Quản trị quốc gia theo tinh thần Văn kiện Đại hội Đảng toàn quốc lần thứ XIII Bước tiến mới và yêu cầu mới

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uEr NAM

uEN NHA NUdc vA PHAPLUAT

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Vietnam Academy of Social Sciences

Institute of State and Law


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NcuvBN vAN quAN: Quan tri quoc gia
theo tinh th0n Vdn kiEn Dai hQi D6ng todn qu6c lAn thir XIII:

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rcnnpl@,isl.gov.vn

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vAu KIEN DAI
Her oAuc roAN euoc rAx rntlxrrr: BUdc rrnx Mor
QUAN TRI QUoC GIA THEo TINH THAN

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Bdi vi€t trinh bdy vd phdn tich nhtrng tdc dQng cfia u,iQc ghi,nhqn nguyAn
tdc qudn tri t6t'trong cdc vdn ki€n cila Ddng CQng sdn Vi€t Nam A6ivA 6 chac vd hoat
dQng cila bO mdy nhd nartc. ViQc dQ cao cdc y€u t6 cila qudn tr! t6t cilng dfit ra nhirng
y€u1du vd thdch thac ddt vcti h€ th6ng phdp luQt qu6c gia.
T6m

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Abstract: The article presents and analyzes the effect of the recognition of good
governance principles in the instruments of the Communist Party of Viet Nam on the
organization and operation of the state apparatus. Promoting the elements of good

On

15

governance also poses requirements and challenges to the national legal system.

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Tu nhirng ndm 1990, cung v6i su tan 16
cua Li6n XO vd kh6i c6c nu6c x5 h6i chir
nghia, xu th6 todn cdu ho6 vd hQi nhap qu6c
t0 dugc dAy manh. g6i canh m6i t6c tl6ng
t ,,
sdu rQng toi to chuc vd ho4t dQng cria Nhd
nu6c, cfrng nhu t6c dQng t6i c6c thiOt chti xd
hQi kh5c. Ddy ld m6t trong nhirng nhdn tO

thiic dAy xu th6 chuy6n dich tu quin ly sang
quin tr!. Theo d6, qu6n tri dAn trcv thdnh mQt
thu6t ngir sir dung ptrO Ui6n dO m6 td cdc
chuy6n dOi tac dQng t6i viQc thuc thi quy6n
luc trong x6 hQi duong dai. Phucrng thirc
quin tri dugc qu6ng b6, ph6 bi6n vd thric
,^
I -^
vd moi t6 chirc xi h6i, bao
diy rr mgi cip d0
gdm cd Nhir nudc vd c6c t6 chric qu6c tti.

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76

tri

dugc xem

ld su thay th6 cho

PGS.TS., Khoa LuQt, Dai hqc Qu6c gia Hd NOi.
" TS., Khoa Lu4t, D4i hgc Qu6c gia Hi NQi.
Bdi vi6t ld m6t phAn.ktit qui cira pe tai khoa hqc c6p
86 "Quin tri t6t nhim phdng, ch6lg tham nhtng o

\ri6t Nam hiQn nay" do Vi6n Chi6n lugc vir Khoa
hoc Thanh tra cht tri thgc hi6n trong cdc nitm202l)022.

phuong thirc quin ly, cai tri truyAn th5ng,
d6nh d6u sg chuy6n minh s0u r6ng cua td
chric vi thlrc hiQn qryCr, luc nhd nu6c trong
, i.
bol cann mfi.

Du6i tdc d6ng cua c6c t6 chirc tdi trcv
.i
quoc t6, c6c nghidn ctiu cria gi6i hqc thuat
i

cflng nhu nhu cAu nQi t4i cira d6t nu6c, nhAn
l,;'
thuc v€ quin tri qudc gia ddn duoc ph6 bi€n
tai Viet Nam. Qudn tri t6t tung bu6c dugc
thria nhfln nhu li mQt ti6u chuAn ctra quin ly
c6ng hi6n dai, chia kho6 dC x6y dmg mQt
xd hQi vdn minh, thinh vucr-ng. CLc vdn kiQn
cira D6ng CQng sin ViQt Nam gAn day da dO
,;.A'
c4p t6i c6c y6u to cira qu6n tri qu6c gia,
quin tri tOt. pieu ndy d[t ra nhirng th6ch
thirc cho t6 chirc vd hoat dQng ctra b0 m6y
nhd nu6c ctng nhu t6i h9 th6ng ph6p luAt
ViQt Nam trong giai tloan t6i.

1. Kh6i luqc viiquin tri qu6c gia

Thuat ngft "qu6n tri qu6c gia" (d6i khi
dugc ggi lir "quin tri c6ng", "quin tri nhd
nu6c") o ViQt Nam c6 16 dugc dich tit thuft
ngit governancelpublic governance trong
titing Anh. Theo Daniel Kaufmann,
3


NH) NtJdc v) pnAp tuAr sO ctzozt
governance ld: "Cdc truyAn th6ng vd th6
ch6 md dga vdo d6 dC th$c hi0n quydn luc
(WB) xem governance ld "... crlch thric md
quydn luc duoc thpc thi th6ng qua c6c th6
ch6 chinh tri, kinh t6, xd, h6i cira m6t qu6c
gia"2. Theo Chucrng trinh Ph6t tri6n Li6n
hqp qu6c ([INDP), governance ld "vi6c
thgc thi quy6n luc chinh tri, hdnh chinh,
kinh t0 dd quan ly c6c v6n de cua qu6c gia
cr mgi c6p dQ"3. Cdn theo NgAn hdng Ph6t
tri6n chAu A (ADB), "governance noi d,6n
m6i truong th6 chd md cy do c6c c6ng ddn
tucrng thc vor nhau vd vfi c6c co quan,
quan chirc nhd nu6c"a.

Trong thuc t6, governance ld mQt thu6t
A!
g5n v6i tO chirc vd hoat d6ng
ngt chu yeu
cira b0 mfry nhd nu6c (qudn tri qutic

gialquin tri nhd nu6c). M[c du kh6i ni6m
ndy ctng dugc sir dung trong mot s6 b5i
cinh khiic, ch6ng han nhu qudn tri doanh
nghiQp (corporate governance)s, qu6n tri
I Daniel Kaufmann, Aart Kraay,
Massimo Masffuzzi.
The Worldwide Governance Indicators Methodology

and Analytical Issues, The World Bank
Development Research Group Macroeconomics and
Growth Team, September 2010. Xem: https://papers.
ssm.com/so13/papers.cfm?abstract_id:
cfp ngdy 201412021.

I

682 I 3 0, truy

2

World Bank (2006), Making PRSP Inclusive, xem..
https ://documents I .worldbank. org/curat edl enJ 59 I 5 I
I 52042530 524 I lpdfl 1 2397 5 -WP-ENGLISH-Makin

g-PRSP-inclusive-PUBLIC.pdf,
08t1t2021.
3 TINDP (1997),
Governance

Development,

http

s

:

truy c0p

ngdy

& Sustainable Human

A LINDP Policy

//di gitallibrary.un. org/record/3

8

3I6

Document,

62, truy

c1tp

ngdy 20/512021.

4 ADB (2005), Governance; Sound Development
M an agem e nt Governance, https ://www. adb.org/sites/

default/fi les/institutional-document/320
.pdf, truy cqp ngdy 201512021.

27 I

govpolicy

5 quan tri doanh nghidp dA cflp d6n cdch
thr?c t6
chr?c, qu6n l1ir, thuc hi6n cfc hoat d6ng trong n6i b6
cira mQt doanh nghi6p. VA "cooperate governance",

4

qu6c tC (international governance), qudn tri
todn cAu (global governance;...6. OOi v6i
:
qudn tri quoc gia, c6 nghidn cuu lai chia
thdnh quin tri o c6p d6 todn qu6c fuational
governance) vd quan tri o c6p dia phuong
(local governance), trong do mic du chia s6
^! tdc
nhirng nguyen
chung, nhrmg cr m6i c0p
co m6t so d6c trung ri6ng7.
VC

mit lich su, qu6n tri qu6c gia re

ben

chAt kh6ng phni ld mQt kh6i ni6m chinh tri,

ph6p lj'm6i md dd duoc dd cap tu liu tr6n
th6 gi6i. Ngay tt thdi Hy Lap - La Md c6

dAi, mQt sO nhi tu tu*g, vi dU nhu
Aristotle, dA dA cflp d6n vAn dC ndy th6ng
qua nhirng luAn cli6m vA c6c m6 hinh, vai
trd vd c6ch thric quin tri cira Nhd nu6c8.

