Kinhl«
va Drfbao
De xuat phifofng phap va Bo tieu chi xay dutig Danh muc di/ an uU tien
dau tu* phue vu lap quy hoach
NGUYIN LE VINH*
Tom tat
Bdi viet phdn tich mgt sd diem bdt cap ton tqi trong qud trinh xdy dytng danh muc dyt dn Uu tien ddu tu trong cdc bdo cdo quy hoqch. Tren ca sd dd, nghien cdu di xudt mdt phuang phdp vdi 2 budc, gom: Di xudt y tudng dyt dn, Ddnh gid mvtc do Uu tien ddu tu cda dyt dn; vd Bg 15 tieu chi de xdy dung Danh muc du dn Uu tien ddu tu cd hieu qud han, gdp phdn ndng cao chdt lugng cdng tdc lap quy hoqch.
T«f khoa: bdo cdo quy hoqch, bg tieu chi, danh muc dyt dn Uu tien ddu tu, lap quy hoqch Summary
The paper analyzes some shortcomings in the process of building the investment priority project portfolio in the planning reports. Based on that, the study proposes a method with 2 steps, including:
Project idea proposal. Investment priority assessment; and a set of 15 criteria to build a portfolio of more effective investment priority projects, contributing to improve the quality of planning.
Keywords: planning report, set of criteria, investment priority project portfolio, planning
^ Gl6l THIEU
Ngay 24/11/2017, Qudc hpi da thdng qua Luat Quy hoach sd 21/2bl7/QH14.
De thffc thi Luat nay, ngay 05/02/2018, Chinh phu da ban hanh Nghi quyet sd' 11/NQ-CP ve trien khai thi hanh Luat Quy hoach. Cd the ndi, cdng tac lap va quan ly quy hoach eua nffdc ta da bffdc sang mdt trang mdi, ddi hdi phai dap ffng cac yeu cau cao hdn va khoa hpc hdn.
Tuy nhien, de gdp phan nang cao hdn nffa chat Iffdng cdng tac lap quy hoach, giiip cho npi dung cua quy hoach dffdc thffc thi cd hieu qua trong eupc sdng, nha't la khi cac ngudn life chi la hifu ban, thi viec nghien ctfu, tim ra mdt phffdng phap, hay Bd tieu chi trong viec xay dffng Danh muc dtf an ffu tien la can thiet va cap bach.
THl/C TI^ANG LL/A CHON D l / A N l/U TIEN DAU TU'THOfl GIAN QUA
Thdi gian qua, viec xay dffng danh muc dff an ffu tien dau tff trong cac bao cao quy hoach cdn bdc Id nhieu diem ye'u. Cu the nhff:
Thd nhdt, viec de xua't y tffdng dff an dau tff mdi dffng lai d mffe lap bang tdng hdp y kien cua dia phffdng va cac nganh, ddn vi de xua't len. Vi vay, cdn mang nang tinh chu quan cua ca nhan ngffdi viet quy hoach hoac cd quan lap quy hoach, ma chffa thd'ng nha't theo phffdng phap va nguyen tac khoa hpc cu the nao. Do do, mdt sd' dff an khdng mang lai ldi ich chung, khdng nhan dffdc sff ddng thuan cua so ddng, tham cbi bi cho rang, de xua't dff an da bi chi phd'i bdi nhdm ldi ich, nha't la cac dff an dau tff sff dung ngudn vd'n dau tff cdng.
Thd hai, viee xac dinh mffe dp ffu tien ciia eac chffdng trinh, dff an de Iffa chpn dff an nao can phai dffdc ffu tien hdn va sap xep dff an theo mffe dp ffu tien dau tff chffa cd nhffng tieu chi rd rang, cu the de danh gia. Dieu nay dan den viec Iffa chpn Danh muc dff an ffu tien dau tff chffa mang lai hieu qua cao, nhff: Danh muc dff an ffu tien cdn dan trai, chung chung vdi mffe dp ffu tien nhff nhau, chii yeu xap xe^p theo nganh, ITnh vffc va chffa xac dinh dffdc mffe dp ffu tien dau tff cho tffng dff an; Mdt so'dff an dffdc de xua't chffa thifc sff gan vdi viec thifc hien phffdng hffdng phat trien trong cac quy hoach dffdc lap, chffa cu the hda dffdc cac phffdng an phat trien ma muc tieu quy hoach da de ra. Hay, mdt sd' dff an da dffdc sap xep trong danh muc dff an ffu tien dau tff, song tren thffc te lai khdng dffdc ffu tien dau tff do khdng bd' tri dffdc ngudn vd'n de thffc hien.
