Phat trien vung kinh te dong lac: Icinh nghienn quoc te va ham y chinh sach doi vdi Viet Nam
TRAN THI THU H U d N G
Yd hinh phdt trien viing kinh te ddng lite khd da dgng giUa cdc quo'c gia. Hiin nay vdn
• chUa CO mdt md hinh vung kinh ti'dgng lUc ly tUdng bdi co sU da dgng trong viec xdc dinh/lUa chon viing kinh te dgng liic vd chinh sdch dp dung tgi cdc viing ndy d moi mdt qud'c gia. Tuy nhien, viec xem xet kinh nghiem thdnh cdng cdng nhU chUa thdnh cong ve md hinh phdt trien vung d mdt sonUdc (nhU: Thdi Lan, Rumani, Hdn Quo'c, Braxin, Italia) se gop phdn giiip cho cdc nhd hogch dinh chinh sdch nhgn diin nhihig ye'u to' thuc day hogc cdn trd sU thdnh cdng cua md hinh ndy, di tii do thiet ki' md hinh phdt triin vung kinh te dgng It/c phii hdp vdi diiu kien cua Viet Nam.
Tfl khoa: vung kinh ti'dong lUc, viing kinh ti'trgng diem, phdt trien viing, chinh sdch viing.
1. K h a i n i d m
De dien t a mdt vung k i n h te' cd tiem nang, ldi the phat t r i i n kinh td' va cd sfl m a n g thflc hidn td't vai trd d i u tau, thuc day phat trien kinh te' cac vung xung q u a n h va ca nfldc, hidn da cd nhieu ten goi va each dien giai tUdng ddi khac n h a u , chang h a n nhfl: cflc tang trfldng/trung t a m t a n g trfldng, vung nang ddng, vflng dd thi, t h u dd, vung kinh td' trong diem, cum kinh te, vung p h a n cflc...
Mustatea (2013) da dfla r a dinh nghia cflc tang trfldng "la nhflng t h a n h pho" cd sfl lidn ket chat che ve kinh te-xa hdi vdi nhflng khu vuc lan clin, cd vai trd la nhflng t r u n g t a m tang trfldng, cd k h a n a n g cd tac ddng phat trien lan tda tdi k h u vflc xung quanh". Keith va cdng sfl (1972) cho r a n g "hinh thflc ddn gian nhat cua cflc t a n g trudng la t r u n g tarn tang trudng dd thi, vung cd the lan tda t a n g trfldng tdi cac vflng xung quanh".
Theo Mercado (2003), cum kinh te' dfldc hieu la "mot khu vflc p h a t trien d quy md tieu vung, trong do cac r a n h gidi dfldc xac dinh bang each sii dung r a n h gidi lien dia phfldng, bao gdm it nha't h a i k h u vflc hoac cac ddn vi chinh the (hay la cac dd thi ddc lap)" (Ha Hflu Nga, 2007).
Theo Squire (2002), vung dd thi dfldc xac dinh "bao gdm mot hoac nhieu khu do thi
ddng dan, hoac cac t h a n h phd' vd tinh, va cac thi tra'n, k h u vUc ndng thdn xung quanh ma cd moi lien ke't chat che ve k i n h td^ va xa hoi ddi vdi k h u do t h i loi". Vide p h a n vflng dd thi thudng dua t r e n tieu chi dan sd'. Chang han, theo p h a n dinh cua OECD t h i vung dd thi cd it nha't 1 trieu dan, d H a n Qud'c cd it nha't 1,5 tridu dan; d An Do va My cd it nha't 5 trieu dan. Ben canh dd, hien nay nhi^u nfldc ciing da h i n h t h a n h v u n g dd thi vdi chflc nang kinh td' tong hdp khdng chi cua quoc gia dd ma ca d t i m k h u vUc, trong dd la'y t h u dd la ve tinh, la h a t n h a n cua viing (va thudng gpi la vung dd thi).