Mac

dt vay, kh5i ni6m qu6n tri
I

nhd

nuoc/qudn tri quoc gia m6i chi duoc quan
tim c15c biQt vd th6o luAn r6ng rdi tr6n th6
gi6i kC tu cu6i th0 ki XX, khi nhidu nu6c
nhAn thiy cAn cai c6ch m6 hinh qurin ly vd
hdnh chinh c6ng (Public Administration and

vi

dU, xem OECD (2004), Principles

e,

of Corporate

http //www. o ecd. org/corpo r ateI cal corp
orategovernanceprinciples 131557724.pd1 truy c0p
ngiry 201412021.
G o v e r n an c

:

6

quan tri qu6c te d6 cap d6n hoat d6ng cua c6c t6
;/,
clruc guoq te vd cdc qu6c gia trong vi6c gidi quy6t
cdc vdn dd toan cAu nhu bi6n d6i khi hAu, xung tl6t,

tranh ch6p lanh th6, ch6ng khung U0... VC
"interrrational governance", vi dg, xem trang web
cira Chatham House, tai tham
house. org/re search/topics/international-law-and-

gove

mance/international-governance,

ngdy

truy cap

201412021.

7

Vi dU, vC qu6n tri d c6p tlia phucrng, xem muc
Local Governance tr6n trang web cua INDP
http //www. undp. org/content/undp/en/home/our-work
/democratic governance/focus_areas/fo cu s_local_gov
ernance.html.
8
Corina Adriana Dumitrescu, The Concept Of Good
:

Governance

In Aristotle's View, tai

dc.rolnr_3_en I l%20 -%20THE%20CON CEPT %20O
F%20GOOD%20GOVERNANCE%20IN,,/o20 eng
.pdf, truy cap ngay 201412021.


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J-L'rc gia vC ban

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::rim chinh tri,
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L.rp - La Ma c6

n{. r'i du nhu

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. .-ua Nhd nu6c8.

:--'. qudn tri nhd
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.:
Irrng l-?l tren the
i. khi nhiOu nu6c
.i irinh quin ly vd

rJ.:lrnistration and

'' ..;i o/ Corporate
- :.rrporate/calcorp
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ndf-. truy cap

-

\{anagement
PAM; AC dap img nhirng
iu cAu ddtra cira todn cAu ho6. DAu ti6n, ly
,;)."
:hur'6t v€ quan ly c6ng m6i (New Public
\lanagement - NPM) iluoc khoi xufngq voi
ki' vong girip chuy6n d6i m6 hinh PAM
:ruv0n th6ng dd bQc lQ ngdy cdng nhidu han
ch0 sang m6t mO hinh hiQu qui hcrn. Tuy
rhien, NPM cflng nhanh ch6ng th6 hiOn
nhnng b?t cap trong thuc t610, vi v4y mQt
mo hinh khrlc dugc khoi xufng v6i t6n goi
.i quin tri c6ng (Public Governance), hay
quan tri c6ng m6i (New Public
Governance)11. Thuflt ngt public
::o\ emance trong 2 - 3 thpp kj' gAn ddy dAn
iin duoc dtng thay th6 cho thupt ngfr
:ublic administrationipublic management,
:rong d6 Nhd nu6c dinh cho minh vi tri gdn
nhu ddc t6n vd thi6n vO 6p dr,rng c6c bi6n
rh6p c6 tinh 6p dAt dC quin ly xd h6i12.

',

\-e NPM, xem Ewan Ferlie, The New Public
'"Itnagement and Public Management Studies,
:rtbrd University Press. Published online: 29 March
I rr I 7. 0. 1093lacreforel97801902248
r : .013.129, lruy
ngiry 201412021.
Ye vin d6 ndy,"0p
xem Oehler-Sincai, Iulia Monica,

;:,ettgths

: -,: itrfl9

CUa CdC td

:: -: r.rc gi6i quy6t
!' . : riu. xung dQt,
. . -rq b6... VC
\.

:-.. ,.,'lt

-

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trang web

rvrv.chatham

.!' ...-1au'-and-gove
: ri--'. cQp ngAy
:

I -*l:I. XCm mUC
,-.Lla
UNDP
'=,- - " ,,tttc' OufWOfk
--.r: local_.gov
, - tpt OfGood
:.:tp: cogito.uc

r\CEPT%20O

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eng

And

Vi6c chuyCn d6i tu tu duy qudn ly cfr
sang tu duy qurin tri trong hoat d6ng cua

Nhd nu6c dd duoc kh6 nhi0u hoc gii phin
tich, trong do cho thdy dlty ld xu hudn g oia
th0 ki XXI vd phin 5nh sy thay d6i 16r
trong nhAn thtlc vd c6ch thric thuc thi quy6n
luc chinh tri o c6c qu6c gia13. Sg chuydn d6i
ndy cho thlty vaitro cua Nhd nu6c trong th6
ki XXI dang vd sE thay d6i, vi tri d6c t6n
cua Nhd nu6c sE giam di, dti chia se quydn
luc v6i nhfrng thi6t che vd chu thO dAn chi
m6ir4. Nhitng thi6t ch6 ddn chu m6i ndy
dang ldm thay d6i m6i quan h0 gifr,a c6c chu
th6 tham gia vdo c6c hC th6ng chinh tri, th6
hi6n qua su di€u chinh c6c quydn, nghTa r,.u,
tr6ch nhi0m giira c6c bdn li6n quan. So v6i
m6 hinh quin ly nhd nu6c tru6c dAy, m6
hinh qu6n tri nhd nu6c hi0n nay c6 sU tham
gia chu cl6ng cira mdt pham vi c6c chir the
r6ng l6n hon rAt nhi6u. Quy6n luc chinh tri
duoc phdn b6 mQt c6ch hcr,p lj,gifra b0 m5y
nhd nu6c vd nguoi ddn, th6ng qua su hinh

vi hoat d6ng cria c6c
phong trdo vd t6 chric xd h6i, cfrng nhu qua
vi6c phfln quy6n tu chinh quy6n trung uong
;
,,
,
1
,.
xuong chinh quydn dia phuong. Trong ti6n

thdnh, ph6t tri6n

Of The New Public
Cross-Sectional And
- ,,rgitttdinal Analy,sis, Paper for the Conference
. _lanized by the SOG and the
QoG Institute,
'-

trinh ra quyrit dinh vd thuc thi c6c quy6t
dinh chinh s6ch, m6 hinh qudn tri doi hoi
c6 su tham gia cua nhidu chtr th6 knAc

!"1;:rgement and the
Quality of Government,
'* '. ember l3-15, 2008. Tai - *: nchen. de l 1 17 6T l l lMPRAlaper_ 1 17 67 .pdf, truy

Society

t.!.:nagement

:.:.'

--:,:

Weaknesses

NPM)-

ersity of Gothenburg New

rgiy

Public

: :,r.'ic Governance?, Public Management Review,
'...-.ume
8, 2006 - Issue 3, Pages 377-381 | Published

-.:ne: 18 Feb 2007. Tai dfonline.

- :: do i /abs/ 0. 1080 I I 47 1903 06008 5 022?j ournalC
,::=r-prm20, truy c{p ngtry 201412021.
' \em World Bank (1992), Governance and

.
'

the New Millennium, Commonwealth

13

20/412021.

\-e vin d6 ndy xem Stephen P. Osbome, The New

1

in

Foundation, London.

3

...-.rtpntent, World Bank,Washington, DC; LINDP
-q- ) Governance -fo, Sustainable Human
.. --.,)pment, LINDP, New York; Commonwealth
-:.irtion (1999), Citizens and Goyernance: Civil

Arthur Benz, Yannis Papadopoulos, (eds, 2006),
Governance and Democracy: Comparing I'lational,
European and International Experiences, Nxb.
Routledge, London, tr.27 3 -292.
la Xem, Seth Lartey
and Deepti Sastry, Governance
in the Commonwealth: Current Debates,
trong Governance in the Commonwealth: Current
Debates (Seth Lartey and Deepti Sastry edited), O
2010 Commonwealth Foundation,
monwealthfoundation.com/sites/cwfl fi les/downl oads
/Governance_in_the_Commonwealth current debat
es.pd I tr. 10. truy cAp ngay 2014/2021 .

5


xaA xt/6'c vA rnAp utAr sd ctzozt
nhau, v6i mric dQ, vai trd, c6ch thirc, thdi
di6m vd giai doan khiic nhau. C6c chir th6
tham gia co th6 chinh thuc (formal ctctors)

hoic kh6ng chinh thtrc (informal actors),
co vi tri trong chc cdu truc chinh thirc
(formal structures) hodc kh6ng chinh thric
(informal structures)ls. Trong d6, Nhd
nu6c lir chu th6 chinh, nhung kh6ng phii
duy nhAt. Ngoii Nhi nudc, cdn c6 c6c cht
th6 kh6c md sg tham gia phu thu6c vho
tung d4ng vd b6i cinh cira quin tri, vi du
nhu ngudi ddn, doanh nghi6p, c6c tO chric
phi chinh phu, c5c t6 chric qu6c t6, cic
ding chinh tri, cac t6 chirc t6n gi6o, c6c co
quan truyAn th6ng, cbc co so hoc thu4t...
N6i c6ch kh6c, co ch6 quin tri d[c trung
boi sU tham gia, phOi hqp vh ho. p tlc cta
nhidu chir th6 kh6c nhau trong xiy dung vd
thUc thi chinh s5ch, khSc biqt v6i c6ch thirc
quin li mang tinh chi dao don phuong,
mQnh 16nh tru6c d0y'u. Tu nhtng ddc trung
ndy cira qudn tri, co hoc gi6 xem quin tri lir
m6t "h0 hinh" (paradigme) m6i cira Nhd
nu6c trong tuong lai17.

