdo chfnh sdch sang tap trung vdo kdt qua cd thd do ludng
dupe; (2) thay ddi tfl vide phu thupc vao md hinh "quan lidu" truydn thd'ng sang md binh vdi cdc thanh phdn kdt ndi long leo va gdn nhu chu ddng cung vdi cac dich vu theo hinh thfle ddu thdu; (3) thay ddi tfl vide tap trung vao phdt tridn va ddu tu sang vide clt giam chi phf; (4) cho phep cac nha quan ly cdng dp dung cac nguydn tic quan ly cua khu vyc tu; (5) thay ddi tfl md binh
"mdnh ldnh va didu hanh" sang md binh
"ty'didu hanh"
2. QLCM la gi?
a. Cdc thdnh phdn cua QLCM
Theo Christopher Pollitt (nam 2003)2, QLCM khdng thd md ta dupe bing mpt khai nidm don gian. Ong dua ra tam thanh phdn, dupe tdng hpp thanh cae nhdm:
"phan tach" (disagggregation), "canh tranh" (competition) va "khuydn khfch"
(incentivization). Tdm thanh phdn gdm:
thay ddi vd sy tap trung eua bd thdng quan ly: tfl vide tap trung dd'n ddu vao va qua trinh chuydn sang tap trung vao kdt qua;
thay ddi hudng dd'n do ludng va sd lupng, dac bidt trong bd thd'ng chi tidu chdt lupng va cdc tidu chudn rd rang; uu tidn cho cdc td chflc cd tfnh chuyen mdn boa, "hpc hoi", "ddng cdp" va cliu ddng hon la eac td chflc ldn, da chflc nang va cd bd thd'ng thfl bae; hpp ddng va cae mdi quan bd cd tfnh
• H<jc vi6n Cao hpc TrUPng Khoa hoc Xa hpi - Chfnh tri - Dgi hoc Melbourne, 6t- xtrdy-li-a
NHIN RA Nl/dC NGOAI
chdt hpp ddng dupe thay thd cho cae mdi quan bd chfnh thfle va mang tfnh thfl bae (vf du, nha nude thud cdc cdng ty tu nhan eung cdp cdc djeh vu cdng (DVC) nhu ve sinh mdi trudng thay vi ty td clifle); dp dung CO chd thi trudng cho vide cung cdp DVC (nhu cac ydu cdu vd ddu thdu eanh tranh); co chd thi trudng, ehdt lupng dich vu va dinh hudng khach hang dupe tap trung (theo dd, cdng dan hay ngudi sfl dung DVC dupe coi nhu khach hang); sy md rpng hay xoa md bidn gidi gifla khu vyc cdng va khu vuc tu; sy uu tidn dupe ehuydn tfl tfnh phd quat, binh dang, an ninh va kha nang hdi phuc, sang tfnh bidu qua vd chu nghia ca nhan.
b. Cdch tiip can ciia Batley vd Larbi^
Batley va Larbi da chi ra bai cdch tidp can ddi vdi thuat ngfl nay. C^eh tid'p can thfl nbdt tap trung vao vide nang cao nang lye quan ly va tai cdu true. QLCM dupe mP ta nhu mpt each "tidp can sy quan ly tdt", mpt phuang phdp quan ly dinh hudng kdt qua: hudng dd^n tfnh hidu lye, hidu qua va chdt lupng dich vu. QLCM hudng ddn nang cao chdt lupng dich vu cdng, giam chi tidu cdng, nang cao hidu qua boat ddng cua bd may chinh phu va giup eho vide thyc bidn cac chfnh sdch cdng cd hidu lye ban. QLCM thay thd cdu true thfl bae tap trung cao bing phan quydn quan Iy.
d each tidp can thfl hai, QLCM tap trung vao thi trudng va canh tranh, trong dd ed vide chuydn giao thyc hidn DVC cho khu vyc tu va dp dung cdc phong each quan ly cua khu vuc tu. QLCM dupe midu ta nhu "mpt bd gdm cac each tidp eta va ky thuat quan ly dupe mupn tfl khu vuc tu dd dp dung vao khu vuc cdng". QLCM dupe xudt phat tfl nidm tin vao tinh hidu qua va sy canh tranh cua thi trudng cung vdi tfnh hidu qua ciia sy quan ly trong mdi trudng canh tranh. Do dd, QLCM cd lidn quan ddn vide ap dung cac ydu td cua thi trudng canh tranh trong cung cdp DVC,
bao gdm: tu nhan boa va thud ngoai.
