Research purposes: The purpose of the thesis is to explain and provide scientific foundations in theoretical and practical aspects to enhance the decentralization of state management of universal education in Hanoi City towards improving the effectiveness and efficiency of the state management on universal education.
Trang 1MINISTRY OF EDUCATION AND
NATIONAL ACADEMY OF PUBLIC ADMINISTRATION
NGO THI DIEP LAN
DECENTRALIZING THE STATE MANAGEMENT ON
UNIVERSAL EDUCATION IN HANOI CITY
Trang 2The Project was completed at: NATIONAL ACADEMY OF PUBLIC ADMINISTRATION
Supervisors: 1 ASSOC PROF DR DANG KHAC ANH
2 ASSOC PROF DR TRUONG QUOC CHINH
Reviewer 1:………
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Reviewer 2:………
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Reviewer 3:………
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The thesis is defended at the Academy-level Thesis Evaluation Jury
Venue: Doctoral thesis defense room, Meeting room ………., Building - National Academy of Public Administration, No.77 - Nguyen Chi Thanh Street - Dong Da District - Hanoi City
Time: at …… hour …… month …… year 2020
The dissertation can be found at the National Library of Vietnam or the library
of the National Academy of Public Administration
Trang 3INTRODUCTION
1 Reasons for choosing the research topic
Not only Vietnam but most developed countries in the world, education is considered a “national top-priority policy” in the cause of national construction and development In all levels of education, universal education including primary education, lower secondary education (the basic education stage) and upper secondary education (vocational orientation education period) are extremely It also plays an important role in providing and directing students' competencies and personalities Along with universal education, state management of universal education is always a matter of particular concern to policy makers because educational management from the national level to the local levels of education management and educational institutions all affect the implementation of universal education policy and improve the quality of universal education
Education and training play a very important role in training high quality human resources and providing talents for the country However, due to the transition from centralized bureaucracy to subsidized socialist market mechanisms, the current mechanisms and policies on state management of education in general, State management on universal education in particular is still limited and inadequate; the management decentralization for universal education is unclear and unreasonable; authority has not come with responsibility In order to improve the effectiveness of state management of universal education, many solutions need to be implemented One of the solutions to develop universal education in our country is to drastically reform the institutional system and state management method of universal education
in the direction of promoting decentralization of management of Hanoi's home as a national political and administratve center, a major center of culture, education, science and technology, economics and international transactions of the whole country Hanoi is a crowded place, with a high demand for spiritual life and conditions to quickly absorb advanced civilization of mankind In recent years, the capital's universal education has achieved important results, the system of high schools has diversified with many types of schools and classes; facilities of the schools were built more spacious than before; Many schools meet national standards Despite achieving initial results, the quality of universal education in our country in general and in the city of Hanoi in particular is still low compared to other countries in the region and around the world One of the reasons affecting the quality
of universal education is that the state management decentralization in universal education has many limitations The organizational model of state management combined with territory results in the same subject being universal education institutions but under the management of many different state management agencies such as ministries, departments, Department of Education and Training vertical management professional; The People's Committees at all levels have horizontal
Trang 4management in terms of personnel and administration The overlap of functions, the delineation of duties and powers is not appropriate, resulting in the ineffective state management of education sex; thereby directly affecting the quality of universal education in the area The process of reforming and decentralizing the state management of universal education still has not met the pressing requirements of reality and is still limited and unreasonable; decentralization but not ensuring unified management, also showing a dispersed, localized, not focused on the inspection and examination of the functions and tasks decentralized to the locality The state management decentralization for universal education has not yet clearly defined, specifically the tasks and powers of each level of government in performing the state management function; the responsibilities of each level, collective and individual have not been clearly defined for their decentralized tasks; decentralizing tasks to subordinates, but failing to ensure the necessary conditions for implementation, lack
of articulation and synchronization among related industries and fields, and not creating conditions for localities to have be proactive in balancing resources
Especially with the characteristic of being the capital of the whole country, in addition to specialized legal documents on education, Hanoi is governed by the Capital Law with management mechanisms applied separately in the area Regulatory responsibilities governing the state management of universal education must have unique characteristics to meet the challenges and needs of rapid change in the context
of integration and globalization universal education system in Hanoi City; To fulfill the educational goal is to create new citizens Educational reforms must promote management decentralization, empowering subordinates, mobilizing local resources and creating lifelong learning opportunities for all citizens
