Quản lý và quản trị xã hội từ góc độ lý thuyết hệ thống

QUAN LYVA QUAN TRI XA HOI
TaG0CD0LYTHUYETHETH6NG
• GS, TS LE NGQC HtiNG
Vi^n Xd hpi hoc,
HQC vien Chinh trf quoc gia Hd ChiMinh

• Tom tdt: Qudn If vd qudn tri xd hdi cdn co cdch tiep can If thuyit hi thing. Theo cdch
tiip cdn ndy, qudn If vd qudn tri xd hdi Id mdt Heu he thong thiic hiin chdc ndng dinh
hudngphdt triin bin viXng cho cd xa hdi. DSng thdi, qudn If vd qudn tri xa hgi ludn hogt
ddng theo nguyin If md, hdSng dieh, hop tr&i, da chiiu cgnh vd phdn trUc cdm trong md
trudng ludn hiin dii. Cdn ldm ro nhUng vdn di ndy di trdnh nhiing Ihi hi thong trong
n^iin cUu, ddo tgo vd thiic hdnh qudn If vd qudn tri xd hdi trong hii cdnh mdi hiin nay.
• THkhda: qudn If, qudn tri xa hgi, hi thing.
1. Quan ly va quan tri xa h$i
qudn iy". Dilu nay khdng sai, nhin^ dang ldm
Quinlf
eho khoa hpe vl quan ly ehi la tap hpp cdc kinh
Henri Fayol (1841-1925) cho rdng: "qudniy nghifm thyetilnldnh dgo, quan ly va ddi tupng
tic Id ldp kl hoach, td chic, chi huy, phdi hpp vd dupe ddo tgo chi ddnh eho "cdn bd lanh dgo,
kilm tra" (Gerer, cest planifier, diriger, coordon- qudn ly" ma quln mdt mgt kia eia vdn dl la cdn
ner et conttdler)'". "Qudn ly child bifn phdp vd phdi ddo tgo mdt each khoa hpc vl lanh dgo,
cdng cu eia td ehiie xa hOi.-.. Chue nang qudn ly qudn ly eho ed dpi ngu nhdn viin.
ehi tdc ddng din eon ngudi"'^'. Nhung ehiie nang Quitttri
dd khdng triing khdp vdi ehiic ndng "ldnh dgo" Quan trj (govemance) cd ngudn gde ttong
nhu nhilu ngudi tung quan niem.
tilhg Latinh Id "gubemare", cd n ^ a Id lai, dilu
Tuy nhiln,ttongthye tl hiln nay, khai nif m khiln, ddn hudng. Qudn tri la hudng ddn, chi dgo,
"ngudi ldnh dgo", "ngudi qudn ly" dang bj hiiu kilm sodt mOt nhdm ngudi, mOt td ehiic hay mOt
Id mdt, ddn dinttoi^nOi dung chuong trinh dao qudc gia nhdm ddp lir^ nhu cdu eia hp. Qudn tri
tgo ve khoa hpe quan ly ehi yeu ehi nlu nhung dupe djnh nghia la vife thyetiiiquyln lyc hay
kinh nghiem, ky ndng, biln phdp nhdm biln quyln hanh bdi ngudi ldnh dgo nhdm bao ddm

"ngudi Idnh dgo", "nguoi qudn ly" thdnh tac phic loi eia cdc thdnh viinttongtd diuc hay
nhan, r^;udi phai lam thi thi ndy, phdi ing xi eOng ddng. Theo nghia lOng hon, qudnttjId vife
thi kia ddi vdi "ngudi bj lanh dgo", "ngudi bj huy dOi^ va thye thi quyln lye nhdm mye tieu
Lf LUAN CHiNH TRI - Sd9/2017


lEI

NGHIEN cCru - PH AT TRIEN Lf LUAN

phdt triln hf thdng xd hOi. Nhu vdy, quan ttj xd
hdi Id sy huy dOng vd thue tiii quyln lyc xd hOi
nhdm myc tieu phdt triln xa hpi, phdt triln con
nguoi. Dinh nglua nay khdng tiye tilp ndi din
"quan lyxahOi" nhung bao hdm ed quan lyxdhOi.
Do vgy, edn lam id nOi ham Widi nifm quan trj xd
hOi vdi nghfe bao hdm cd quan ly na hOi.
Trude Ida, qudn tri thudng g ^ vdi chinh p h i
{government), chinh quyen vd c h i ylu ndi vl
quyen lye nha nude, qudn tri nhd nude. Nhung
tinhOngndm 1980 din nay, nOi ham khdi nilm
quan trj dupe md rdng bao gdm: (i) qudn tri nhd
nude vdi ede chi th€ Id ede td chie va thi chl eia
nhd nude, (ii) quan tri xa hOi dan sy vdi cde td
chic phi chinh p h i vd hO gia ffinh (ui) qudn di
thi trudng, khu vyc tu nhdn vdi cdc td chic
doanh nghifp'^'. Tuy nhiln, su phan biet ba logi
quan tri nay ehi mang tinh ehat tuong ddi bdi
quan tri nhd nude bao qudt tdt ca cdc khu vuc
cdng vd khu vue tu, cdc Unh vyc eia ddi sdng eon

