Đổi mới quản lý cơ sở giáo dục đại học trong bối cảnh tự chủ đại học

TS. Bùi Văn Hùng

ABSTRACT
This study addressed the challenges in managing higher education institutions (HEIs) in Vietnam amidst increasing autonomy. HEIs currently face limitations in financial dependence, ineffective human resource management, and slow curriculum reform, hindering sustainable development. This paper has shown that
HEIs have significantly improved governance and adaptability to autonomy demands. However, challenges such as financial constraints, inefficiencies in human resource management, and outdated curricula remain significant barriers. From there, the paper proposed practical solutions to overcome these shortcomings. At the same time, the research results in the article not only strengthen the theoretical foundation of university autonomy but also provide practical arguments for improving management efficiency and promoting the sustainable development of the higher education system in Vietnam

Keywords: Innovation; management; sustainable development; higher education; university autonomy

1. Introduction
Vietnam's higher education system has made significant progress in quality and scale in recent years. However,
this development still faces numerous challenges, particularly in management. One of the key solutions to improving management efficiency and education quality is the reform of university governance within the context of university autonomy. As Vietnam's economy transitions towards a socialist-oriented market mechanism, the reform and innovation of higher education institution (HEI) governance have become urgent (Communist Party of Vietnam, 2016, 2021). University autonomy not only involves granting HEIs the authority to organize, manage, and operate independently but is also crucial in fostering independence and creativity in teaching, scientific research, and community service. The mechanism of autonomy and self-responsibility is
increasingly being implemented to enhance the operational efficiency of HEIs, meeting the demands of socio-economic development and international integration.
However, implementing university autonomy in HEIs still faces numerous challenges, particularly in governance, finance, human resources, and the quality of academic programs. The autonomy process also significantly raises complex issues in reforming the management system, as Vietnamese HEIs are still transforming. These difficulties necessitate comprehensive solutions to ensure that HEIs sustain and maximize the benefits of autonomy, contributing to the sustainable development of the higher education system. This article clarifies the theoretical foundations, analyzes the current state of HEI governance reform within the university autonomy framework in Vietnam, and proposes practical solutions to address existing limitations in higher education management.
2. The mechanism of university autonomy in Vietnam’s higher education
As Vietnam's economy transitions towards a “socialist-oriented market economy,” the reform of the higher education system has become increasingly urgent to meet the demands of comprehensive development. Extensive economic reforms in recent years have facilitated a shift in higher education management, emphasizing promoting science, finance, organization, and human resource governance (Communist Party of Vietnam, 2016, 2021).
The concept of university autonomy has been introduced in Vietnam for approximately two decades, shaping a mechanism that grants universities the authority to manage their operations while holding them accountable under legal regulations. This marks a transition from a centralized management model under the close supervision of the Ministry of Education and Training (MOET) to a governance model based on autonomy with accountability (MOET, 2020). These rights have been institutionalized through key legal documents, such as:

- The 12th National Congress of the Communist Party of Vietnam's Resolution Proposes the completion of a national education system based on openness, lifelong learning, and a learning society, emphasizing increased autonomy and social responsibility for educational institutions (Communist Party of Vietnam, 2016).

- The 2012 Higher Education Law (amended in 2013, 2014, 2015, 2018, and 2019) Details university autonomy rights in governance, admissions, curriculum development, degree issuance, and finance. Article 11, Clause 4 of the Higher Education Law defines autonomy as the right of HEIs to determine their objectives, implementation methods, and accountability based on their capacity.
- The 13th National Congress of the Communist Party of Vietnam's Resolution emphasizes strengthening university autonomy as a core factor in improving higher education quality (Communist Party of Vietnam, 2021). The university autonomy mechanism empowers HEIs to independently manage resources and optimize teaching, research, and governance activities, effectively responding to societal demands. This encourages creativity, innovation, and accountability and establishes a foundation for universities to achieve sustainable development and adapt swiftly to changing circumstances.

