Nghien cuu QuSc tisS 1 (104)
/BAN VE CHINH SACH DOI NGOAI
PGS. TS. va Duang Hudn*
Tom tdt
Chinh sdch doi ngogi la chii truang, duang loi, chien lug'c, sdch luge, bien phdp ciia qudc gia trong quan he vai vai cdc chu the khac tren vw ddi qudc te. Bdn chdt chinh sdch doi ngogi Id sir tiip t^c cua chinh sdch doi ngi, suy cho ciing Id dephuc vu chinh sdch ddi ngi, la su phdn irng tnrac nhimg su thay doi cua tinh hinh qudc te. Cd nhiiu nhdn td tdc dgng den hoach dinh chinh sdch ddi ngogi nhu che do chinh tri, dia chinh tri, sue mgnh qudc gia, chinh tri ndi bg, die ludn xd hgi, nhdm Igi ich, bdi cdnh quoc te vd nhieu nhdn td khac nua. Nhdn to tdng hap quy dinh viec hoach dinh chinh sdch ddi ngogi Id loi ich qudc gia ddn tdc. Ndi dung cua chinh sdch ddi ngogi bao gdm viec xdc dinh muc tieu, nhiim vu, nguyen tdc, phucmg chdm, phuang hudng vd cdc biin phdp hogt ddng ddi ngogi. Di thicc hien chinh sdch doi ngogi phdi cd bien phdp vd cdng cu. Cdc cdng cu chu yeu trong chinh sdch ddi ngogi Id cdng cu ngogi giao, cdng cu kinh te, cdng cu lugt phdp qudc ti, cdng cu thdng tin - tuyen truyin vd cdng cu qudn su. Cdng cu khdng thay dugc chinh sdch, chinh sdch quy dinh su dtjng cdng cu. Lira chgn diing cdng cu vd lieu lugng la tdi ndng ciia nguai ra quyet sdch, ddc biet la cdng cu qudn su.
Chinh sdch ddi ngogi Id mdt bp phdn edu thdnh chinh sdch qudc gia. Dd cd rdt nhieu tdc gia viet ve ehinh sdch ddi ngoai, song nhiing cong trinh liSn quan din khia canh ly luan cua vdn di thi qua it. Thdng
* Dai sii, Nguyen Gidm doc Hoc vi^n Quan h^ Quoc te (nay la Hpc vien Ngogi giao), nguyen Dgi sii Vifit Nam tai Ba Lan v^ U-crai-na.
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qua bdi viet nay, tae gid mudn de cdp mdt sd vdn dS nhu khai niem, dac diem, npi dung, cdng cu vd bien phdp chinh sdch ddi ngoai cua quic gia, nhiing van de edn cd y kien khde nhau.
Khdi niem chinh sdch ddi ngoai
Quyen lyc chinh tri cua giai cap cdm quyen dupe td ehue thdnh nha nude. Thdng qua viec thyc hien cdc chinh sdch cua nhd nude, giai cap cam quyen tien hanh ede biSn phdp nhdm dgt cdc muc tieu cua minh trong cdc Imh vyc chinh tri, kkih te, van hda, xa hpi. Trong thyc te co ba kh^i niem lien quan vdi nhau: dudng loi, ehinh sach vd bien phdp. Dudng l6i Id nhiing nguyen tdc vd dinh hudng phdt trien chung nhdt. Chinh sach la cu the hda dudng loi. Cdc bien phdp Id cu the hda cua dudng loi, thudng CO y nghia la cde hanh dpng thyc tien. Chinh sach theo nghia rpng bao gdm cd ba cdp dp tren. Theo td dien Bdch khoa todn thu Viet Nam: Chinh sdch Id nhiing chudn tdc cu the de thyc hien dudng loi, nhiem vu; diroc thuc hien trong mpt thdi gian nhdt dinh, tren nhung IThh vuc cy the nao dd. Bdn chat, ndi dung vd phuong hudng cua chinh sach tuy thupe vao tinh chdt cua dudng Idi, nhiem vy chinh tri, kinh te, van hda, xa hpi...' Hay ndi ngan gpn: "Chinh sdeh cdng la chuong trinh hanh ddng huong dich eiia chu the nam hode chi phdi quyin lyc cdng cdng".-
Chinh sdch ddi ngoai thudc chinh sdch cdng. chinh sach cua qu6c gia. Chinh sdch ddi ngogi la gi? Theo James Rosenau (My), ehinh sach ddi ngogi la "sy cd gang cua mdt xa hdi qude gia nham kiem sodt m6i trudng ben ngoai bdng cdch duy tri nhiing tinh hinh thudn lpi va thay dii tinh hinh bdt Ipi".^ Theo nha nghien cdu ngudi Phdp Lion Noel: "Chinh ' H6i dong chi dao bifin soan Ttr dien bdch khoa Viet Nam, Tir dien bdch khoa Vi$t Nam, Nxb. TCr diin Bach khoa, Hk NOi 1995, t|pl, tr.475.
^ Hpc vien Chinh tri Quoc gia H6 Chi Minh, Tdp bdi gidng chinh trj hoc (H4 cao cdp^
iugn chinh tri), Nxb. Ly ludn Chinh tri. Ha N0i, 2007, tr.235.
^ Trich theo Duong Van Quang & Nguyin Thj Thm, "Ban vi vdn 6h phan tich chinh sdch d6i ngogi", Tgp chi Nghien ahi Qudc ti, s6 4(83), thang 12/20! 0.
170 3/2016.