On the other hand, from the perspective of public management science so far, there has not been any comprehensive and profound research on the decentralization
of state management of universal education in Hanoi City Deciphering the theoretical issues of the decentralized management of universal education as well as assessing the state management decentralization of universal education in Hanoi city from which to determine the appropriate direction and solution to strengthen and ensure decentralization of state management of universal education in effective areas
Based on the above reasons, choosing the project titled: “Decentralizing the
state management on universal education in Hanoi City” as the research topic of
the Doctoral Thesis in Public Management is absolutely urgent in theory and practice
2 Research purposes and missions
Trang 5- Analyzing and evaluating the state of decentralization of state management on universal education, find out the achieved results as well as the limitations and causes
of the limitations in the state management decentralization on universal education in the locality Hanoi City table
- Proposing directions and solutions to innovate and promote decentralization of state management of universal education in Hanoi City in the coming years
3 Research objects and scope
3.1 Research objects
The dissertation studied the decentralization of state management on universal education
3.2 Research scope
- About the content: The thesis only researches the state management decentralization
of public universal education at the management levels by branches (Ministry of Education and Training - Department of Education and Training - Department of Education and Training) and management decentralization by the localities in Hanoi City (People's Committee at all levels) in 3 key areas: (i) apparatus and personnel; (ii) facilities and finance; (iii) expertise (including universal education development planning, content development, universal education curriculum and evaluation)
4 Methodology and research methods
4.1 Methodology
This project is based on the theoretical basis of Marxism - Leninism, Ho Chi Minh ideology and the views, guidelines and guidelines of the Communist Party of Vietnam, policies and laws of the State on state management, decentralized state management on education The methodology of dialectical materialism and historical materialism is combined consistently to study and analyze the state management state
of universal education in Hanoi City
4.2 Research methods
To accomplish the above research purposes, PhD students use the following research methods: theoretical research methods; Methods of analysis - summarization; Statistical methods; Sociological investigation method
Trang 65 Scientific hypotheses and research questions
5.1 Scientific hypotheses
(1) Decentralizing the state management of universal education has a great influence on state management of universal education as well as socio-economic life (2) Decentralizing the state management of universal education in our country
in general, in Hanoi City in particular, has achieved initial results but still has many limitations and shortcomings
(3) Strengthening the decentralization of state management of universal education in Hanoi on the basis of specific and clear delineation of duties and powers among state management levels in universal education, overcoming overlapping and conflict between levels and sectors contribute to improving the effectiveness and efficiency of state management of universal education, thereby promoting the quality
of universal education to meet development requirements in the trend of integration
5.2 Research questions
- What is decentralization of state management on universal education? What is the impact?
- What is the current state management decentralization for universal education
in Hanoi City? What are the achievements and limitations in decentralizing the state management of universal education in the City?
- What needs to be done to promote decentralization of state management to universal education in Hanoi City in the coming years?
6 New contributions of the research topic
Theoretical aspects
By referring to documents on decentralization of management and education at home and abroad, studying trends and models of education management decentralization in some countries in the world, the thesis contributes to building a Theoretical basis on state management decentralization in education in general and
universal education in particular in Vietnam
Practical aspects
Studying and commenting the actual state of decentralization of state management of universal education in Hanoi City, assessing the advantages and limitations, identifying the causes of the limitations and proposing solutions to promote and improve the efficiency of state management decentralization on universal education in Hanoi City in the coming years
The research results of the thesis are the basis for the Hanoi city government to renovate the management of general schools in the spirit of promoting reasonable management decentralization and reasonable right of education for schools to build the education of Hanoi City in an increasingly growing manner
7 The structure of the thesis
In addition to the introduction, conclusion, table of contents, references and appendices, the thesis consists of 4 chapters
Trang 7Chapter 1 OVERVIEW OF THE RESEARCH
1.1 The research projects on the state management decentralization
1.1.1 Research projects in Vietnam
Vo Kim Son (2004): “Decentralization of state management - theory and practice”, National Political Publishing House State-level scientific research project
of the Institute for Scientific Research, Ministry of Home Affairs: “Decentralization situation between central and local levels”, 2004 Pham Hong Thai (2011): “Some issues theoretical awareness of centralization, decentralization, decentralization, decentralization in state management”, the article in “Decentralization of state management”, People's Publication Publishing House Hoang Mai: Presentation: “The authority of local authorities at all levels in sustainable development - the result of decentralization in Vietnam” presented at the International Conference on Local