However, for the autonomy mechanism to operate effectively, there must be a clear distinction between the macro-management role of the state and the autonomy rights of HEIs. The state continues to perform its supervisory function and formulates supportive policies, while universities are responsible for improving operational quality and optimizing their autonomy rights. Accountability is essential, as it ensures transparency and prevents negative issues such as corruption or inefficient management (Vuong & Napier, 2019; Le, 2022; Nguyen & Hoang, 2020). Thus, the university autonomy mechanism is not only a significant step in higher
education governance reform but also serves as a foundation for sustainable development, contributing to establishing and advancing a high-quality higher education system that meets the demands of international integration and Vietnam's socio-economic development.
3. Research methodology
To conduct this study, the author employed the following research methods:
- Theoretical research method: The study involved collecting, synthesizing, and analyzing documents, policies, and legal regulations related to university autonomy and higher education management reform in Vietnam (e.g., Party Congress Documents, Higher Education Law, circulars, and decrees). Previous studies by both domestic and international scholars on the university autonomy mechanism were also cited and analyzed.
- Qualitative research method: The current situation of higher education institutions (HEIs) in Vietnam was examined by assessing issues related to finance, human resources, academic governance, and supervision. The study also evaluated the challenges, limitations, and opportunities in implementing the university autonomy mechanism in Vietnam.
- Quantitative research method: Statistical data from the Ministry of Education and Training (2020) were utilized to analyze the financial status of universities, particularly the proportion of revenue from state budgets, tuition fees, and other sources. Data related to the impact of autonomy mechanisms on HEI operations were also cited.
- Analytical-Synthetic method: The study synthesized research findings and practical reports to assess the effectiveness of the university autonomy mechanism. Factors influencing the management of HEIs in the context of autonomy were analyzed to propose appropriate solutions.
- Comparative method: The autonomy model of Vietnamese HEIs was compared with models from developed countries (e.g., the European Union and OECD nations). The level of autonomy in public universities was also compared with that of private universities.
- Practical method: Based on empirical studies conducted at universities, the study examined the difficulties and challenges in implementing financial, human resources, and academic autonomy. Practical solutions were proposed, drawing from domestic and international higher education management experiences.