3. Phan biet quan ly cdng truyen thdng va QLCM
a. Qudn ly cong truyin thdng
Theo quan nidm truydn thd'ng, quan ly cdng la ydu td co ban cua boat ddng cbfnh tri nham xay dyng luat, giai tlifcb luat, thyc hidn luat va dam bao luat dupe thyc hidn. Cac nha quan ly cPng boat dpng theo cae quy djnh va tfnh thfl bae, tuan theo eac gia trj eua DVC, dd la sy tin cay, nhdt quan, dy doan va tfnh trach nhidm ddi vdi cdc CO quan lap phdp, toa dn trong vide thyc bidn va duy tri phdp che d ca lap phap, hanh phdp vd tu phdp. Nhtag ydu td nay dai didn cho lpi fch cdng cpng. Quydn lye ktidng ddi nghjeh ma cdn bd trp cho dan chu.
b.QLCM
Ddi vdi QLCrM, khu vyc cdng khdng tach bidt vdi khu vyc tu. Cdc nha quan ly cdng cho ring nhtag nha boat ddng kinh doanh, trong qua trinh theo dudi lpi fch cua bp tao ra nhtag gia tri cdng gidng nhu nhtag doanh nhan trong khu vyc tu.
QLCM la mdt xu hudng cai cdch nham giai quydt cac nbupc didm trong md hinh quan ly cdng truydn thd'ng. Christopher Pollitt md ta QLCM nhu mpt "chuong trinh cai each", sinh ra tfl sy that vpng vdi cac ldi va sy ydu kdm cua h^ thdng cbfnh quyen^.
, 4. Ke hoach cai each nen hanh chinh Ot-xtray-li-a
QLCM dupe md ta nhu mdt xu hudng ndi bat toan cdu. Mac dfl khdng tuydn bd chinh thfle ap duiig md binh QLCM, cac nd luc cai each tai 6t-xtray-U-a ed nhidu dac diem hudng ddn mpt chfnh phu theo md hinh nay^.
^ Nd luc cai each gdn day nhdt tai 6t-xtray-li-a thd hidn qua mdt chuong ttinh cai each toan di&i, gdm co 28 duan, dua tn&i cic khuy&i nghi ciia "Bp K£
70 TAP CHI QUAN LY NHA NUdC - Sd 203 (12/2012)
NHIN RA HUdC NGOAI hoach cai cdch ndn hanh chinh 6t-xtray-U-a"
ban hanh thang 3/2010. Bd nay dupe dd xudt bdi Nhdm tu vdn mdt nhdm dupe thanh lap bdi Thu tudng 6t-xtray-li-a nhim xem xet va ddnh gid lai hoat dpng cua bd thdng hanh chfnh.
Nhdm tu vdn da phdt tridn mdt bp kidn nghi, bao gdm cdc thay ddi l)dn vtag trong eung cdp DVC tai 6t-xtray-li-a mang tdn
"Kd hoach cai cdch". Kd hoach nay budng dd'n vide dua DVC tai 6t-xtray-li-a vupt qua nhflng thfl thdch tidm nang va cung cdp nhtag san phdm dich vu tdt ban dd'n ngudi dan. Ddng thdi, dd nang cao bd thd'ng, cdu true va cae qua trinh anh hudng dd'n ddu ra cua DVC.
