D l f z N D A N T R A O D O I
M O T S O G I A I P H A P P H A T T R I E N K H U C O N G N G H I E P
• • Of C A C D I A P H U O N G H I E N N A Y
PGS.TS. NGUYEN THE TRAM
Hoc vien Chfnh trj - Hanh chinh khu vUc Hi
Hoc vien Chfnh tri - Hanh chfnh qudc gia Ho Chi Minh
The development of industrial zones has significantly contributed to economic transformation process, employment creation and accelera- tion of economic growth as well as socio-economic development in many provinces. Nevertheless, currently in some provinces there exist phenomenon of following the crowd in industrial zones development with focus being given to the flourishing development of industrial zones and clusters without careful considerations to the price for process, resulting in unexpected consequences.
In order to improve efficiency of industrial zone development in provinces and overcome existing shortcomings, it is required to concen- trate on the following solutions: make a review of all industrial zones and clusters located in each province. At the same time, to make a review of all master plans, provincial socio-economic development plans and industrial zones and clusters development plans; to make classification of land in line with utilization purposes such as land for agricultural pro- duction, land for industrial production, land for service development...; for industrial zones development projects that acquire land from farmers, it is advisable to adopt legal procedures to allow proper compensations as well as job creation for land losers.
1. Mot sd han che trong viec phat trien cac khu cong nghifp hifn nay
SU phat trien cua cac khu cong nghiep (KCN) da dong gop khong nhd vao qua trinh chuyen dich cd cau kinh te, giai quyet viec lam cho ngddi lao dong, thuc day sd tang trddng, phat trien kinh te - xa hpi cua cac dia phddng. Tuy nhien, nhieu dja phdong dang chay theo phong trao phat trien cong nghiep hda, trong dd tap trung phat trien manh cac khu, cum cdng nghiep, ma thieu sd can nhac ve cai gia phai tra, cu the la:
- Xu the dja phdong nao cung phai cd KCN, dua nhau phat trien cac KCN dang dien ra mac du nhieu dja phddng chda du kha nang hoac cd the phat trien nganh nghe, Imh vdc khac thuan lpi hpn. Co tinh mac du dien tich va dac diem khong thuan lpi cho viec phat trien cac KCN, song cung tim each phat trien cho bang ddpc. Tinh trang ho hao, thu hut cac dd an dau td nddc ngoai vao KCN ma khdng cd sd chpn Ipc xay
ra d nhieu ndi, tham chi "trai tham hoa" mdi cac nha dau td nddc ngoai bang each cho thue hoac ban nhdng vj tri, dia diem ma nha dau td mong mudn. Tuy nhien, tren thdc te chi cd khoang 12% dja phddng thu hut ddpc cac dd an quy mo ldn cd ham Idpng cdng nghe va chat xam cao, cdn lai da sd' la nhdng dd an cd quy md trung binh va ve mat nao dd khdng phat trien ddpc d nddc sd tai nen tim each dau td vao nddc ta nham sinh ldi trong mpt thdi gian rdi ke't thuc. Khdng it nha dau td tinh den viec "an xdi d thi"
vdi muc dich chi dau td vao Viet Nam trong khoang 10-15 nam, sau khi dat ddpc lpi nhuan thi rut vdn. Dieu nay chac chan se de lai hau qua khd lddng.
- Vdi nhan thdc phat trien cang nhieu KCN cang td't va xem dd la chi tieu phan da'u, trong khi khdng coi trpng chat Idpng, hieu qua cung nhd muc tieu tang trddng, phat trien ben vdng nen nhieu vung da't mau md da bi
"xeo thjt" danh cho dau td nddc ngoai, dan de'n ngddi ndng dan bj mat da't, thieu viec lam, ddi sdng 38 THONG TIN & DO BAO KINH TE - XA HOl So 64 (4.2011)
gap-nhieu kho khan. Ben canh do, nhieu KCN da dapc thanh lap thieu sp quy hoach cu the va "cd tam nhin", mpt phan la do quy trinh va khau giai trinh trong viec ra quyet dinh thanh lap KCN chPa minh bach, ro rang. Trong bdi canh phan ldn dan sd nPdc ta lam ndng nghiep, viec ca 63 tinh, thanh deu phat trien cac KCN tat yeu se din den sp chia cat trong phat trien. Van dd dat ra la bai toan hieu qua dpa tren viec khai thac lpi the so sanh trong chien lupc phat trien kinh te (cd the la 30 nam, 50 nam, tham chi 100 nam) chfla dflpc nhieu dia phPPng nghien cflu cu the. Chi trong mpt vai nam gan day, ca nPdc da cd tren 200 KCN dflpc thanh lap.