2. Quin tri qu6c gia tiit
Tri nhirng phdn tich 6 muc tr6n, co th6
thfly quin li nhd nu6c, quAn tri nhd
nu6ciquan tri qu6c gia ld vAn d0 th6 ch6, la
sg bi6u hiQn cua th6 ch6. Hi0u qud quan tri
qu6c gia chinh ld thu6c do t6c dQng cua thti
ctrti. tr,lQt dAt nu6c mrr6.t gidu mpnh cAn
15

United Nations Economic and Social Commission

for Asia and the Pacific, What is Good Governance?

Tai

http ://www.unescap.org/sites/default/fi les/good-

governance.pdf, truy cflp ngdy 201412021.

'6 Nguy6n Vdn Quin, Vai trd cira t6 chuc xd h|i
trong quan tri nhd nactc hi(n nay, T1p chi Luflt hqc,

z/zotg, tr.ss.
Chevallier, Jacques, La gouvernance, un nouveau
paradigme itatique?,Pievte frangaise d'adminis
s6
17

trationpublique, vol. n"105-106, no.
203-217.

6

l-2,

2003, tr.

phAi dugc quin tri theo c5ch thric ti6n ti6n,

vi "th6 cne ti6n b0 sE mo duong cho dAt
. ;i ..r a
nuoc phat tnen '".

Kh6i niQm quan tri qu6c gia theo c6ch
.:,
thuc ti0n tien co thO hi6u th6ng qua m6t
thu0t ngt dugc dung r6t phO bi6n boi c6c tO
:;,
chuc quoc te trong vdi thAp kli gAn diy, do
ld good g,overnance (tam dich li qurin tri
qu6c gia t6t;. Oay cfrng kh6ng phni ld mQt
khSi niQm hodn todn m6i, vi m6t s6 quan
I I
-;
-.1
di0m vd vin d0 ndy dd duoc cl6 cpp boi mQt
sO nhd tu tucrng Hy Lap - La Md cO eai. Vi
du, Aristotle, trong Chinh tri 1u4n (Politics),
bing viQc phin tich d[c diem. cdc nguy6n
:,
tic hoat dong cua c6c dang ch0 d0 chinh tri,
c6ch thirc t6 chric qudc gia vd c6c m6 hinh
din chirle thuc chdt dI tao lap nhimg n6n
:r)n
l
tang ly ludn ve quan trr quoc gta tot'".
t<6 tti th4p ni6n 1980, cung voi khSi
A
niem quan tri quoc gia, kh6i ni6m quan tri

qu6c gia t6t duqc dC cap d6n ngdy cdng
nhiiiu. Nguy6n nhdn dugc lj' giei ld bdi
thuc trang qudn tri qu6c gia kbm (bad
governance) md c6c d6u hiQu dflc trung li
tinh trang tham nhfrng, chinh quyOn thi6u
tr6ch nhi6m, thi6u ndng lgc... ngiry cdng
nghiOm trgng tr6n th6 gi6i, ddn d6n nhu
cdu cin tim ra biQn ph6p gi6i quy6t21.
18

Thu hing, TrAn Thuong, Thti ta6'ng: Th6.ch€ ti6n
bA sd mo du'dng cho ddt nabc phdt tri€n, xem'.
- su/chinh-tri/thu-tuongs //vietnamnet.vnL./vn/thoi
the-che-tien-bo-se-mo-duong-cho-dat-nuoc-phat-tri
en-687546.htm1, truy cip ngdy 81112021.
1e
Xem quy6n 3 vd 6 cta t6c ph6m Chinh tri luAn,
ban ti6ng Vi€t, tai lvilnodel366, truy
cfp ngdy 201512021.
20
C[ng xem Corina Adriana Dumitrescu, tldd.

http

:

2r Xem Good

Governance in Multiethnic
Instruments, Best

Conditions,
Communities,
Practices, Ways to Achieve and Measure Good
Governance at the Local Level, Ajoint publication
of the Ethnocultural Diversity Resource Center and
Foundation, 2001 . Xem:

the King Baudouin


eaAN rRt eu^c GrA..

::.:

:hLrc ti6n ti6n,
.
-a
l- " i.Itrll9 Cno dat

r

.. - sia theo c6ch

.* .:tong qua m6t
::.: rrcir-r boi c6c t6
-.;l r\ gan day. dO
:. .'.ch ld quin tri
r.r.le phai ld mQt

'.. , i

nrot s6 quan
-r,'. tlcr cAp boi m6t
- -. \la cO d7i. Vi
: ::r iLian (Politics),

i.r:r.

c6c nguy6n
:: . dd chinh tri,
::; r li c6c m6 hinh
:;., Iap nhrtng ndn
-.,; sia t5t2o.
jr,-r

Trong b6i canh d6, quin

tri qu5c gia t6t trcr
:hanh m6t ytiu t5 quan trong trong c6c
;hucrng trinh nghi su vd chinh tri vi kinh t6
;a o cAp dQ qu6c t6, khu vuc vd qu6c gia;
dong thoi duoc xem nhu m6t trong nhtng
tieu chi cdn bin dC d6nh gi6 sy ph6t tri6n
cua m6t d6t nu6c.
Cfrng gi6ng nhu kh6i ni6m qurin tri
;uoc gia, c6 nhi6u dinh nghia kh6c nhau
'.3 qu6n tri qu6c gia t6t. Tuy nhi6n, theo
-'jc crr quan Li6n hqp qudc, qu6n tri qu6c
:ia t6t bao g6m 8 dflc trung chinh (major
:haracteristic)22 d6 li: Sg tham gia

::trticipatory), dinh hu6ng d6ng thufln
-onsensus oriented), trirch nhiQm gini

:-nh

(accountable), su minh bpch
:,ansparent), sU kip thdi (responsive),
::nh hi6u luc (effective), tinh hiQu qu6

.tt. cirog v6i kh6i
':..ri ni6m quin tri
i: din ngdy cdng
-,; lr giai ld boi
r - gia kem (bad

,t.fiicient), tinh binh dEng vi kh6ng loai tru
;hu th6 ndo (equitable and inclusive) vit
ruan thri ph6p quyA n (follows the ruie oJ'
.irr ). ss th6 nhu Sau23:
S1r tham giu

..:Ju ddc trung ld
.:.:i,h quy€n thi6u
.:;... ngdy cdng
::,-'.. din d6n nhu

n.it

:,1 eiai quy6t2r.

., ':i ,r.s. Th€ ch€ tt€n

: . .:',rrit tri€n, xem..
- .- :h-tri/thu-tuong- --rl-nuoc-phat-tri
. - I rll.
:-.:::

Chinh tri luAn,
:-,inode/366,truy

:::scu. tldd.

.)i

,Vultiethnic

"' .,'.lrtents, Best
-, .; \le usure Good

. r. , .. nt publication
l:. ,.rCe Center and
.:: :' 1007. Xem:
.

i

1'€u

t6 c6t l6i cira qu6n tri qu6c gia t5t.

Quin tri qu5c gia t6t ddi h6i ph6i c6
khu6n kh6 ph6p luit c6ng bing vd ph6p lu6t
phii ctuqc thyc thi m6t c6ch kh6ng thi€n vi
(impartially). B6n canh cl6, qu6n tri qu6c gia
t6t ddi h6i c6c quy6n con ngudi, Aac UiCt ta
quy6n cua circ nh6m thidu s6, phii duoc bio
vC mQt c6ch dAy du vd hi6u qu6. ViQc thqc
thi phrip lupt m6t crich kh6ng thi6n vi ddt ra
y0u cdu b6o dim m6t n6n tu ph6p dQc lap
(independent judiciary) vd m6t luc luqng
cinh s6t li6m chinh, v6 tu (impartial and
incomrptible police force).

Minh bgch

' .,.*u.annalindhfoundation.org/sites/annalindh.
:. tlocuments/publication/pub_ I 660_good20g
-'-*'::!-L-_rrultiethnic_com_light.pdf,
tr.13, truy
- --:ri 201412021. C[ng xem Miriam
Wyrnan,
. . ! Ltbout Governance; A DraJi Discus.sion
. :rr'pared for The Cornmonwealth Foundation
',-\ and Governance programme, tai
- .,.',,.ri.cducation.gov.mt/youth/pdf_cyflCyF T
-- t .,neepr_Papers cg governanceJaper.pdt
'

-:'

Su tham gia cta nguoi dAn dugc xem ld

tri

qu6c gia t6t ddi hoi phii c6 sq
tham gia cua nguoi ddn mQt c6ch truc ti6p
ho[c gi6n ti6p th6ng qua cdc co quan dai
diQn (representative) ho6c ctrc thi6t ch6
trung gian hqp ph6p (legitimate
intermediate institution). Circ Nhd nu6c cdn
th6ng b6o vd t6 chirc cho ngudi d6n tham
gia vdo qudn ly xd hQi. Di6u ndy doi hoi c6c
Nhd nu6c phii brio d,ttm circ quyen tu do
hiQp h6i vd bi6u dat, cfrng nhu su t6n tai vi
v4n hdnh cua x5 h6i c6ng d6n co t6 chric
(organized civil society).
Phdp quyin

Quin

:: :.r!a)

-

20.112021

.

