qUANTR!-QUANLY
VAI TRO CUA HCfP TAC CONG Tl/
TRONG CUNG CAP DICH VU CONG d Nl/CfC TA HIEN NAY
• NGUYIN HUY HOANG
TOM TAT:
Vai tro cua hdp tdc cong tff trong eung ffng dieh vu cdng drfdc phan tich trong bai vid't the hidn d viec cac hdp dong hdp tac cong tff trong cung cjfp dieh vu edng dd ed tinh Icha thi eao hdn, dd ddng tiep nhan ngudn vd'n tff thi trffdng tai chinh hdn vd tham ehi cac nha tai chinh dd cdn gdp vdn cung thffc hien kinh doanh. Day chinh la hinh thffc chia sd vai tro, ldi ich vd rui ro, Cdch thffc cung hdp tac nay chinh Id md hinh dd'i lac cdng Iff - PPP (Public - Private Partnership).
Tuf khoa: Hdp tac cdng tff, dich vu cdng, cung ffng dich vu, PPP.
1. Dich vu cdng va xa hdi hda dich vu cdng, h^p tac cong - trf trong cung u'ng dich vu cdng la gi?
1.1. Khdi ni$m dich vu cdng
Djch vu edng (DVC) Id khdi nidm ed xud't xff tffkinhte hoc edng cdng, ed quan he chat che vdi pham trii hang hoa cdng cdng. Theo y nghia kinh te'hpc, hang hda cdng cdng cd mpl so dac linh cd ban: khi da drfdc lao ra thi khd cd the loai trrf ra khoi vide sff dung nd; viec tidu diing cua ngrfdi nay khdng lam giam Irfdng lieu diing ciia ngrfdi khac; khdng the vrft bd drfde. Tai edc nrfde phffdng Tdy, thuat ngff "DVC" dffdc sff dung khd sdm va dffdc hieu ihd'ng nha't la cdng viec ciia Chfnh phu nham mang lai ldi ich cho cdng chiing;
cung cd'p cac hang hda cong cdng, thid't ye'u nhff didn, nffdc, truyen thdng, giao thdng van tai v.v) cho^ddn chung [6, lr.21].
CJ nffdc ta, khai niem vd DVC mdi dffdc srf
dung gan day, nen cdn ton tai nhieu y kien, quan nidm khdc nhau ve DVC. PGS.TS. Le Chi Mai da dffa ra khai nidm: DVC Id nhffng boat ddng phuc vu trffc tid'p cdc ldi ich chung thid't yd'u, cac quyen va nghia vu cdban ciia cac id chffc va ngffdi ddn do Nha nffdc dam nhan hay liy quyen cho ede cd sd ngoai Nha nrfdc thffc hidn nhdm dam bao trdt tff vd cdng bdng xd hdi .
Tff nhffng cd sd ly luan tren vd thffc lien cua nrfde ta, DVC cd the dffdc hieu: DVC id nhffng boat ddng phuc vu trffc lid'p cdc ldi ich chung thid't yd'u, cac quyen va nghia vu cd ban ciia cdc td chrfc va ngffdi dan do Nha nffdc dam nhdn hay liy quyen cho cac cd sd ngoai Nha nffde thffc hidn theo nguydn tac khdng vu ldi, dam bao trat tff va cong bang xa hpi.
1.2. Khdi niem xd hgi hoa dich vu cong Xa hdi hda dich vu cdng la mdt xu hffdng td't ye'u gan lien vdi phat trien kinh le' thi trrfdng va
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xay dffng Nhd nffdc phap quyen d tffng giai doan phat trien. Vi vdy, can tinh de'n hai ddc diem:
- Dieu kidn bdn trong ve nha nffdc vd xa hdi chffa quen vdi ydu cau xa hdi hda dich vu cdng, dat trong bd'i canh cd quan nhd nffdc chffa xda bd he't tinh trang quan lidu, crfa quyen, tham nhung, nan hoi Id...
