6' Phirang cc

Tfll CflU TRUC DflU TU CO 1 ^

r r m w

Phirang phap tiep can nganh trong cc che ho tra von ODA va kha nang ap dung hieu qua de quan ly

dau tu* du* an giao thong duong bo 6' Viet Nam

PGS.TS. Njjuycn Hong Thai

Dgi hgc Giao tliong Van lai Th.s Biii Thi Hoang Lan

Dgi hoc Kinh le Qudc ddn

Plnrovg phdp tiep cgn ngdnh da diivv nhieu ca quan. Id chirc ldi Ira nude ngodi nghien ci'ru lir nhuJig ndm 1990 vd dd duac dp dung tgi nhieu qudc gia tren the gidi, dgc biet Id cdc nirdc dang phdl trien d Chdu Phi (Gana, Tanzania. Zambia. Senegal...), chdu My La linh (Nicaragua, Peru...} vd chdu A (Bdng la del, .4n Do,...) khi liep can cdc ngudn vien Ira cua nirdc ngodi nhu tiep can ngudn vdn ODA cua cdc ngdn hdng hay id chirc ldi trg nhir WB, ADB, DFID, SIDA, EU... Phuang phdp ndy duac dp dung nhieu irong cdc ITnh virc v tc sire khoe, gido due, ndng nghiep phdl trien ndng thdn vd eung dupe dp dung Irong viec ldi Irg cho xdy dimg vd bdo Iri phdl trien dirdiig giao ihdng ndng thdn. Tuy nhien d Viet Nam, phuang phdp ndy dura dugc sir dung rdng rdi trong tiep nhdn ngudn vdn ODA cho ddu lu phdl trien giao thdng ndng thdn phdn Idn dugc quan ly theo phuang phdp lap trung llieo timg du dn, mdc du dgc diem ciia cdc du dn ndy trdi ddi tren nhieu vung Idnh thd vd rang khdp cd nude. Bdi viet niiy hudng ldi phdn lich kinh nghiem mat sd nude vd khd ndng dp dung cho phucnig phdp liep can ngdnh Irong qudn ly ciia du dn ddu lu phdt trien giao thdng dudng bd d Viet Nam.

Tir khda: phuong phdp tiep can ngdnh, dy dn giao thdng dudng bd, vdn ldi Irp

1. Khai niem phuo'ng phap tiep can nganh Tiep can ngdnh Id mdt cdch Ihiirc phdi hop Idm viec giira ehinh phii nhdn vien trg vd nha ldi trg.

Myc lieu eiia phuang phdp tiep can ndy Id phdt huy tinh chii ddng ciia Chinh phii cung nhu Nhd ldi trg ve phdt trien ehinh sdch ngdnh hoac lieu ngdnh, vd phdn bd ngudn lyc de hd trg ehinh sdch dd. Tdt cd ede chinh sdch, cdng cy dugc ddt trong mdt khudn khd ngdnh chat che md trong dd nhieu cdng cy dugc sir dung nhu hd trg dy dn, hd trg chuang trinh, xdy dyng ndng hrc, ddi mdi cung nhu hd trg nghiiin ciru ngdnh. Tat cd cdc hd trg ciia nha tdi trg cd the dugc lien ket vdi mdt khudn khd chi tieu cdng thdng nhdt, ngudn chi lieu dd bao gdm ngudn lyc ciia Chinh phii vd ngudn lyc eiia nhd tdi trg theo mdt ea che qudn ly, bao cdo va kiem todn chung.

2. Kinh nghiem, bai hoc ciia cac nude ve Phuong phap tiep can nganh (PPTCN) va kha nang ap dung quan ly cac d u an dau tu phat trien Giao thong dudng bo (GTDB) & Viet Nam

Phuang phdp tilp can nganh dugc nghien ciru tir giira nhii-ng nam 1990 khi cd sy gia tang v l so lugng

Bang 1: Cac nu-oc ap dung chu-ong trinh tai t r g Viing

Chau Phi-

Chau My La Tinh Chau A

Chuang trinh lai tra va quoc gia

Ho tra naan sach chien lirac .\6a doi aiani naheo - Ghana Ho tra nuan sach chien luac .xoa doi mm naheo - Tanzania Chuona Irinh mo due ciia Burkina Faso

Chuong trinh an ninh luons; thuc va nons; nghiep - Ghana Chuang Irinh giao due ciia Mali

Chuong trinh dan so \a sire khoe sinh san ciia Mali Chuang Irinh giao due eiia Mozambique

Chuang trinh giao due eiia Senegal Chuang trinh giao due ciia Tanzania Chuang trinh giao due ciia Uganda Chuang trinh giao due eua Zambia

Chuang trinh phong chong HIV/AIDS - Malawi Chuang trinh sire khoe sinh san va gidi tinh - Nicaragua Chuang trinh nghien ciru kinh te .xa hoi - Peru Chuang trinh dan so va sire khoe - Bangladesh Chuang trinh giao due - Bangladesh

Nguun: Ddo cdo ciia CI DA ve Phirong phdp tiip can ngdnh 2007

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cdc chuong trinh ldi trg ciia cac ngdn hang cfnig iihir cac to chirc ldi trg (WB, ADB. D i l l ) , CIDA, SIDA,...) vdo nhdm cac niuvc dang phdl Iricn. Ihco bdo cdo tdng ket nghien eiiu ciia CIDA, mdi sd nude dd dp dyng phuong phap nay khi liep nhan nguon lai trg nhu bdng 1.