Theo cac co quan quan ly ve dau tfl, sd Iflpng cac KCN hien qua nhieu, trong khi hieu qua hoat dong kem, binh quan chi lap day 50-60%.
Viec lap cac KCN tran lan, khdng gan vdi quy hoach tdng the phat trien kinh te - xa hpi cho thay each thflc phat trien KCN d nPdc ta con nhieu npi dung chfla phu hpp neu ddi chieu vdi md hinh KCN theo dung nghia, the hien qua: quy md nhd le, manh mun; cdng nghe, may mdc lac hau; mdi trfldng bi huy hoai; thu nhap cua cdng nhan thap. Nhieu KCN tiep nhan cac dfl an dau tfl du loai nganh nghe, linh vflc ma khong cd sfl phan cdng, phan bd ngudn lflc, nganh nghe mpt each hpp ly. Dieu nay da tao ra nhieu mau thuan trong phat trien: ngfldi cdng nhan bat binh vi Iflong thap, ngfldi ndng dan bat binh vi
mat dat va gia den bu thap, xa hpi bat binh vi mdi trPdng bi huy hoai...
- Hien nay, d nhieu dja phflPng dang diin ra tinh trang flu dai qua mflc do'i vdi cac nha dau tu nfldc ngoai vao KCN. Dang chu y, nhieu vung dat, dja diem dang ra phai danh cho cac cong trinh phat trien kinh te - xa hpi hoac cac doanh nghiep trong nPdc dau tfl lai dPpc trao cho cac nha dau tP nPdc ngoai de xay dflng cac dfl an vdi gia tien thue dat rat thap va thdi han thue keo dai (den 50 nam), theo dd da khien cho viec dau tfl trong nPdc gap nhieu khd khan. Ben canh dd, nhieu dfl an dau tP cham trien khai da bien thanh nhflng bai dat hoang hda trong khi ngpdi nong dan bi mat da't, tham chi phai tha phuong cau thflc do khong cd da't canh tac, khdng nghe nghiep va khong cd thu nhap. Mpt sd tinh co chu trPdng lay dat cua ngfldi dan de phat trien cac KCN nhflng khdng tao cho ngUdi dan mat dat cd dieu kien hpc nghe, chuyen ddi nghe khien cho nhieu ngfldi dan lam vao canh that nghiep. Theo thong ke cua Hpi Nong dan Viet Nam, hien ca nUdc cd tren 240.000 hecta dat nong nghiep dPpc chuyen ddi muc dich sfl dung, tPOng dPdng vdi mdi hp cd khoang 1,5 lao dpng bi mat viec lam. Theo sd lieu cua Bp Nong nghiep va Phat trien nong thon, trong giai doan 5 nam 2005- 2009, viec thu hdi da't ndng nghiep da tac dpng tdi ddi sdng cua khoang 728.000 hp ndng dan vdi tren 1 trieu lao dpng va 2,5 trieu ngfldi bj anh hfldng.
- Theo nghi quye't cua Dang, de cP ban trd thanh nPdc cdng nghiep vao n3m 2020, nfldc ta can "tap trung vao phat trien cdng nghiep, cdng nghe tren co sd di tSt, ddn dau". Tuy nhien, sfl phat trien cac KCN d nddc ta con d trinh dp thap neu so sanh vdi mpt so' nddc trong khu vdc nhd: Xingapo, Malaixia, Thai Lan, ddng thdi bde tranh phat trien cong nghiep d cac dja phfldng hien nay van chda the hien viec
S6' 64 (4.2011) THONG TIN & DO BAO KINH TE - XA HOl 39
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"di tat, don dau" d nhieu KCN, dac biet la cdn thieu tfnh chpn Ipc khi thu hut cac dp an dau tP.
- Tinh cat cd ve kinh te trong phat trien KCN v l n con phd' bien. Viec thu hut dau td cdn chu trpng lpi fch trddc mat, chda cd sd nghien cdu, phan tfch nhdng tac dpng, he qua trong thdi gian dai (trong 10-1 5 nam tdi), theo dd, khi nhdng dd an nay khong cdn phu hpp se d i n den thiet hai rat ldn. Viec quy hoach trong xay ddng va phat trien cac KCN cung la van de ndi com, the hien d viec chay dua xay ddng cac khu, cum cdng nghiep trong khi cdng tac quy hoach thieu tam nhin da d i n den tinh trang "cd dan bao vay KCN". Sau hdn 13 nam xay ddng va phat trien cac KCN, hien Ha Npi va Thanh phd Ho Chf Minh deu nhan ra rang cd qua nhieu KCN ddpc xay ddng gan trung tam thanh phd, nen khi thanh pho' md rong se khdi dpng mpt cupc di ddi ton kem.