- Nffdc la hdi nhap vdi nhffng nen kinh td' thi irrfdng va xa hpi da phdt trien cao nhffng van trong quy dao chu nghia tff ban, ehii nghia ba quyen. Do dd, phai phdn tich, lffa chpn vdn dung nhffng ffu the', tranh nhffng mat trai ciia thffc Id' nay dem lai.
1.3. Hdp tdc cong - td trong cung dng dich vu cong
Hidn nay, cd nhidu quan didm, dinh nghia ve md hinh hdp tdc Nha nffdc - Tff nhan hay hdp tac cdng - tff (PPP), nhffng chffa cd dinh nghia nao rd rang, thd'ng nhd'l. Theo quan diem eua Ngan hang Chdu A [2008], khdi niem tham gia cua khu vrfc Iff nhdn PPP la mpl thuat ngff thffdng dffdc sff dung hoan ddi vdi thudt ngff md'i quan hd dd'i tde Nha nffdc - Tff nhan. IVIpt khdi nidm khac ve md hinh hdp lac cdng-lff cung dffdc dung phd bie'n hien nay la; Md hinh hdp tdc Nha nffde vd Tff nhan hay cdn gpi la hdp lde cdng - tff la md hinh ma theo dd Nhd nffdc cho phep Tff nhan ciing tham gia dau iff vao cdc dich vu hodc edng trinh cdng cdng ciia nha nffde. [PPP-Handbook-VN;
ADB; 2007],
Cue Quan iy da'u thau- Bp Ke'hoach va Dau tff dinh nghia: PPP la hinh thffc Nhd nffdc va khu vrfc Tff nhdn cting thffc hidn dff an dau tff phat trien cd sd ha lang kinh td' - xa hpi, cung ca'p dich vu cdng trdn cd sd hdp ddng phdn chia rd trach nhidm, ldi ich va rui ro. Theo dd, mot phan hoac toan bd dff an se do khu vffc tff nhdn thffc hien tren cd sd da'u thau canh tranh, dam bao cdc ldi ich cdng ddng, dap rfng eae tidu chuan ve cha't Irfdng cdng trinh hoac dich vu do Nha nffdc quy djnh.
Theo Chinh phu dinh nghia: Dau iff theo hinh thffc dd'i tdc cdng tff la hinh thrfc dau tff dffdc thffc hien trdn ed sd hdp ddng girfa cd quan Nhd nffdc cd tha'm quydn va Nhd dtu trf, doanh nghidp dff dn de thffc hien, qudn ly, van hanh dffdn kd't cd'u ha tang, cung ca'p dich vu cdng [ND 15/2015/ND-CP; tr.2].
D^u tff theo hinh thffc dd'i tac cdng tff (sau day gpi tat Id PPP) la hinh thffc dau tff dffdc thffc hien trdn ed sd hdp ddng dff dn giffa cd quan nha nffdc cd tham quyen va nhd dau tff, doanh nghidp dff an de xdy dffng, cai lao, van hanh, kinh doanh, quan ly cdng trinh ha tang, cung cd'p dich vu edng.[ND 63/20l8/ND-CP;lr.2)
Y nghia eua hdp tdc cdng - tff trong y te' Hdp tac edng - tff trong cung cd'p dich vu cdng cd y nghia quan trpng nhff sau: Huy dpng vd'n tff nhdn cho llnh vffc cung ca'p dich vu cdng; md'i quan hd dd'i tde nha nffdc - tff nhan Id cdng cu de dat hieu qua ldn hdn; md'i quan he dd'i tac nha nffdc W nhan la cha't xuc tdc eho eai each khu vffe cdng rdng rai hdn.
2. Vai trd cua hdp tac cong trf trong cung cdTp dich vii cdng d nrfdc ta hidn nay
2.1. Ddi vdi phdt trien kinh ti'- xa hgi Xet tren pham vi ndn kinh td', md hinh PPP giup tang ndng sud't va sff dung cae ngudn Iffc sdn cd mdt each hidu qua hdn, td'i da hda gid tri ddng lien tff dau iff. Vide bat tay girfa Nha nffdc va Tff nhan cho phep cdng hffdng lot nha't the' manh cua eae bdn tham gia, thdng qua viec phdt huy sffc manh tdng hdp trong thie't kd', thi cdng, kinh doanh vd quan ly. Md hinh PPP eung khuyen khich sang lao trong hdp tac vd phd bid'n nhffng each lam tdt nha't.