Governance (March 2009 in the 2009 Francophone Congress program held in
Hanoi Hoang Thi Ngan (2010): “Current situation and trends of decentralization between central and local authorities in Vietnam”, a discussion paper of the Faculty of Law, Vietnam National University Bich Hien : “Discussing the decentralization of management among local authorities in Vietnam today”, Journal of Democracy and Law, Ministry of Justice, Issue No.9/2005; Hoang Thi Ngan : “Promoting the central and local decentralization”, Journal of Legislative Research, Office of National Assembly, Issue No.2+3/2009; Tran Anh Tuan : “Promoting the decentralization of state administration to meet the requirements of development and global integration”, Journal of State Management, National Academy of Public Administration, Issue No.10/2014; Nguyen Minh Phuong : “To further promote the decentralization of management among the local authorities at present”, Journal of State Management Administration Academy, Issue No.1/2007; Vu Thu : “Some theoretical and practical issues on decentralization of management for local authorities in Vietnam”, State and Law Review, State and Law Institute, Issue No.4/2009; Tran Thi Dieu Oanh : “The relationship between the decentralized
in Vietnam today”, Journal of State Management National Academy of Public
Administration, Issue No.4/2010;
1.1.2 Foreign research projects
- World Bank (2005): “Decentralization in East Asia for local authorities to take effect”, Culture and Information Publishing House World Bank research report: “What
is Desentralization” , 2002 The report on analyzing the concept and characteristics of
decentralization and decentralization United Nations Research Paper
(UNDP): “Desentralization - Sampling of defination” , 1999 Osborne and Gaebler (2000): “Reinventing government”, House National Political Publishing , Hanoi J
M Cohen, S B Peterson (2002): “Decentralizing administrative management -
Trang 8Strategy for developing countries”, National Political Publishing House, Hanoi
1.2 The research projects on decentralization of state management on education
1.2.1 Research projects in Vietnam
Ministry-level scientific project B98-52-22 “Centralized and decentralized research in the management system of universal education in Vietnam” is chaired
by Dr Nguyen Tien Hung The scientific project focused on the types of focus and decentralization in management In 2003, the authors Dau Hoan Do, Nguyen Cong
Giap and Dao Van Vy published the research project: “Decentralized management Vietnamese education: Situation and trends” Tran Hong Hanh (2011): “Some perspectives on state management decentralization in education and training in Vietnam”, article in “Decentralization of State Management”, People's Publication Publishing House Dinh Thi Minh Tuyet (2007): “Regarding the decentralization of education - training management in Vietnam today”, Journal of State Management, Issue No.142 (11-2007) Tran Hong Tham: “Some solutions to promote decentralization of state management for universal education”, Journal of Science, Ho
Chi Minh City University of Education, Issue 02/2012 Dinh Minh
Dung: “Decentralization of state management of education and training at district level
in the Mekong Delta”, Journal of State Management, Issue No.195 (4-2012)
1.2.2 Foreign research projects
- Rondineli D and Nellis J (1996): “Assessing decentralization policies in Developing countries: the case for cautious optimism” (the decentralization policy in the developing country: The case for cautious optimism), Delelopment Policy Review
4 Lockheed, Marlaine (2004): “Decentralization of education: Eight lessons for school effectiveness and improvement” (Decentralization of education: Eight lessons
of impressive progress and school), The word Bank, Washington, D.C Elizabeth M King và Susana Corderio Guerra (2005): “Education Reforms in East Asia: policies, processes and impacts” in the book “Decentralization in East Asia for local
authorities to promote the effects”, Hanoi Culture and
Information Publishing House Winkler R, Donald R and Gershberg (2003): Effects
on Quality of Schooling (Factors affecting the quality of teaching), Word Bank, Washington D.C Alfred de Grazia's monograph: “Decentralization - The element of Political Science” (Decentralization - element of political science), New Jersey,
1999 The research project of FAO: “A history of Decentralization” (History of decentralization), 2001 Meemnakshi Sundaram: “Decentralization in Developing countries” (Decentralization in developing countries), 1998
1.3 General assessment of the research projects related to the thesis topic
1.3.1 The studied contents
These studies have researched and given many different conceptions of management decentralization based on the views of scholars, comparing, distinguishing decentralization with decentralization, authorization, decentralization Studies of the formation and development history of decentralized management in the
Trang 9world also show the characteristics of decentralized activities at different stages of the development process of each country The study also mentioned the characteristics and principles of management decentralization, from which proposed the process and model of management decentralization in accordance with the characteristics of the countries in the world Decentralization of management to education has analyzed the role of management decentralization from many perspectives; advantages and risks of management decentralization; factors affecting decentralization, types of decentralization and management decentralization for education
1.3.2 The dissertation contents to be further studied and supplemented
Firstly, studying the theoretical basis of decentralized activities, especially the
decentralization of state management over universal education: Characteristics, objectives and management decentralization principles; Factors affecting the decentralization of state management to universal education; centralized types and decentralized state management for universal education; Issues raised when implementing decentralization of state management for universal education in Vietnam today