4. Research findings
4.1. Limitations in university management under the autonomy mechanism in Vietnamese higher education institutions
4.1.1. Financial autonomy
Implementing the autonomy and self-responsibility mechanism in HEIs in Vietnam has yielded positive outcomes; however, several limitations remain. The revenue structure of some significant universities in Vietnam in recent years proves that Vietnamese universities still primarily rely on state budget allocations despite the transfer of financial autonomy to some institutions. This reliance hinders universities from proactively developing infrastructure, conducting scientific research, and recruiting high-quality faculty. Most HEIs do not generate sufficient revenue from tuition fees, research collaborations, or other services to achieve financial autonomy. State budget dependency remains high, and some institutions struggle to develop sustainable revenue streams (MOET, 2020; Le, 2022; Nguyen & Hoang, 2020).
According to the revenue structure provided by MOET (2020), nearly 80% of university revenue comes from tuition fees. In recent years, the government has mandated that universities refrain from increasing tuition fees to support students. The revenue structures of HEIs vary significantly. The primary sources of income for universities include state budget allocations (for public universities), tuition fees, research collaborations and technology transfer, international sponsorship projects, international training partnerships, industry-driven education programs, alum contributions, and other legitimate sources of revenue.
However, according to MOET statistics, for public universities, tuition fees account for the majority of total revenue (over 80%). The ability to diversify revenue sources remains limited, making it challenging to ensure high-quality education without increasing tuition fees. Meanwhile, the government regulates and controls tuition fee levels and adjustment schedules, which imposes constraints and reduces financial flexibility (MOET, 2020; Tran & Le, 2021; Le, 2022).
4.1.2. Human resource autonomy
Under the autonomy mechanism, universities require personnel with strong management capabilities and appropriate teaching skills. However, a shortage of qualified human resources remains prevalent, making it difficult for HEIs to improve education quality.
Some universities have autonomy in faculty recruitment and remuneration. However, this process is still constrained by state regulations on staffing, salaries, and benefits, limiting their ability to attract high-quality faculty or motivate existing staff effectively. Most HEIs must adhere to strict government regulations on staffing, salary structures, and recruitment policies. Despite having autonomy, many universities still require approval from government authorities before implementing personnel policy changes, leading to delays in faculty development.
In practice, faculty recruitment and management autonomy have not been fully realized. Universities are still bound by rigid regulations on salaries, benefits, and working conditions set by the state, making it difficult to attract talent and encourage faculty to enhance their qualifications. Salaries and benefits for faculty members in many universities remain low and do not adequately reflect workload and expertise requirements. Additionally, legal and regulatory frameworks governing human resource management impose significant constraints on HEIs, reducing institutional autonomy. For example, faculty performance evaluations must follow standardized procedures and criteria for public employees, and recruitment and appointment processes involve multiple
bureaucratic steps. As a result, universities find it challenging to adopt a more flexible “headhunting” approach to hiring top talent. Management models in some HEIs still follow a two-tier structure (university/faculty/department), which can lead to inefficiencies and administrative overlaps. A three-tier model (university-faculty-department) is often more suitable for autonomy but has not been widely implemented. Currently, most universities lack a systematic training and development program for faculty and management staff, limiting their ability to adapt to the demands of the autonomy mechanism (MOET, 2020; Nguyen & Hoang, 2020).
4.1.3. Academic autonomy
Academic autonomy refers to the ability of universities to self-govern academic matters, including strategic academic development, decisions on new academic programs, admissions, curriculum design, teaching methodologies, training partnerships, degree conferral, and language of instruction. Additionally, academic autonomy encompasses investments in scientific research, maintaining academic quality, fostering academic freedom, and upholding ethical standards in academic activities (Nguyen & Hoang, 2020). Despite some progress, the implementation of academic autonomy still faces significant challenges, particularly in establishing a strong academic culture within universities.
- Universities are granted autonomy in curriculum development, teaching methodologies, and research management. However, in practice, HEIs must still comply with standardized curricula set by MOET, limiting their flexibility in designing academic programs that meet real-world demands. Academic autonomy remains constrained by regulations on curricula, accreditation processes, and state-imposed standards, reducing opportunities for innovation in teaching and research (Le, 2022; Nguyen & Hoang, 2020).
- At the administrative and leadership levels and among implementation units, there is still a lack of awareness that academic autonomy is an inherent necessity for higher education. Vietnam’s higher education system has evolved from a centralized, bureaucratic model to the current reform phase (MOET, 2020; Tran & Le, 2021). The legal framework for academic autonomy has been established, including the Higher Education Law and supporting regulations such as the 2014 University Charter (Government of Vietnam, 2014), Circular 07/2015/TT-BGDĐT (MOET, 2015), Circular 17/2021/TT-BGDĐT (MOET, 2021), and Circular 23/2021/TT-BGDĐT (MOET, 2021).
- Academic autonomy is a foundation and a driving force for higher education development. Without academic autonomy, university autonomy as a whole faces significant challenges. Studies from the European Union (EU) and the Organization for Economic Co- operation and Development (OECD) emphasize that academic autonomy is a critical factor in successfully implementing university autonomy (Nguyen & Hoang, 2020).