' : .,i tii. li6u goi ld c6c nguyCn
- ...,::

' ji
.

:ri

\arions Economic and Social Commission

,. .:nd the

'

t6c (principle)

tc'lt.

:

Pacific, What is Good Governance?

(itnantun(e in Multiethnic Communities,
'., . Ittstt.utuents, Bet-t practices, Ways to

- .:, .i \leusttre Good Governance at

the Local

Qudn tri qu6c gia t6t ddi hoi su minh
bach. Minh bach c6 nghia ld khi dua ra c6c
quyet dinh vd thlrc hi6n c6c quytSt dinh, Nhd

nu6c phdi tuin thu c6c lu6t lQ vd quy tic.
N6 cf,ng c6 nghia ld th6ng tin v6 qu6 trinh
ban hdnh vd thi hdnh cdc qryt5t dinh do phdi
c6ng khai cho moi ngudi, dpc bi6t ld nhirng
nguoi chlu inh hucrng bcyi cdc quytit dinh
do. Kh6ng chi vAy, minh bach con doi hoi
nhftng th6ng tin dd n6u ph6i duoc c6ng khai
m6t c6ch ddy dii, nhanh ch6ng, du6i nhftng
dang thric d6 hieu, bao g6m tr6n c6c phucrng
ti6n truy6n th6ng, dC moi nguoi d6u co th6
t4rc ti0p ti6p cpn.

7


N(loc v) puAp tuAr sO ctzozt

NHA

Sti klp

HiQu ltgc vd hiQu qud

thdi

Qu6n tri quoc gia t6t ddi h6i c6c thi6t
ch6 vd tii5n trinh cung c6p dich r,u c6ng cua
Nhd nu6c phii phqc w tAt cd cilc chu th6 co
1i6n quan trong mQt khung thoi gian co th6

chnp nh0n dugc (within

a

reasonable

timeframe).

Dlnh hudng iling thuQn
O bat kj, xd hQi ndo cflng c6 nhtng
nhom xd hQi kh6c nhau v6i nhiOu quan di6m
kh6c nhau vA m6i vAn d6. Quin tri qu6c gia
t6t doi hoi c6c Nhd nu6c ph6i trung hod
(mediation) c6c lqi ich kh6c biQt (different
interest) trong xd hQi dC dat rlugc sg d6ng
thufln r6ng rdi (broad consensus) vA mQt lqi
ich t6t nhAt cho todn thd cQng d6ng vd c6ch
thric d6 d4t duoc muc ti6u d6. N6 cfrng ddi
hoi c6c Nhir nu6c phii v4ch ra m6t chi6n
luoc hay viSn cdnh rdng vd ddi hpn (a broad
and long-tenn perspective) vC nhirng gi cAn
thi5t cho su ph6t tri6n 6n dinh v0 con nguoi
vd c6ch thirc d4t duoc nhfing muc ti6u cira
sg ph6t tri6n do. Di0u ndy chi co th6 ttat
duoc khi c6 sg hi6u bi0t dAy dir vC bOi canh
lich su, v[n ho6, xd hQi cira m6t cQng d6ng
,:
hay quoc gla.

Binh il&ng vd khilng logi trb

ch,rt

thii

ndo
.i
Quin tri quoc gia t6t ddi hdi su binh
ding vd kh6ng lopi tru nhom hay c6 nhdn

ndo trong xd hQi khoi qu6 trinh ph6t tritln.
SU thinh vuqng cua mQt x6 hQi phu thuQc
vdo viQc b6o dim 6t ca c6c thdnh viOn trong
xd hQi cim nhdn ring, ho ld mQt thdnh to
trong do chu kh6ng bi gat ra b6n tC. OiCu
ndy co nghia ld tlt cit c6c nh6m xd h6i, ddc
biQt le c6c nh6m Oe Ui tOn thucrng, dOu ph6i
c6 co hQi dugc duy tri vd nAng cao sp thinh
vuqng cira hq.
8

.:

Quan tri quoc gia t6t c6 nghia ld c6c
ti5n trinh vd th6 ch6 dem lai nhirng ktit qui
d5p irng c6c nhu cdu cira xd hQi trong khi
.i.
chi tieu ton c6c ngu6n luc o mtic t6i thi€u.
KhSi niQm hi6u qud trong quan tri qu6c gia
tOt con bao hdm vi6c su dung c6c ngudn tdi

nguy€n thi6n nhi6n m6t cdch bi:n vfrng vd
bao vQ mdi truong.
Trdch nhiQm gidi trinh
Trdch nhiOm giii trinh ld mQt yOu ciu
cot y6u cua quan tri qu6c gia t6t. Kh6ng chi
c5c co quan nhd nu6c mir c6c tO chirc xd hQi
c6ng dAn vn khdi tu nh0n cflng phii c6 tr5ch
nhiQm giii trinh tru6c c6ng chirng vd trudc
c6c d6i t6c. Pham vi chrJr th6 vd dOi tuqng
hucrng t6i cria tr6ch nhiQm giai trinh kh6c
,;
nhau giria c6c quoc gia, phg thuQc vdo vi6c
c6c quy6t dinh vd hdnh dQng dugc tii5n hdnh
hay iry dgng o trong hay o ngodi co quan, to
chtlc do. Tr6ch nhiQm gi6i trinh co m6i
quan hd khdng khit v6i phdp quyAn vd sg
minh bach. Kh6ng thti co tr6ch nhi6m gidi
trinh n6u kh6ng t6n trong vd thuc hi6n c6c
^i
nguy6n
tdc ph5p quy6n vd su minh bach.
AA

Tu nhirng
:

tich 6 tr6n, co th6 thAy
quan tri quoc gia t6t lii m6t tq.p hW nhitng
ti€u chi cho sry vdn hdnh ci,ta xd h\i nhdm
': muc ti€u thuc ddy, bao ddm sqt

huong d€n
phdt tri€n hdi hod, bin virng cua mfi qudc
:'
gia. Quan tri quoc gia t6t kh6ng phdi ld mQt
m6 hinh t6 chtcc, hoat dQng ctia m6t Nhii
nactc hay m)t h€ thiing chinh tri, md ld cac
^,J
nguyen
tdc dinh hrong cho viQc thiil kA vd
vqn hdnh bQ mdy nhd nu'ctc hoetc h€ thring
ch{nh tri do2a.
ph6.n

V[ C6ng Giao, Nguy6n Hodng Anh, DSng Minh
TuAn, Nguy6n Minh Tu6n (d6ng cht bi6n, 2017),

2a

Quan

tri tih; Li

qu6c gia, tr.24.

luc.tn

vd thryc ti6n, Nxb. Chinh tri


euAN rR! eadc GrA..

g

-': ...

trghia ld c\c
-. .-: nhtmg .iKet qua
trong khi
-, r.-, hoi
.
i. ,.,1
,
.:- nrLrc tor
threu.
.^
.: -. lrn trl quoc g1a
,l
i-.:-.L e ac nsuon tat
-,,-n b0n virng vd
inJt

'-'-

L,r

lxot veu

I

cau

;

-..r tot. Kh6ng chi
.1 .,,. to chuc xd h6i
'. ;,i:rg phdi c6 tr6ch
-i::: chtng vd tru6c
. ,r.
.-, :tlL- \-a dol tU0ng
:rr::t siai trinh kh6c
rhLr thu6c vio vi6c
1i::g duoc ti6n hdnh
,i
r' ll!O31 C0 quan. tO
r:.ri trinh co m6i
l.
va su
:r.rp quyen
:rich nhi6m giai
:-- .I thuc hien c5c
,
' ru minh bach.

'

,,t

,i

:rcn. co the thay
,,: : tqip hqJp nhftng

,J

,- .;.ii. bdo ddm sa
;
.," - ( ttd mol quo(
.'

phai ld mQt
,:,:
.i t'tia mOt Nhd
. :.,:,: tt'i. nru la cac
,.; ke
,; va
'' '. 1L'( lhtel
,'.:' - lto(tc hQ th6ng
. ;',;/1s

'l

-,"_: \nh. D4ng Minh

: -= .-hu bien, 2017),
\rb. Chinh tri

Ctng tir nhirng phAn tich n6u tr6n, c6
,l
:he thiy quAn tri quoc gia tot ld kh6i niQm
:it rdng l6n, bao trum cA ba chidu canh
--hinh, do ld2s: fi tinn t€: Thd hi6n o c6c
:uuyOn tic nhim thric dAy tinh c6ng khai,

rlinh bach trong hoat d6ng cira co quan nhd
ruoc cfrng nhu tinh hiQu qua trong vi6c
quan ly vd su dung c5c ngu6n luc c6ng. Vi
':,i h6i: fhe nien 6 chc nguydn tic nhim
:n[c dAy su binh dlng vd su tham gia cia
:euoi dAn vio cdc hoat d6ng quin ljr nhd
:-roc, quin lj.xa hQi. Vi chinh /ri.' Th.5 hien
:' nhdm tdng cudng ph6p
.' cac nguyen tdc
:.r1'en vd trdch nhiem

giii trinh

cua bQ m5y
..:a nu6c. Do tinh ch6t r6ng l6n nhu v0y,
.:ic biio dtmtdt cd cdc nguy6n tic cua quin
,I!
::r quoc gia t6t ld kh6ng dC ddng. Trong
::uc t€, hiQn m6i c6 it qu6c gia dat duoc t6t
,: cdc ti6u chi cua quiin tri qu6c gia t6t. Tuy
:,riin, dAy ld muc ti6u md circ qu6c gia v5n
:in nd luc dat duoc dC ph6t tri6n b6n Wng.