Cai edch cdc llnh vffc thdng qua vide phan bo lai vai trd, ddng ed vd trach nhidm giai trinh. Cac chinh phu ddi khi coi md'i quan he do'i lac Nha nffdc - Tff nhdn la mdt cha't xuc lac kich thich viec thdo luan va cam kd't rdng rai hdn ve chffdng hinh eai each trong linh vffc, trong dd md'i quan hd ddi tde Nhd nffdc - Tff nhdn chi la mpt bp phdn cau thanh. Mdt va'n de then chd't la luon ludn phai tdi cd cd'u va lam rd vai trd ciia cac bdn. Dac biet, c^n kidm tra lai vd phdn bo lai vai trd ciia cdc nha hoach dinh chinh sdch, nha quan ly, nha cung cap dich vu, dae biet nham huy ddng vd'n va dat hidu qua.
2.1. Ddi vdi viic ddm bdo ngudn tdi chinh trong cung cap dich vyi cong
* Vai tro la ngudi bo vdn ddu tU Thdng qua hinh thffc PPP, khu vffe tff nhan co the la nha dau tff vd'n phat trien cae dff dn cua
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mdt qud'c gia. Dae biet vdi edc nffdc dang phdt trien, chinh phii ludn ludn trong tinh trang thid'u ngudn vdn can Ihie't cho eac dff an ndn vai trd eila khu vffe Iff nhan vl thd' cung quan trpng hdn. Chi phi dau tff ban dau cho dff an xdy dffng da la rd't ldn, nhffng vide bao tri va nang ca'p trong cac dff an PPP la thffdng xuydn vd ehi phi hdng ndm bd ra ciing khdng he nho, khu vffc tff nhdn cung cd the ddng gdp quan trpng vao qua trinh nay.
Thdng qua hinh thffc PPP, khu vffc tff nhan gdp phan giam ganh nang cho ngdn sach nha nffdc.
Ke ea vide cung cd'p cdc dieh vu ciia khu vffc iff nhan do chinh phii chi tra ed thd Idm thay ddi ganh nang kinh phi iff phffdng thffc truyen thd'ng thanh todn trffdc mpl khoan tien ldn sang mpt loat cac khoan thanh loan thffdng nien de quan ly va dff doan irffdc hdn trong sud't thdi gian eiia dff dn.
* Vai tro Id ngudn huy dong vdn.
De dap ffng dffdc nhu cau vd'n ldn cho dff an PPP, khu vffc tff nhdn cung thd hidn dffdc vai trd Hnh hoat hdn so vdi khu vrfc cdng trong vide huy dong vd'n. Kdnh d§n vd'n da dang, phong phu tff nhieu dd'i tdc khac nhau. Thong thffdng cac dff dn PPP do khu vffc cdng cdng dau tff, ngudn vd'n chii yd'u Id Iff ngan sach nha nffdc vd mdt phan tff nguon tdi trd cua ede ehinh phii va/hoac cdc td chrfc qud'c td'. Khu vffc Iff nhan thi ngffdc lai, ngudn vd'n dau iff ra'l da dang, ly Id vd'n chii sd hifu trong dff an do Idiu vffc iff nhan thffc hidn chi chiem 20-30% tdng gid tri dau tff eua ea dff dn, phan vd^n edn lai dffde phan cdn lai dffdc thffc hidn thdng qua cdc kdnh huy dpng vd'n.
* Vai trd Id ngudi sd dung hiiu qud dong von ddu tu trong cdc du dn PPP.