^^ Bd Kd hoach cai each ndn hanh chfnh 6t-xtrdy-li-a tap trung vao bdn npi dung chfnh la: duy tri vd phdt tridn mdi quan he bdn chat vdi cdng dan trong cung cdp DVC; nang cao kha nang cua DVC trong vide eung cdp edc chfnh sdch chid'n lupc va dua ra ldi khuydn nhim xdc djnh cac thdch thfle ldn nhdt; ddu tu vao lye lupng lao ddng tryc tid'p cung cdp DVC thdng qua vide nang cao chdt lupng qua trinh tuydn dung va dao tao, tang cudng tfnh "di dpng"
va lidn kdt cdc didu kidn lam vide trong cdc td chflc eung cdp djeh vu va cdc each tid'p can mdi, phu hpp bon ddi vdi hidu qua lam vide; tap trung sau hon vao tfnh bidu qua va chdt lupng nhim dam bao td chflc cung cdp djeh vu cd hidu sudt va kha nang cao, vdi hidu qua dupe do ludng cu the dd bd trp cho qua trinh ldn kd hoach va nang cao chdt lupng cdng vide.
Bdn ndi dung nay dupe cu thd boa trong nhtag dd xudt cai cdch each dudi day dd nhdm nang cao chat lupng DVC tai Ot- xtray-li-a.
Cdi cdch 1: Cung cap DVC vdi chdt luang cao hem.
DVC cdn tang tfnh tfch bpp va phu hpp hon vdi nhu cdu cua ngudi dan. Ngudi dan
ngay cang chu ddng va cac doanh nghidp boat ddng khdng phu thude vao sy ban chd vd dia ly.
Bd Ke hoach eai each ndn hdnh cbfnh dua ra mdt hd thdng danh gid chdt lupng eung cdp DVC tfl gdc nhin cua ngudi dan nhdm phat tridn mdt chid'n lupc phdt tridn chung. CPng nghd mdi dupe dp dung cung md binh bpp tde gifla Chfnh phu vdi cpng ddng va khu vyc tu. Sy kdt ndi gifla chfnh quydn eac cdp eung dupe cung cd va phat tridn bing vide dat try sd cae eo quan chfnh quydn bang va khu vyc tai cung mpt dja didm.
Vide cam kdt vdi doanh nghidp cung dupe nang cao. Cac bdo cdo tidu chudn danh cho doanh nghidp dupe md rdng va cbfnh quydn dd xem xet lai cdc quy trinh boat dpng de giam ganh nang vd quy dinh cho doanh nghidp. Di xudt nay clii rd cai each dd don gian boa DVC; phat tridn phuong phap eung cdp DVC hidu qua hon thdng qua cpng ddng va khu vyc tu nhan;
tang cudng cdng tde gifla cbfnh quydn bang, vflng lanh thd vd cbfnh quydn khu vyc, ddng thdi, giam bdt cdc quy djnh khdng cdn thidt.
Cdi cdch 2: Xdy dung mgt Chinh phu
"md" han.
Mpt trong cdc nguydn tie quan trpng ciia ydu td md, dd la, Chfnh phu cdn tao didu kidn eho ngudi dan tham gia vao qua trinh thidt kd chfnh sach va DVC. Di xudt eai each nay dd nghj thyc bidn khao sat mflc dp hai long ciia ngudi dan ddi vdi chdt lupng cung cdp DVC cua Cbfnh phu. Khao sdt ban ddu tap trung vao DVC cung cdp cua chfnb quydn lidn bang, sau dd md rpng dd'n chfnh quydn bang va chinh quydn vflng.
Lpi the vd cdng nghd thdng tin hd trp thuc ddy sy lidn kdt gitta cdng dan va chfnh quydn cung dupe chu trpng. C2ac co chd true tuydn giup cho ngudi dan dd dang
NHIN RA N JdC NGOAI
giao tidp va dd xudt quan diem vdi Chinh phu. Bd kid'n nghi cd mdt Chfnh phu "md"
bon, cdn md rpng cung cdp thPng tin cho ngudi dan, gin lidn vdi cac quy dinh vd sy ridng tu va bao mat. Cu thd, dua ra hai dd xudt: tao didu kidn cho cdng dan hpp tac vdi Chfnh phu trong thidt kd chfnh sach va DVC; thyc hien khao sdt ddi vdi cdng dan.
Cdi cdch 3: Ndng cao chdt lugng chinh sdch.