3. Quin

tr! quiic gia O ViQt Nam tir

D6i mrfi (1936) tl6n nay
Qudn tri qu6c gia, vdr cung v6i no ld
.r.

-:an rri qudc gia t6t, ld kh6i niQm m6i o
','.it ).lam. Tru6c ddy, cilc khSi ni6m ndy hAu
-:u kh6ng duoc nhic d6n. Tu duy tu tru6c
:,1 nav 0 ViCt Nam thi6n vd quin lj, nhd
-.:':c (state management) (thc nghiCng vA
! .ct'tntr€nt - caitr1,6p ddt), chf chua phAi
:-,:.. huong qu6n tri nhd nu6c/quin tri qu6c
:'. 1 | lt)yernance).

:. thflp
Ki ru. cu6i
ni6n 1990, kh6i niQm
::',ernance bit dAu duoc d6 c0p o ViQt
^

.,r
\,n. chu yeu qua c6c tdi

:-::

1i6u cria cdc co

Li€n hqp qu6c nhu UNDP hay WB.

\em Good Governance in Multiethnic
nunities, Conditions, Instruments, Best
.-:.?s. Ways to Achieve and Measure Good
mdnce at the Local Level,tld.d,tr.l3.

GAn dAy, kh5i ni6m qudn

tri nhd nu6c/quan

tri quoc gia tot moi iluoc nh6c den nhi6u
trong gi6i hoc thudt, trong do d[c bi6t ld o
Khoa LuAt, Dai hoc qu6c gia Hd N6i - noi
dAu ti€n t6 chric nghiOn cuu vd gi6ng dpy,
bao g6m ci m6t chucrng trinh ddo tao thac si
ue quon tri nhdr nuoc (ket hcrp v6i vdn de
phdng, ch6ng tham nhtng).
M[c du viy, trong thuc t6, ke tii D6i
m6i (1986), do t5c dong cua tohn ciu hoa vd
tl,
hor nhap quoc t6, quin ly nhd nu6c o Vi6t
Nam dd 1i6n tuc co nhtng thay d6i sAu r6ng
theo hudng qu6n tri. Su thay dOi ndy diSn ra
,A
o tiit ca cdc phuong di6n, gdn vdi tdt ctt c6c
nguyCn tic cira quiin tri quoc gia tot. C6 thC
th6y di6u d6 qua nhirng n6 luc x6y dung
Nhd nu6c ph6p quyOn; bdo d6m su tham gia
cria ngudi ddn vio qurin lj,xd hQi; bdo ddm
tinh c6ng khai, minh bach, tr6ch nhi6m gi6i
trinh cua c6c co quan nhd nu6c; bao dim su
binh dang cua chc chir th6 trong xd h6i vd
h5 trq c6c nh6m ae Ui t6n thucrng; bio d6m
tinh kip thoi, hi6u luc, hi0u qui vd sg d6ng
thuQn xd h6i trong vi€c hoach dinh vd t6
chric thuc thi c6c chinh s6ch, ph6p luit cta
Nhd nu6c...

Tuy nhi6n, hi6n o nu6c ta vdn cdn
nhirng han chti nhdt dinh trong t6t ctr cbc
m[t n6u tr6n. Mric dQ han ch6 tuy kh6c nhau
trong tring linh vuc, nhung x6t t6ng qudt, c6
th6 tnay ring cAn co biQn ph6p thirc dAy
thyc hiQn t6,t ca c6c nguy6n tic oia quin tri
i
,( ,
qu6c gra tot o --.^
Viet Nam. DAy ld m6t y6u
cau cAp thi6t, boi 16, quin tri qu6c gia t6t ld
m6t "chuAn mqc" qu6c tC trong todn cdu
ho6 vd hQi nhSp qu6c t6; hnu h6t c6c nguy6n

tdc cta quan tri qu6c gia t6t d6ng thdi lA
nhirng "luat choi" trong "sdn choi" qu6c tt5.
Vi th6. neu kh6ng thirc day qudn tri qudc gia
tOt ttri kh6ng thC h6i nhqp quoc t6, hodc
kh6ng th6 huong loi dAy du tu qu6 trinh hQi
9


xuA xtl6c v) pnip

utar

sO stzozt

nh4p qudc tC. rcrOng chi vQy, c6c nguy6n

!,i'
tdc cua qudn tri quoc gia t6t hiQn cfrng chinh
ld nhu cAu, ddi hoi nQi tai cira dAt nu6c. V0
mdt chinh tri, viQc dd cao c6c nguyOn tic
A'
cua quan tri quoc gia t6t girip Nhd nu6c
cung c6 duoc tinh chinh danh cua minh.
Cung v6i qu6 trinh D6i m6i, hQi nh4p
qu6c t6, nhpn thirc vd j'thric cua nguoi din
ViQt Nam hiQn nay d5 thay AOi r6t nhi6u so
v6i tru6c diy. YCu cAu cua nguoi ddn vC
dAn chtr, ph6p quy0n, nh6n quydn, binh
ding x5 hQi, v0 tinh minh b4ch, tr6ch nhiqm
girii trinh vd hiQu qui hoat d6ng cua bQ m6y
nhd nu6c dd tang l6n vd ngiiy cdng cao hon.
Trong khi d6, cung v6i sg ph6t tri6n h6t sirc
nhanh ch6ng cia c6ng nghQ th6ng tin,
nhtng co hQi hay diOu kiOn cho su tham gia
cira ngudi din vdo qudn tri qu6c gia dd tro
n6n dE ddrng, thupn lqi hcrn bao gio net. fat
cil tqo ra 6p luc rAt lcrn phai chuyCn d6i m6
hinh tu qudn lj'nhd nu6c truy€n th6ng sang
quin tri theo nhtng nguyCn thc cta quin tri
!,.;.-quoc gia tot da n6u o tren.
4. Bufc ti6n mr6,i vd quin tr! qudc gia
trong cic vln kiQn D4i hQi Dflng tohn

Dn thrl XIII
Tuy chua duqc dC c4p mQt cdch truc
ti6p, song trong thuc t6, nhi6u nguyOn tic

.t
cta quan tri qu6c gia t6t di duoc dO cAp
trong m6t s6 vdn ki6n do Ding CQng sAn
ViEt Nam ban hdnh ke tu khi DOi mdi
quiSc

(1986), trong d6 d6ng kC ntr6t ta c5c nguy6n
:
,,
I
^
khai, minh bpch, tr6ch
tac ph6p quyen; c6ng
nhi6m giai trinh, hi6u luc, hiQu qud ho4t
dQng cta bQ m5y nhd nu6c; su tham gia cira
nhAn din vho quAn lj'nhd nu6c...

Nhung cf,ng cAn th6y ring, do thi6u
nhdn thirc t6ng qu6t ,C tAm quan trong vd
nQi hdm cua quin tri qu6c gia t6t, cho n6n
nhirng nQi dung co 1i6n quan trong chc vdn
ki6n cua Ding tu D6i m6i d6n nay cdn tin

l0

mht, co phAn thi6u nhAt qu6n, chua t4o ra
nhtng dii5m nhAn cAn thitit tucrng xirng voi
).
y nghia. tam quan trong cua vdn de.