-Drfng tren binh dien xa hdi, khu vrfc tff nhdn thd hidn vai trd srf dung hidu qua ddng vd'n td't hdn so vdi khu vffc cdng thdng qua cde khia canh sau day: Cd cd che gidm sat tdi chinh chat che trong qud trinh tridn khai, vdn hdnh dff an, gidm thieu thd't thoat vd'n, giam td'i da chi phi vdn hanh, duy tri dff an.
- Khu vffc Iff nhdn cd the sff dung cd che thffdng phat rd rang hdn. Khu vffc iff nhan thffdng ehu dpng xdy dffng cd che'khuyd'n khich td't nha't cho cde nhd thau xay dffng, nha ihdu va/hode bp phan van hdnh dff an thdng qua cd che thffdng, phat.
- Td'i ffu hda ehi phi trong sud't vdng ddi dff an (vdi vide cung mot cdng ty chiu trach nhiem trf thid't kd', xdy dffng vd van hanh).
- Vide thanh loan cho cac nha thau tff nhdn dffdc rdng buoc vdi dich vu hoac sdn pham thffc srf dffde eung ffng.
- Tid't gidm dd'n mffe td'i da cdc cd'p quan ly tff dd gdp ph^n giara dang kd thdi gian va chi phi quan ly, nang cao hieu qua hoat dpng ciia dff an PPP.
* Vai trd Id ngUdi ndng cao gid tri thUOng mgi cho cdc tdi sdn trong cdc dti dn.
Thdng thffdng khi cae tdi san trong ede dff an PPP thupc quan ly eua nha nffdc thi lai san do khdng dffdc khai thac td'i ffu, cdc lien ich khdng drfdc sff dung tridt de va gdy ra Idng phi ngudn Iffe xd hdi. Khi cde dff dn PPP dffdc giao cho khu vffe tff nhdn, vdiky nang quan iy, linh sang lao va nhu cau td'i da hda ldi nhudn, khu vffc nay thffdng khai thdc day dii tiem nang thffdng mai ciia ede drf an PPP, do vdy td'i ffu hda gia tri ciia dff an.
2.3. Ddi vdi cdi cdch khu vdc cong Nhff dd neu tren, vdi vai trd eung ffng cde dich vu cdng, Nhd nffdc ludn la ngffdi chiu trach nhidm chii yd'u trong viec dam bao lai chinh de cung ffng cac dich vu cdng. Tuy nhien, vdi cdch huy ddng nguon vd'n dau tff chu yd'u tff nguon ngdn sdch va ODA nhff hien nay van chffa du dap ffng. Ly thuyet va ldnh nghiem thifc tien chi ra rdng khdng nha't Ihie't nha nffdc phai Id ngffdi eung cd'p trffc tie'p cac dieh vu edng dd'n tan tay ngffdi tidu diing (Ld Xudn Ba, 2005). Vdi hinh thrfc huy ddng ngudn vd'n bang hinh thrfc EOT, BT, BTO truyen thd'ng (khdng phai PPP theo dung nghia) nhff hien nay se khdng thffc sff hidu qua, thffdng ddn dd'n cham trd ve tie'n dd, ddu do cd drf an phai bd dd, do cac doanh nghidp trf nhan lie'p can ngudn vd'n tff thi trffdng tdi chinh gap khdng it khd khan va day todn bd rui ro cho nha dau tff tff nhdn. Cdn nd'u la doanh nghiep nha nffdc dam nhdn cac dff an do, thffdng ddn de'n tang chi phi phu irpi, va khdng hidu qua do qudn ly yd'u kem, cong nghd lac hau. Kinhnghiemqud'etd'eho tha'y, cung mdt dff an, neu nha nffdc cung ddng gdp vd'n tham gia thffc hien mdt dff an vdi dd'i tde tff nhdn, dffdn se dffdc thffc hien hieu qua hdn.