J
Nghien ciru QuSc tisS 1 (104)
sach ddi ngoai la nghe thudt chi dao quan he eua mpt qudc gia vdi cdc qudc gia khac".'' Tir dien thu^t ngii ngogi giao lai cho rdng chinh sdch ddi ngoai la "chu truang, chiin lupc, ke hoach vd cde bien phdp thyc hien cu the do mpt quoc gia de ra lien quan den cac mdi quan he qudc te ma qudc gia do thiet lap vdi cdc qudc gia vd cdc chu the khde nhdm tang cudng va bdo ve lpi ich qudc gia eua minh".^ Gido trinh Trung tdm Bdi duong edn bd ddi ngogi nhdn mgnh "Chinh sdch doi ngogi la mpt bd phdn cua chmh sach qudc gia ndi chung, ehinh sach lien quan den quyet djnh lua chpn hudng hdnh dpng vd phuang each hanh dpng de giai quyet mpt hogc nhieu vdn de ndy sinh trong hodn cdnh va dieu kiSn cu thi. Theo cdeh hieu thdng thudng nhdt, chinh sach doi ngoai la sy phdn ung cua mpt nude ddi vdi sy thay ddi cua tinh hinh ben ngoai.
Ndi mdt cdch khde, khi cd su thay ddi trong tinh hinh ben ngodi, the hien d sy thay ddi trong ddng thai chinh sdch va hdnh ddng eua cde ddi tupng lien quan va td do se hoac da tao ra mdt net mdi trong hodn cdnh ben ngoai; ddng thdi vdi viec xuat hien "van de mdi", edc qudc gia phdi cd phdn ung thich hpp de xu ly vdn di theo hudng tan dung tinh hinh cd lpi hogc giam thieu tinh hinh bdt Ipi".^ Trong cu6n sach
"Chinh tri qude t i " cua Hpc vien Bdo chi - Tuyen truyin: "Chinh sach ddi ngogi Id tdng thi nhiing chiin lupc, sdch lupc, chu truang, quyit dinh va nhiing bien phap do nhd nude hogch dinh vd thyc thi trong qua trinh tham gia tich eye, cd hieu qud vdo ddi sdng qude te trong tdng thdi ky lieh su, vi lpi ich qudc gia, phu hop vdi xu the phdt trien cua tinh hinh thi gidi vd lugt phap qudc te. Chinh sdeh ddi ngoai Id su tiip
* Noel L., Les afaires etrangeres: Politique el Diplomatie, P.U.F, Paris, 1959.
* Hpc vifen Quan h | qu6c tl, Tif diin thugl ngir ngogi giao Viet - Anh - Phdp, i^)(b. ThS:
gidi, HdN^i, 2002.
* Trung tdm Ddo tao, B6i dirfing Cdn b6 Doi ngoai, Gido trinh Kien thuc doi ngoai. Ha Npi, 2012, tr.52.
tue cua ehinh sdeh ddi ndi, xudt phdt tCr chi d6 kinh ti, chinh tri, xd h6i eua mpt quic gia phuc vy chinh sdch ddi ndi".'
Nhu vgy, chinh sdch ddi ngoai la mdt bp phgn cau thanh eiia chinh sdch qudc gia. Chinh sach ddi ngoai Id tiep tuc cua chinh sach dii ngi, la phdn ung cua mdt qudc gia doi vdi tinh hinh qudc te. Id dudng hudng hogt dpng eiia quoc gia tren trudng qudc te trong quan h? vdi cdc chu thg quoc te khde nham bao ve lpi ieh qudc gia ddn tpc; chu thi cua chinh sdeh doi ngoai Id nhd nude.
Dac diem chinh sach doi ngo^i
Chinh sdch ddi ngogi thu&ng ductc the hi^n dw&i dgng cdc van ki$n khac nhau cua quoc gia
Thu nhdt, chinh sach ddi ngogi the hien dudi dang mdt van kien cua nha nude hoac cua dang cdm quyen, nhdt Id d cae nude XHCN. Vi dy: Thdng bdo chinh sdch sach doi ngoai ngdy 3/10/1945 cua Bp Ngoai giao nude Viet Nam Dan ehu Cong hda; Nghi quyit TW 13 (1/1967) ve chien lupc ddi ngogi vua ddnh vda dam, ddn din Hpi nghi Paris vi chdm dut chiin tranh vd lap lai hda binh d Viet Nam (1968-1973); Nghi quyit 13 cua BCT (5/1988) ve ddi ngoai; Quan diim chinh sach dii ngogi cua Lien bang Nga dupe Ting thdng V. I Putin phe chuan ngay 12/2/2013...
Thie hai, chinh sdch ddi ngoai dupe the hien trong phat bieu ciia lanh dao qudc gia, dai dien qude gia. Ngdy 26/11/1953, trd Idi phong vdn bao Express cua Thyy Diin, Chu tjch Ho Chi Minh khdng dinh neu Chinh phu Phap mudn di din dinh chien d Viet Nam bdng each thuang lupng vd giai quyet vdn de Viet Nam theo dudng Idi hda binh thi nhan dan Viet Nam vd Chinh phu Viet Nam Dan chu Cdng hda sdn sdng tiip ' Dirong Xuan Ngpc, Luu Vdn An, Gido trinh Quan he chinh tri quoc ti, Nxb. Chinh trj Qu6c gia. Ha N$i 2008, tr.263.