Mdt so' n h a k h o a hoc n h u Keith va cdng sfl (1972), J o h n (1999), Michael (2000)... cflng da canh bao, do chUa cd mot dinh nghia ly tudng ve v u n g kinh t e ddng luc va khai nidm ve vung n a y dang dfldc dien giai r i t da dang, nen r i t c i n p h a i p h a n bidt rd 2 leai vung dUdc goi la vung kinh t e ddng lUc, dd la vung kinh te' ddng lUc tfl nhien (la vung dfldc lunh t h a n h khdng phai hoac cd thi r i t it tfl lap ke hoach cua chinh p h u ma chu ye'u dfldc hinh t h a n h tfl t a p t r u n g khdng gian do nang s u i t vd'n can bien va mflc do t a p t r u n g kinh t^
cao) va viing kinh te' dong luc dUdc lap kd' hoach T r ^ Thi Thu Hitong, TS., Vifin Nghifen ciiu quan ly kinh te'trung uong.
8 6 Nghien aiu Kmh tSsd9(484) - Thing 9/2018
Phat trien vung kinh ta' dong itfc ...
(nd dUdc hinh t h a n h tfl ke't qua n g l u nhien do cd cac c h i n h s a c h k h u y e n k h i c h gian tie'p cua chinh p h u hoac cd t h e do cd cac can thidp trflc tid'p ciia chinh phu. va kid'm soat d i u tfl).
Nhfl vay, dfl dang dfldc didn giai h a y dat ten theo cac each khac n h a u , vung kinh te' dong Iflc nhin chung ddu cd dac diem: (i) la mot k h u viic dia ly xac dinh (pham vi bao gom mdt hoac nhi^u tinh, t h a n h phd', k h u vflc dd thi va r a n h gidi cd t h e t h a y doi theo thdi gian); (ii) da hoac cd tidm n a n g hdi t u diy dii thd' m a n h , t a p t r u n g t i l m Iflc k i n h td", ha'p d i n n h a d i u tfl; (iii) da hoac cd k h a nang t h u hflt, p h a t t r i e n cac n g a n h mdi ve cdng nghidp va dich vu; (iv) da hoac cd k h a nang tao r a td'c dp p h a t t r i e n n h a n h va thflc hidn td't vai trd d i u t a u , t h u c d i y p h a t trien kinh te xa hdi cho toan v u n g va ca nfldc).
Theo N a t t a p o n (2013), vide Ifla chon, xac dinh cac t r u n g t a m t a n g t r u d n g n a y dfla tren phan tich, t i n h toan va xdp thfl h a n g cac khu do t h i theo cdng thflc:
X= fti-Zi + a^. Z2 + cii.Zi -i- ... ...-f a,.^t Trong dd: X = la d i i m so" cua cac k h u dd thi
«(= ty trpng va 2j = iJiem so cua mdi bie'n Cac bie'n so' dfldc xd'p t h a n h 4 nhdm va mdi nhdm cd sd' Ifldng cac bien khac n h a u . Cu the:
(i) Nhom vat chdt vd cd sd hg tdng co 6 biin, gom: (1) dien tich k h u vflc do t h i so vdi vung; (2) ty le dien tich k h u cdng nghiep so vdi vflng; (3) ty le chieu dai dfldng so vdi vung; (4) ty le tieu t h u dien so vdi vung; (5) ty le tieu t h u nUdc so vdi vung; (6) ty le xe cd dang ky so vdi vung.
(ii) Nhom ddn so' vd lao dgng c6 6 bien, gom: (1) d a n so'; (2) m a t dp d a n sd'; (3) ty le dan sd dd thi so vdi vung; (4) ty Id Iflc Ifldng lao ddng cd viec lam trong k h u vflc dd thi;
(5) ty le lao ddng cd viec lam trong linh vflc cdng nghiep d k h u vflc dd thi; (6) ty le lao ddng cd viec lam trong linh vflc dich vu d khu vflc dd thi.
(iii) Nhdm kinh ti' cd 10 bien, gom: (1) ty le t h u n h a p b i n h q u a n d i u ngfldi d khu vflc dd t h i so vdi vung; (2) ty le td'ng san p h i m qud'c ndi trong linh vflc cdng nghidp d k h u vflc dd t h i so vdi vung; (3) ty le tong san p h i m qud'c npi t r o n g linh vflc dich via d khu vflc do t h i so vdi vflng; (4) ty le n h i may (factories) so vdi vung; (5) ty Id vd'n d i u tfl n g a n h cdng nghiep so vdi vung; (6) ty le doanh nghiep (businesses) so vdi vflng; (7) ty le n g a n sach so vdi vung; (8) ty le thud*
t h u n h a p so vdi vflng; (9) ty le t i l n guti ngan h a n g so vdi vung; (10) t y le cac khoan vay so vdi vflng.