r^udi, td chic, cOng ddng, giafflnhvd ea nhdn.
Can cu edp dd, phgm vi hogt ddng, cd thi phdn
bift qudn tri dja phuong, quan tri qudc gia, qudn
tri khu vyc vd quan trj toan cdu. Can eu Unh vyc
ddi song xa hOi, ed thi phan bift quan tri kinh tl,
quan tri gido dye, qudn tri khoa hpc, qudn tri xd
hOi vd cde logi qudn tri khde.
Xa hOi hifn tai cd nhilu biln ddi nin khdng
chi chiie nang ma quan trj vdi tinh each la mdt
tiiu hf thdng xa hOi cung biln ddi. Trude kia,
quan tri ehu ylu Id qud trinh tap trung vk thuc
thi quyln lyc, quyen hanh vd quyen uy dl chi
huy, thdng tri vd kiem sodt. Nhung ngay nay,
qudn tii bao gdm ca qud trinh phi tgp tnmg,
qudn ly quan h i va tgo su ddng thugn bii bdt liy
mOt hogt ddng chi huy vd kilm sodt nao ciing
bao gdm nhilu td chie, nhdm va ed nhan cd mdi
quan h§ phdn cdng, hiep tde vdi tinh edeh via la
e h i thi vd khdch thi, ddi tirpng vd ddi tdc, ddi

LfLUAN CHiNH TRj-So9/2017

t h i vd ddng minh. Dae bilt, ttong quan trj nha
nude hif n nay cd su bien ddi tu "eai tri, thdng ttj,
chi huy, ra Ifnh, kilm sodt" sang "dieu tilt, phyc
vu, ho ttp vd kiln tgo, phdt triln". Theo cdch tilp
can ly thuylt thi che eia Aeemoglu vd Robinson
thi tuong ing vdi hai logi thi chl chinh sdch
chilm dogt va dung hpp Id hai kilu qudn trj
chilm dogt va qudn tti dung hpp, bao trtun. Sy

biln ddi quan trj xd hdi dai^ tuan theo xu hudng
biln ddi tii quan tri chilm dogt sang quan tq
dung hpp, bao triim thu hut tdt cd mpi ngudi
tham gia vko qud trinh kiln tgo, phdt triln.
D l hiiu rd hon mdi quan hf eia quan tri vdi
qudn ly troi^ phgm vi td ehtic doanh n ^ l p , c6
thi nghiin euu tiudng hpp hOi ddng quan tij
ttong edng ty ed phdn. Dilu 149 Ludt Doanh
nghiep (2014) quy dinh: "HOi ddng qudn tiildeo
quan quan ly cdng ty, ed todn quyln nhdn danh
edng ty dl quyet djnh, thye hifn ede quyln va
nghia vp eia edng ty khdng thudc thdm quyln
eia Dgi hOi ddng ed ddng". Nhu vdy ching to
qudn tri bao ham quan ly tdng thi cdi^ ty.
Troi^ edng ty ed phan, ngudi qudn ly bao gdm
cd e h i tieh hOi ddng qudn tri vd eac thdnh viin
hOi ddng qudn trj, i^udi ehu so huu va nhung
ngudi cd chic danh qudn ly ttong cdng ty. Dilu
ndy cd nghia Id "quan l y bao hdm cd "qudn tri".
Tiong md hinh td ehtic quan Iy eia edng ty c6
phdn cd "hdi ddng qudn tri" vd c h i tich hOi
ddng qudn trj Id ngudi dgi dien theo phdp lugt
eia cdng ty. Dai hOi ddng ed ddi^ ed quyln vd
nghfe vy bau, miln, bai nhiem thdnh vien HOi
ddng qudn tri; xem xet vd x i ly cdc vi phgm eia
HOi ddng quan tri. Vife xudt hifn "hOi ddng
quan tri" ttong mdt td ehiic nhu edng ty cd phdn
ehiing td "quan tri" Uen quan din van dl quyln
s6 hiiu vd loi ich eia cdc bin tham gia td ehtic.
Tipng tdm eia qudn ly Id thye hiln cac mye tieu

ttong khudn khd da dupe qudn ttj xdc djnh.