*ThS., Vien Ctiien lifdc phat trien I Email: [email protected]
Ngdy nhan bdi: 30/10/2018; Ngdy phdn bien: 14/11/2018; Ngdy duyet ddng: 21/11/2018
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din den tinh trang quy hoach treo cdn phd bien, anh hffdng den ddi sd'ng san xua't, sinh boat ciia nhan dan...
Danh muc dff an ffu tien dau tff trong cac bao cao quy hoach dffdc lap chffa dem lai hieu qua cao dd'i vdi qua trinh thffc hien tren thtfc te va chffa thffc sff dffdc danh gia cao! Do dd, viec de xua't va thdng nha't mot giai phap mdi nham khac phue cac nhffdc diem ndi tren, dap ffng cac yeu cau thifc hien Luat Quy hoach la rat can thiet.
DE XUAT PHU'ONG PHAP VA TIEU QHI XAC DjNH VA LL/A CHON DU" AN U'U TIEN DAU TU"
Ve phffdng phap, de xay difng Danh muc dff an ffu tien dau tff, can thffc hien qua 3 bffdc, nhff sau:
Budc I: De xua't y tUdng dU dn ddu tU. Khi tham gia cac hdp phan trong qua trinh lap quy hoach, cac ddn vi tff van lap quy hoach se de xua't y tffdng dff an dau tff theo dinh hffdng cua quy hoach, ma chffa can quan tam tdi viec dff an dd thudc ngudn vd'n dau tff nao. Viec de xua't dff an dau tff la mdt bffdc quan trpng va quyet dinh kha ldn den chat Iffdng cua danh muc dif an ffu tien dau tff. De dam bao dat hieu qua cao, viec de xua't dff an dau tff can dam bao tuan theo Bd tieu chi thff nha't bao gdm cac chi tieu dinh tinh, nhff sau:
- Phu hdp vdi cac luat, van ban phap luat hien hanh.
Phu hdp vdi chie'n Iffdc, quy hoach cap cao hdn va chinh sach phat trien cua qud'c gia.
Phu hdp vdi quan diem, muc tieu, dinh hffdng quy hoach dang dffdc lap. Trong dd, cu the hda phffdng hffdng, muc tieu phat trien, ma quy hoach da de ra;
hoac nham giai quyet nhffng tdn tai, khac phue nhffng khd khan, thach thffc da dffdc neu va danh gia trong ndi dung hien trang phat trien ciia quy hoach dang dffdc lap.
Phai dam bao an ninh qud'c phdng, hda binh, dn dinh chinh tri cua qud'c gia. Cu the: Dff an khdng dffdc vao viing dang cd tranh chap qud'c te ma chffa cd sif thd'ng nha't rd rang, vi tri dff an khdng dffdc vao vung cam trong viec dam bao an ninh qud'c phdng do Bd Qud'c phdng va cac cd quan cd Uen quan de xua't (neu dff an vao nhffng vi tri nay, can xem xet day phai la dff an khdng chuyen nbffdng dff an dffdc...).
Ndi dung, tinh chat dff an phai dam bao trat tff va an toan xa hdi trong nffdc.
Mang lai ldi ich kinh te - xa hdi tich cffc, nang cao tinh hieu qua tdng the ciia phffdng an quy hoach dffdc lap, day manh tang trffdng va phat trien kinh te - xa hpi mdt each toan dien hdn.
Dam bao tinh ke thffa nhffng mat tich ctfc, tranh lang phi tai san, cdng sffc thffc hien ciia cac the he trffdc, trong cac giai doan trffdc.