Theo nhung nghien cuu cua cac co >.|iiaii, to chirc tdi Irp da dure hicn lai nhieu qudc gia dang phdl tricMi trcMi the gidi eung nlur nhirng kinh nghiem thye lien ciia cac qude gia nhan tai tip, cd mdi sd bdi hpc

\a kinh nghiem sau day tidi vdi \ icc ddu tu phdl IricMi kinh te giao thdng duiTiig bp cho cdc nude dang phdt tricMi bdng cac ngudn vdn xay ldi Irg cua nude ngoai.

Trong giai doan ddu khi cdc qudc gia iiuvi duge tiep nhdn ODA, phuong phdp qudn ly tap trung iheo dy dn hat nhdn vd qudn ly tap Irung theo dy an lo ra Id hgp ly nhat x i khi dd id chirc xa nang lye ciia cdc cdp ehinh quyen tu cdp trung uong tdi cap dia phuong chua ddp irng dupe cac yeu cau xa ndng lye cdng \ icc md edn ed rieng mot bd phan dung ra thau tdm qudn ly todn bd dy dn. Phuong phdp qudn ly theo dy dn cung Id ra thich hgp ddi x di nhirng dy dn Idn, dau tu tap trung, chdng hgn cdc dy dn \ay dung cdu, ham Idn, \ a \ dyng he thdng dudng hien dgi ed y ngliTa qudc gia...

Phuong phdp tiep can ngdnh thye sy thich hpp xdi nhirng ddi tugng dau lu tcai rdng, nhieu cdng trinh nhd, phdn tdn theo ngdnh, theo x img, Idnh thd (nhu y tc, gido dye, ndng nghiep, giao thdng ndng thdn...). Cdch qudn ly theo phuang phdp liep can ngdnh tao ea hdi cho cdc dia phuong tham gia xao vice xdy dung ke hoach phdt trii^n ciia dia phuong, gidm bdt nhii-u quy trinh xd thii lyc trong qud trinh thye hien (so vdi phuang phdp qudn ly tap trung theo dy an). Tuy vdy, de thye hiC-n hieu qud dupe phuang phdp ndy, cdn phdi cd mdi he thdng id chirc manh du ndng lye lir cap trung uong dc'ii cdp dia phuang vd phdi thye hien theo dimg xa nghic'in uic cdc quy dinh ciia phdp Iu(it. Dc ddm bdo edn ddi xd ddng bd tren phgm x i rdng eung nlur loan qude, cdc caquan trung trang phdi ban hdnh cdc hudng dan de cdc cdp dia phuang xac dinh dupe cdc doi tugng can thiet va uu lien, nhdm Idm cho cac k l hoach cua dia phuang khdp vdi k l hogch viing (linh) vd vdi kl hogch phdt trien ciia ca nude. Cung can phdi .\ay dyng luat vd quy dinh day dti d l ddm bdo tinh cdng bang vd minh bgch trong cdc thu tyc dau thau. Dong thdi, cdc tieu chuan ky thuat cung phdi phii hgp vdi

duirng ndng thdn ve mat kinh l l (cd linh den cdc yeu to dia hinh, khi hgu vd cdc ngudn lyc dia phugng).

Chinh cac yeu cau lien quyet ciia phuong phap liep can ngdnh sc tgo dieu kien dc hodn thien nhirng van dc vc the d i e va ndng cao trinh dg qudn ly eiia he lliong can bg nuoc nhdn lai trg mgt cdch cd hieu qua tu cap trung uang dC-n cap dia phuang, thu hut mpi nguoi iham gia quan ly vd bdo qudn nhirng Ihdnh qud dd dat dupe, tao dieu kien cho nhii-ng ngudi hudng Ipi tir dy dn tham gia vdo qua trinh ra cdc qiiycl dinh Wen quan den quyen Ipi ciia hp, nang cao trdch nhiC'in ciia mpi cap trong vice trd ng.

De dp dyng phuang phdp ircii phdi hodn ehinh killing phap ly vd tdi ehinh trong mroc dc ddm bdo Igi ich cua tat cd cdc ben. C ac ben, gom nhd tdi trg (cd the bao gom nigt nhd tdi trg hay sy ddng phoi hgp eiia nhieu nhd tdi trg). Chinli phii nhan ldi trg va bao gdm ca dui dau tu. nhd thau. ngudi hudng Igi lu dy dn.... deu dugc bdo xc mot cdch thda ddng va de cd the qudn ly ddng vdn ddu tu mot cdch cd hicu qud.

3. Phan tich, d a n h gia p h u o n g phap quan ly dau t u d y an Giao thdn<i d u d n g bd cd ho t r g von ODA dang s u d u n g d Nicf Nam

Trong nhung ndm qua, dau tu cho giao thdng van tdi bdng ngudn vdn OD.A dd dem lai nhirng ket qua ddng ke. lion 15 ndm qua, ben cgnh ngudn xoii trong nude ddng vai trd quy el dinh den sy phdt trien kinh te xd hdi cua ddt nude, ngudn vdn ODA dd trd Ihdnh nipt kcMih x on dau lu quan trong bd sung cho ngan sach. gdp phdn tich cyc trong x icc xdy dyngca sd hg tdng kinh to xa hpi \'ict Nam trong cong cuoc ddi mdi xd hpi nhap.

Tir 1993 den 2009. cdc nha tdi trg qudc te da cam kC-t eung cap cho Vict Nam 33,87 ty USD, cdc nha tdi li-g chinh Id Nhdt Ban, WB, ADB (chilm hon 7()"«).

So xdn dupe giai ngan khoang 16,46 ty USD (bang 63,57% tdng xdii da ky kit). Ngdnh giao thdng xdn ldi nhan dupe 6.869,23 trieu USD von ODA ky kit. Gia tri vdn ODA gidi ngan tinh den het ndm 2009 dgt 2.695,884 trieu USD (bdng 34,83%).