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2.4. Doi vdi ngddi dddc thu hddng cdc dich vyi cdng
Hinh thffc hdp tde edng tff mang lai ldi ich cho ea nha nffdc vd ngffdi dan vi tan dung dffdc ngudn Iffc tdi chinh va nang life quan ly tff phia tff nhan, giam gdnh nang dau tff ciia nha nffdc trong khi van bao dam ldi ich cho ngffdi ddn va xd hdi. Mac dii dau tff vao cac dif an PPP thffdng lau thu hdi vd'n va ldi nhuan cd the tha'p hdn so vdi nhieu hinh thffc dau tff khdc nhffng viec dau iff theo hinh thffc PPP thu hut srf quan tam ciia cdc nha dau tff trf nhdn vi mffc dp rui ro lai tha'p hdn khi ed mdt khung phdp ly on dinh va do cd sif tham gia eua Nha nffdc.
Khi ap dung hinh thrfc hdp tae cdng - iff, ca nha nffde va doanh nghiep cung cd ldi. Hdp tac cdng- tfftrffdehe'tnhamhuy ddng cde ngudn vd'n ciia tff nhdn tham gia vdo eung vdi nhd nffde trong cung ca'p cac dich vu dap ffng cde ydu cau eiia xa hdi, giup Chinh phu giam bdt ganh nang chi ngan sdch eho vide trffc tid'p eung cd'p dieh vu, qua dd gidm bdt thdm hut ngdn sdeh nha nffdc, tdp trung ngudn ngan sdch vao cac hoat dpng bao dam cdng bang vd an sinh xd hpi, trd giup nhrfng dd'i tffdng thidt thdi nhff ngffdi ngheo. Tuy nhien, ldi ich ciia hdp tde cdng - tff khdng chi dffng lai d dd ma thdng qua viec hdp lac cdng - iff, Nhd nffdc cdn dffdc nang cao kha nang tie'p can cac thanh tffu khoa hpc - cdng nghd tidn tid'n va tang cffdng hidu qua sff dung ngudn vd'n ngdn sach.
Hinh thffc PPP dffdc thrfc hien can cd dieu kidn dam bao viec thu hoi vd'n dau tff, va ngffdi srf dung dieh vu can phai tra phi sff dung de thu hdi cac khoan dau tff ban dau va duy tri bao dffdng cdng trinh sau nay. Trdn thffc te', cdc khoan phi trffc tie'p thu tff ngffdi sff dung (nhff phi sff dung drfdng) thffdng Id ngudn thu chii ye'u dd hoan vdn dau iff ban dau. Sd' Iffdng ngrfdi srf dung tang ldn cd the
giiip tang cffdng kha ndng tdn lai va chi tra dich vu, theo dung quy ludt kinh Id' quy md ldn, Ngu'di sff dung ngoai vide ed trach nhiem chi tra phi si dung dich vu edn ed quyen ldi: (i) tham gia vao qua trinh trao ddi ve kha nang va sff san sang thanh toan dich vu cua minh nham dam bdo c6 dffdc gia ca hdp ly, (ii) ndu ra ydu cau vd ch^t Iffdng vd mffc do cua dich vu dd dam bao ch^t Iffdng dieh vu dffdc phuc vu vd ydu e^u tang trdcti nhidm giai trinh va kha ndng phan hdi nhanh.
Chuydn ganh nang thanh loan tff ngffdi chiu thud' sang ngffdi ddu diing Id mdt ldi thd' ra'l ldn ciia md hinh PPP, nd tao ra sff edng bang hdn trong xa hdi. Ne'u lay thud' (eiia todn ddn) de diu Iff cho dff an phuc vu eho rapt cdng ddng nhd hdn trong khi nhffng ngffdi ddng thud' khde khdng dffdc hffdng ldi ich tff dff dn theo md hinh truyen thd'ng thi se bd't hdp ly. Cac nhd eung cd'p tff nhan dffdng nhff thuc day sff dich chuyen vide thanh loan sang cho ngffdi srf dung dieh vu bdi vi muc dich ciia hp la doanh thu va bii dap chi phi.