(iv) Nhdm dich vu cong cd 5 bie'n, gom: (1) sd' Ifldng cac ddn vi giao due dai hpc, cac vien so vdi vung; (2) t y le ngfldi dfldc dao tao dai hpc so vdi vung; (3) ty Id ngfldi dfldc dao tao t r u n g hoc so vdi vung; (4) sd' Ifldng gifldng benh d cac cd sd y te; (5) sd' bac sy/dan sd'.
1.2. Vai tro cua nhd nUdc trong phdt triin vung kinh tedgng lUc
Kinh nghiem t h a n h cdng l i n tha't bai cua nhieu nude t r e n t h e gidi da cho tha'y n h a nfldc ludn ddng vai trd ra't quan trpng trong viec h i n h t h a n h va p h a t trien he thdng vflng ndi chung va vflng kinh te ddng Iflc ndi rieng. Thdng qua vai trd ra't q u a n trpng la hoach dinh chu trUdng, chinh sach, tao mdi trudng VI mo t h u a n ldi... va vdi sfl can thidp kip thdi, hdp ly, n h a nfldc se cd t h e thuc d i y sfl p h a t t r i i n k i n h te' d cac vung kinh t e ddng Iflc mdt each b i n vflng, tfl dd kdo theo sfl p h a t trien l a n tda d i n cac vung kem n a n g dpng hdn. 6 cac nfldc, p h a t trien vflng kinh t e ddng Iflc dfldc cdi la mpt trong nhflng phfldng cach/cdng cu (vl lau dai) giup p h a t trien can bang, h a i hda gifla cac vung trong mdt qud'c gia.
- Nhd nUdc trong vai tro kien tgo cdc viing kinh ti' ddng lUc thUc sU cd tiim ndng phdt triin kinh ti': t r o n g dieu kien ngudn n g a n sach h a n che, de dat dfldc muc tieu t a n g trfldng va p h a t trien d i t nU6c, viec d i u tfl trpng diem vao mdt sd' vflng cd d i l u kidn t h u a n ldi d l p h a t t r i i n kinh t e ndi chung la
Nghien cdu Kinh tesd9(484) - Thing 9/2018 8 7
Phat trien viing kinh te dong luc ...
c i n thie't; cflng c i n k h a n g dinh r i n g , chenh lech p h a t trien gifla cac v u n g la khdng t h e t r a n h khdi. Qua t r i n h p h a t t r i e n k i n h t e cua nhieu nUdc t h a n h cdng t r e n the' gidi da cho tha'y, khdng t h e ddng thdi p h d t trien kinh t l t r a i rong t r e n k h l p ca nfldc mpt each sudn se. Da cd ra't n h i i u nUdc theo duoi chinh sach "tang trfldng can doi theo khdng gian"
(kl ca nfldc dang p h a t t r i e n va nfldc p h a t trien), tuy vay, kd't q u a m a n g lai khdng nhU ky vpng dat ra. N h i i u nfldc da dung cd c h i , chinh sach khuye'n khich (dac biet chinh sach tai khda va t i l n t e nhfl: lai suat, tien Ifldng, ty gia, trd gia, d a u tfl xay dflng cd sd h a t i n g . . . ) , d l t h u h u t cac n h a d i u tfl, doanh nghiep de'n cac v u n g kem p h a t trien d l bu d i p nhflng b i t ldi t h e cua vung t u t hau. Tuy nhien, nhieu b i n g chflng thUc nghiem cho tha'y, dudng nhfl so' p h a n cua cac vflng kem p h a t t r i i n v a n khdng cd sfl thay dd'i rd rdt, An Dp da flu dai cac vung t u t h a u thdng qua chinh sach dflng ca'p phep md rdng cdng nghidp d cac vung d i n d i u (chinh sach cdng nghiep n a m 1956), nhflng chinh sach nay chi cd tac diing dd'i vdi mdt sd' it vflng tut h a u (giup cac vung nay t a n g trfldng), nhflng khi cac quy dinh v l ca'p phep md rdng cdng nghiep ndi long t h i vung t u t hliu nay tiep tuc bi sa sut hdn (WB, 2009).