2. Mot sd giai phap nang cao hieu qua phat trien KCN d cac dja phddng
Be nang cao hieu qua phat trien cac KCN d dia phdong, khac phuc nhdng yeu kem va han che, cin tap trung thdc hien mpt sd giii phip sau:
Mot la, cac dia phddng can tie'n hinh ra soit lai toin bp cic khu, cum cong nghiep tren dia ban de td dd cd bien phip bd sung, sda ddi nham khac phuc nhdng han che, yeu kem. Dong thdi, tie'n hanh kiem tra lai toin bp he thdng quy hoach tdng the, quy hoach chi tiet ve phit trien kinh te - xa hpi va quy hoach phit trien cic khu, cum cong nghiep. Day la can cd de kien quye't thu hdi, t r i lai dat cho dan dd'i vdi cic dd an phit trien cic khu, cum cdng nghiep hien dang d giai doan cap phep hoac da cap phep nhdng xet thay cd inh hddng de'n sd phit trien lau dai, chda can thie't hoac bi bo hoang nhieu nam (ke ca dd i n cho nddc ngoai thue).
Khong chip nhan viec cho cic nha dau td nddc ngoai thdc hien dd i n phat trien KCN ma diu td trong nddc cd the d i p dng ddpc. Quy djnh chi cap phep thanh lap ddi vdi cic KCN cd dien tfch td 1.000 ha trd len va phii cd nha dau td chien Idpc, quy md ldn nhim ngan chan tinh trang thanh lap KCN d at nhd hien nay, dong thdi cung de de gan vdi viec phat trien mo hinh KCN dd thi. Viec phit trien md hinh KCN dd thi can phii co sd tham gia cua cic nha dau td chien Idpc nham giii quye't hang loat cac van de lien quan nhd: 6 nhiem moi trddng, g i i dat den bu, td chdc t i i dinh cd, giii quyet viec l i m cho lao dpng mat da't...
Hai la, tien hinh dieu tra phan loai da't theo muc dfch phuc vu sin xui't nong nghiep, phit trien cdng nghiep hay dich vu. Cin cd luin cd khoa hpc nhim dinh gia nhdng cai ddpc v i cai mi't sau khi chuyen ddi di't ndng nghiep sang phit trien cic khu, cum cdng nghiep do lpi fch ndng nghiep khong chi tfnh bing cic con sd m i con phii tinh den so' Idpng lao dpng luan phien cd viec l i m cung nhd d i m bio mdi trddng sinh thii va sdc khde con ngddi tren cd sd dat lpi fch chung len
tren het. Dieu n i y ddi hdi cac dia phddng phai cd sd ddi mdi trong td duy xay ddng quy hoach tdng the cung nhd quy hoach chi tiet ve phit trien cac khu, cum cong nghiep vdi cic nganh nghe cu the nham phit huy lpi the so sinh tren co sd chuyen mon hoa v i da dang hda phu hdp. Trong quy hoach, nen cd nhdng vung chi tap trung cao dp cho phat trien nong nghiep v i ngdpc lai, nen de cho nhdng vung khac thuan lpi hdn phit trien KCN, phuc vu lai cho cac vung phat trien nong nghiep, d i m bao phu hpp vdi dieu kien td nhien, moi trddng sinh t h i i . . .
Ben canh dd, cic dia phddng can cd chu trddng tie'n hanh quy hoach dat d vung ddi nui hoac bin son dia phuc vu phat trien cac KCN va cd chfnh sich thu hut cic doanh nghiep trong v i ngoai nddc d i u td phit trien khu, cum cong nghiep d nhdng vung nay nham d i m bio sd phan bd hpp ly va bao ve mdi trddng. Thdc hien chfnh sich mien, giim thue hdp ly, cho vay vd'n d i i han va co sd du dai, d i u tU phit trien he thdng giao thdng, cd sd ha tang de khuyen khfch phit trien KCN cl vung ddi nui hoac bin sdn dia, dip dng yeu ciu ve lull thong hang hda. Day l i viec lam can thiet de sd dung da't dai phu hpp cung nhu bio ve mdi trddng trong qua trinh phit trien KCN d cac dia phddng trddc mit cung nhd liu d i i .