Phai giai quyet va xua't phat tff nhu cau thie't yeu cua xa hdi tren thffc te. Vdi nhffng de xua't dff an khdng phai la nhu cau thiet ye'u, thi viec thffc hien dff an phai mang lai ldi ich cho sd ddng, dff bao se dffdc ddng dao xa hdi, nhan dan va chinh quyen dia
phffdng khdng phan dd'i, ma ddng thu$n va mong ddi.
Cd y nghia thffc tien va ap dung dffdc vao thffc tiln tai Viet Nam.
Dif an dau tff phai cd kha nang thifc hien dffdc, cd kha nang huy ddng cac ngudn life khac nhau de thffc hien, nhif:
ngudn vd'n, ngudn nhan life, khoa hoc cdng nghe...
Nhffng de xua't y tffdng chffdng trinh, dff an dau tff tai dia ban dac biet quan trpng dd'i vdi qud'c gia ve qudc phdng, an ninh; nhffng dif an ddi hdi phai ap dung cd che, chinh sach dae biet; dff an ma cd che chinh sach thffc hien chffa cd hoac chffa phu hdp vdi quy dinh cua he thdng luat phap Viet Nam, neu thffc hien can phai de xua't chinh sffa, bd sung luat, thi de xua't y tffdng dtf an vin dffdc dffa vao danh muc dff an song phai xin y kien Qud'c hdi. Nhffng dff an dau tff tai dia ban dac biet quan trpng dd'i vdi qudc gia ve qudc phdng, an ninh phai dam bao dff an khdng bi chuyen nhffdng, chuyen nbffdng 1 phan dff an, chuyen nhffdng cd phan, cd phieu cdng ty, ban dat va tai san tren da't cho cac dd'i tac khdng co ldi vdi Viet Nam. Do dd, viec dff an co dffdc thffc hien hay khdng la do Qudc hpi quye^t dinh.
Budc 2: Ddnh gid mdc dg Uu tien ddu tu cua cdc dU dn. Sau khi cac ben tham gia lap hdp phan quy hoach da de xua't danh muc dif an ffu tien dau tff cua nganh, ITnh vtfc minh phu trach, cd quan ddn vi la dau mdi tdng hdp quy hoach se tdng hdp tat ca cac de xua't dtf an cua cac ben tham gia lap hdp phan quy hoach va tie'n hanh xem xet, danh gia mffe do ifu tien dau tff cua tffng dif an.
De danh gia mffe dp ffu tien cua tifng dff an, kien nghi siir dung phffdng phap cham diem theo mdt Bd tieu chi bao gom cac chi tieu dinh tinh va dinh Iffdng. Vdi cac chi tieu dinh Iffdng, trong giai doan nay, chffa can tinh toan cu the va chinh xac, song cd quan tdng hdp se phai suf dung cac phffdng phap khoa hpc khac nhau va ffdc tinh sd bp cac chi tieu dinh Iffdng nay de cham diem. Mdi dff an dap ffng mpt tieu chi se dffdc cho mdt diem, cd ap trpng so cho 5 tieu chi dau tien. De xua't Bd tieu chi gdm 15 tieu chi cu the nhff sau:
1. lfu tien dyt dn cdp bdch, khdn cap- Dtf an khan cap la dtf an dau tff theo quyet dinh ciia cap cd tham quyen nham khac phue kip thdi van de cap bach hoac
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Kinh teva Dtf baobffc xue cua nhan dan, nhff: sff cd thien tai, dam bao an ninh qud'c phdng, an toan xa hdi,^ chii quyen bien dao va cac trffdng hdp bat kha khang khac. Mac du cd quan lap quy hoach khdng xac dinh dffdc trffdc dff an khan cap, nhffng neu trong qua trinh lap quy hoach lai ed quyet dinh cua cap cd tham quyen ve viec lap va thffc hien dif an khan cap, thi cung can dffdc dffa vao danh muc dif an ffu tien dau tff de cd ke hoach bd' tri vd'n va cac ngudn life de thffc hien.
2. Uu tien theo cdp quy hoqch. Dff an dau tff dffdc de xua't tai quy hoach cap cao hdn se dffdc ffu tien so vdi dff an tai quy hoach cap tha'p hdn.