Nghien ciiru QuSc tiso 1 (104)
nhdn y mudn dd. Ngudi nhdn manh: "viee thuong lupng dinh chien chu yiu la mdt viee giiia Chinh phii Viet Nam Ddn chu Cong hda vd Chinh phii Phap".^ Ngdy 22/2/1974, khi tiip Ting diing Dam-bi-a Kenneth David Kaunda thdm ehinh thuc Trung Qudc, Chu tich Trung Qudc Mao Trach Ddng de cap tdi vdn di phan chia ba the gidi: The gidi thu nhdt Id My - Lien Xd; Phai trung gian gdm cd Nhdt Bdn, chdu Au, O-xtrdy-li-a, Ca-na-da Id the gidi thd hai; Todn bp chdu Phi, chdu My Latin, chdu A la the gidi thu ba.
Thu ba, chinh sach doi ngogi cd thS dupe the hien Id dieu ude qudc te ma qudc gia ky ket. Vi du nhu Hiep dinh Geneva ndm 1954 ve Dong Duong.
Thie tu, chinh sdeh doi ngoai cua qudc gia con dupe bieu hien qua quan diem, Igp trudng, thai dp eua dai dien qudc gia tgi cdc hdi nghi dien ddn qudc te...
Chinh sdch ddi ngogi Id mot bg phgn khdng tdch rM cda dirdng Idi chinh tri mgt quoc gia
Dudng Idi dd bao gdm chinh sach ddi npi va chinh sdch ddi ngogi vd do lpi ich giai cdp hay lien minli giai cdp cdm quyin dong vai tro quyit dinh. Lpi ich dd trudc hit Id lpi ich eua lyc lupng ndo, giai cap ndo ndm kinh t i thi lyc lupng dd, giai cdp dd ndm quyin luc chinh tri.
V.I Lenin viit: "Chinh tri Id bieu hien tap trung cua kinh te",^ "chinh tri la kinh ti cd dpng lai".'" Chinh tri, ludt phdp... thupe thupng tdng kiin tnic do ha tdng ca sd quyet djnh. Lenin eon khang dinh: "phdp quyin khdng bao gid cd the cao ban che dp kinh te"." Day la nhan to CO bdn gdn chinh sdch dii ndi va chinh sdch ddi ngogi thdnh mdt tdng
' H6 Chi Minh, rot;;?/dp, Nxb Chinh tri Qu6c gia. Ha Npi 2000, i 7, tr. 168-169.
' V.I Lenin, Todn tgp, Nxb. Ti^n bp, Mat-xco-va. 1977, tap 42, tr.349-350.
'" V.l Lenin, 7ba«/op, Nxb. Ti£n bp, Mat-xco-va, 1977, tap 45. tr.418.
" V.I Lenin, Tbort ( # , Nxb. Tien bp, Mat-xco-va, [977,tap 33, tr.233.
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th€ chiin lupc eua mdt qude gia. M6i lien he giiia chinh sach ddi ndi va chinh sdch ddi ngoai cua mdt nude Id d chd chung deu gidi quyet mpt nhiem vy, tuc la tgo dieu kien cho viec bdo ve vd duy tri he thdng quan he xd hdi hien hdnh trong qude gia do. Chinh sdch ddi ngogi Id su keo ddi eua chmh sach ddi ndi vd suy cho eung Id phuc vy chinh sdch doi ndi. Tuy nhiSn, chinh sdch doi ngoai cd vai trd tich cue va chii dpng.
Chinh sdch ddi ngoai va chinh sdch ddi ndi cd nhiing diem gidng nhau va khac nhau. Diim gidng nhau la deu do nhd nude hoaeh dinh vd trien khai, deu phyc vu muc tieu quoc gia. Ddi ngogi va doi npi khde nhau cr chd mue tieu cu thi, ddi tupng tdc ddng khdng gidng nhau vd ddc biet khde nhau d phuong thue thyc thi chinh sdch. Ddi vdi vide thyc thi ehinh sdch ddi npi, nhd nude cd the ban hdnh ludt, qui tdc, vdi cac bien phdp chi tai, ddng thdi td chdc van ddng de cdc td chuc, cdng ddn thuc hien; nhung khdng the lam nhu vay ddi vdi eac ddi tde nude ngoai vi cdc qu6c gia deu cd ddc lap ehii quyen, mdt nguyen tdc quan trpng trong lugt qudc te. Mat khde, dgc trung cua quan he quoc te la "vd chinh phii", nghia Id khdng cd eo quan quyen lyc sieu quoc gia dieu hdnh quan he giiia cac ddn tpc. Do vdy, nhd nude phdi thdng qua tiep xuc, trao dii, ddm phan ky ket dieu udc qudc t6 nhdm thdo gd khuc mdc va thiic day quan he. Ngodi ra, nhd nude ddng cdc bien phdp gidn tiep de tac d6ng din cdc chu the khac tren trudng qudc ti qua viec triin khai chinh sach tgo ra sy hap ddn hay de ngan cdn quan he vdi cdc chu the ben ngodi.
Co nhieu nhdn to chiphoi/tdc dgng den viec hogch dinh chinh sdch doi ngogi cua quoc gia
Cdc nhdn td cd the ke den la chd dp chinh trj, the che kinh kinh te, hd tu tudng chu dao, dia chinh trj, muc tieu quoc gia, sdc manh quoc gia, nhdm lpi ich, du luan xa h6i, tinh hinh chinh tri npi bO, tinh hinh qudc ti vd khu vyc v.v.. .Nhdn td mang tinh chdt tdng hop trong hoach dinh chinh sdch ddi ngogi qude gia Id Ipi ich quoc gia ddn tdc. Ddy la
Nghien ciru QuSc ti sS 1 (104)
hdn dd tdng trong viec hoach dinh chinh sach ddi ngoai cua quoc gia.