3. Ke't luan
Hdp tdc giffa khu vifc cdng vdi khu vffc tff nhan trong cung edp dich vu cdng la mpl xu hffdng phd bid'n trong the' gidi ngay nay gdn vdi qua trinh cS^u triic lai khu vffc cdng, phdt huy vai trd vd ban che cdc tha't bai cua thi trffdng, phffc hdp hda mat tich cffc ciia Nhd nffdc vd thi trffdng trong mdt md thflc td chffc va quan ly (mo thffe PPP). Dd'i vdi Viet Nam, vd'n Id mdt qud'c gia da tffng theo dudi m6 binh kinh td' "cdng brfu, kd' hoaeh hda, phi thi Irffdng" - md d do Nha nffdc ddc quyen trong ta't ca cac khau dau tff, quan ly, td ehffe he thd'ng cung ffng hang hda - dieh vu va chi tra phi - chuyen sang mo hinh kinh td thj trffdng dinh hffdng xa hdi ch5 nghia, cang dat ra nhu cau bffc thie't phai ddi mdi khu vifc cdng va phdt trien khu vffe tff nhan hdn nffa •
TAI LIEU THAM KHAO:
/. Le Chi Mai (2003), Cdi cdch dich vu cdng d Viit Nam, Nhd xud't bdn Chinh tri Qudc gia. Hd Ndi.
2. ADB (2008), Mdi quan he ddi tdc nhd nUdc - tU nhdn.
3. ADB (2008). Mdi quan he ddi tdc nhd nUdc - tu nhdn, Ngdn hdng Phdt trien chdu A.
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4. Asian Development Bank (2007), Public Private Partnership Handbook.
5. Nguyin Cue Phuong (2011), Hop tdc cdng- lU: Cin ddnh gid lai quan he gida Nhd nUdc vdi ngUdi dan vd doanh nghiep, Bdo Diin dan Doanh nghiip (htlp://dddn.com.vn).
6. Bdng Cong sdn Viet Nam (2011). Vdn kiin Dgi hdi Ddng todn qudc ldn thii XL Nhd xud't bdn Chinh Iri Qudc gia, Hd Npi.
7. Nghi dinh sd 15/2015/ND-CP cua Chinh phu: Ve ddu lU theo hmh thiic ddi tdc cdng tU 8. Nghi dinh sd 63/2018/ND-CP cda Chinh phd: Vi ddu lu theo hinh thiic ddi tdc cdng tU
9. Ddng Khdc Anh (2013), Hpp tdc cdng tu- vd vai trd ciia hpp tdc cdng tu trong phdt trien, Tgp chi Gido due ly ludn sd 196.
10. Ddng Khdc Anh (2013). Cdc hinh thdc hgp tdc cdng - tu, Tgp chi Gido due ly ludn sd206.
11. Xudn Bdch (2012). Doanh nghiep khd hgp tdc cdng - lUve cdng nghe thdng tin. www.ictnews.vn. ngdy 9/1/2012.
I2.Vu Phdp che (2011), Hodn thien khung phdp ly ve hop tdc gidanhd nudcvd tUnhdn, De tdi khoa hgc cap Bd, Bp Ke hoach vd Dau lU.
Ngay nhdin bai: 18/1/2019
Ngay phan hien danh gia va su'a chu'a: 2S/1/2019 Ngay chdfpnh^n dang bai: 8/2/2019
Thdng tin tdc gid:
ThS. NGUYEN HUY HOANG Hpc vidn Hanh chinh Qud'c gia
THE ROLE OF PUBLIC-PRIVATE PARTNERSHIP IN PROVIDING PUBLIC SERVICES IN VIETNAIVI AT PRESENT
• Master. NGUYEN HUY HOANG National A c a d e m y of Public Administration
ABSTRACT:
The role of public-private partnership (PPP) in providing public services vi'hich is analyzed in this article demonstrates that PPP contracts are more feasible and easy to receive funds from financial markets, even thoes financial providers contribute their capital to projects. The PPP model is a way of sharing roles, benefits and risks. This cooperation way is the model of public-private partnership.
Keywords: Public-private partnership, public services, providing services, PPP.
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