ja
Trpng tdm eua qudn tri Id bdo dam can bdng
tdng loi ich eia ede ben tham gia.
Ddi vdi khu vuc cdng, vife do ludng, ddnh gia
ndng lyc ldnh dgo, qudn ly xde djnh 6 nhdm
ndng lue thanh phdn gdm'*': (i) nang luc dgo die
edng vy, (U) ndng lyc am hiiu dja phuong, (in)
ndng lue chuyin mdn, (rv) ndng lue qudn ly, dilu
hdnh, (v) n a i ^ lyc qudn tri nhdn sy vd (vi) nang
lye qudn trj ban thdn.
Cdu trie sau thanh phdn ndy eia nang lue
ldnh dgo, quan ly cho thdy quan ly bao gdm cd
qudn tri cu thi la quan trj nhdn sy vd qudn trj
bdn thdn. Riing ndng lyc thanh phdn "qudn ly,
dilu hdnh" cd 9 ndng lye, ttong dd cd "qudn trj
syth^ddi", "qudn tritiidngtin nOibd"vd "qudn
tij ngudn lyc eia td ehtie". Rieng ndng lyc "qudn
tri bdn thdn" bao gdm 16 ndng lyc, ttong dd ed
ndng lyc "qudn tri dp luc ttoi^ cdng vife" va
"qudn ly thdi ^an".
Vife tim hiiu so hO hai tiudng hpp qudn trj
ttong cdng ty ed phan vd qudn di ttong khung
ndng lue ldnh dgo, quan ly khu vuc hdnh chinh
edng cho thdy mdi quan he tuong tde, bd sung
ldn nhau eia qudn ttj vdi qudn ly. Tu dd ddt ra
vdn dl, mOt mdt s i dung tu ngft nay de djnh
nghia tungft Ida vd mat khdc cdn phdn bift qudn

ttj, qudniy doanh nghifp vdi quan trj, qudniyxa
hOi. Cd t b l cdn s i dung tu ngft qudn ly xd hOi
theo n^im rOng di nhdn mgnh tinh todn tbl,
tinh h i thdng d ddi tuong, phgm vi eia quan tri
xd hOi. Ddng thdi, ed thi vdn dung edeh tilp egn
ly thuylt phdn hda'^' eia Luhmann d l dinh
nghia qudn trj xa hOi Id qudn ly toan thi xa hOi
vdi tinh each Id hf thdng xd hOi phdn hda, khde
bift hda vdi mdi tiudng. Djnh nghia ndy khdng
phdn bift qudn tti xa hOi vdi quan ly xd hdi ma
tgp tmng ldm rd dde trang eia qudn ly xd hOi,
qudn tri xa hOi ttong dilu kif n kinh t l thi trudng
djnh hudng XHCN.

2. Qudn h i xa hdi t i gdc dd ly thuyet hf th6ng

Quia tii^h0i titgdc d$ /^ thuyit b$ thing
Beitalannfy (1950) la nha khoa hpc tien phong
trong viee xdy dung ly tiiuylt hf thdng tdng qudt
vdi ede khdi nifm, nguyen ly ed thi dp dung eho
tdt ed logi hf thdng vat ly, hf thdng smh hpc vd hf
thdng xd hOi. Ong dd dua ra khai nifm hf thdng
md vd hf thdi^ ddng. Hf thdng md Id hf thdng
ludn eoi md dl trao ddi chdt vdi mdi trudng, nhd
vdy ma hf thdi^ ma sdng dOng, tiln hda, phdt
trila Hf thdng ddng Id hf tiidng khIp ldn khdng
ttao ddi chdtvdi mdi trudng do v ^ h f tiidng ddi^
cd xu hudng bi tan rd, phEin buy, tiiu tan. Hf thdng
ddng la hftiidngvdeo, vat lyvdhflhdngmdldhf
thdi^ smh hpe vd hf thdng xd hOt Cdc nguyin ly