- Nhd nUdc trong vai tro dieu tiet, cdn bang ldi ich giUa cdc viing trin phUdng dien tie'p can cdc dich vu cdng cd bdn: trong giai doan d i u thflc hien t a p t r u n g hda k i n h te', ra't cd the d i n d i n hien tfldng p h a n hda mflc song gifla cac vung (vung dfldc t a p t r u n g d i u tfl p h a t trien va vung k e m p h a t trien), d i n de'n b i t dn trong xa hdi va t h a m chi trong nhieu trfldng hdp tao r a nhflng t h a y dd'i mang t i n h chat chinh t r i . Tuy nhien, thflc te' cung da chflng m i n h khoang each chenh lech gifla cac vung v i n cd t h i dUdc t h u hep sau mpt thdi gian nha't dinh, vi t a n g cfldng t a p t r u n g hda k i n h t e d mpt so vung se tao t i l n de, d i l u kien p h a t trien lan tda, toan dien t r e n p h a m vi toan l a n h tho. N h u vay, n h a nfldc p h a i cd cac bien p h a p n h i m
d i l u tiet, dam bao k h o a n g each p h a t trien gifla cac vung k h d n g qua ldn. Ddi vdi cac v u n g khd k h a n , k e m p h a t t r i i n , n h a nfldc c i n cd chinh sach d i u tfl cd sd h a t i n g cd b a n va cung d p mpt so' dich vu cdng cd ban nhfl: giao due, y t e va n h a d de d a m bao tinh ben vflng trong muc tieu p h a t t r i e n chung cua da't nfldc.
- Nhd nUdc trong vai trb diiu hba ldi ich cua qud'c gia vd ldi ich cue bd dia phUdng:
qua t r i n h p h a n c i p mpt m a t giup cho chinh q u y i n dia phUdng trd n e n n a n g ddng, tii chu hdn trong vide r a quye't dinh va dap iing nhu c l u cua ngfldi d a n dia phfldng, tuy vSy, qua t r i n h p h a n d p cung chfla dflng n h i i u rui ro, trong dd tiem a n ldn n h a t la chinh quyen dia phUdng vi ldi ich cue bd cua minh ma it chu y tdi ldi ich t i n g t h i cua quec gia va cua vung. Trong lien kd't, hdp tac cflng hanh dpng gifla cac c h i n h q u y i n dia phfldng, mdt trong nhflng n h a n tS" cd b a n dfldc xem xdt la chi phi giao di.ch. Lfng dung 1;^ t h u y i t chi phi vad lidn k i t vflng cho tha'y, chinh quyin dia phfldng cd xu hfldng thda t h u a n lien ket tfl nguyen khi chi phi giao dich du t h i p va cac v i n di lien q u a n tdi ngfldi chu sd hflu va ngfldi dai dien (principal agent problem) nhfl free-riding (hfldng ldi tfl an thed ma khdng ma't cdng sfle va t a i chinh) dfldc giai quyet. Nhfl vay, ldi ich k j vpng ldn hdn chi phi giad dich se giup t a o r a va duy tri cd che hdp tac (Richard, 2005 va 2008). Nhin chung, lien ke't vflng p h u thudc ra't nhieu vao n h a n thflc v l ldi ich tfl lien k i t vung cua tflng dia phfldng t h a n h vien. Trong nhieu trfldng hdp, ldi ich tfl lidn kd't n g l n han (hoac t r o n g mpt nhiem ky) khdng du ldn, khdng rd r a n g , t h a m chi khdng h i p d i n dd'i vdi tflng dia phudng t h a m gia, nhflng ldi ich dai h a n , m a n g t i n h chid'n Ifldc, ben vflng thi ra't ldn ddi vdi sfl p h a t trien c h u n g cua ca v u n g h a y ciia qud'c gia, luc n a y vai trd cua n h a nfldc t r u n g fldng la ra't q u a n trpng n h a m dam bao cac dia phfldng lidn k i t d l m a n g lai hieu qua cao n h i t cho vflng hay cho qud'c gia.
8 8 Nghiin aiu Kinh l4sd 9(484) • Thing 9/2018
Phat trien vung kinh te dong igc .