Ba la, dd'i vdi cic dd i n li'y da't cua ndng dan d$ phit trien cic khu, cum cdng nghiep, c i n co 4Q THONG TIN & DO BAO KINH TE - XA HOI So 64 (4.2011)
quy dinh cu the mang tinh phap ly de dam bao den bu thda dang va cd phiidng an tao viec lam cho nhdng ngddi trong do tudi lao dong bi mat dat (thdc hien tren cd sd cam ket gida chu dd an vdi chinh quyen dia phddng va ngddi nong dan bj thu hdi dat nham dam bao cho ho khdng bj thiet thoi). Yeu cau nay phai trd thanh chu trddng, quan diem, chfnh sach cua cap uy cung nhd chfnh quyen dia phddng va phii dddc thdng bao rong rai de ngddi dan dddc biet va giam sat thdc hien.
Mat khac, can co quy djnh do'i vdi cac Ban dd an trong viec trich mot phin kinh phf dao tao nghe nham chuyen dd'i nghe v i xay ddng, thdc hien phddng i n bio ve mdi trddng cd hieu qui, nhat la viec xd ly nddc t h i i va cac loai rac cdng nghiep gay d nhiem...
Bdn la, nang cao vai trd quin ly nha nddc trong viec phit trie'n KCN: kien toan bo m i y va cin bd lam cdng t i c quin ly cac khu, cum cdng nghiep tren cd sd tuyen chon, d i n h g i i n3ng ldc, trinh dp, phddng phap quin ly... de tranh tinh trang do trinh dp, nang ldc cdn han che nen can bp quin ly thie'u sd p h i n bien cung nhd lap luin, p h i n tich cd tinh quy luit, tfnh khoa hpc, theo dd cd xu hddng "xudi chieu", de chap nhan theo y kien cua c i c chu dd i n phit trien cic khu, cum cdng nghiep;
nang cao vai trd, chdc nang, nhiem vu cung vdi viec gan trich nhiem, quyen han cua c i c Ban quin ly khu, cum cdng
nghiep, Sd Cdng Thddng, Sd Ke hoach v i Dau td trong viec tham mdu cho lanh dao, chfnh quyen dia phddng. To' chdc td'ng ket bai hpc kinh nghiem rut ra td cic dp an dau td phat trie'n, dac biet la cac dd an cua nddc ngoai. Thdc hien bao cio thddng xuyen ve ndi dung quin ly dd an cic KCN, giup lanh dao cac cap cung nhd chfnh quyen dia phddng kip thdi n i m b i t , td dd cd nhdng bien phip de khac phuc tinh trang thong qua nhdng dd an cd lpi cho cac chu dau td nhdng gay anh hddng lau dai ve cac mat cho dja phddng; cd che tai va gan trach nhiem ddi vdi nhdng ngddi ban hinh quyet djnh dau td phit trien KCN khdng phu hpp, kem hieu q u i , dac biet la trddng hpp lam dung chdc quyen hoac lpi dung danh nghTa cdng nghiep hda de d at md KCN, gay ra hau qui to ldn c i ve mat kinh te - xa hpi va mdi trddng; chinh don viec quy hoach phat trien KCN theo hddng cd hieu qui cao hdn. Cac quyet djnh lap khu, cum cong nghiep phai minh bach, cd sd tham gia cua ngddi dan. Ben canh dd, can tang eddng cdng tac thanh tra, kie'm tra, giam sat hoat dpng cua c i c KCN de kjp thdi bd sung, sda dd'i, khic phuc yeu kem trong quin ly n h i nddc ve KCN, td dd cd bien phap xd ly nghiem minh cac trddng hpp vi pham do chu quan duy y chf lam i n h hddng den qui trinh phat trie'n KCN, g i y ra tinh trang kem hieu qui va d nhidm mdi trddng, tang trddng khong dn dinh va ben vdng.
Nam la, tang eddng vai trd lanh dao cua cap uy dd'i vdi chfnh quyen dja phddng ve van de nay. Dong thdi, thpc hien tdt cdng tac tuyen truyen, giao due cho ngddi dan, can bp, ding vien ve sd can thiet khach quan phii phat trie'n cac khu, cum cdng nghiep cung nhd hieu qui cin dat dddc de cd sd phd'i hpp gida cac cd quan quin ly nhim thdc hien tdt yeu ciu, muc tieu de ra trong viec phat trien cac khu, cum cong nghiep.•
So 64 (4.2011) THONG TIN S. DU BAO KINH TE - XA HOt 41