Trong chc vdn ki6n ctra Dai hQi Ding
todn qu6c l6n thil XIII, ngoai tru 86o c6o
,I
,I
tdng k0t cong tdc xdy dung Ding vd thi
hdnh Di6u lQ Ding nhi6m kj,Dai h6i XII26,
thuit ngir "quin tri" xuAt hiQn r6t nhi6u lAn
trong: B6o c6o chinh tri cua Ban Ch6p hdnh
Trung ucrng Ding kho6 XII tai Dpi hQi dai
,.;.
.
;
,l
bi6u todn quoc l6n thir XIII cua D6ng; 86o
c6o t6ng kOt thgc hiQn Chitln lugc ph6t tri6n

kinh t0 - x6 hQi 10 ndm 20ll - 2020, Chi6n
lugc ph6t tri6n kinh t6 - xd hQi 10 ndm202l
- 2030; 86o c6o d nh gi6 ki5t qua thuc hiOn
nhiQm vu ph6t triiSn kinh tO - xd hQi 5 nlm
2016 - 2020 vit phucrng hucrng, nhi6m vu
ph6t tri6n kinh tO - xd hQi 5 nim 2O2l 2025;Nghi quydt Dai hQi dai bi6u toirn qu6c
lAn thri XIII cua Ding. Trong d6, kh6i niQm
quin tr! duoc sir dung de chi c6c van dC da
dpng nhu qudn tr! doanh nghi6p, qudLn tri t6
chirc (quan tri nQi bQ), quan tri dai hoc,
.l
qudn tri todn cdu, quAn tri qu6c gia (bao
).,
gom ca quan tri nhd nu6c), quin tri chinh

quy6n dia phucrng, qudn tri hi6n dpi...
l'
Xet riOng vd quin tri qu6c gia, kh6i
ni6m ndy dugc sir dung trong cdc vdn ki0n

diy:
- 86o c6o chinh tri cua Ban ChAp hdnh
Trung ucrng Ding kho6 XII t4i Dai hQi dai
bitiu todn qu6c lAn thir XIII cua Ding (Hoin
sau

thi6n todn diQn, d6ng b9 ttr6 ch6, ph6t tri6n
kinh t6 thi trucrng dinh huong xd hQi chu
.,1
nghia), ti6u muc 2 (Ti6p tuc hodn thiQn
Dang CQng san ViCt Nam, Van ki€n Dai h6i dai
bi€tt todn qu6c ldn thu'Xlil, Tap 1, Nxb. Chinh tri
qu6c gia SU thflt, 2021; Eitng CQng.sdn.Vi6t Nam,
Viin ki€n Dqi h6i dqi bi6u todn Er6c ldn thtr XIil,
TAp 2. Nxb. Chinh rri quoc gia SU that. 2021.

26


QUAN TR! QUOC GrA

-,.-::r. chua tao ra
r-: .rolg xung vdi

. ,).

-.: ' -llt de.
- -., Dai hQi Dnng
:-. .ri tru 86o c6o
;:"_: Dang vd thi
: ..'. Dai h6i XII26,
,l
,.:
.l
. r. -'t-. rat nhleu lan

:*:

Ban Ch6p hdnh

\,1 rri Dai hQi dai

illl

;ua Ding; 86o

in luoc ph6t tri6n
11t - 2020, Chitin
hoi 10 ndm202I
kdt qud thlrc hiQn
i
^. le - xa-, hol
) nam
huong, nhiem vu
:..r 5 ndm 2021 : J-ir DreU toan

-rl:ru

iludc gia, khSi
,rg
::
c6c vin ki6n

:--, Ban Chdp hdnh

\.1 t:ri Eai h6i dai
. . ,:ra Ddng (Hodn

.;.
,^
-j ihe.
phat fflen
:,: ,-'rS xd hQi chu
,r: ::rc hoin thi6n

:
.

..
.

..

,:

-'.',1 Dcti

..

:.i
...,

h|i

dqi

\rb. Chinh tri

i

hien luoc ph6t tri6n kinh t6

,t lan

l02l

thtr XIII,
.

- xd hQi 10

:inr 20ll - 2020, xAy dlrng Chi6n luoc phSt
:::in kinh t6 - xd hoi 10 ndm 2021 - 2030;
:.: \Iuc IV (C6c dQt ph6 chi6n luoc), ti6u
::uc 1 n6u 16: P& mA quan tri qudc gia

')'.;o hrctng hiQn dqi, nhAt ld qudn ljz phrit
::.en rd quan ly xd h6i. Xdy dimg bQ m6y
)
-..:.:. nuoc ph6p quy6n
xd hQi chri nghTa tinh
.::. hi€u luc vd hiQu qui; ddy mAnh phdn
^).quyen b6o ddm quin ly th6ng
-.:. phan
-.-=:. ph6t huy tinh chir dQng, s6ng tao vd
:.--i" rrhidm cta cdc cdp, cilc ngdnh2S. Tai
:.-; \' (Phucrng hu6ng, nhiQm vu, gi6i phSp
::.: tri€n kinh t6 - xd hQi), ti6u muc 2 (ph6t
:-.i: manh mE khoa hoc, c6ng nghQ vn d6i
.J
:: sang tao nhdm
tao but ph6 ndng cao

' --= ('r.ng. san Vi6t Nam, Vdn ki€n Dai h6i dai
.;,. 4u6c ldn thu XIII, TQ,p l, Nxb. Chinh tri

._:

san.Vi6t Nam,

-: ::l.rt.

cac nganh.

- Trong 86o c6o t6ng k6t thUc hiOn

qUOC

::,

,

:,

-lp.

i

do, kh6i niQm
.r .-hr cac v6n dC da
;
:-:hrep. quan trl to
:uan tri dai hgc,
:, gla (bao
i:r rlLloC
--.-,. quan tri chinh
::. liin dai. . .

.

dong b6 thC ch6 kinh tC thi trucrng dinh
huong xd hQi chu nghia, tAp trung th6o g0
cdc di6m ngh6n2T) ndu 16: Xdy dqng vd thac
;hi phdp ludt, chiAn hqc, quy hoqch, kA
hoach ndng cao chtit fu. ng, hi€u qud qudn
;ri qu6c gia. Xaty dung khung kh6 ph6p luflt,

moi trucrng th4n loi thfc dAy phrit tri0n,
khoi nghi6p, d6i moi sdng tao, chuy6n d6i
,o. ph6t tri6n kinh t6 s6; hd trg, khuyCn
khich su ra ddi, hoat dQng cira nhirng lTnh
', uc mni,
md hinh kinh doanh m6i. Tip
. -i,
:rung sua doi nhirng quy dinh m0u thudn,
--hong ch6o, cin tro ph6t tri6n kinh t6. Oay
nanh cdi c6ch thu tuc hdnh chinh,phdn cdp,
l,
:ran quy6n,
uy quy6n g[n v6i ting cucrng
ri 1uft, ky cucrng, tr6ch nhi6m c6 nhAn vd
:ing cao tr6ch nhi6m ph6i hqp giffa circ

'

Su thAt,202l ,tr.132.
--- [.r.n"q san Vi6t Nam, Vdn ki€n Dai h6i dai
."''. .tttic lon thirXIII, TAp 1, sdd, tr.220.

nlng su6t, ch6t luqng, hi€u qui vi sric canh
tranh cira n6n kinh t6) dat ra ydu cau: Thac
hiQn chuyln aAi sA tuong qudn tri qu6c gia,
quin lj'nhd nu6c, sAn xudt, kinh doanh, t6
chric xd h6i vd quin lj.tdi nguy6n qu6c gia.
DAy nhanh chuy6n d6i sO AOi vOi m6t so
ngdnh, lTnh 4rc dd c6 di6u ki6n, dflc bi6t ld
khu luc doanh nghiQp nho vd vua, ring

dung vd ph6t tri6n c6ng ngh6 m6i, uu ti6n
,^
; ,i
^
cong
nghe so, ket n6i 4G vd sau 5G, tri tuO
nh6n tao, chudi tintemet

t
nOi van v0t, an ninh mang, ndng

lugng sach, c6ng nghQ m6i trudng de
chuy6n cl6i, nang cao n[ng suAt, hi6u qua
cira ndn kinh

tt52e.

- Trong 86o c6o d6nh gi6 k6t qui thgc
hiQn nhi6m 4r ph6t tri6n kinh t6 - xd hQi 5

ndm 2016 - 2020 vdr phucrng hu6ng, nhi6m
vu ph6t tri6n kinh t0 - x6 h6i 5 n[m 2O2l2025, tai Muc II (C6c han ch5, y6u k6m,
nguy6n nh0n vd bdi hgc kinh nghi6m), ti6u
muc 3 (Bdi hgc kinh nghi6m) n6u rd: Ba ld,
th6 ch6 ph6p lu6t phii dugc xiy drmg co
bnn dAy du, d6ng bQ v6i tu duy mdi, pht
hqp v6i thuc tiSn vd t6 chirc thuc hi0n
nghiCm tirc, hi6u qu6; cili cbch b6 mfy

chinh quyCn c6c cdp, xdy dpg Nhd nudc
ki€n tao ph6t tri6n, li€m chinh, hdnh dQng ld
)."
ndn tdng. Coi trong tinh cAn d6i, hiCu qud
trong t6t ctr c6c khAu huy i10ng, ph6n b6, su
dung c6c ngudn luc cho ph6r tri€n kinh t6 x6 h6i. Phdi coi trgng dAi mA qudn tri qudc
gia theo hmtng hi€n dai, hi€u qud, nhiit ld
quan ly phdt tri€n vd qudn ly xd h6i30. ly'ruc
IV (Nhi€m ru, gi6i ph6p chu y6u), ti6u muc

'n PAng C6ng sdn ViQt Nam, Vdn kt6n Dai h6i dqi
bi€u todn quiic ldn th*

XIil,

TAp 1, sdd, tr. 227

.

'o Paog C6ng s6n Vi6t Nam, Vdn ki€n Dai h6i dai
bi6u todn quiic lin thlb XIII, TAp 2, Nxb. Chinh tri
qu6c gia Sg that, 2021 , tr.8l .