He thd'ng chfnb sach cdng edn nang cao kha nang thyc hidn cdc nghidn eta nghidm ngat nhdm cung cdp cac ldi khuydn vd chfnh sdch mang tfnh chidn lupc va ed chdt lupng cao. Cdc co quan cdn nang cao nang lye thidt kd va phan tfch chfnh sdch. Vide nay edn dupe hP trp bdng cac cPng cy xay dyng chfnh sdch nhim xac dinh cae ydu td eo ban cho mdt chfnh sdch chidn lupc.
Lidn kdt vdi cdc td chflc giang day va nghidn eta dupe khuydn khfch dd tang cudng cbfnh sach mang tfnh chidn lupc;
xay dyng mdi lidn kdt vdi cdc td chflc nghidn eta va cac chuydn gia trong khu vyc tu; nang cao chat lupng vide thyc hidn chfnh sach.
Cdi cdch 4: Phuc hdi ndng life ldnh dgo chiin luge.
Thanh cdng cua chuong trinh cai cdch phu thupc vao ydu td lanh dao. Ngudi lanh dao xac djnh van hod vd gid tri cua bd thdng. Cdn lam rd vai trd vd trdch nhidm ciia cae thu ky, hd trp hp trong vide thyc hidn vai trd cung nhu nang cao tfnh trdch nhidm dd phu bpp vdi vai trd. Cai each dd nghi sfla ddi quy trinh bd nhidm va kdt thuc cdng tac cung nhu sfla ddi each thfle danh gia boat ddng ddi vdi cac thu ky, gdm: sfla ddi vd xac dinh cae gia tri cua DVC; xac dinh va tuydn bd rd cac vai trd va trach nhidm cua cae thu ky Nghi vidn;
xem xet lai cac phuong thfle bd nhidm thu ky Nghj vidn; tang cudng nang lye lanh dao thdng qua DVC; nang cao kha nang quan ly thdng qua DVC.
72
Cdi cdch 5: Gidi thieu mot uy ban mdi vi DVC di ddn ddt thay ddi vd cung cdp cdc ki hogeh chiin luge.
Mdt uy ban mdi dupe dd xjidt thay thd cho Uy ban DVC hidn tai d 6t-xtray-li-a.
Uy ban nay ddng vai trd nhu mpt co quan trung tam nham eung cdp hudng ddn chuydn mPn, giam sdt boat dpng va mdt sd dich vu tap trung cho cac co quan cdp dudi (dd cd the la mpt uy ban mdi vd DVC vdi trach nhidm ddn ddt DVC).
Cdi cdch 6: Ldm rd vd hodn chinh lgi cdc'diiu kien tuyin dung.
Bd Kd hoach eai each ndn hanh cbfnh dd xudt nang cao mP hinh tuydn dung cua Chfnb phu dd dam bao vide hP trp mdt hd thd'ng DVC thd'ng nbdt, khdng gay trd ngai trong vide dam bao va ddnh gia quy md, vai trd cua djeh vu didu hanh eao cdp.
Cdi cdch 7: Ndng cao khd ndng ciia lite lugng lao dgng.
Uy ban DVC cdn thidt lap mpt mP hinh xay dyng lye lupng lao dpng nhim xac djnh quy trinh quan ly tuydn dung, dao tao vao lam vide. Ngudi lao dpng cdn dupe hd trp nhim da dang hod va chuydn sau cae ky nang lam vide bdng each md rpng pham vi kinh nghidm nghd nghidp. Cu thd: phdi bpp quy hoach lye lupng lao ddng; sip xdp tuydn dung va eai thidn sfle hut ngudn nhan lye; md rdng va eung ed vide hpc tap vd. phdt trien; thyc bidn cung ed "khung bidu sudt" va khuydn khfch ngudi lao dpng md rpng kinh nghidm nghd nghidp.
Cdi cdch 8: Ddm bdo hiiu sudt, khd ndng vd hiiu life eiia cdc caquan.
Thudng xuydn xem xet lai hidu qua boat ddng cua cac co quan nhdm ddnh gia chidn luoc, nang lye lanh dao, nang lye cdng chflc va hidu qua cung cdp DVC.