Co nhdn td dn dinh, it thay dii, song cd nhiing nhdn td thudng xuyen bidn dpng, thay ddi. Chi dp chinh tri, thi chi kinh ti, he tu tudng chii dao, dia ehinh tri.. .la nhung yiu td it thay ddi, cdn tinh hinh ehinh tri npi bp, tinh hinh qudc te, khu vyc, sue mgnh qudc gia thudng thay doi ban. Tuy nhien, vi^c thay ddi hay khdng eung chi Id tuang ddi.
Vi dy, ehinh tri npi bp Thai Lan lu6n thay dii, song d Viet Nam hien nay lai rdt dn dinh. Nhu vdy, mudn dinh ra chinh sdch ddi ngoai khoa hpc phdi ludn tinh den tinh hinh thyc tien trong nude va qudc ti trong tung thdi ky.
Chinh sdch ddi ngogi Id chinh sdch qudc gia
Mdc du chinh sach ddi ngoai la ehinh sach qude gia, nhung nhd nude khdng phdi la chu thi hodn toan don nhdt vd duy ly trong hogch dinh chinh sdeh ddi ngogi nhu nhdn thdc cua chu nghTa Hien thyc. Tham gia vdo hoaeh dich chinh sdeh ddi ngogi cua nhd nude cd nhiiu chu thi c6 nhieu tde nhan nhu ddng phdi, nhdm lpi ieh, du ludn xa hdi. Ngay ca d6i vdi nhiing nude XHCN do cac Ddng Cong sdn duy nhdt edm quyin, chinh sdeh ddi ngogi do Dang hoaeh dinh ciing phdi tranh thd y kiin cua cac nhdm lpi ich, du ludn xa hpi, huong chi Id eac nude cd the chi da nguyen. Dieu nay phu hpp vdi ly thuyet cua chu nghia Ty do cho rdng qude gia cd nhiing lpi ieh va chu the da dang. Nhu vay, khi hoach dinh chinh sdch ddi ngoai, cdc nhd hoach dinh chinh sach dSu tinh den nhiiu yeu td trong dd cd du ludn xa hpi, tinh den Ipi ieh edc nhdm Ipi ich...
Trong viec binh thudng hda quan he Viet - My thdng 7/1995 cd vai trd to Idn ciia cdc cdng ty cua My, lo ngai bi cham chan trong lam an vdi thi trudng tiim ndng Vidt Nam nen da thuc ddy chinh quyin Tdng thing Clmton binh thudng hda quan he vdi nude ta. CS Viet Nam, khi dam phdn ky kit Hiep udc bien gidi tren bd vdi Trung Qudc nam 1999, mac du Bd Chinli tri la ngudi quyit dinh, song trong qud trinh dam phdn da hoi y kiin cde dia phuang co chung bidn gidi vdi Trung Qudc.
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Chinh sdch doi ngogi co tinh chit ki thira
Trong vide hogch dinh vd triin khai chinh sdch ddi ngogi, nha nude nao ciing cd y thdc thudng xuydn nit nhiing bdi hpc kinh nghi?m td lich su cua dan tpc minh va eua cdc ddn tde khac. Cd nhiing bai hpc thdnh cdng dd ke thua vd nhiing bdi hpc thdt bgi dd nit kinh nghiem.
Trong vide hoach dinh va trien khai chinh sach ddi ngogi cua Dang vd Nhd nude ta, chung ta da hpc dupe nhieu bdi hpc quy bau tu ngoai giao truyen thdng cua cha ong: Do la nhiing bdi hpc kien tri dpc lap tii chu, song cdeh thuc thi vd cung mdm mdng, linh hogt, uyen chuyin nhu chinh sdch coi trpng quan hd vdi lang gieng, nhdt la lang gilng ldn nhu Trung Qudc; "trong xung dd, ngodi xung vuong", trieu cdng;
ngoai giao tam cdng... Chu tich Hd Chi Minh dd tham khao Hiep udc Bret-Litov eua nude Nga Xd vidt khi ky Hidp dinh Sa bp 6/3/1946 vdi Phdp. Chung ta da nit kinh nghiem sdu sdc Hpi nghi Gionevo 1954 vd Dong Duong trong qud trinh dam phdn vdi My tai Hdi nghj Parfs (1968-1973), nhdt la vdn de true tiep dam phan vdi Mj?, ddnh kdt hap vdi dam, nghien ciiu chien lupc, van ddng duludn, tdp trung luc lupng, tri tue eho dam phdn, chidn lupc, sach lupc, nghe thuat dam phdn...
Hiep dinh Paris Id chien cdng ldn. sdng choi cua ngoai giao Viet Nam trong thdi dgi Hd Chi Minh.