11


NHA

N(lOc vA rruAr ru4r sd stzozt

6.2. dilt ra nhiQm vg chuy6n AOi sO trong
quin tri qu6c gia. Theo d6, ph6i "thuc hiQn
.t,ry6tt AOi s6 qu6c gia trong.quin tri qu6c
gia, quin lf nhn nudc, sdn xu6t kinh doanh,
iO .fli. xd hQi vi quin lj' tdi nguy6n qu6c
gia; thuc hiQn chuy6n AOi s6 trong c6c
Joanh nghiQp (qu6n tri doanh nghiQp, ngudn
nhAn luc, ddy chuy6n sin xuAt'..)"31'

- Trong Nghi quY0t D?i hQi dai bi6u
tolrn qu6c lin thtl XIII cua Ddng, tai muc
"C5c dQt ph6 chitin lugc", nOu 16 dQt ph6
thf nhat ti noan thiQn ding bo th€ ch€ phat
ffiAn, tuactc h€t ld th€ chA phat tidn nin
kinh ft thi tnrdng dlnh haong xd hQi chti
nghTa. D6i moi qudn tr! qu6c gia theo
hubng hiQn dqi, canh tranh hiQu qua32 '
Nhirng ghi nhfln mang tinh dinh hucrng
tr6n diy bu6c d6u cho th6Y co m6t su
chuyiSn UiCn ttrn trong tu duy cira Ding v0
.o .t C vfn hdnh vd thirc dAy su ph6t tri6n
cira x6 h6i, cu th6 ld tu qudn ly nhd nu6c
sang quin tri qu6c gia, hay" ti government
safig governance. Ddy co th6 xem ld mQt sU
ph6t trii5n m6i vO mat lj'lu6n cua Ddng' Tuy
,rhiCr, nhu di nOu 6 c6c ph0n tr6n, nhidu nOi
dung cua quin tri qu6c gia t6t dd duoc thirc
dAy d ViQt Nam tcti tu

ooi m6i. Vi

vQy, dary

phni ld vin dC m6i trong thqc t6' N6i
cSch kh6c, sg ph6t triOn vC lj'luan cira Ding
trong v6n dA ndy c6 ngudn g6c tu thlrc tti
trong nu6c. StI ph5t triOn do cflng pht hqp
v6i xu hufng chung, mang tinh quy 1u4t
trOn th6 gi6i, gin 1i6n v6i qu6 trinh dAn chtr
ho6, todn cdu ho6, vlr su ph6t tri6n cita khoa
hgc, c6ng nghQ, dac biqt ld c6ng nghQ s6

kh"Orrg

trong th6

hi XIX.

3t DAng CQng sAn Vi6t \\am, Vdn ki€n Dai hQi dai
bi1u bdn qu6c lin thu' Xlil, Tip 2, sdd, tr. I 3 1- I 32.
32 Ddrng C6ng sin ViQt Nam, Vdn kiQn Dai h6i dqi
bi€u todn qu6c lin thu'Xlil, TAP 2, sdd, tt.331.

Tuy nhi6n, c6 th6 th6Y ring, c6ch ti0P

tri qu6c gia trong c5'c vdn kiQn
n0u tr6n mdi chi gi6i han 0 mQt Phan j'

cfln vA quiin

nghTa cua van dti. Cu th6, trong vin kiQn
quan trgng nhit (B5o c5o chinh tri), qudn tri
qu6c gia m6i chi dugc d4t trong m6i quan
tre

th6 ch0 kinh t6 nhu ld mOt di€u kien

""u
hay y6u ciu cua viQc "hodn thiqn d6ng b0
th6 ch6 kinh tC thi trucrng dinh hucrng x6 hQi
chtr nghia, tAP trung th6o gd c5c di6m
ngh6n". C6ch dat vAn dC nhu viy v6 hinh
trung dd gi6i hpn qudn tri qu6c gia lrong
quin tri vA tintr t6, trong khi khong th6 tSch
roi quin tri qu6c gia v0 kinh t6 v6i qudn tri
qu6c gia trOn c5c linh qlc kh6c nhu chinh
tri, v6n ho6, x6 hQi... Trong thuc t6, quan tri
qu6c gia t6t trong c6c linh vgc chinh tri, v[n

ho5, xd hQi chinh ld cln c6t cho sg ph61
tri6n cua c6c linh vuc kh6c, k6 cn th6 chO
kinh t0 thi trudng.
Trong c5c 86o c6o tdng k6t thUc hiqn
Chi6n lugc ph6t triOn kinh t6 - xd hQi 10
ndm 2011 - 2020,xdy dlrng Chi0n lugc ph6t
tri0n kinh tti - xd hQi 10 ndm202l - 2030 vd
86o c6o dinh gi6 k6t qui thlrc hiQn nhiQm
vu ph6t tri6n kinh t6 - xd hoi 5 nam 2016 2020 vitphuong hucrng, nhiQm vu ph6t tri6n
kinh t6 --xa hoi 5 ndm 2021 - 2025, vAn dC
quin tri qu6c gia duqc ti6p cfln rQng hon,

kh6ng chi gin vdi lTnh 4rc kinh t6, md bao
trum ci circ vdn d0 xd hQi. Tuy nhi6n, c5c
v[n kiQn ndy co xu hucrng chi nhin m4nh
c6c y0u ciu vd hiQu luc, hiQu qui cua qudn
tri qu6c gia t6t, cdn cfc yOu cAu kh6c chua
Ad cap -6t.a.h dirng muc. ViQc mQt s6 y6u
cdu co thC bi coi nhe sE kho co the tao ra vd
duy tri m6t ndn quAn tri qu6c gia t6t mQt
c6ch todn diQn vd b6n virng.

Ngodi ra, trong ci ba v[n kiQn n6u tr6n,
thupt ngir "qudn tri quoc gia" chua duoc su
dgng m6t c6ch nhAt qu6n. O m6t sO muc,

12

]il


eu,,{N TR!

. :.itts. cach d6p
.: ::J cac vdn ki6n
.).
- phan
y
i.:t rr Illot
'.:

: -:. ::.',trg vdn ki6n

- :rh tri), quin tri
i.'. .:trng mol qUan
: : .., rllot diOu kiQn
-).
-. .:r- Ihlen dong
DQ
xd
hQi
lir.rong
: i::iit
'.i.,., gcr c6c di6m
lc :::rLr vAy v6 hinh
:. g1a trong
irl r'ltloC
: ..ri khong th6 t6ch
r::-.r te voi quan tri
, ":; khac nhu chinh
,,.
-':'.i thrrc te. quan trl
'.:. \ Lrc chinh tri, vln
i:. cot cho su ph6t
*:'.rc. k€ cn th6 ch6
:i',ng k0t thUc hiqn
:,.:'.ir t€ - xd hQi i0
-ll-g Chien lugc ph5t
::.im 1021 - 2030 vd
:--.: ihlrc hiQn nhiQm
..' ]r,.,i 5 ndm 2016 .;.
: : :cilt \.Ll Phat lrlen

:

11 - 2025, v6.n dC
. :;r gfln r6ng hcrn,
r ma.. Dao
. :- I'rtth te.
: . Tuy nhi6n, c6c
. .;
.' -'- eht nhan manh
-. ' r'Ll qua CUa quan
- '.:.i cau kh6c chua
''.r- \ ri-'c mot^;so yeu
i ,.'' , cti thO tao ra vd
.. -: .t,',c sia tot mot

::

..ttt kien n6u tr6n,
. - *..," chua duoc sir
^i so muc.
--.: U lnot

-,.' 86o c6o vAn dtng m6t s6 thu4t ngir
nhu "quan lj,nhd nu6c", "quan tri nhi
--.-''rc" hay "quin tl", "qudn tri doanh
-

. :.-:c

--:lcrp"... cho nhtng vAn dC gi6ng nhau.

-J..ru ndy ddn d6n kho khin trong vi6c hi6u
.., ;u thO ho5 tu duy m6i cira Dang vd qudn
quoc gia trong thuc t€.

s. Mdt s6 y6u ciu Otii vrii hQ th6ng
phrip lu4t nhlm th6 ch6 ho:{ qu:in tri
quoc gia theo tinh thin D4i hQi Drlng toirn
.1uoc

lin thf'XIII

Trr nhirng phAn tich o phAn 4, c6 th6
- ,'. rdng, d6 ph6t huy tinh thAn d0 cao qudn
' :.roc eia cta Dai h6i XIII vdo cu6c s5ng,
- ," .ti su th6ng nh6t vC xu hudng chuy6n
- , : :ir tu duy qudn lj,sang quin tri. CU th6
- -l rSlll
Thr nhat, nhu dd n6u, qurin tri qu6c gia

eu^c

GrA..