Secondly, studying the legal corridor system related to decentralized
management and state management decentralization for universal education in Vietnam
Thirdly, analyzing and assessing the situation, the achieved results, the
limitations, inadequacies, the causes of the limitations and inadequacies in the state management decentralization for universal education in the City Hanoi
Fourthly, providing directions and proposing solutions to promote and improve
the efficiency of state management decentralization for universal education in Hanoi City in the coming years The thesis also proposes solutions to renovate state management for universal education in Hanoi City in the context of decentralization
of management for universal education
Trang 10Chapter 2 THEORETICAL AND LEGAL BASIS ON DECENTRALIZING THE
MANAGEMENT FOR EDUCATION
2.1 Management and state management on universal education
2.1.1 Management and state management
Management is the organized and organized impact of the management subject
on the management object by certain methods to achieve the set goals
State management is a special form of social management, with the power of the state and the use of laws and policies to adjust the behavior of individuals and organizations on all aspects of social life due to agencies in the state apparatus, in
order to serve the people, maintain the stability and development of society
2.1.2 State management on universal education
State management of universal education is an area of state management which
is carried out by competent state agencies in accordance with the law, influencing and adjusting by the state power to activities universal education aims to realize the goal
of maintaining discipline and discipline and developing universal education to meet the country's development requirements
2.2 Decentralization of state management on universal education
2.2.1 State management decentralization concept
Decentralization of state management is the division of authority and responsibilities among levels of government on the basis of ensuring the compatibility between the volume and nature of competence and the actual capacity and conditions of each level in order to enhance quality, effectiveness and efficiency
of state management activities
2.2.2 The concept of decentralization of state management on universal education
Decentralization of state management of universal education is the process of redesigning a process of responsibility, authority and accountability (according to the functions or components, of the state management function of universal education) according to the direction of movement from higher levels to lower levels, as well as the working relationship between related parties (inside and outside the management system for universal education), in order to maximize the use of resources to reach the target out
From the above concept, the characteristics of decentralized state management of universal education can be considered as follows:
Decentralization of state management of universal education is closely related to state management of universal education In essence, the decentralized state management of universal education is a form of state management of universal education in the direction of moving decision-making authority to lower levels to suit practical conditions and ensure ensuring the use of resources more effectively, achieving the set goals In particular, primarily and transfer of some authority from the
Trang 11Government, ministries (most of which are the duties and powers of the Ministry of Education and Training), to local governments or state administrative agencies subordinates by law documents, in order to promote the activeness, initiative and creativity of agencies and subordinate administrative units, contributing to improving management efficiency
Decentralization of state management of universal education in Vietnam is based
on the principle of combining sectoral and territorial management At the local level, the Department of Education and Training is under the management of the provincial government (People's Council and provincial People's Committee) and under the guidance and guidance of the Ministry of Education and Training ; The Department of Education and Training is both under the management of the district-level local authorities and under the direction and guidance of the Department of Education and Training Decentralization of management is also carried out for the various universal education management functions of the industry For example, the education - training sector performs professional management, but depending on the locality, the industry may be responsible for other issues such as budget management, teachers, staff, organizational structure, payroll, school construction For some localities, the Department of Turbidity and Training only manages activities related to professional knowledge Budget, organizational structure and payroll issues are managed by other sectoral and sectoral management agencies
The relationships in the state management decentralization on universal education are divided into two main categories: 1) The longitudinal relationship is the relationship according to the hierarchy, subordinates obey the superiors, subject to inspection investigation and supervision by superiors This relationship includes: Ministry of Education and Training - Department of Education and Training - Department of Education and Training; 2) Horizontal relationship is a coordinated relationship of agencies within the same management level This relationship includes:
At the provincial level: Department of Education and Training, Department of Home Affairs, Department of Finance, Department of Planning and Investment .; At the district level: Department of Education and Training, Division of Home Affairs, Division of Finance