Noi dung chinh sach doi ngoai
Muc tiiu chinh sdch doi ngogi
Khi phdn tich chinh sdch dieu ddu tidn ndi den la muc tieu chinh sach. Xdc dinh mue tidu la mpt npi dung eye eye ky quan trpng cua chinh sdch doi ngogi. Bdt ky quic gia ndo du ldn nhu My, Trmig Qudc, Nga... hoac nhd nhu Cdng hda Nauru, Cdng qudc Monaco, du Id quic gia thdi ed dai d Ai Cap, Ludng Ha, Hy Lap, La Ma cd dai, nhd nude Vdn Lang d nude ta, hay din cdc qude gia duong dai, chinh sdch doi
Nghien citu Quoc teso 1 (104)
ngoai deu xac dinh ba muc tieu ca ban la "an ninh, phat triSn va anh huong". Muc tieu an ninh la gop phin bao ve doc lap, chu quyen, an ninh quoc gia va toan ven lanh th6; muc tieu phat triSn la tranh thil ngoai luc va t^o dung di6u kien qu6c tS thuan loi cho phat triSn kinh tS - xS hoi ciia dSt nuac; va muc tieu anh huang la gop phin nang cao dia vi quoc gia, phat huy tim anh hudng tren truang qu6c ik. "Ba muc tieu nay gin ket vai nhau mat thiSt, khong the tach roi va phan anh mot cac tdng iai, toan diSn loi ich quoc gia, loi ich dSn too. Nhiing muc tieu tren la bit bita, song npi dung cu thS va nhdt la phuang phap tiSn h4nh dS dat duoc muc tieu ky chuySn hoa theo thai gian va linh hoat tuy thuoc vao diin bien cua lich sir".'^ Tuy nhien, myc tieu cOng cin duoc higu mgt each linh hoat. Dai hoi XI cua Dang ta (1/2011), khi xac dinh muc tieu chinh sach ddi ngoai Viet Nam giai doan hien nay vift: thuc hien nhit qudn dudng loi chinh sach ddi ngoai ddc lap, ty chu, hda binh, hgp tac va phat trien; da dang hda, da phuang hda quan he, chu ddng va tich eye hdi nhap qudc te; nang cao vi the dat nude; vi Igi ich qudc gia dan tdc, vi mgt nude Viet Nam Xa hdi Chu nghia giau manh.' ^ Nhu vay, Dai hdi xac dinh hai muc tieu chinh sach ddi ngoai Viet Nam la vi igi ich qudc gia, dan tdc va vi mdt nude Viet Nam Xa hdi Chu nghTa giau manh.
Trong ba muc tiSu tren, qudc gia nao ciing phai sip xSp theo thir ty uru tien bdi vi ngudn lyc thudng cd han. Mat khac, su lya chgn uu tien thudng xuit phat tu sy phat trien ciia tinh hinh qudc te. Thi du trong cuOc khang chien chdng thuc d^n Phap (1946-1954) va cudc khang chijn chong My cuu nude (1954-1975), muc tieu hang dau cua Viet Nam chinh la an ninh, bao ve dgc lap chu quyjn, toan ven lanli thd, th6ng nhit dit nude, thd hien trong cau ndi ndi tieng evia Chu tich Hd '^ Vu Khoan, "An ninh, phat trien va anh hirong trong hoat dpng d6i ngoai", Tgp cfti - Nghiin aril Quoc li, s6 2(12yi993, tr.3.
" Dang C5ng san Viet Nam, Vm kien £)gi hgiXI, Nxb. Chinh trj Qu6c gia, Ha Npi 2011, tr.83.
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Chi Minh "Khdng ed gi quy hon doe ldp, ty do". Ngay trong nhimg nam 1945-1946, khi nude Viet Nam Ddn chu Cong hda vira ra ddi, myc tieu uu tien ciing Id an ninh. Lpi ich cao nhat cua ehung ta lue do la bao ve, gid viing chinh quyen each mang, thdnh qud cua Cdch mang thang Tam nam 1945. Vdi Nghi quyit 13 cua Bp Chinh tri (5/1988), chiing ta dat mue tidu eao nhat la giii vung hoa binh, tgo dieu kien quic te thuan lpi di phdt trien kinh td - xa hdi. Khi cd hai su lua chpn trd len, phai tinh den viee sap xep thu ty uu tidn. Cang nhieu lua chpn cang khd xay dung uu tidn do ehinh tri ndi bd trong qudc gia xuat phdt tir thi gidi quan khac nhau, loi ich khde nhau cua cac nhdm lpi ich. Mpt hpc gid Mf vidt: Hogch dinh chinh sdeh ddi ngoai ban chit la sy lya chgn nhiing muc tieu cdn dgt dupe vd tgo dung dupe phuang each dd dat dupe muc tieu dd.'"*
Nhiem vu chinh sdch ddi ngogi
Ben canh mue tidu, cdn phdi xac dinh nhidm vy chinh sach dii ngoai. Nhidm vu la cong viec phai lam dd dat cho dupe myc tieu da xdc dinh. Ldm ro nhidm vu ciing rdt quan trpng. Khdng xdc dinh triing nhidm vu khdng thi di tdi mue tidu. Vi dy, Dai hpi XI cua Ddng nhk manh 3 nhiem vy cua cdng tac dii ngoai Viet Nam cho giai doan 2011- 2015 nhu sau: Giii viing moi trudng hda binh, thuan Ipi dd ddy manh CNH, HDH; bdo ve viing chdc ddc lap, chii quyin, thing nhat va toan ven lanh tho; nang cao vi the dat nude; gdp phdn tich eye vdo cupc diu tranh vi hoa binh, ddc Igp ddn tdc, dan chu vd tiin bd xa hpi.'^
'•' Bruce W. Jenleson, Chinh sdch dot ngogi Mp: Bgng ca cua sv lua chon, tr.l.
'' Dang C6ng san Vi|t Nam, Van ia^nBgihoiX/, Nxb. Chinh tri Qu6c gia, HiN6i, 2011, tr.236.