tdng qudt eia hf thdng m i gdm nguyin ly dSng
kit, tif m biln, ty dilu tilt vd mOt sd nguyin ly
khac. Cdc nguyin ly ndy cd thi vdn dung ttong
quan drj xd hOi dl bdo ddm tiln bO vd phat triln
eia xd hOi vdi tmh each Id hf thdng. Thi dy: theo
nguyen ly ddng kit, cdn thye hien ehinh sdch
khuy&i khich eae ed nhdn vd ede eo quan, td chic,
eOng ddng thye hifn nhilu logi vife \km khde
nhau, san xudt kinh doanh nhilu sdn phdm khdc
nhau vdi nhilu cdng nghf khdc nhau vd tdt ca mpi
ngiroi chuyen mdn hda, ehuyen nghiip hda dlu
ed till dat dupe mye tieu gidng nhau la tang thu
nhdp, edi Ihifn eufc sdng ttong mdi quan hf phy
thuOe ldn nhau tao nin su doan kit hiiu ca vd
cung phdt triln. MOt xd hOi cham phdt triln khi
cdc ca nhan ehi ed mOt edeh lam gidu, thi dy tdt cd
dlu lam mdt i ^ l ndng nghiep gidng nhau, khi
dd tdt ea mpi ngudi dlu hao hao gidng nhau, thilu
sy ttao ddi, hpp tde phong phti, da dgi^
Quin trixSbditCtgdcd01^&iuyitb$

diing

Talcott Parsons ed ddng gdp ldn trong nghien
emi vd phdt triln Iy thuylt hf thdng tdng qudt

LfLUAN CHiNH TRI-Sd 9/2017


NGHIEN Cdu

- P H A T T R I E N Lf L U A N

ttong xd hpi hpc theo hudng ldy chiie ndng dl
giai thich edu trie eia hf thdng xa hdi. Theo Parsons, bdt Vy mOt he thdng xa hOi ndo eing phdi
thye hifn it nhdt bdn ylu cdu ehuc ndng dl cd
the sinh tdn, van ddng vd phdt triln ttong mdi
trudng ludn biln ddi. Dd la chic nang thich ling,
hudng dieh, dodn kit vd duy tri khudn mdu. Do
vdy, he thdng xd hdi bj phan hda thanh bdn tiiu
he thdng ma mdi he thdng chuyen mdn hda vdo
thye bien mOt chie ndng. Cae tiiu hf thdng ndy
tiHH^ ddi dde l|p nhung ludn tuong ldc vdi nhau
tgo thdnh mdt cdu true tuong ddi dn djnh, bin
vftr^. Din lupt nd, mdi tiiu hf thdng ed thi tilp
tye phdn hda thdnh bdn bd phdn tuong ing vdi
bdn ehiie nang. Nguyin ly phan hda hf thdng
ndy ed tbl tiep tuc diln ra tuy theo sy yeu cdu
chic ndng md mdi trudng ddi hoi. Thi dy, mOt
xa hpi vdi tinh cdch la mdt h i thdng ludn ed cdu
trie gdm bdn tiiu hf thdng tuong ung vdi bdn
ehtie ndng Id (i) tiiu hf thdng kinh t l thye hifn
chic ndng thich ing bdi^ each san xudt ra sdn
phdm edn thilt cho toan xa hfi, (u) tiiu hf thdi^
ehinh tri thye hifn chie ndng hudng dieh dl
vgeh ra myc tiiu, dudng ldi hogt dOng eho cd hf
thdng; (Ui) tiiu hf thdng phap lugt thye hifn
chic ndng dodn kit xa hOi dl tgo ra ttgt ty eia
ca he thdng bdng edeh de ravd dam bdo eac quy
tde ung xu dupe tudn thu; (iv) tieu hf thdng vdn

hda cd ehtic ndng duy tri nhting khudn mau lir^
x i p h i hop nhdt cho ed hf thdng. Mdi tiiu he
thdr^ ndy tilp tye phdn hda thdnh bdn tiiu he
thdng tuong ting vdi bdn logi ehuc nang thich
lir^ hudng dfch, dodn kit vd duy tri khudn mda
Su phdn hda chie ndng - eau true eia hf tiidng
e i thi tilp tye ldm eho hf thdng xa hpi tri thdnh
mdt chinh the eua ede thanh phdn vd can true vd
cing phtic tgp.
Vdn dyng cdch tilp can ly thuylt hf thdng
bdn ehic nang, cd tbl thdy quan tri xa hOi cd

Lf LUAN CHlNH TRj-S£9/2017

chie ndng hudng dieh eho ca h i thdng. Chic
ndng hudng dieh nay cd the dupe thao tde hda
thdnh nhiing chie nang eu tbl Id: (i) thilt ke vk
td ehtie ede hogt dOng ddu vdo, hogt d^ng san
xudt vd hogt dOng ddu ra cua ed he thdng; (u) xdc
djnh myc tiiu chung eia ca hf thdng dam bdo
edn bang Ipi ich cdc ben tham gia; (iU) xde djnh
hf gid tri, chuan muc de dam bdo su ddng bO, an
todn, ttgt ty; (iv) xdy dyng vd phdt triln van hda
eia he thdng xd hOi. Nhu vgy, vdi tinh cdeh la
mOt tiiu hf thdng hudng dieh eia he thdng xa
hOi, qudn tri xd hdi thye hifn ea bdn ehic ndng
Id thich ing, hudng dich, doan kit va duy tri
khudn mdu cho ca be thdi^ nhdm dap uag cdc
ylu eau ddt la ttong mdi quan hf vdi mdi tiudng
xui^ quanh.