Trong sd 146 dy an, Bd Giao thdng van tai quan ly trye liep 91 dy an vdi sd vdn ODA chilm 9 1 % long vdn ODA cho todn ngdnh.

Von ODA ngay cdng chiem ty trgng cao trong tdng ddu tu cdng ciia todn nganh. Tilp nhan ODA hdng ndm cua Bd Giao thdng van tdi chilm khoang

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45 55% tdng dau tu cdng.

Vdn ODA da gdp phan trye tiep cdi thien ea bdn ca sd hg tang giao thdng Viet Nam. Sd km dudng bg dugc lam mdi va nang cap Id 12.100 km (chi linh giai dogn 1999- 2009); xdy dyng, ndng cap dupe 83-000 met ddi cdu.

Mdt sd tuyen qude Id quan trpng da hodn Ihdnh nhu QLI, QL5, QL22, 0L9, QUO, QL18,. nhieu cdu Idn dupe xdy dyng nlur cdu My lluidn. Ciianh.

Qudn Hdu, B(;n Lire, Tdn De. TicMi Cuu, Quy Cao.

Kien, cdu Yen Lenh,... nipt so cdu Ion dd thi cdng nhu cau Thanh Tri. Bdi Chay.... nhieu cdng bien duge ndng cdp xdy dyng miVi; mgng ludi giao Ihdng ndng thdn dd dugc cdi thien ddng ke; xdy dung mdi dupe khodng 44.600 km. ndng cdp dupe 8.100 km dudng giao thdng ndng thdn, xay dyng mdi nhieu cdu giao thdng ndng thdn tren todn qude.

Tuy vdy, ngudn vdn ODA ddu tu cho giao thdng ndng thdn cdn thdp, neu so xdi tdng sd xon ddu lu cho giao thdng ndng thdn giai dogn 2000- 2009, xdn ODA mdi chiem khodng 18%.

Ngudn ODA mdi chii yeu tap trung ddu tu ede cdng trinh giao thdng trpng diem, nhu he ihdng qude Id, dudng sdt, cdng bien, cdc tuyen sdng ehinh, sdn bay. Ddu tu cho giao thdng ndng thdn cdn hgn che.

Bd Giao thdng van tdi trye tiep qudn ly 2 dy an GTNTI, GTNT2 vdi long so von 193,8 trieu USD.

Ca che tai trg theo dy an cd nhieu uu diem, ca che dd dae biet phii hgp vdi nhirng cdng trinh ed quy md, vdn Idn, cd y nghTa tdm ed qudc gia. Co che dd eung rat phii hgp vdi giai dogn Viet Nam bude ddu nhdn nhirng khodn vdn ODA, chua ed nhieu kinh nghiem qudn ly sir dyng ODA.

Thdng qua ddnh gid chinh eua viec thye hien hai dy dn giao thdng ndng thdn Id dy an giao thdng ndng thdn 1 va dy dn giao thdng ndng thdn 2, phuang phdp qudn ly tap trung theo tirng dy dn ed mdt sd uu diem ndi bat nhu sau:

Bd Giao thdng van tdi (dgi dien Id cdc ban qudn ly dy an) Id ehu dau tu cdc dy dn, trye tiep qudn ly va dilu hdnh dy an. Do vay, cdc dy dn deu cd sy chi dgo tap trung, thdng nhat tir tren xudng, qua dd de dang cho cdc khau trong qua trinh thye hien dy dn, kiem tra, gidm sat dy an.

Quan he giira chu dau lu vdi nhd tdi trg la rat chat che, viec thuong thdo Idm viec, bdo cao vdi nhd tdi trg Id trye tilp, de ddng, nhanh chdng.

Dy an dugc tap trung vc mdt mdi d cap Trung uang (Bd Giao thdng van ldi) nen viec phdn bd vdn cho cdc tinh dya theo cdc tiiini ehi ciia qudc gia, cdc viing ngheo, khd khdn cd ea hgi duge nhdn ngudn irg cdp Idn hon, tinh cdng bdng giira cdc dia phuang dugc chii trgng eao d cdp qude gia.

Irinh ty thii lye eua dy dn rd rdng, ed sy thdng nhal cao.

Cdc lieu chudn ky lliuat eiia cdng trinh duge quy dinh chung theo chudn nuic qudc gia. Ben cgnh dd cdng lac theo ddi, gidm sdt dugc tdng cudng bdi cdp Trung uong (ede can bd ky lliudl cua cdc ban qudn ly dy dn), ddm bdo cdc cdng trinh tren todn qudc dgt theo chudn mirc chung.

Khi dp dung phdn quyen cho 3 linh ciia dy dn giao thdng ndng thdn 2: Dd ed nhirng bude edi thien hon so vdi phuang phdp cu (khi chua phdn quyen);

cdc phdt sinh trong phgm vi giai quyet dupe eiia cap dia phuang da dugc thye hien nhanh chdng hon; cdc nhd thdu dugc thanh todn nhanh hon khi ehi can ed su chung nhdn, thdng qua ciia mot cdp (d cdp dia phirong); mdt sd ede tlui lyc cung dupe trien khai nhanh vd trdi ehdy hon.

Vdi md hinh dp dung trong dy dn gidm ngheo 6 linh mien mii phia Bae: Mac dii trong dy dn ndy hgp phdn ddu tu phdt trien giao thdng ndng thdn chiem ly trgng khdng Idn trong tdng dy dn, nhung md hinh vd phuong phdp dp dyng eung phan dnh nhieu tien bd han khi da phdn quyen mgnh me cho cdc cdp ehinh quyen dia phuong. Hgp phdn ve phdt trien giao thdng ndng thdn giao cho ban qudn ly dy dn eiia linh trye liep diiiu hdnh. qudn ly (trye liep Idm ehii ddu lu). Do vdy cdc thii luc trong ddu thdu, gidi ngdn, thye hicn phdl sinh thay ddi eung nhu nghiem thu cdng trinh dugc thye hicn nhanh chdng vd hicu qud ban.