2. K i n h n g h i e m quo'c t l v e x a c d i n h v u n g k i n h t e d o n g Iflc
2.1. Kinh nghiem cua Rumani R u m a n i la da't nude dang p h a t t r i i n va cd dien ldn nha't d phia ddng nam Chau Au, vdi didn tich la 237,500 km^ va dan s d ' k h o a n g 22,2 trieu ngfldi (ti'nh d i n 1-7-2017)^
Sau chien t r a n h t h i gidi l i n thfl 2, R u m a n i trd t h a n h mdt nfldc theo che' dp xa hdi chu nghia va cd quan hd gan bd vdi Lien Xd. N a m 1989, cflng vdi sfl chuyen doi md h i n h cua Lien Xd, Rumani chuyen doi sang n i n dan chu va xay dflng kinh td' thi trfldng tfl ban.
Hien nay, Rumani dfldc chia t h a n h 41 h a t (tfldng dfldng vdi tinh d Viet Nam) va 1 t h a n h phd thu dd Bucharet va dUdc p h a n t h a n h 7 vflng.
Mac dfl, md hinh cue t a n g trudng dUdc r a t nhiiu nfldc phat trien va dang p h a t trien d Chau Au thflc hien gifla nhflng n a m 1970s nhfl: Phap, Ao, Bi, Italia, Tay Ban Nha, Anh... (Cristina va cdng sfl, 2015), nhflng mai din nam 2001, R u m a n i mdi b i t d i u h i n h thanh cac vung t a n g trfldng. O giai doan khdi Xfldng tfl nam 2011-2007, L u a t H a n h chinh dia phfldng sd' 215/2001 da d l cap tdi viec hinh t h a n h 8-12 t h a n h phd' Idn (bao gdm ca thu dd), nhflng t h a n h phd' dfldc d a n h gia la cd tiem nang t a n g trfldng trong vung. Moi thanh phd' ldn se h e n ke't vdi cac xa lan can (cac xa trong p h a m vi a n h hfldng cua t h a n h pho ldn) t r e n cd sd thoa t h u a n dac biet gifla cac Hdi dong dia phfldng n h i m thuc d i y p h a t triin cd sd ha t i n g va cac muc tieu p h a t t r i i n khac vi ldi ich chung (Nicolae, 2010).
Cudi n a m 2008, sau khi R u m a n i t h a m gia cdng ddng chung EU (1-1-2007), Chi'nh p h u Rumani da xac dinh va Ifla chpn lai 7 cflc tang trfldng quoc gia d 7 vflng de flu tien d i u tfl phat trien. Bay cflc t a n g trfldng nay gdm:
Constanta, Craiova va Ploiesti d phia Nam;
lasi d phia Ddng; Brasov va Cluj-Napoca d t r u n g t a m (mien Trung) va Timisoara d phia Tay. Thu dd khdng n i m trong danh sach ctic t a n g trUdng, bdi chinh sach cflc t a n g trfldng la hfldng tdi giam d i n sfl t a p t r u n g kinh t l d
t h u dd va thuc d i y vai trd cua cac k h u dd thi mdi trong n i n k i n h t l (Ramona, 2015). Theo Quyd't dinh 998/2008 ngay 8-9-2008 cua Chinh phu, 7 cflc t a n g trfldng nay dudc t h a n h lap va mdi cue t a n g trfldng nam trong mdt vflng (ngoai trfl vflng Bucuresti-Ilfov).
Nhflng cflc t a n g trfldng nay dudc xac dinh la ddng Iflc p h a t trien kinh te' Romania va trong tfldng lai se ddng gdp vai trd tich cflc, cd tac dpng lan tda phat t r i i n kinh te' - xa hdi cac vflng xung quanh (Cristina va cdng sfl, 2015).
Viec Ilia chpn 7 cflc t a n g trfldng x u i t phat tfl thflc t l la cac cflc nay cd k h a nang phat trien kinh te n h a n h chdng, tao viec lam, tang nang sud't lao ddng va tfl dd cd the giup phat trien cac vflng ndng thdn lan can, ddng gdp phat trien kinh te' toan vflng. Cflc tang trfldng dfldc xac dinh la ndi t a p t r u n g cac hoat ddng kinh t l . Theo Quylt dinh 998/2008 cua Chinh phii, 7 ciic t a n g trfldng qud'c gia dfldc Ilia chpn dfla thed cac tieu chi, dd la: vi tri chie'n Ifldc (gin t h u dd, g i n vflng nguyen lieu thd, g i n cang, g i n bien gidi...); tap t r u n g cac linh vflc dich vu (giao due, y t l , du lich,...);
t r i n h do chuyen mdn hda; t i l m nang sang tao/ddi mdi; sfl s i n cd cua he thd'ng cd sd h a t i n g kinh doanh; sfl da dang va mflc dp lien kd't gifla cac chu the dia phfldng va vung; k h a nang tiep can dich v u cdng (Nicoleta, 2013);
so' Ifldng doanh nghiep trong nganh cdng nghiep; so Ifldng cac k h u cong nghiep va so' Ifldng clusters (Cristina va cdng sfl, 2015); so' dan k h i u hpc (Nicolae, 2010).