3. Uu tien theo vdng, vi tri quy hoqch.
Dff an cd vi tri thudc eac vung sau se dffdc ffu tien hdn, nhff: Vung kinh te ddng life ciia qud'c gia, ciia vung, nhff: khu kinh te^, dac khu kinh te, vung kinh te trpng diem...
dffdc ffu tien de tang cffdng vi the cua cac vilng trpng diem va day manh phat trien kinh te xa hdi eac vung trpng diem;
Vung dffdc lfu dai dau tff theo danh muc cac dia ban dffdc hffdng chinh sach tfu dai dau tff cua cd quan cd tham quyen (vung khd khan, vung bien gidi, bien, hai dao...).
4. Uu tien theo tinh chdt vd ITnh vytc thytc Men cda dyt dn. Cu the nhff sau:
Chffdng trinh muc tieu qud'c gia dffdc ffu tien hang dau; Chffdng trinh, dff an dau tff cdng ve ITnh vffc ket cau ha tang kinh te' - xa hdi thie't yeu phue vu chung; Chffdng trinh, dff an phue vu an sinh xa hdi; De an nghien cffu khoa hpc, cdng nghe phue vu chung; Dff an thudc ITnh vffc ap dung khoa hpc, ky thuat va cdng nghe cao ciia the' gidi.
5. Uu tien dyt dn ddu tU dd dugc cdp cd thdm quyen cho y kien, hoac dyt dn cda giai doqn quy hoqch trudc da dffdc dffa vao danh muc dff an tfu tien dau tff ciia quy hoach da dffdc phe duyet trong giai doan trffdc day, da cd trong Danh muc ke hoach dau tff, nhffng do thie'u vd'n, nen chffa dffdc thffc hien. Mac du cae yeu to' kinh te xa hpi da cd nhieu thay ddi, song viee thffc hien dff an trong thdi ky quy hoach mdi vin rat can thiet, thi tieu chi nay cung dffdc xem xet la mdt tieu chi ffu tien cho dtf an.
6. Uu tien dyt dn md sdn phdm cda nd thugc Danh muc sdn phdm qudc gia dugc Thd tudng Chinh phd phe duyet theo tdng thdi ky.
7. lfu tien theo quy md cda dyt dn. Dif an cd quy md ldn, la tru cdt, dot pha cho
phat trien dffdc ffu tien theo thff tff, nhff sau: Dff an quan trpng qud'c gia, rdi tdi dff an nhdm A, dif an nhdm B, dtf an nhdm C.
8. Dyt dn tqo ra tinh lien ke't, ke't nd'i mqng ludi viing, nganh, do thi, lien ket chudi doanh nghiep quan trpng tren toan cau...
9. Uu tien dyt dn dam bdo lgi ich cda Nhd nude, nhdt Id lgi ich kinh te vd chuyen giao khoa hgc, cdng nghe.
Ldi ich kinh te cua Nha nffdc phai dffdc dam bao, tranh trffdng hdp trai tham dd ffu dai dau tff song Nha nffdc bi that thu thue. Chi tieu nay ddi hdi ngay tff khi danh gia dff an, cd quan lap quy hoach da phai sii" dung cac phffdng phap khoa hpc khac nhau, nhff: phffdng phap ty sua't ldi nhuan binh quan, phffdng phap gia tri hien tai thuan... de tinh toan, dinh Iffdng sd bd ldi ich kinh te va hieu qua cua dff an dau tff ben canh eac ldi ich xa hdi khac.
10. Du dn mang Iqi nhiiu phdc lgi xd hdi, nhff: tao nhieu viec lam cho lao ddng trong nffdc va lao ddng dia phffdng; tien Iffdng binh quan cho ngffdi lao ddng cao; nhieu phue ldi cho ngffdi lao ddng, nhff: hd trd nha d, sffc khde, bao hiem, giao due dao tao... cho ngffdi lao ddng.