Nghiin ciru Quoc te sS 1 (104)
Nguyen tdc chinh sdch dot ngogi
Thdng thudng trong ehinh sdch ddi ngoai ngudi ta xdc dinh nguyen lac hogch dinh ehinh sdch dii ngogi. "Nguydn tae la dieu co ban dinh ra, nhdt thiet phai tudn theo trong mdt loat vide cdn phai Idm".'^ Vi du, Hpi nghi Trung uong III, khda VII (6/1992) khdng dinh nguydn tdc hogt dpng ddi ngogi ciia Viet Nam: Gid viing nguydn tac dpc ldp, thSng nhat va chu nghia xa hdi, dong thdi phdi rdt sdng tgo, nang ddng, Imh hogt phu hop vdi vi tri, dieu kien vd hodn cdnh cu thd cua nude ta ciing nhu didn bidn cua tinh hinh the gidi va khu vyc. phu hpp vdi dac diem tung d6i tupng ta cd quan he.'^ Dai hpi XI cua Ddng ta neu ba nhdm nguyen tac chi dao edng tdc ddi ngoai cua Vidt Nam hien nay: (i) Dam bao Ipi ich qudc gia, giu viing ddc lap ty chu, vi hda binh, huu nghi, hop tdc va phdt tridn; (ii) Tdn trpng cac nguyen tde ca ban cua ludt phdp quoc td, Hien chuong LHQ; (iii) Tdn ti*png edc nguydn tae ung xir khu vyc.'*
Phitffng cham chinh sdch doi ngogi
"Phuong cham la tu tudng chi dao hdnh ddng, thudng dupe dien dat ngdn gpn".'' Hdi nghi Trung uong III (6/1992) cua Ddng yeu cdu ndm viing nhiing phuang chdm xu ly cdc vdn dd ddi ngoai nhu sau: (I) Dam bao lpi ich ddn tpc chdn chinh, ket hpp nhudn nhuyen chu nghia ydu nude va chu nghia qudc ti cua giai cdp cong nhdn; (ii) Gid viing doe lap, tu chu, tu luc, ty cudng, ddy manh da dang hoa, da phuang hda quan he ddi ngoai; (iii) Ndm vQ-ng hai mat hpp tac va dau traiili trong quan he vdi mpi ddi tupng; (iv) Tham gia hop tdc khu vyc, ddng thdi md rdng quan he vdi eac nudc.^°
"* Trung tam Til diSn hoc, Tir diin liing I''/ef, Nxb. Da Ning, Da N i n g 1997, tr.672.
" H6ng Ha, "Tinh hinh th£ giai va chinh sach doi ngoai ciia chiing ta", Tgp chi Cong sdn,&& 12/1992.
" Dang Cpnii san Viet Nam. Van kien Dai hgiXI, Nxb Chinh tri QuSc gia, Ha Noi 2011, tr.237-238.
" Trung tam Tir dien hoc, Tir dien tieng Viet /P^?, Nxb. D^ Nang 1997. tr 765.
™ H6ng Ha, "'Tinh hinh thS gioi va chinh sach doi ngoai cua chiing ta", Tgp chi Cong i a « , s 6 12/1992.
Dai hdi XI cua Ddng neu eac phuong chdm sau ddy trong hoat ddng ddi ngoai cua Dang vd Nhd nude ta trong giai doan hien nay: (i) Thyc hien nhdt qudn dudng loi doi ngogi doe lap, ty ehu; (ii) Da phuang hda va da dgng hda quan he, ehu dpng va tich eye hdi nhdp qudc td; (iii) La ban, la ddi tdc tin cdy vd thdnh vidn cd trach nhiem trong cdng dong qudc ti; (iv) Ndng cao hieu qua boat ddng ddi ngogi.^'
Phtrffng hudng chinh sdch doi ngogi
Phuang hudng la cac dinli hudng hoat dpng ddi ngoai chinh nhdm trien khai dudng loi chinh sach ddi ngogi cua qudc gia. Dai hdi XI cua Ddng neu cde phuang hudng ve chinh sdch ddi ngoai Viet Nam Id: (I) Tiep tyc dua cac moi quan he qudc td vdo chidu sau; (ii) Hpi nhdp kinh td quoc td; (iii) Hpi nhdp chinh tri, qudc phdng, an ninh; (iv) Hpi nhap van hda - xa hdi; (v) Gidi quyet cdc vdn dd tdn tai vd bidn gidi, lanh thd.
Bien phap va cong cu chinh sach doi ngoai Khdi niem ve cdng cu vd bien phdp
Dd tridn khai chinh sdch ddi ngoai cdn ed ede cdng cy va bien phdp. Ndi cdch khac, mudn dgt dupe muc tidu, thuc hidn thanh cong nhidm vy chinh sdch doi ngogi phdi co bidn phap va cdng cy, phai co ngudn lyc. "Bien phap ddi ngoai la mot he thing hogt dpng trong quan he qudc td trdn cdc linh vye va d nhieu mdc dp, cdp dp khde nhau (song phuong, da phuong) di thuc hien ehinh sdch ddi ngoai phu hpp vdi lpi ich qudc gia".^^ Cdc bidn phdp tren dupe thye hien thdng qua cdc cong cu ngogi giao, kinh te, luat phdp, tuyen truyin, quan sy. Cdng cu la "he thdng cac ydu td con ngudi vd phuong tien vat chat dupe huy dpng de thyc hien ehinh sdch ddi ngogi eua cac chu the chinh tri ddi ngogi trong
^^ Dang Cong san Vi8t Nam, Vdn Icien Bgi hoiXI, Nxb, Chinh tri Qu6c gia, Ha Noi, 20U, tr235-236,
^ DiTOTig XuSn Ngoc, Luu VSn An, Giao trinh Quan he chinh tri qu6c tS, Nxb. Chinh tri Qu6c gia, Uk Noi, 2008, tr.283.