Tuy vdy, phuong phdp qudn ly hien tgi eung cd nhirng nhuge diem sau:

3.1. Thu tuc ban ddu keo did: Thai gian tir khi cdc dia phuang nop cdc hd sa dang ky dy dn den khi cd cdc dy dn bat ddu dugc dau tu thudng keo ddi (khodng tir 3 5 nam) do eg quan d cap trung uong phdi tap hgp cdc hd sg bao cao tir nhieu dia phuong tren cac vung lanh thd khdc nhau. Sau khi tap hop day dii, cdc tu van (dugc ehii dau tu vd nhd tdi trg tuyen ehgn) mdi lien hdnh nghien ciru, ddnh gid vd phan tich theo ede tieu chi chung, \ep thir ly uu lien, phdi hgp lam viec vdi cdc bd, ngdnh lien quan (Bd

Kinh M a t trien

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Kc hoach dau tu, Bp Tdi chinh, Ngan hdng nha nude Viet Nam,...) cimg nhd ldi trg dc .\dc dinh cdc dia phuong nhan dugc d\r ;in Idi trg.

3.2. Phd vdke hoach cuu diu phuong: C;ic cdng trinh giao thdng nong thdn (cdng Irinh can, diiiyng) do dia phuong dc xual xao dy an la cac cdng Irinh quan liong. can lain ngay xa ndm trong kc- hogch dau tir ngdn hgn ciia dia phuang. Nhung lliiri gian dy dn di xao hogt dgng keo dai lir 3- 5 nam (la lluVi gian trong cac nam kc hogch cua dia phuong). Do xay. \ax ra cac hien tiroiig khi cac liiycii diriing dirpc dira xao dy an dau Ur thi da dau tu xong xa Cling CO hicn lugng kc- hogch dau lu giao thdng nonii thdn bi cham lai do x icc did dpi dy dn. lux nhien, khdng phdi tdt cd cac cdng trinh md dja pluroiig de xuat deu dupe dua xao dy dn nen iihic-u dja phuang dd xay ra tinh trgng cac liiycn duirng quan Irpng theo thir ty uu lien cao (trong dc xudt cua dja phuong) khdng dupe dua vd dy dn md cdc tuyen dudng (cay cdu) khde mirc dp uu lien thdp hon (ddi vdi dia phuong) lai dupe dua v do dir dn (do tu van tinh ra mirc dp uu lien cao hon) (nguyen nhdn do cdc lieu ehi lya chpn ciia dia phuang va cdp trung uong khdng ddng nhdt vdi nhau).

3.3. Tinh chd dpng vd trdch nhiem cuu cdp dju phuang thdp: Cap dia phuang (dgi dien Id ban qudn

ly dy an true thudc cdc Sd Giao thdng van ldi) chi ed vai trd phu giiip cho ban qudn ly dy dn trung uong md khdng cd quyen ra cdc quyet dinh cudi cimg nen tinh chii ddng ciia cdp chinh quyen dia phuang Id rdt thdp, dnh hudng nhieu trong qud trinh lya chpn cdng trinh uu lien vdo dy dn vd trong qud trinh Ihyc hien dy dn. Trdch nhiem cua dia phuang ddi vdi cdng trinh tgi dia phuang minh rat thdp, do khdng duge giao Idm chii ddu lu qudn ly cdng trinh nen nhieu khi cdng trinh xay dyng .xong it dugc quan lam den van de bdo tri, dnh hudng xau den tudi thg cdng trinh.

3.4. Qua trinh gidi quyet cdc phdt sinh keo ddi:

Trong qud trinh thye hicn dy dn, khi xdy ra cdc phdl sinh (phdt sinh khdi lugng cdng trinh, thay ddi lieu chudn ky thuat,...), nhd thau phdi trinh Icn BQLDA tinh, sau dd BQLDA tinh trinh len BQLDA Trung uang, BQLDA Trung uang tuyen ehgn tu van va tien hanh lap hd sa phat sinh, sau dd trinh lai BQLDA tinh, BQLDA tinh tilp tyc lap ho sa trinh duyet BQLDA Trung uang, lay y kiln ciia nhd tai trg, sau dd mdi dugc phe duyet; khoang thai gian nay thudng keo ddi, dac biet la khi cd nhilu dja

phirong dc xual nhung phdl sinh trong qud trinh Ihyc hien d y d n tgi dni plurcrng minh. I rong qua trinh lliye hien dy dn, nhiiiii nhd than do linh hinh ng dpng tai chinh, mai khd ndng hogt dpng nen ty ddng bd dd cdng viec; gap iruiyng hpp ndy phai cd cupc hpp giira so' giao thdng van lai (dia phirong), ban (liian ly dy an cua dja phuang vdi ban qudn ly dydn cua liung uirng vd nhd lai i r p d e chain dirt hpp ddng viVi nhd than ty bd dd cdng vice; tiep iheo lai phai thue tu van lgp lai ho sir gid Irj cdn lai ciia gdi thau, rdi tiep luc td chue dau than (gid trj cdn lai ciia goi Ihdu), liiycn chpn nhd thdu iiuVi xa ky hpp dong mdi, khoang thiii gian gidi quyet cdc tlui tuc ndy la rat lau.