11. Du dn ndng cao danh du, uy tin, vi the cda Viet Nam tren trudng qud'c te.
12. Uu tien dyt dn du bdo se thu hdt mqnh me nguon vdn ddu tu tu nhdn, thu hut dffdc nhieu nha dau tff, giam ganh nang td'i da cho ngan sach nha nffdc, phu hdp vdi cac muc tieu ve cd cau lai dau tff cdng, giam manh ty trpng vd'n dau tff ciia Nha nffdc. Neu la dff an dau tff cdng, ffu tien dff an khdng phai vay vd'n nffdc ngoai, nha't la vay nang lai, ma cac the' he mai sau phai ganh nd. Neu dtf bao dff an phai vay nd nffdc ngoai, can ffu tien cac dtf an cd mffe vay it, lai sua't tha'p, dam bao kha nang tra nd va dam bao chi tieu an toan nd cdng.
13. Dudn md tinh chdt ddm bdo mvtc do an todn cao cho mdi trUdng, khdng pha vd cau true sinh thai mdi trffdng hien cd, ban che td'i da viec xff ly d nhiem mdi trffdng, ban che'td'i da sii" dung da't lua, dam bao an ninh Iffdng thifc, phat trien ben vffng trffdc bien ddi khi hau cung dffdc ffu tien hdn.
14. Uu tien dU dn md thdi gian thytc hien dyt dn ngdn hqn han, ke^t qua cua dff an nhanh chdng dffdc sff dung, ap dung vao eupc sd'ng.
15. Uu tien dU dn cd thdi gian hodn vd'n nhanh han, sii" dung cac phffdng phap khoa hpc khac nhau (phffdng phap thdi gian hoan vd'n dau tff...) de xae dinh thdi gian hoan vd'n, danh gia mffe dp kha thi cua mdt dff an.
Budc 3: Lap bdng danh muc dU dn Uu tien ddu tU.
Trong bffdc nay, cd quan tdng hdp quy hoach se can cff theo Luat Dau tff cdng va cac van ban phap luat ed lien quan de phan loai cac dff an da dffdc de xua't thanh 3 bang theo ngudn vd'n:
(1) Bang Danh muc dff an dau tff cdng ffu tien dau tff dau tff (bao gdm ca dau tff bang hinh thffc dd'i tac cdng tff, cac dff an khan cap). Dff an dau tff cdng chu ye^u tap trung bd' tri cho cac chffdng trinh muc
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tieu qud'c gia, dff an quan trpng qud'c gia, dff an trpng diem, dff an ha tang ky thuat phue vu chung, cd tinh ket nd'i va lan tda vung, mien va cac dff an thudc nganh, ITnh vffc ma cac thanh phan kinh te' khac khdng mud'n dau tff;
(2) Bang Danh muc dff an can keu gpi thu hut dau tff trong nffdc va nffdc ngoai;
(3) Bang Danh muc chffdng trinh, dtf an, de an can phai trinh Qudc hdi quyet dinh.
Sau khi cac chffdng trinh, dff an dau tff da dffdc danh gia va cho diem, tien hanh Iffa chpn, sap xep lai vao bang Danh muc dff an theo thff tff tff diem cao den diem tha'p hdn, theo tam quan trpng tff tren xud'ng dffdi. Cae dff an dap ffng nhieu tieu chi nha't va cd sd' diem cao nhat se la cac dif an trpng diem tfu tien dau tff, dffdc dffng dau trong bang danh muc cac dff an ffu tien dau tff. Cac dff an nay can phai cd chffdng trinh, ke' hoach bd' tri vd'n va ngudn life thffc hien ngay trong thdi ky dau cua quy hoach. Cac dff an tha'p diem hdn se la cac dff an ffu tien dau tff trong giai doan tie^p theo. Va cud'i cung, cac dff an tha'p diem nha't la cac dff an d cud'i danh muc dff an dau tff va se dffdc dau tff trong giai doan cud'i cung cua thdi ky lap quy hoach.
Can cff vao sd diem nay, mdi bang dffdc chia ra cac giai doan thffc hien dff an, gdm: dau tff trong giai doan dau, trong giai doan trung ban va dai ban. Danh muc Dff an trpng diem ffu tien dau tff va dff an ffu tien dau tff dffdc chpn Ipc va ban che ve so Iffdng, nha't la vdi cac dff an dau tff cdng. Vdi cac de xua't y tffdng dff an khdng dffdc tfu tien dau tff, kien nghi van se thd'ng ke cud'i bang danh muc, khdng ban che sd Iffdng vdi muc dich de tham khao cho thdi ky quy hoach sau hoac thu hut vd'n dau tff tff nhan.