When considering the decentralization of state management of universal education, it is often considered as a requirement to implement the democratization policy in universal education Thereby, the state management decentralization for universal education takes into account the management scope of different management levels of universal education, covering management tasks, management subjects and management conditions When deeming that the scope of management is beyond the capacity of an organization, it is decentralized, usually the decentralization between higher and lower level agencies The trend of organization and management in
Trang 12universal education is increasingly attached to strong decentralization and decentralization to lower levels, especially grassroots degradation, combined with the strengthening of responsibilities of subordinates
In addition to the above characteristics, when studying the decentralization of state management on universal education, it is necessary to distinguish the difference between the state management decentralization on universal education of urban government and rural administration This difference stems from the difference between urban and rural areas, which leads to the organization and operation as well as the management mode of different urban and rural governments and ultimately the direct impact on decentralization of the state management of universal education by urban and rural governments
2.2.3 The effects of decentralizing the state management on universal education
Firstly, decentralized state management of universal education creates the opportunity for a more responsible, more open and transparent government Secondly, decentralization of management creates conditions for local governments to promote their dynamism and creativity Third, decentralizing the state management of universal education helps to provide universal education services more effectively Fourthly, decentralized state management of universal education enables people to have a more say in universal education services thereby improving their welfare Fifthly, decentralized state management of universal education helps subordinates allocate budgets in accordance with the inputs Sixthly, decentralizing the state management of universal education enhances the sense of responsibility of all levels, increases the initiative and creativity, thus improving the quality of universal education
In addition to the positive effects, decentralization of state management on universal education also has the following negative effects:
Firstly, decentralization of universal education can make it difficult to
provide universal education because the central and local governments do not have the same purpose
Secondly, the decentralization of management for universal education loses its
effectiveness and reduces its control over the central government's financial resources
Thirdly, in decentralized management, administrative responsibility is
transferred to the local level without financial resources, making it difficult for local governments to provide universal education services to the people
Fourthly, decentralization of management for universal education negatively
affects the equality of education, increasing disparities in urban and rural academic performance
Fifthly, in the process of implementing decentralized management for universal
education, the mistrust between public and private schools can worsen cooperation at the local level
Trang 132.2.4 Decentralizing the state management on universal education by periods
- First educational reform (1950)
- Education reform after the liberation of the South Vietnam
- Current period
2.3 Contents, conditions and factors affecting the decentralization of state management on universal education
2.3.1 Contents of decentralizing the management for universal education
Firstly, decentralizing the organization of structure and personnel
Regarding organizational structure, the decentralization of state management of universal education should determine the competence of each level in such matters as issuing establishment decisions or authorizing establishment, revoking establishment decisions or decisions for permission for establishment, merger, division, splitting, dissolution, renaming, conversion of field type
Regarding personnel management, the decentralization of state management of universal education should determine the competence of each level in such matters as determining the competent authorities defining criteria for titles, working regimes of teachers and education management staff; list of employment position framework and norms of number of people working in educational institutions, employing, evaluating, training, retraining and implementing policies for civil servants, officials
and employees activities in educational institutions
Secondly, the professional decentralization
Specialization is understood as the work related to the planning of universal education development, content development, programs and evaluation of universal education quality For example, stipulating the organization of the compilation, evaluation and approval are allowed to use and guide the selection of learning materials, textbooks, teaching materials in universal education establishments; There are two main trends: one is on national unity of expertise, two are strong decentralized powers, that is to say, there are two main trends: The school will develop educational programs and contents based on local socio-economic conditions
Thirdly, decentralization in the function of managing facilities and finance
Facility management is one of the important contents that must be clearly decentralized between the Central and local governments as well as between local levels Because, in order for the local government to carry out the tasks and powers in the state management of universal education, the prerequisite is to have finance Therefore, capturing financial instruments will control or control the performance of other duties and powers
The budget for general education consists of two main components: recurrent spending and capital expenditure Regular spending includes salary and non-salary payments Non-salary expenses include administrative expenses, purchase of materials for teaching and learning, and services and maintenance Basic investment costs include the cost of building a new school and upgrading an existing school