3.5. Qud trinh Ihuiili quyet todn keo ddi: Trong qua trinh thye hien dy an, ddi xdi khau xay dyng cdng trinh, cac BQLDA tinh nghiem thu xdc nhan timg phan khoi lupng cdng trinh md nhd thdu thuc hien, sail dd nhd thdu irinh cdc xdc nhan nghiem thu ndy cho BQLDA ciia Bp Giao thdng xdn ldi; tiep do cdc BQLDA Trung uirng phe duyet xd xdc nhan de nhd thdu nit tiC'ii lir Kho bac nhd nude; trinh ty thu lyc luy rd rang nhung tluu gian tliuimg rat keo dai.

Sy chain tri; vd cac tlui tuc thanh loan dae biet gay khd khdn cdc nhd thau d xa (ede nhd thdu d cdc tinh thudc mien Nam, Tax Ngiixcn).

3.6. Tieu chudn ky tliudl eung nhdc: Trong qua trinh thye hien hai dy dn giao thdng nong thon G'rNTI, GTNT2, x icc dp dung cdng nhae khung ede lieu chudn ky thuat cdng trinh dan den tinh trang khdng plui hgp tgi mdt sd dja phuong co cac dieu kien ve mgt dja chat, dia hinh x a khi hdu dac biet.

3.7. Ndng luc qudn ly cuu cdp din phuang bi han che: Ddi xdi dy an. dia phuong chi giCr vai tro

Id ngudi trg giiip xd hi ihy ddng, do xay ndng lyc qudn ly d cap dja phuong hgn che, it cd ca hdi dugc ndng eao.

3. ft. Chi phi qudn ly ddu tie Idn: Mae dii cdc du dn deu cd mpt ban qudn ly d cap trung uong, nhung tgi mpt dia phuang Igi cd nipt ban qudn ly trirc thuoc sd giao thdng van tdi, nhu vgy mdi dy dn se dong thdi ehju sy quan ly ciia nhieu cap dan tdi chi phi qudn ly dau lu dy an Idn, anh hudng den gia thanh cdc cdng trinh, giam hieu qua dau tu.

Ddi vdi 3 tinh neu tren, each thirc phan quyen mdt phan thudc dy an giao thdng ndng thdn tuy da cd dugc mdt so tien bd nhung ehi Id phdn quyen mot phan nen van ehju sy dieu hdnh trye tiep tir ban qudn ly cap trung uong nen van mdc phdi nhung

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nhuge dilm Idn trong phan tich d tren. Thii tyc trong khau thanh loan lai ndy sinh them mdt bude Id xin bd sung vdn tir tdi ngdn hdng eiia nhd ldi Irg ve ngan hdng phyc vy (chira tai khodn ddc biet), thii lyc ndy cung keo ddi thdi gian vi eung phdi trdi qua cac thu tyc ve kiem tra, kiem duyet can thilt.

Vdi dy an gidm ngheo 6 tinh mien mii phia Btic:

Mac dii duge phan quyen mgnh ldi cdc cap ehinh quyen dia phuong nhung todn bg dy dn van elbu sy quan ly chung ciia ban qudn ly Trung uong dan tdi mdt sd cae thii tyc chua dupe gidi quyet mpt cdch triet de. Hon nua, ngudn ldi trp dupe dua thdnh mdt khodn rieng va chia ra 1dm nhieu gdi (cho cdc cap tinh, huyen, .xd) nen ddi hdi md nhieu ldi khodn khde nhau. Hon nira, ngudn xdn ndy khdng dupe hda ehung vdo ngudn ngdn sdch cua dia phuong (cap linh), do x ay van phdt sinh them ra cdc bd phdn de quan ly ldi chinh) d cdc cdp dia phuong. Vd ddi khi thieu sy tdng hpp trong ngdn sdch dau lu phdt trien tdng the ciia dia phuong do ede ngudn ngdn sdch ndy khdng dupe tap trung vdo cimg mdt moi.

4. Phan tich ap dung thi diem PPTCN doi vdi

hai tinh thupc du an GTNT3

Tir nhung bdi hpc kinh nghiem ciia nude ngodi, nhung nghien cuu ciia cdc to chue nude ngodi, cdc nhd ldi tip vd nhung hgn che khi Ihyc hien cdc dy an giao Ihdng ndng thdn 1 vd giao thdng ndng thdn 2.

Nhd ldi trp da quyet djnh thye hien thi diem vdi sy ldi trp von ciia Bp Phdt trien quoc te Vuong quoc Anh (DFID) phuong phdp liep can ngdnh doi vdi ddu tu phdt Iricn giao thdng ndng thdn tgi hai tinh thi diem Id Phii Thp vd Ldo Cai. Vdi chuang trinh ndy, DFID dd ho trg cho m6i linh 500 nghin ddla khdng phdi ddnh cho cdc dy dn cy the md nd dupe bd sung vdo ngan sdch ddnh cho phdl trien giao thdng ndng thdn ctia hai linh. Myc lieu ddu tu Id nhdm ndng eao ndng lye qudn ly ldi ehinh, quy trinh lap ke hogch vd cdc de xudt, kien nghj ve cdc bien phdp ky thuat vd viec thye hicn cdc bien phdp dd tren ea sd cdc bdi hpc kinh nghiem riit ra tir dy an thi diem

Ket qud tim dupe rat quan trpng vd hiru ich doi vdi dy dn (chuong trinh) giao thdng ndng thdn 3;

nhirng sai sdt due rut tir dy dn thi diem se dupe sua Md hinh ho tra vdi hai tinh Phii Tho va Lao Cai

UBND tinh thi diem, Bd TC, KHDT, GTVT, WB, DFID T

T "