Nghiin cieu Quoc ti so 1 (104)
thuc tien".-^ Viec lya chpn cdng cy Id nghe thudt cua ngudi lam chinh sdch. Lya chpn dung cdng cy va Ueu lupng the hien tdi nang ngudi Idm chinh sdch. Cdng cu khdng thay thi chinh sdch, chinh sdch quy djnh sd dung cdng cu. Dai hdi XI ldn dau tidn ndu quan didm tridn khai ddng bp va toan dien boat dpng ddi ngogi cua Viet Nam, trong dd cd cdng eu thuc hien myc tidu ddi ngoai.-'' Xin gidi thieu mdt sd cdng cu chu yiu.
Cdng cu ngogi giao
Ddy la cdng cu quan trpng nhdt trong vide thyc hien myc tidu, nhidm vy chinh sdch ddi ngoai. Ddy la phuong tidn dya trdn cdc nguyen tdc cua chinh sdch ddi ngogi, thyc hien bdng phuang phdp hda binh, tren co sd thuong lupng, ddm phan giiia edc ben cd lpi ich lien quan.
Theo Cdng udc Vien vi Quan he Ngogi giao, ngoai giao co cdc chuc ndng: (i) dai dien cho nude minh tai nude tidp nhan, tgo didu kien trao ddi thdng tin lidn lac giiia cdc nhd lanh dao qudc gia; de thu thdp thong tin va xu ly thdng tin ve nude tidp nhdn, Idm nhiem vu nhu Tdn Tu ndi '"biet minh, biet ngudi"^^ bdng cdc bidn phdp hop phdp; (ii) Dam phdn vd kf ket didu udc qudc ti, gidi quyit tranh chdp quydn lpi ciing nhu thuc ddy, cung cd quan he da dupe thiet lap; (iii) Bdo ve lai ich qude gia, phdp nhdn vd cdng ddn minh d nude sd tai; (iv) La ngudi dgi dien quoc gia phdt ngdn quan didm lap trudng cua nude minh. Ngoai giao ngdy cang khdng dinh la phuang tien bdn vung dn dinh vd nhdn van trong quan he qudc ti, ngoai giao da phuong rdt phdt triin trong ky nguydn todn cdu hda. Ngay nay, ben canh kenh ngogi giao nhd nude, cdn cd cdc kenh ngogi giao khac nhu ngoai giao Ddng, ngogi giao nghi vien, ngoai giao nhan dan, ngoai giao cua eac nha khoa hpe (ngoai giao kenh
^ Duong Xuan Ngoc, Luu Van An, Gido Ir'inh Quan h? chinh trj quoc te, Nxb Chinh tri Qu6c gia. Ha N^i 2008, tr 283.
^ Dang Cgng san Viet Nam, Vdn ki?n Dgi hgi XI, Nxb Chinh tri Quoc gia. Ha Noi 2011, tr.235.
^ Binh phdp Ton Tit, N h i xuat ban Dong Nai, Bi^n H6a 1996, tr. 186.
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II), d6i ngoai qudc phdng - an ninh. Bdn cgnh ngoai giao song phuang, ngoai giao da phuong phat tridn nhu vu bdo. Ciing vdi ngogi giao ehinh tri, ngoai giao kinh td, ngoai giao van hda eiing cd bude phat tridn dot pha. Mat khac, ngogi giao cap cao phdt tridn ldn tdm cao mdi.
Cong cu lugt phdp
Mdt cdng cu khdng kem phdn quan trpng trong vide thyc hien myc tidu, nhiem vy ngoai giao la luat qude te. Luat quoc td "Id he thing cac nguyen tac va quy pham phdp ludt, dupe cdc qudc gia vd cac chu the khde cua lugt qudc te thoa thudn tao dung ndn, trdn co sd tu nguyen vd binh dang, nhdm dieu chinh nhiing quan he phat sinh giiia cac qudc gia vd cdc chd thd dd trong mpi ITnh vue cua ddi sdng qude td. Dd Id cac nguyen tac va quy pham dp dung chung ma khdng cd sy phdn biet tinh chdt, hinh thuc hay vj the cua timg qudc gia khi thidt lap quan he quoc te giiia nhimg chu the ndy vdi nhau".^^ Trong ddu tranh vdi vide Trung Qudc ha dat trai phep gian khoan HD-981 vdo khu vuc ddc quydn kinh te, thdm lue dia Viet Nam, chdng ta da sd dung rat hieu qud cdng cu ludt phap qudc te, dae biet Id Cdng udc Luat Bidn ndm 1982 cua LHQ.
Ngodi ra, ehung ta cdn tich eye sd dyng cdc co chi da phuong nhu ASEAN, LHQ... trong ddu tranh.
Cong cu kinh te
Trong boat ddng ddi ngogi, cae chu thd thudng su dyng cong cu kinh td phuc vu myc tieu ddi ngogi, phii hpp vdi lpi ieh cua minh. Cac nude, ddc biet Id cac nude ldn rdt coi trpng su dyng tiem nang kinh te nhu tdi nguyen, vi tri dia ly vd nang luc kinh td cua quoc gia nhu GDP, trinh dd khoa hpc cdng nghe cCia minh dd thuc day quan he vdi cac quic gia khac. Cdc nude xudt khdu ddu md da tung su dung dau mo
^ Trucmg Dai hoc Luat Ha Noi, Gido trinh Lugt qudc ti. Nxb. Cong an Nhan dan. Hi N6i, 2006, tr.7-8.