- Academic autonomy has not been strongly linked to university faculty and research capabilities. To maximize its effectiveness, academic autonomy must be supported by adequate human resources, particularly faculty expertise. Faculty competency is reflected in the qualifications of core lecturers responsible for specialized courses in each academic program. Universities must ensure their core faculty members can deliver specialized courses at a high standard. The success of academic autonomy heavily depends on the expertise of key faculty members, particularly those trained at leading global universities (Tran & Le, 2021; Le, 2022).
In conclusion, university autonomy in Vietnam is still in the developmental phase. However, HEIs face significant financial, human resource, and academic autonomy challenges. Existing policies on university autonomy remain limited and have not fully realized their potential. To ensure the effectiveness of university autonomy, comprehensive reforms are needed to minimize government intervention while enabling universities to foster creativity and achieve sustainable development in higher education.
4.2. Proposed solutions to overcome existing limitations and challenges
4.2.1. Reforming the legal framework and supervision mechanism
To enhance monitoring and evaluation effectiveness, solutions regarding legal framework reform and supervision mechanisms include:
- Legal system reform: A clear and synchronized legal framework is needed to facilitate the autonomy of higher education institutions (HEIs). Legal documents must be appropriate and aim at apparent decentralization between state management agencies and HEIs.
- Strengthening supervision and evaluation: Establishing independent monitoring mechanisms to ensure transparency and public accountability in implementing financial autonomy, teaching, and scientific research at HEIs is necessary.
4.2.2. Diversifying revenue sources and strengthening financial autonomy
To reduce dependence on tuition fees and ensure high-quality training conditions, HEIs should focus on developing alternative revenue sources. Specific solutions include:
- Developing non-budgetary financial resources: Establishing long-term financial plans and encouraging funding sources from international cooperation, research grants, investment funds, and corporate partnerships.
- Expanding scientific research cooperation and technology transfer: HEIs can leverage opportunities to collaborate with domestic and international enterprises to conduct research projects and technology transfer, generating stable revenues and enhancing the applicability of research outcomes.
- Enhancing enterprise-oriented training programs: Developing short- and long- term training programs tailored to enterprise demands, thereby addressing market skill requirements while generating additional income for HEIs.
- Strengthening relationships with alums and sponsors: Establishing scholarship funds, research funds, and other sponsorship programs to increase contributions from alumni, the community, and businesses.
- Efficient financial management: Implementing transparent financial management mechanisms, ensuring rational expenditure control to prevent wastefulness and inefficient resource utilization.

4.2.3. Improving autonomy in human resource management
Autonomy in human resource management is a crucial factor in attracting and developing high-quality faculty and administrative staff. Solutions include:
- Implementing flexible salary and benefits policies: Proposing a flexible mechanism for salaries, bonuses, and benefits based on the competencies and contributions of each faculty member, thereby attracting and retaining high-calibre personnel.
- Enhancing autonomy in recruitment and appointment: Simplifying recruitment and appointment processes, reducing rigid regulatory interventions, and allowing HEIs to adopt flexible hiring methods such as “headhunting” to attract top talent.
4.2.4. Reforming management models and organizational structures
HEIs should consider adopting appropriate management models that align with their autonomy context to improve operational efficiency. Proposed solutions include:
- Transitioning to a three-tier management model (University - Faculty - Department): Implementing this model helps minimize overlaps and enhances specialization in management and administration.
- Establishing periodic training and development programs: Providing continuous training for faculty and administrative staff to enhance their professional skills, management capabilities, and research competencies, ensuring their adaptability to autonomy mechanisms and innovations in education management. Faculty and
administrators should be well-trained in university governance, financial and human resource management, and scientific research processes to ensure effective HEI operations.
4.2.5. Strengthening academic autonomy about human resource development and research capacity
HEIs must secure a high-quality workforce and strong research capacity to ensure academic autonomy is genuinely compelling. Solutions include:
- Developing a core team of highly qualified faculty: HEIs should invest in developing a team of highly competent faculty, especially those responsible for specialized courses, to maintain training quality and enhance academic reputation.
- Creating an open academic environment: Ensuring an open academic environment that respects academic freedom.
- Encouraging international cooperation and academic exchange: Establishing international collaboration programs to enhance faculty teaching and research capabilities, facilitating access to advanced global university models. Developing international networks, student and faculty exchanges, and adopting innovative training models from prestigious global universities.
4.2.6. Promoting the application of information technology in management
Enhancing the application of information technology in management aims to streamline operations, resource management, and administrative processes within HEIs. Solutions include:
- Developing modern management systems: Implementing software systems for managing student information, faculty records, finances, and infrastructure to ensure smooth and efficient operations