Cung cap tai tra DFID

T Bo KHDT Hudng dan &

pheduyet Cung cap khung

chinh sach

BpTai chinh Nhan tai trg [Kho bac) chuyen xuong

tinh

Bd GTVT Td GTDP Vu KHDT Dam bao kv thuat

UBND tinh Phu Tho/Lao Cai Nhdn tai trg phan bo cho cac

Sd GTVT Thuc hien xay

dung CTGT Thuc hien nang

cao nang luc

BQLDA5 Ke hoach, quan

ly, bao cao

Sd GTVT Phu Thp/Lao Cai

nhan ngan sach tir Tinh

Tien trinh va thirc hien

ke hoach

Ddng tai trg va trach nhiem Ddng bao cao bai hpc

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chira trong dy dn (i FNT 3 de tgn dyng nhirng Ipi the cho cdc he thong ciia Chinh plui. Cac bdi hpc kinh nghiem eung sc dupe phd bicn dio cac ea quan eiia Chinh plui vd cac nhd ldi lip dc dp dyng cho ede chuang trinh phdl trii:n giao thdng ndng thdn (ndi rieng) tiep theo vd cac chuang Irinh khac (nhu chuong trinh 135, chuang trinh ve sinh todn quoc,...) ciia Chinh plui.

4.1. Phdn bd ngudn von doi vdi hui linh thi diem DFID chuyen so lien vdn cho Bp lai chinh, lir Trung uong. so xon dupe sir dyng nhu mpi nguon xon khde eiia Chinh plui va cluiyc'ii vc tinh qua he thdng kho bac; viec thanh todn vdi cdc nhd than dupe thye hien bang chuyen khodn thdng qua he thdng ngdn hdng; trucVc khi tien hdnh cdng viec cdc nhd thdu se dupe tgm img mpt phan, sau dd khodn lgm img sc dupe khau trir khi thanh quyet todn.

Sau khi nhdn lien tu Bp Tdi chinh (thdng qua he thong kho bae), cdc tinh giao cho Sd Giao thdng vgn ldi qudn ly tien vdn; tinh ddm bdo ngudn vdn sc dupe sir dung de phdl trien giao thdng ndng thdn vd quyet dinh nhirng boat dpng cy the de sir dyng ngudn vdn. Khodn vdn ciia Nhd tdi trp dugc sir dyng vd chiu gidm sdt gidng nhu ddi vdi vdn Ngdn sdch cua Cbinh phu.

Md hinh cy the eiia ddng tai trg, trdch nhiem vd bao cdo khi dp dung dau tu cho hai linh diem nhu sau:

Ddi vdi tinh Ldo Cai

Trong tdng sd 500.000 ddla My, tinh sir dyng 88% (khodng 6.930 trieu VND) dl ndng cap 8 km dudng giao thdng ndng thdn (thugc huyen Mudng Khuang); sd vdn cdn Igi ddnh de mua sdm thiet bj, di tham quan hgc tap vd xay dyng he thdng bdn do;

tinh den thdng 5 nam 2006 edn hang myc xay dyng bdn dd Id chua hodn thanh.

Ddi vdi tinh Phu Tho:

Trong tdng so 500.000 ddla My, tinh da sir dyng 78% (khoang 6.216 trieu dong Viet Nam) dl xay dyng 10km dudng giao thdng ndng thdn (thugc huyen Doan Hiing); phdn von cdn Igi (khodng 1.320 trieu dong Viet Nam) sir dyng dl xay dyng quy hogch giao thdng van tai cho 11 huyen trong tinh;

tinh den thdi dilm giira nam 2006 thi todn bg khdi lugng cdng trinh da hodn thdnh.

Nhu vay, viec phan quyln da giao hoan toan cho cap tinh va tinh da giao nhifm vy chii dpng thye hien cho Sd GTVT vdi md hinh thye hien hogt

dpng, qudn ly tdi chinh va gidi ngan theo dung md hinh ciia phuang phdp tiep cgn nganh (cac md hinh ndy duge Irinh bay cu the d phdn sau) va cdc cap, cac ngdnh da ihyc hien theo dimg chirc nang, nhiem vy ciia minh.

4.2. Ddnh gid kit qud thue hi('n thi diem trd luu tinh

Dy an thi diem dugc Ihyc hien thdng qua viec ho trg trye tilp cho cdc tinh dugc xem Id mdt hinh thirc hd trg mdi cho phdl trii-n giao thdng ndng thdn. Du an nghien cuu thi diem da chi ra rang chinh quyen dja phuang cd the de dang dieu chinh khi cd phdt sinh, dong thdi tbii tyc hanh chinh trong qua trinh phe duyet dy dn dugc thirc hien thye hien nhanh ban. Viec chuyin lien thdng qua he thdng kho bac ciia dja phuang vd chi cdc khdu xin xac nhdn hodn thdnh khoi lugng, xin thanh todn va thanh todn dugc Ihyc hien d cimg mpt cdp (cdp tinh) nen cung da dugc thye hien hieu qua han; cdc cdng tdc bdo eao, kiem todn, kiem tra dy dn eung dugc ihyc hien de ddng han.

Mpt hieu qud khac ma dy dn thi diem mang lai la cdc tinh cd trdch nhiem gidi trinh ve cdng trinh dugc thye hien nhieu ban trong cdc dy an theo phuang phdp truyen thdng (phuang phdp dau tu trye tiep theo dy an). Ca hai linh deu ed trdch nhiem ddi vdi ket qud cdng viec vd ddm bao ede thu tyc ciia Chinh phu dugc tudn thii. Cdc tinh ddnh gia eao viec nen chi cd mgt he thdng bao cdo, x d dd cung Id he thong bdo cdo quen thugc; dieu ndy lam cho mpi viec de ddng va nhanh chdng ban. Tren thye te, cdc du an ve giao thdng ndng thdn dp dyng theo phuang phap ndy dupe thye hien chi trong vdng vai thang thay vi phdi thvrc hien trong nhieu nam khi dp dyng phuang phdp ddu lu lap trung theo dy dn. Hinh thirc dau tu ndy logi bd y eu cau phai cd mpt ban qudn ly dy an, gidm bdt ede tang trung gian khdng can thiet, tang cudng phan quyen va trach nhiem gidi trinh cho cac tinh.