Vide danh gia lai nay cdn dupe thyc hidn tfl nhtag danh gia vidn cua cdc td chflc bdn ngoai, gdm ca nhtag nha quan 1}/ cdp eao
(Xem tiip trang 77)
TAP CHI QUAN LY NHA NUdC - Sd 203 (12/2012)
T 6 CHLfC VA CAC TRl/dNG HANH CHINH TREN THE GI6I gdp y eho cae ly ljch, thu va cdc tai lidu xin
vide khac; hd trp thdng tin vd cac chidn lupc nghd nghidp va thyc tap; cung cdp cac CO hdi mang ludi nghd nghidp; hudng ddn, dao tao cae linh vyc nghd nghidp cbfnh ydu nhu phdng vdn, nghidn eta nghd nghidp, thuang lupng luong; trp giup ede djeh vu nghd nghidp lidn tyc sau khi tdt nghidp.
OCS cdn eung cdp eho sinh vidn rdt nhidu ngudn lye dd tao thuan lpi cho qud trinh nghidn eta cdng vide va thyc tap, bao gdm: tidp can SPEACareers.eom ngan hdng nghd va thyc tap chuydn phuc vu khdeh bang dd ddp flng cdc nhu cdu eua sinh vidn SPEA; sfl dyng khdng ban chd may fax van phdng eho vide giri va nhan fax; sfl dung didn thoai dudng dai midn phf cho cdc cude phong vdn qua didn thoai va cdc lidn hd ehuydn mdn; thu vidn vd cac
ngudn sach nhu budng ddn vide lam, cac tap chf djnh ky va sdch; bp suu tap md rdng eac ngudn nghd nghidp trdn trang web... Hidn tai, OCS tid'p tuc nd lye phdt tridn quan hd tdt dep vdi eac nha tuydn dung tdt nhdt dd giaiih dupe sfl tuydn dung lidn tue eua hp ddi vdi cae sinh vidn tdt nghidp cua SPEA. Trong sy cpng tac vdi ngudi sfl dung lao dpng va eac trudng dai hpc, OCS phdi hcjp td chflc cae cupc phdng vdn tai Trudng dd nhim thue ddy qua trinh nghidn eta nghd nghidp va thyc tap cua sinh vidnG
Tai lieu tham khao:
1. Bullentin: School of Public and Environmental Affairs, Graduate Programs, 2009-2011.
2. School of Public and Environmental Affaus 2015 (SPEA 2015). Indiana University.
Smart Policy. Sound Science. Stronger Communiti.
THUAT NGiir "QUAN LY CONG MQfr
(Tiip theo trang 72)
tfl cac CO quan khde. Danh gid cung cdn dua ra kha nang eua co quan dupe ddnh gia. Do dd, cdn phai danh gid lai nang lye ciia cdc co quan; gidi thidu cdc kdt qua chung dupe chia se qua cae danh muc ddu tu; cudi cung la giam cdc quy dinh gay phidn ha nhim tang cudng bidu sudt.
Cdi cdch 9: Ndng cao hiiu qud hogt ddng ciia cdc ca quan.
Day la vide xem xet lai cac co chd nang cao bidu qua boat ddng va qua dd, vide do ludng bidu qua cdn dupe can nhic ky ludng. Hidn Bd Kd hoach cai each ndn hanh chfnh dang dd nghi vide chinh sfla va ciing cd vai trd cua cdc co quan chinh phu, theo dd, cdc co quan nho cd co hdi nang
cao bidu qua trong vide phdi hpp cPng tde, gdm: xem xet lai quy chudn do ludng bidu qua hoat ddng; cung ed md binh quan trj (danh gid theo khung didm) va tao ra nhtag eo quan danh gia cd quy md nhd dd nang eao bidu qua chflc nang phdi hppQ
Chii thich:
1. Lynn, LE 2006. Public Management: Old and New. Routledge, New York and London.
2. Christopher Pollitt. The essential public manager. Open University, 2003.
3,4. Batley, R & Larbi. The Changing Role of Government: The Reform of Public Services in Developing Countries. Palgrave Macmillan.
New York, G. 2004.
5. Commonweath_of_Australia 2010, Ahead of the game: The blueprint for the reform of the Australian government administration.