- Applying technology in teaching: Developing online teaching models and utilizing technology to improve teaching methodologies and enhance student learning experiences.
4.2.7. Balancing academic goals with labour market demands
To ensure that training programs meet academic standards and labour market needs, HEIs should flexibly adjust curriculum content and teaching methods. Proposed solutions include:
- Developing practice-oriented training programs: Designing curricula that align with real-world applications and labour market demands through internships, collaborative projects with businesses, and soft skills training courses.
- Enhancing interdisciplinary education and business partnerships: Creating opportunities for students to participate in interdisciplinary training programs and business collaborations to develop practical skills and improve employability after graduation.
4.2.8. Innovating performance evaluation mechanisms and building a culture of autonomy
To innovate performance evaluation mechanisms and foster a culture of autonomy, proposed solutions include:
- Ensuring international accreditation of training programs: Developing training programs that meet international accreditation standards, with periodic quality assessments playing a crucial role.
- Establishing clear performance indicators: Implementing a well-defined evaluation system, covering aspects such as training quality, scientific research, international cooperation, and community engagement.
- Encouraging innovation and creativity: Evaluations should focus on current achievements and incentivize innovative and creative ideas in teaching and research.
- Building a strong culture of autonomy within HEIs: Creating an institutional culture that encourages faculty, students, and administrators to participate actively in key decision-making processes.
4.2.9. Enhancing international cooperation in university autonomy
To strengthen international cooperation in university autonomy, the following solutions are proposed:
- Establishing strategic partnerships with international universities: Proactively developing and maintaining relationships with international educational institutions through student and faculty exchanges, joint research projects, and collaborative training programs.
- Developing international study and research programs: Designing training programs with international content, inviting international faculty for guest lectures, and participating in global research initiatives.
- Engaging in international higher education organizations: Joining global higher education organizations such as the ASEAN University Network (AUN), the Council for Higher Education Accreditation (CHEA), or the European University Association (EUA) to share and develop innovative ideas in international higher education.

By effectively implementing these comprehensive solutions, HEIs in Vietnam can significantly enhance their autonomy, creating a high-quality and sustainable educational environment.
5. Conclusion
The process of reforming the management of HEIs in the context of autonomy and accountability represents a strategic step toward enhancing the efficiency and quality of Vietnam's higher education system. University autonomy grants institutions decision- making authority in key areas such as finance, human resources, academic management, and research. It requires them to be accountable to society for all their decisions and
activities.
To ensure the effectiveness of university autonomy, a close alignment between policies, legal regulations, and practical implementation is essential. Autonomy policies can only be effective when accompanied by a stable and feasible legal framework, enabling HEIs to operate autonomously, securely and efficiently. At the same time, the legal framework should support institutional growth while maintaining quality control and
social accountability.
Promoting university autonomy must be based on comprehensive solutions encompassing three key pillars: finance, human resources, and management capacity.
- Finance: Diversifying revenue sources is a prerequisite for reducing reliance on state budgets and tuition fees, thereby providing a stable financial foundation for HEIs to invest in research and infrastructure. At the same time, policies should be in place to support students from disadvantaged backgrounds, ensuring equitable access to quality education.
- Human resources: Granting autonomy in recruitment, appointment, and compensation will enable HEIs to build a high-quality workforce that meets the increasingly stringent demands of modern education. A flexible, merit-based remuneration system is crucial for attracting and retaining top talent.
- Management capacity: Enhancing management capacity is a decisive factor in the success of autonomy. HEIs need support in developing modern management systems, from IT infrastructure to leadership training, strategic planning, and financial management programs. This optimizes resource utilization and strengthens institutions' adaptability in an era of global integration.
Overall, reforming higher education management in the context of autonomy and accountability requires synchronized and resolute implementation. The proposed solutions will serve as a foundation for the sustainable development of Vietnam’s higher education system, improving training quality, meeting societal demands, and increasing competitiveness in the globalized educational landscape.