Quin trjxihdi tUgdc dd cicnguy^l^h$
tb&ngthih$tbtiba
Jamsbid Ghaiajed^hi cd ddng gdp ldn ttong
nghien eiiu vd phdt trien ly thuylt he thdng tdng
qudt trong qudn ly phue hop vd hon dOn®. Theo
Ghaiajeda^, ly thuylt hf thdng da phdt triln
qua giai doan hf thdng co hpe, hf thdng smh
hpc va dgt tdi dinh cao la hf thdng xd hOi. Theo
cdch tiep can ly thuylt hf thdng t h i hf t h i ba,
xd hdi cdn dupe hiiu nhu la mOt hf thdng xdhpi
- da tri tuf. Hf thdng nay viia kl thua tdt ca cde
dde trung eia hf thdng t b l hf t h i hai la hf
thdng sinh hpc - don tri tue vd hf thdng the he
t h i nhdt Id hf thdng eo hpc - khdng tri tui, via
phdt triln ede dae tnmg mdi. Hf thdng xa hfi
ddc trung bdi su tuang tdc, phy thude ldn nhau,
thich ling, tu td ehic, lua chpn, e h i dich vd
nhilu dac trung khdc cua mOt he thdng ma, can
bdng dOng vd phan hda vdi mdi trudng. T i cde
dde trung nay, Gharajed^ti lua chpn va khdi
qudt dupe nam nguyen ly hf thdng t b l h i t h i
ba de ran dung ttong "qudn ly hdn dOn vd phuc
hpp". Cd tbl eoi quan tri xd hOi la bdi sd, la tdng


m
hda eac qudn ly hdn dOn vd phtie hpp, khi dd
can tim hiiu vd van dyng ndm nguyin ly hf
thdng t b l hf t h i ba md Gharajetiaghi dd nhdn

manh. Dd la nguyin ly ve tinh md, tinh ehu
dich, tinh hpp ttdi, tinh da ehilu cgnh vd tinh
phan true cam eia he thdng. Day la nhung
nguyen ly he thdng tdng quat, do vdy hoan todn
ed the van dung vdo titilt ke quan trj kinh doanh
nhu Gharajed^hi dd lam va van d u i ^ ttong
nghien ciu va phdt triln qudn tri xa hOi ttong
trudng hpp dudi day. Cy thi nhu sau:

mdi trudng. Thi du, quan tri kinh te c h i ylu
nhdm myc dieh tang san lupng, giam ehi phi,
tdng thu nhdp, tdng Im nhudn, vd do vdy ed thi
sdn sang ldm d nhiim, biy hogi mdi trudng vd
lam tang Ipi Ieh cua nhdm ngudi nay va lam giai
Ipi ich eia nhdm ngudi khde. Khdc vdi quan tri
kinh te, qudn dj xd hdi ddi hdi quan tri kinh t l
phai gdn vdi myc dich phdt triln bao triim, bin
viing vd phat triln con ngudi, ey tbl Id khuyin
khieh Idm gidu gdn vdi xda ddi, gjam nghIo, bao
ddm ttdt ty xd hOi, cdng bdng xd hdi vd bao vf
(i) Nguyen ly md-cho bilt xd hOi vdi tinh cdeh mdi tradng.
la hf thdng khdi^ khep kin md ludn md vdi mdi
(iu) Nguyen ly da chiiu canh eho biet hf
tmdng xung quanh thdng qua cdc ddu vdo, ddu thdng Id sy phy thude ldn nhau eia vd sd cdc ylu
la vd ede ung x i eia hf thdng vdi mdi tradng. td vdi cde ehilu cgnh khdc nhau tham chi ttdi
Nhd nguyen ly ma md hf thdng ttao ddi chat vdi ngupc nhau; Id su tiidr^ nhat e i a cac mat ddi
mdi trudng vd van dOng, biln ddi, phat triln. lap, la toan thi cae khd thi vd ede bat khd thi, Id
Nguyin ly md ddi hdi qudn tri xd hOi vdi tinh sy kit hpp eia ttdt ty vd hdn logn. Biiu hifn id
cdeh la mdt tiiu hf thdng ludn md vdi cdc tiiu nhdt cua tinh da ehilu cgnh la tinh da ehiie
he thdngtiiuOemdi tradng ben ttong, vd ddi hdi nang, da edu trie vd da qud trinh eia hf thdng