hep trong khu6n t:.
mor quan hQ giira Nhd nu6c vd c6ng d0n.
B6n thAn Nhd nudc ph6p quy6n cfrng phii
i,l
duoc cung co bdng c6c co ch6 htu hi6u vd
hiOu qui thay vi nhirng quy dinh phep g

mang tinh hinh thric. Trong d6, c6 02 yiltet
co b6n, thAm chi ld quan trong nh6t cria
ph6p quy6n ld sU dQc 14p cira Tod 6n vd chAt
luqng cria ph6p luAt v6i tu c5ch ld n6n tring
;.)
cua ph6p quyen v0 mdt n6i dung (rule of
1aw substantive).
- VC tr6ch nhiQm gi6i trinh: Tai nu6c ta,
tr6ch nhiem gi6i trinh ld van d6 cdn kh6 m6i
me tr6n phucrng diQn ly luAn vd thuc ti5n.
86o c6o chinh tri cira Ban ch6p hdnh Trung
uong Ding CQng sdn Vi0t Nam khoa XI tpi
Dpi h6i dai bi€u todn qu6c lAn thri XII d6nh
grit: "Trirch nhiQm giii trinh cin c6c cdp

hrin la m6t y6u cAu *uAt ph6t cd tu
'- :_r \a ngodi nudc. Ddy ld m6t di6u ki6n

chinh quyCn chua dugc quy dinh 16
rdng...". Nghi quy6t sO tS-NqlTW ngdy

,

ti6p tuc d5i moi, sdp xdp tO
chric bQ m6y cua hQ th6ng chinh tri, tinh
gon, hoat d6ng hiQu luc, hi6u qua ti6p luc
khing dinh: ViQc c6ng khai, minh bach vd
tr6ch nhi6m gi6i trinh cdn han ch6; vd x6c
dinh nhi6m vg, giii ph6p: Xdy dpg co ch6
ki6m so6t quydn lgc chdt ch6 bing c6c quy

dinh cua Ding, ph6p lupt cua Nhd nudc, bdo
ddm din chu, c6ng khai, minh bach, dd cao
tr6ch nhi6m gi6i trinh3a. Tuy nhi6n, vAn dC
tr6ch nhi€m giii trinh 6 ViCt Nam chua
duoc nghiCn criu dAy du vd todn di6n, nhidu
v6n dC chua duoc ldm 16, cdn c6 nhirng
tranh luAn kh6c nhau, chua lu6n gi6i duoc

..: co tinh
- r _r the thi€u,
chdt s6ng cdn v6i

'-' ::r-rt tri€n cira d6t nu6c trong

'

bOi canh

:',t.rn nay.

):ir licti, quin tri quoc gia tot phai ld
.rtrrlg nhirng ndi dung dQc lpp, c6 tinh
':.in tang, chi ph6i c6c v6n d6 chinh tri,
" .'-i. ra h6i kh6c. Qudn tri qu6c gia t6t
- - - .-..ri la mOt nguy6n tic ndn ting cho to
.

::-:. canh do, ttr nhfrng ph6n tich o

c6c

- -- :in. co th6 th6y ring, ,i, ,o nhftng

'

)

.,ilr rrong h€ thiing phap luifi

hiAn

to d€ phdn dnh ddy du cdc
-.i. (uLt quan tri qu6c gia t6t. CU th6

.:1.,' ntro'c

-

, - nguv€n tic ph6p quydn: Cin
,. i
.: rllr.rn diem
hep Nhd nudc ph6p
- -.::,J phap quyOn, thuong t6n ph6p
-.. , ri la* ) nhu m6t t6n chi, n6n tiing

i.lr.i toan xa hQi chft khdng chi bo

2511012017 vC

33

Ban ch6p hdnh Trung uong DAng Cdng s6n Vi6t
Nam, Vdn ki€n Dqi hAi Dqi bidu ndn qui5c lin th*

XII, tr.243.

quy6t sO 18-NQ/TW "M6t s6 viin di ri rcp
'o Ng4i
,. sdp
: xep
:
-;. moi,
tltc doi
b chac bd mdy cila hQ thfing
chinh tri tinh gpn, hoqt d6ng hi€u lqc, hi(u qud".

13


r,tnA

xtffic

uA rruAP

tuAr sO stzozt

thuc tiSn phong phu cta doi s6ng x5

hQi.

Nhirng h4n cht5 trong nghidn ciru lj'luan dd
ldm nhpn thric thi6u day du rd tr6ch nhipm
giAi trinh, tu do lirm cho hi6u qui trong thuc
hiQn tr5ch nhiQm giii trinh cira chinh quyAn
cdc cdp chua cao. Thgc tt5 ndy doi h6i phni
thirc dAy nghiCn cuu c6c vnn d0 ly luan 1i6n
quan d6n tr6ch nhiQm giAi trinh trong qudn
tri nhd nu6c, giirp x6c lQp chc co so khoa
hoc, dinh hu6ng cho viQc hodn thiOn tr6ch
nhi6m gi6i trinh tr6n nhidu phuong di6n,
nhAt ld thuc hiQn hiQu qua ph6p ludt r0 tt6"h
nhiQm gi6i trinh cua co quan cdng quy6n
tr6n thuc t6.
- VC sU tham gia cira c6ng chirng vdo
qu6n tri nhd nu6c: Do nhin thfc n6n vai
trd, vi tri ci:.- cbc t6 chfc xi hQi con it
nhi6u bi xem nhg, thQm chi bi coi li nhay
cim. DiAu ndy ldm thi6u di mQt thdnh t6

try cQt cira quin tri t6t, nhAt ld trong b6i
cinh hi6n nay, cdc quoc gia phai d6i m4t
vdi nhiAu rui ro co tinh truydn th6ng (dich
bQnh, thi6n tai...), cflng nhu phi truydn
th6ng (0 nhiSm m6i trudng, hiQu irng nhd
kinh, chir nghia khung b6 qu6c t6, tQi ph?m
xuy6n qu6c gia). Trong b6i canh phric t4p
cira xd hQi hflu c6ng nghiQp, cin ph6i co sy
chung tay cua nhiAu chir th6 kh6c nhau, dic
biQt ld cin huy tl6ng su tham gia tich clrc

cia cdc chu thO phi nhd nu6c. OC thUc hien
I
.
.. ).
.
r r
,r ' .
t ! dugc dieu nay, cAn hodn thi6n ph6p lupt v6
tO chric vd hoat dQng cua hQi theo hu6ng
giim b6t sU can thiQP tu co quan c6ng
quy6n. ton trong vd bAo dam tinh tu quan
cua c\c t6 chirc xn hQi.
- Phdng, ch6ng tham nhfrng (PCTN):
Qu6n tri t6t kh6ng thO t6n tai n6u PCTN
ytiu. Qudn tri t6t vd PCTN nhu 2 m[t cua
mQt v6n d6, sE kh6ng thUc hiQn dugc quin
tri t6t n6u PCTN kh6ng hi6u qu6, vir nguoc
1

l4

lai, chi co th6 PCTN hiQu qua n5u thuc hi6n
t6t c6c thdnh tO con 14i quin tri t6t. Di hC
th6ng phSp luat ,e PCTN cua Vi6t Nam
ngdy cdng hodn thiQn vd tiQm cin hcrn v6i
c6c tiOu chudn quoc t6, nhung viQc thlrc hiQn

ph6p lupt vC pCtN tr6n thgc tA g|Lp tet
!
,.:

,
nhieu vucrng mdc, xuit ph6t tu nhi6u
nguyOn nhAn kh6c nhau.

dfp irng ti6u
chuan niry cua quan tri qu6c gia t6t, cOn su
dung c6c ti6u chi dinh luqng cia kinh tC
hoc, quin tri hoc vho trong hoat tlQng cira
bQ m6y nhd nu6c, dac biqt lir trong viQc
cung cAp c6c dich r,T r c6ng. ViQc cung cap
dich vu c6ng kh6ng chi dua tr0n tiOu chi
"b6o ddm lqi ich chung", md cdn cAn phai
d6p ung ti6u chi hiQu qui.
f6t tu6n

-

HiQu luc vd hiQu qu6: DC

.l

ViQc ghi nhAn m6t s6 thdnh t6 cua quan
tri tot trong cdc vdn ki6n cua Dai h6i Ding
toirn quoc ldn thu XIII ld m6t bu6c ti6n lcrn
trong nh6n thirc cua Ding vd Nhd nudc vd
A,
quin tri quoc gia, d5p ring dugc nhu cdu d6i
m6i tO chirc vir hopt dQng cua hC th6ng
chinh tri trong bOi canh todn cdu ho6 vd h6i

t .i
nhip quoc td, ctrng nhu c6c ddi h6i tg thin
cta xi hQi ViCt Nam tru6c nhirng thSch
thric trong th0 ki XXL Tuy nhi6n, quin tri
;.i.
quoc gia van con ld nhirng vAn dC con kh6

m6i me tpi ViQt Nam, ddi h6i su nghi0n cuu
thAu d6o vd thio luin nghi0m tric tu gi6i
hdn 16m cflng nhu nhirng nhd ho4ch dinh
chinh s5ch, nhim thuc d6y, dua cac nguy6n
tic cira quin tri qu6c gia t6t lan t6a vdo
cuQc s6ng, nhim "xdy drmg mdt nu6c Vi6t
Nam ph6n vinh, hanh phirc, cung ti6n bu6c,
s6nh vai v6i c6c culng qu6c n[m chAu"35.
DAng C6ng sdn ViQt Nam (2020), Vdn ki€n Dqi
hoi dqi bi€u rodn qudc lin thw XIil, TAp 1, sdd,

3s

1r.205.