Nghiin cuu QuSc ti sS 1 (104)
lam vii khi dau tranh chdng cdc nude dd qudc dau nhihig nam 70, thd ky 20. Lidn bang Nga su dyng khi ddt trong quan he ddi vdi U-crai-na, Be-la-rut nam 2006, 2009. Ngoai tiim nang kinh ti, cdc nude cdn sd dyng cdc cdng cu kinh td khde nhu thud quan, kiem sodt nha nude ddi vdi hogt dpng thuong mgi, tham gia eac hiep dinh thuang mai ty do.
Trp giup kinh te ddi vdi cdc quoc gia khde la ca hdi thuan lpi gdy dnh hudng chinh tri ddi vdi cac quoc gia nhan vien trp. Khdng it trudng hgp cde nude Idn dung cdng cy ODA gdy dnh hudng chinh tri ddi vdi cdc nude nhdn ODA.
Cdng cu thdng tin tuyen truyen doi ngogi
Ddy eimg Id cdng cy hiiu hieu trong vide thyc hien myc tieu ddi ngogi, nhdt Id trong bdi cdnh eac nude ddu coi trpng sue mgnh mim bdn canh sue mgnh cung. Tuydn truydn la hogt ddng tdc ddng tdi tdm ly, tinh cdm cua cdc chd the quan he qude td nham eiing cd dia vi quoc te ciia qudc gia. Ket qud cua tuyen truyen la tac ddng den each suy nghi vd ung xu cua the gidi. Tuydn truyen cd nhieu hinh thuc, phuong phdp khde nhau nhu truyen thdng dgi chdng (bdo ehi, phat thanh, truyen hinh...), truydn thdng true tiep (trao ddi van hda, nghe thudt, tuyen truydn phdm..) di gidi thieu dudng Idi, chinh sdeh, ddt nude, eon ngudi, ddt nude minh vdi nhdn dan thd gidi.
Cdng cu qudn su
Cdng cu qudn sy la giai phdp cudi cung khi cdc gidi phap khde khdng giai quyit dupe mdu thuan giua eac chu the quan he qudc td. Vdi tinh toan, chiin lupc, sach lupc khde nhau, viec su dung cdng cu qudn su CO mue dp, quy md khde nhau nhu: de dpa su dyng vii lyc hay tryc tiip su dyng vii luc, xay dung chidn lupc qudn su, thiet lap lidn minh qudn sy. Khi chua tryc tidp su dung cdng cu qudn sy thi dung no dd de dpa, rdn de, ep ddi phuang, ddi tdc tren ban dam phdn, bieu duong
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lyc lupng vd uy the. V)?c su dung cdng cu bgo lue thudng ddn den he qua nghidm trpng nhu chay dua vii trang, lam cho quan he eye ky cang thdng, de Igi he qua ldn eho ddt nude, dnh hudng din hda binh, an nmh khu vyc va qudc te. Tdn Tu ndi: "Chidn tranh la dgi su qudc gia, quan he den sdng chet cua nhdn ddn, eiing quan hd tdi vide mdt edn cua qudc gia, khong thd khdng quan sat thdm rd rang".^'' Chinh vi v|.y, vide su dung cdng eu qudn sy true tiip, nhdt la chiin tranh quy md ldn phai tinh toan het sue can trpng.
Tdm Igi, chinh sdch doi ngogi la bd phan edu thdnh ehinh sach qudc gia, la sy tidp tuc cua chinh sach ddi n^i, suy cho cung phyc vu chinh sach ddi ndi-nhdm tranh thu diiu kien qudc ti thuan lai, han chi mat bdt lpi, Id dudng hudng hogt ddng cua qudc gia trong quan he vdi eac ehu thd khde tren trudng qudc te dua trdn lpi ich quoc gia ddn tpc.
Cd nhiiu nhan td tde ddng ddn vide hogch dinh chinh sdeh ddi ngoai gdm nhdn td khach quan, ehu quan, bdn trong, ben ngodi, trudc mdt, lau dai, it thay ddi va hay thay ddi, song nhdn td ting hpp, quan trpng nhdt Id loi ich qude gia dan tpc. Dd thuc hien myc tieu, nhiem vy chinh sdch ddi ngogi phai ed cac cdng cu va bien phdp nhu cdng cu ngoai giao, cdng cu kinh td, cong eu luat phdp, cdng cy tuydn truyin va eong ey bao luc.. .Viee lua chpn dung cdng cu va lieu luang din ddu, nhu the nao la tai nang cua ngudi lam chinh sdch.
" Ton Tit binh phdp, Nxb. Dong Nai, Bi^n H6a 1996, tr. 155.
figliiin ciu Quoc tksi 1 (104)
TAI UEU THAMKHAO
1. Dang Cong san Viet Nam, Van Icifn Dgi hoi XI, Nxb. Chinh tri Qu6c gia, H4 Noi 2011.
2. Duong Xuan Ngpc, Luu VSn An, Gido trinh Quan he chinh tri qudc te, Nxb. Chinh tri Qu6c gia, Ha Noi 2008.
3. Hoc vien Quan he quoc te, Tif dien thudt ngic ngogi giao Viet - Anh - Phdp, Nxb. Th6 gioi. Ha Ndi, 2002.
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5. Vfl Khoan, "An ninh, phat trien va anh huong trong hojt d6ng d6i ngoai". Tap chi Nghien citu quoc te, so 2(12), 1993.
6. Baris Kesgin, "Foreign Policy Analysis", in John T. Ishiyama and Marijke Breuning (eds), 2V' Century Poiitical Science: A Reference Handboolc, Thousand Oalfs, CA: SAGE Publications, 2011, (bien dich:
D4o Tuan Ninh, hieu dinh: Le Hdng Hiep).
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Theories-Actors- Cases, Oxford University Press 2008.
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