ca hf thdng phdi md vdi mdi trudng xung quanh xd hpi, md Ludwig von Bertalanffy gpi la nguyin
d l tim kilm ede dau vdo vd sdn xudt cde ddu ra. ly "ddng kit" (equiflnaUty), theo dd Id cdc qud
(u) Nguyin ly chd dinh cho hilt h i thdng xa trinh khac nhau cd the dlu ddn d ^ nhiing kit
hOi ludn ed mye dich vd tim mpi cdeh dl dgt qua tuong ty nhau'". Van dyng nguyin ly da
mue dich ddt ra. Hf thdi^xa hOi cd ehu dieh boi ehilu cgnh ttong qudn trixdhdi ddi hdi phai tinh
vi eon ngudi cd y thiie vd hanh dOng ed c h i din cdc muc dich khac nhau, cdc ngudn lyc, cde
dieh. Do vdy, quan tri xa hdi ed ehic ndng xdc phuang phap, cac bien phap khac nhau dlu cd
djnh mye dich eia ea he thdng xd hOi vd vgch la tbl dgt dupe nhiing muc dieh nhdt djnh. Khi dd,
chien lupe, hf gia tri chudn mirc, k l hogch, quan tri xa hOi cdn hudng den vife khuyin khieh
chuang trinh hdnh dOng dl dgt myc dich dd. mpi ngudi phdt huy ede the mgnh khde nhau,
Tuy nhien, qudn tri xd hdi ttong bdi cdnh hiln ede ngudn lye khde nhau de dgt cdc muc dich
nay phdi lya chpn va xdc djnh myc dich uu tien eia hp md khdng phuong hgi den muc dich
vd cam kit thue hifn myc dieh ttong dilu kif n ehui^ eia ca cOng ddng xd hdi. Thi dy, quan tri
ed hgn vl cdc ngudn lyc. Vdn d l nay khdng chi xd hdi gidi ed till giup mpi ngudi ndng eao ehdt
Uen quan din vife phdn bif t myc dich ddi hgn, lupng euOe sdng nhd phdn cdng lao dOng theo
tnmg hgn vd ngdn hgn ma edn Uln quan din hudng chuyen mdn hda, chuyin nghifp hda va
vife ldm id mue dich ttln cdc chiiu cgnh eia ca Uen tye ddi mdi, sdng tgo. Theo nguyin ly ndy,
he thdng xa hpi ra eia tung bd phdn edu thdnh quan tri xa hOi gioi khdng cd n ^ a Id ldm mpi
ttong mdi tuong tdc phtie tgp giiia hf thdng vd ngudi dlu gidi lam mOt Viec gidng nhau, ma mdi

LfLUAN CHiNH TRI-So 9/2017


Eii

NGHIEN COrU - P H A T T R I ^ N Lf L U A N

ngudi gidi mOt vife khde nhau, tgo nin cdc logi
san phdm, eac logi hdng hda, ede logi dich vu
phong phi, da dgng.

(iv) Nguyin ly hop trdi eho bilt hf thdng xa
hOi ludn cd cdc fide tinh hpp ttOi vdi tinh each
Id nhiing ddc tinh eia hf thdng dupe hinh thdnh
t i su tuong tac, kit hpp, phdi hpp eia cae bO
phdn can thanh nin he thdng. Sic mgnh cua cd
mOt he thdng xd hOi phu thuOc vao sic mgnh
eia ting tiiu hf thdng vd sic mgnh eia sy hpp
ttfi do cac tiiu h i thdng tuong tdc, kit hpp, phdi
hpp vdi nhau tao nen. Nguyen tde nay gpi y eho
qudn tri nhilu phuong tiitie de dgt hifu qua nhu
khdng chi tdp trung ndng cao trinh dO hpc vdn
hay ehuyen mdn ky thugt eia ttmg thanh vien
md edn phdi ndng eao trinh dO tuong tde, hpp
tac giua cdc thdnh viin eia td ehtic. Khdng ft ca
quan chuyen mdn, co quan khoa hpc khdng
thilu ngudi tdi gidi nhung Igi hogt dOng kem
hifn qua, tham chi ylu kim vi thieu ea ehe hpp
tde, tuong tac tich cue giua cdc thdnh viin.
Nguyen ly hppttOieho bilt ede ddc dilm va tinh
chdt eia mOt hf thdng ludn Id su hppttOicdc
dge dilm, tinh chdt eia cde ylu td tuong tde vdi
nhau tgo nin hf thdng dd.
(v) Nguyen ly phan ttuc cam (Counter-intuitiveness) eho bilt hf thdng ludn chiia dung cde
ylu td bdt i^d, khd ludng, "hon dOn", "bdt dinh",
"tai biln", quan hf nhdn - qud ed tbl hi gidn
dogn ttong khdng gjan vd thdi gjan, thgm chi cd
thi ddi ehd eho nhau. Nguyen tdc hf thdng ndy
gpi y cho ldnh dgo, qudn ly khi phai boat dfng
ttong mdi ttudng Uen tye thay ddi tin khdng
dupe thy dOi^, md phai thich lingticheye, sang