Cac tinh rat chu dpng trong chuong trinh thi diem nay, hp dugc quyen ty do quyet djnh hang mye ma hg mong muon dau tu; khi vdn dugc chuyen giao vao giira nam 2005, vipc trien khai thye hien rattroi chay va tuan theo ke hoach; vipc quan ly dy an don gian va cac van de thye trang cung nhu nay sinh dugc giai quylt nhanh ban. Cac tinh dugc hudng dan, hd trg va phoi hgp cd hifu qua tir Bg K I hoach va Dau tu, Bp Tai chinh, Bp Giao thong vgn tai, Ngan hang Trung uang va cac ca quan dja phuong.

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Kinh teJhat trii

Tfll CflU TRUC DflU Ti; CO

Sy phdi hgp tdt giCra cac ca quan ciia tinh ciing gdp phan thuc day cdng viec triln khai dugc kjp thdi.

Cac cdn bg cap tinh nhd dd cung ngay cdng duge nang cao nang lye, duge chia se thdng tin tir eae cap, sd lugng ede nhd thau tu nhan dja phuang eung tang len va hg cung hieu bilt sdu, rgng hon vl cdc thii tyc ddu thau, td ehOrc thi cdng bifu qud...

Nhu vay, tir viec phan tich hieu qua eua viec phan quyen mdt phan cho cap dja phuong d dy dn giao thdng ndng thdn 2, viec phdn quyln cho cdc cap dja phuang trong dy dn gidm ngheo cdc tinh miin mii phia Bde vd dac biet Id qua viec phdn lich nhung kit qua da dgt dupe tgi hai tinh thye hien dy dn thi dilm la Phu Thp vd Ldo Cai, kha ndng dp dyng phuang phdp tiep can ngdnh trong dau tu phdt triln giao thdng ndng thdn d Viet Nam Id hodn todn khd thi vd rdt can thiet; viec dp dyng phuong phdp nay se gdp phan mang Igi nhirng hieu qud thiet thye cd ve mat thdi gian, cdch qudn ly, chat lugng cdng trinh vd trdch nhiem eiia chinh quyen ede cdp, ddc biet Id cdc cap dja phuang trong x iee giii- gin cdng trinh ma hp trye tiep dau tu.

5. Kha nang ap dung phucng phap tiep can nganh cho Quan ly dau tu du an Giao thdng duong bo 6" Viet Nam

Qua viec phan tich nhirng uu nhupc diem khi dp dyng md hinh phan quyen mdt phdn cho mdt sd tinh trong dy an giao thdng ndng thdn 2, md hinh phan quyen manh me cho ede cap chinh quyen dja phuang (cap tinh, huyen, xa) trong dy dn gidm ngheo cdc tinh mien niii phia Bac da khdng djnh la cdc cap ehinh quyen dja phuang cd the Ihyc hien tdt cdc nhiem vu dugc giao mac dii cd nhii-ng khd khan budc dau (do phai tiep nhdn va ihyc hien theo phuong phdp mdi).

Dae biet, tir viec phan tich mdt each chi tiet vd ey the nhirng hieu qua cua viec thi diem dp dyng phuang phdp tiep can ngdnh (phan quyen hodn loan cho cap chinh quyen dja phuang cap tinh) tgi hai tinh Phii Thg va Lao Cai, vdi nhiing ket qua rat khd thi ma hai tinh da thye hien dugc va Idm tien de dp dyng rdng rai cho cdc tinh thugc dy an giao thdng ndng thdn 3 cung nhu cac dy an sau nay; nhu vay, kha nang ap dyng phuong phap tiep can nganh trong ddu tu phat triln giao thdng ndng thdn d Viet Nam la hodn todn kha thi va mang lai nhirng hieu qua thilt thye ca vl mat thdi gian, each quan ly, chat lugng cdng trinh va trach nhiem cua chinh quyen cac cdp, dac biet la cac cap dja phuang trong viec

gin giii- cdng trinh md hg trye tilp dau tu.

Viec dp dyng phuong phdp tilp can ngdnh la hodn todn khd thi nhu da phdn li'eh cy thi d tren, nhung de dp dyng ed hieu qud vd cd thi nhdn rgng ra nhieu dja phuang, nhieu logi nguon von vien trg khdc nhau vd dp dyng mgt cdch dong bg Ihi cdc cap, cdc ngdnh phdi cimg nhau thye hien ede ndi dung sau:

5.7. Ve mat the che: Chinh phii dua ra nhung chinh sdch, ca che phii hpp vdi nhung dieu kien dp dyng phuang phdp tilp can ngdnh; cdc bd, ngdnh can ed sy phdi hpp chat che vdi nhau vd vdi nhd tdi trp; ede nhd ldi trp can cd nhung thay doi (ede dieu ude qudc le cung nhu cdc cam kcl) trong vice dua ra nhung tieu ehi khi hd trg cho vay ddm bdo tinh mem deo vd phii hgp vdi he thdng phdp lugt eiia nude Cgng hda Xa hgi Chii nghTa Viet Nam, mat khde ede nhd tdi trg cung edn ed cdc bd phdn rieng phdi hgp.