Danh muc dff an ffu tien dau tff nay se dffdc cdng bd' khi cdng bd' quy hoach. Dd se la thdng tin hifu ich giup cho cac cd quan quan ly nha nffdc, cac doanh nghiep, td chffc ca nhan dffdc biet va thffc hien theo dung dinh hffdng ma quy hoach da de ra.
Ben canh danh muc dff an dau tff do cac cd quan tham gia lap va quan ly quy hoach de xua't dff an, cac de xua't dff an cua khd'i doanh nghiep sff dung ngudn vd'n khac cung can dffdc lap danh sach de xem xet sff phil hdp vdi dinh hffdng phat trien ciia quy hoach, ddng
thdi bd sung trong cac giai doan quy hoach tiep theo.
KET LUAN
Tren day la mdt so de xua't bffdc dau ve ddi mdi phffdng phap lap danh muc dff an ffu tien dau tff trong cdng tac lap quy hoach, dap ffng viec thtfc hien tdthOn Luat Quy hoach mdi dffdc ban hanh. De cd the dffa ra mpt phffdng phap tdi ffu, dap ffng nhu cau mong mdi ve nang cao chat Iffdng quy hoach cua xa hdi, trong thcli gian tdi, can tiep tue ed nhffng nghien cifu sau hdn va toan dien hdn nffa ve van de nay. Ddng thdi, cac ket qua nghien cifu ve phffdng phap, chi tieu xac dinh dif an ffu tien dau tff can dffdc quy dinh cu the trong cae van ban quy pham phap luat ve thffc hien quy hoach de eac de xua't ve Bp tieu chi dffdc ap dung tren thtfc te, nang cao chat Iffdng lap quy hoach.
Mat khac, de thffc hien thanh cong mpt dff an dau tff, ben canh nhiem vu ciia cdng tac lap quy hoach la de xuat dif an; danh gia, Iffa chpn va xay difng thanh cdng Danh muc dtf an ffu tien dau tff, thi cac cdng doan khac cua qua trinh thffc hien dtf an, nhff: Bd tri, can dd'i ngudn vd'n trong kha nang ngan sach vdi dff an dau tff cdng, day manh thu hiit dau tff vdi cac dff an keu gpi dau tff; Lifa chpn nha thau, nha dau tff cd du nang life va uy tin, vdi nha dau tff nffdc ngoai, ffu tien nha dau tff cam ket chuyen giao cdng nghe, cd Id trinh ddng thue hieu qua, cd quan he td't vdi Viet Nam; Tham dinh, danh gia va giam sat thffc hien dau tff sau khi da ca'p phep dau tff ciing rat quan trpng va can phai dffdc nghien cifu, phd'i hdp thffc hien td't de dam bao viec thffc hien dff an mang lai hieu qua kinh te' xa hpi cao nha't, ma dinh hffdng quy hoach da de ra.Q
TAILIEUJHAM KHAO
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3. Chinh phii (2018). Nghi quye't so 11/NQ-CP, ngdy 05/02/2018 vi trien khai thi hdnh Luat Quy hoqch
4. Vien Chien Iffdc phat trien (2011). Xdc dinh thd tu Uu tien ddu tUphdt trien ke't cdu ha tdng vdng ven bien Ddng bdng sdng Hong, De tai khoa hoe cap Bd
5. Vu Quan ly Quy hoach (2015). Ky ye'u Hgi thdo qud'c te'vi Xdy dung Ludt Quy hoach 6. Jeong Ho Kim, Cao Ngpc Lan, Nguyen Le Vinh, Nguydn Dang Hffng (2()14). Chinh sdchphdt tnen kinh te vung ben vungdHdn Qud'c vd bdi hgc kinh nghiem cho Viet Nam, Ky yeu Chffdng trinh chia se kinh nghiem Viet Nam Han Qud'c (KSP)