tgo, thgm chi edn phai thay ddi nhanh ehdng,
bdt ngd. Ddc bif t, cdn phdi ndm ldy quy ludt, edi
dn djnh, cdi caban dl ung phd vdi vd sd cdc hif n
tupng riing le, ludn thay ddi; cdn phdi bilt "di
bdt biln ling van b i ^ " .

LfLUAN CHfNH TRI-SO9/2017

Quin tri xa hdi td gdc dd^diuyit

phin hda

Khde vdi ede cdeh tilp can ly thuylt hf thdng
ndng vl cde nguyin ly tgp ttung vdo hf thdi^ vdi
eac thdnh phdn, edu trie, Niklas Luhmman dua
ra ly thuylt phdn hda hf thdng, nhdn mgnh mdi
quan hf giOa h i thdng va mdi trudng. Ong eho
rdng, hf thdi^ Id su khdc bif t eia he thdng vdi
mdi trudng'^'. Van dung djnh nghia nay ed thi
thdy, quan tri m hOi ed chue ndng lam rd sy khde
bif t eia hf thdng vdi mdi tmdng. Thi du, qudn
tri xa hOi ddi vdi Unh vyc gido dye Id vif e Idm eho
Unh vuc gido dye khdc vdi cdc Unh vyc khde eia
xd hpi, khdc vdi Unh vyc kinh tl, y tl, khoa hpe...
mdc d i cdc linh vuc nay dlu Uen quan mat thilt
vdi nhau.
Cdu hdi ddt ra la lam the ndo tgo ra sy khdc
bif t eia hf thdng xd hOi vd mdi trudng? Chi ed
con ngudi la cd t h i thdng qua hdnh dOng ldm
thay ddi t b l gidi va ban than. Tuy nhiln, nlu

chi ed hdnh dOng nhu vdy tii khd cd till tao nin
xd hpi lodi ngudi vdi tinh cdch la su khdc bilt
eia hf thdng xd hOi vdi mdi trudng. Theo ly
thuylt phdn hda hf thdng eia Luhmann, hanh
dOng ed ddi tupng vd khdch tbl la gidi tu nhien
ehua true tilp tgo ra h i thdng xd hOi. Ngay ca
hdnh dOng xa hOi vdi nghia Id hudng din ngudi
khde, bj dnh hudng bdi ngudi khdc ciing chua
trye tiep tgo ra hf thdng xa hOi. Theo Luhmann,
giao tiep mdi Id logi thao tdc, hanh ddng duy
nhdt ed kha ndng tao ra he thdng xd hOi vdi tinh
cdeh la sy khde biet e i a hf thdng vdi mdi
trudng. Theo dng, hf thdng xd hdi hinh thanh
khi giao tilp vd phdt ttiln t i giao tilp. Bii vi
giao tilp bao hdm su tuong tde e i a eae hdnh
dOng eia cdc cd nhdn, ddng thai ddi hdi cde cd
nhdn phdi s i dyng ky hieu, ngdn ngft, biiu
tupng dl tmyln dgt, tilp nhdn, nhdn bilt thdi^
tin vd hiiu bilt ldn nhau.


Cdeh ti^ egn ly thuylt phdn hda bf tiidi^ eia
Luhmann ddi hdi qudn tri xd hOi phdi thiet ldp
dupe hf thdng truyin thdng "cdng khai, minh
bgch, ed trdeh nhiim gidi trinh" giiia cdc thdnh td
bin ttong hf thdng vd eia ed hf thdng vdi ede hf
thdi^ khdc troi^mdi trudngxui^ quanh Thi du,
qudn tri xa hOi phai dya vdo he thdng truyin
thdng ed hieu qua trong nOi bO co quan, don vi;
ddng thdi phdi dya vdo hf tbdi^ giao tilp cd hif u