Wen Igc chat che vdi cdc bd ngdnh vd cdc dja phuong. Bd Giao thdng Van tdi edn cd ngay chien luge phdt trien giao thdng ndng thdn todn qudc (1dm ca sd de ede dja phuong phdt trien chien lupc, quy hoach vd ke hogch phdt trien giao thdng ndng thdn ciia dja phuang minh). Cdc dja phuang cdn thye hien ngay cdng tdc lap quy hogch giao thdng van tdi ndi ehung va giao thdng ndng thdn ndi rieng, tren ca sd dd lap ke hogch phdt trien giao thdng ndng thdn mdt cdch eu the vd khoa hpc. Cdc dja phuong cung can cd nhirng ca che, chinh sdch khuyen khich ede nhd thdu tu nhan dja phuong ty ndng cao ndng lyc cd ve trinh dp chuyen mdn va trang thiet bj phyc vy thi cdng ddm bdo thi cdng cdng trinh dat hieu qud.

5.2. Ve mat td chue: Chinh phu can cho phep hodn thien he thdng td chirc giao thdng ndi chung, giao thdng ndng thdn ndi rieng mdt cdch khoa hpc ede bp, ngdnh lien quan vd dae biet Id td chirc trong Bd Giao thdng Van tdi. Bd chii tri viec dieu phdi cdc hogt ddng lien quan den td chirc, qudn ly van hdnh he thdng giao thdng ndng thdn dgt hieu qud eao vdi vai trd Id ddu moi trung chuyen trong thuc ddy phdt trien kinh te ndng thdn. < - '

5.3. Ve m(it ndng liec: Cdc cap trung uong (cdc bd ngdnh) cd cac td chirc vd nhdn sy du ndng lyc dap irng ndi dung cdng viec khi ap dung phuong phdp tiep can mdi nay (dac biet Id bd phdn quan ly trye thupc Bd Giao thdng Van tai). Cap dja phuang cung can tang cudng nang lye qudn ly tir cap tinh, din cap huyen, xa ddm bao quan ly tdt he thdng cdng trinh giao thdng ndng thdn tir budc ddu tu den budc dua cdng trinh vao sir dung vd bdo tri.

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5.4. Ve mat qudn ly: Can xay dyng ngay vd hodn ehinh khdi niem vc giao ihdng ndng llioii vdi cac nghj dinh quy djnh id vc cac cap quan ly he thong giao thdng ndng Ihdn d day dii cac budc dau tu, xay dyng, khai thdc, bdo tri...

5.5. Ve mdt bdo cdo, kiem todn: Cd e a die bao cdo. kiem todn. kiem tra eu the, id rang, minh bach va theo dimg he thdng phdp luat hien hdnh.

6. Ket luan vd kien nghj

Khd ndng dp dung phuong phdp tiep can nganh trong qudn ly ddu tu dy dn (ITDB ndi chung va giao thdng ndng ihdn ndi rieng Id hodn todn khd thi va mang lai nhung hieu qud thici thuc ca ve mat thdi gian. cdch qudn ly, chdt lupng cdng trinh xd trach nhiem ciia chinh quyi-n cac cap.

KicMi nghj xdi Chinh plui dua ra nhung ccr die, chinh sdch nhdm phdn cap manh me hon nira cho cap chinh quyen dja phuong, ed huong dan cy Ihe, rd rdng de ede dja phuong cd the dp dyng hieu qud

phuong phdp tilp can nganh khi tilp nhan ngudn vien trg ODA. Dong Ihdi tgo dieu kieu tdng cirdng ndng lyc eiia dja phuong a lat ca cdc bg phdn nhu bp phgn qudn ly, tu van thill kc, lu van gidm sdt, cac nhd thau lu nhan dja pbuirng dam bdo ddp irng tot cac npi dung, yt*u can khi lien hdnh dp dyng phuang phdp tilp can ngdnh. Cd phan cdng v l chirc ndng, nhiem vy cy the, rd rdng ddi vdi cdc Bp, ngdnh, co quan huu quan trong viec lap kc hoach, thu hiit, qudn ly nguon von ODA phuc vy ddu lu giao thdng duirng bd Chinh plui cung ban hdnh cdc co che thich hgp tao dieu kicn lam viec hieu qua giira cac bg, ngdnh, c a quan huu quan vdi nhau. Khdng dp dyng cirng nhdc cdc quy md, lieu chudn ky thual cho cdc dja phuang cung nlur cdc virng Idnh thd nhu nhau.

Cdc nhd lai trg cimg phdi hgp, hgp tdc dua ra khung khudn khd chung cung tai trp sao cho khdng cd mau thuan vdi nhau xa mau thuan vdi ede cache chinh sdch ciia ehinb phu Vict N a m . n

Tai lieu tham khao:

1. Phan tich thi chi, khuyin khich va nang luc quan ly GTNT Viet Nam (Seacap 16) Vien Chiln luac xa Phat trien GTVT Bo GTVT.

2. Nghi dinh 11/2010/ND-CP ve qudn ly va bdo v? kcl cau ha tang giao thong dudng bp.

3. Nghi djnh 167/1999/ND-CP ve to chirc quan ly dudng bd-

4. Nghi dinh 168/2003./ND-CP ve Quy dinh ve nguon tai chinh va qudn ly, su dyng ngudn tdi chinh cho quan ly, bao tri dudng bp.

5. Organization for Economic Co-operation and Development (2005). Harmonizing Donor Practices for Effective Aid Delivery, Volume 2: Budget Support, Sector - xv idc Approaches and Capacity Development in Public Financial Management.

6. Foster, M. and A.Fozzard (2000). "Aid and Public Expenditure: A Guide" Overseas Development Institute Working Paper 141.

7. Strategic Partnership for Africa Budget Support Working Group (2005). Survey of the Alignment of Budget Support and Balance of Payments.

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