qua vdi cde ben Uln quan 6 bin ngoai he thdng
bao gdm ede tdi^ ldp nhdn ddn, cae ed nhdn, cdc
^ chic vdi cdc vj thi va vai trd xd hfi khde nhau.
Ndi each Idide, quan tri xa hOi ddihdi phdi thudng
xL^en, Uln tye, giao tilp vdi nhan dan, gdn ddn,
ldng n ^ e dan, tiiam vdn ddn, tinyin thdng din
mpi ngtroi dan dl cur^ "bilt, bdn, ldm, kilm 0:a"
dl tgo ra sukhacbiet ciahf thdngxd hOi voi mdi
tnroi^. Su khde bift eia h i tiidng xd hOi ndy vdi
hf thdng xa hOi khdc 6 chd hf thdng dd tao m cdi
^ vd tao ra bdng edeh ndo. Theo do, quan tri xa
hOi cdn dya vdo ^ o tilp cdng khai, minh bgch,
trdeh nhiim gidi tiinh dl ndi^ cao ndng sudt, chat
lupng, hifu qud eia cd hf thdng xa hdi. Theo
nguyin ly giao tilp cd thi phan bif t quan tri xa
hOi kilu cu ehi ylu dua vao giao tilp nOi bO ben
ttoi^hfthdi^xdhOi-Trong khi do qudn tri xahOi
kilu mdi ddi hdi phai eoi trpng ed giao tilp bin
ttong vd ca giao tilp ben ngodi hf thdng xd hOi.
N ^ ^ n cthi ly luan ra thuc tiln cho thdy, qudn tri
xd hOi ndng vl giao tilp ben ti^ng, nghia Id "ddng
cua"tillchi cd till duy tri, cung ed nhiing ^ dd ed
ttoi^ hf thdng xd hOi- Nhung di qudn tri xd hOi
nhdm ddi mdi, sdi]^ tgo vd phat triln thi edn phdi
tdng cudng giao tilp bin ngodi vdi mdi trudng
xung quanh, nghia la "ma eia" O

Le Ngpc Hur^ (Chi bi6n): M hdi hoc lanh dao,
quin Jy, Nxb Dgi hpc qudc gia Ha NOi, 2010.
(2) Vifn Ng^en ciu vd Ddo tao vl qudn ly: Hnh hoa

qudniy, Sdd, tt.60.
(3) Anne Mette Kjaei. Governance. Cambridge:
Polity Press, 2004.
(4) L6 Quan (Chi bign): KhungnSngluc lanh dao,
quin ly khu vuc hanh chinh cdng, Nxb Dai hpc
qudc gia. Ha Noi, 2016.
(5) L€ Ngpc Himg: Ly thuyit xa hdi hgc hiin d0,
Nxb Dgi hpc qudc gia Hd Nfi, 2014.
(6) Jamshid Gharajed^hi: Tiiduyh$ thong - Quin
If hdn dgn vaphdchop, mdtcasddio ihiitkHdin
trdc kinh doanh, N:d] Khoahpc xd hpi, Hd Nfi, 2005,
tt.40-42.
(7) Jamshid Gharajed^hi eho bilt Ludwig von
Bertalanffydasidungkhdiraem"Ddngklt" (EquifinaUty, don ciu cdnh, chung cufc ngang nhau) khi
phdntichtinh ty dilu tilt, ty cdn bSng eia hf thdng
sdng, mi. Gharajeda^ cui^ cho bi@t: Walter Buckley da vifn dan khdi nifm ndy eia Bertalan% dl
ngupc Igi, dua ra khdi nifm tinh "da kit" (Multifinality, da ciu cdnh, da chung cufc). Dd Id cac ddu
vdo gidng nhau nhung vdn c6 thi tgo ra ede kit eye
khdc nhau. Jamshid Ghaiajeda^ Tuduyh$ thdng.
Quinlfhdfl ddn viphdchop, rndtcasdcho thiit
kikiin true kinh doanh, Nxb Khoa hgc xd hpi, Hd
NOi. 2005, tt.lU; Walter Buckley: Sociology and
modem systems theory. New Jersey: Prentice-Hall
Ine.l967.P.60.

(8) Niklas Luhmann (1977), "Differentiation of society" in Canadian loumal ofSociology. Vol 2. No.
1,1977, Pp.29-53. Niklas Luhmann (1990). "The
paradox of System Differentiation and the Evolution of Society" in Jeffrey C. Alexander and Paul
Colomy (Editors), Differentiation Ilieojy and Soda/C/iange; Comparative andhisforicai perspec(1) Wfn N ^ 6 n ciu va Dao tgo vl qudn ly: I5nft hoa tives, Columbia University Press, New York, 1990.
quin If, Nxb Lao ddng - Xd hOi, Hd Nfi, 2008, tt.59; Pp.409-440.

LfLUAN CHiNH TRj-SJi 9/2017