M^c dfl, Quyet dinh 998/2008 dfla r a r i t nhieu tieu chi, tuy nhien t r e n thflc te viec Ifla chpn cflc t a n g trfldng ddi luc cdn mang ca yeu to chfnh tri. Mpt so' quyet dinh chfnh tri cd sfl xung dot vdi tieu chf va muc tieu t h a n h l|ip cflc t i n g trfldng (ibid). Chang han, Ploiesti dfldc Ilia chpn la cflc t i n g trfldng qulc gia, tuy nhien trong vai t h a p nien vfla qua, cflc nay chfla t h e hien t i l m nang p h a t trien;
trong k h i dd t h a n h p h d ' G a l a t i va Braila t u y 1. Xem them: http://www.insse.ro/cms/sites/default /fiIes/com_presa/com_pdf/popdom 1 iul2017e_0.pdf (cSp nhat ngiy 30-3-2018)
Nghien aiu Kmh tesd9(484) • Thing 9/2018
PhM trien vung kinh te dong luc ,
khdng dfldc xac dinh la cflc t a n g trfldng qud'c gia nhflng theo danh gia cua cac n h a nghien cflu vung thi ca hai t h a n h phd' nay cd t h e hdp nha't va trd t h a n h ciic t a n g trfldng qud'c gia tdi hdn so vdi Ploiesti.
2.2. Kinh nghiem cua Braxin Braxin la qud'c gia d Nam My, la nfldc Cong hda Hen bang gdm cd 26 bang va mdt quan lien bang Brasilia, vdi dien tich hdn 8,35 trieu km^ va dan so' g i n 209,3 tridu ngudi (nam 2018)^
Trflde nam 1973, Braxin theo dud'i chiln lUdc phat trien cac vung ldn. Tuy nhien, sau cudc khung hoang n a m 1973, c h i l n lUdc p h a t trien vflng cua Chinh p h u trd nen cd lUa chpn hdn, theo dd Chfnh p h u Braxin da b i t d i u tap trung vao p h a t trien mdt sd' t r u n g tam tang trudng (growth centers) (Bertha va Claudio, 1992). Cac t r u n g t a m nay dUdc xac dinh thdng qua viec do Ifldng 9 chi sd' (theo td'c dp tang trfldng), do la: (i) dan sd t h a n h thi; (ii) sd'Ifldng cac n h a may dfldc t h a n h lap;
(iii) sd' Ifldng ngfldi lao ddng trong cac n h a may; (iv) gia tri gia t a n g trong linh vflc san xua't; (v) sd' Ifldng cac cxia h a n g b a n le dfldc t h a n h lap; (vi) sd' Ifldng lao ddng hoat dpng trong nganh budn b a n le; (vii) gia tri gia t a n g nganh budn b a n le; (viii) sd Ifldng cv(a hang ban budn dfldc t h a n h lap; (ix) td'ng gia tri giad dich ban budn (Keith, 1972).
Cac n h a p h a n tich da Ifla chen 96 t h l n h phd' cd dan sd' t r e n 10 nghin ngfldi/thanh phd' va tie'n h a n h t i n h t o a n 9 chi so' cho tflng t h a n h pho trong 2 giai doan (1940-1950 va 1950-1960) de xac dinh t h a n h phd' dd lieu cd t h e la t r u n g t a m t a n g trUdng d thdi k;^ n a y va thdi ky tiep theo khdng. So lieu tfnh toan dfldc xep theo thfl tii, theo do t r u n g t a m t a n g trfldng la nhflng t h a n h phd' cd d i i m so' p h i n t r a m cao. Nd'u mpt t h a n h phd' dfldc xac dinh la t r u n g t a m t a n g t r u d n g t r o n g ca 2 giai doan t h i dd la t r u n g t a m t a n g trfldng thflc. Ne'u mdt t h a n h phd' dfldc xac dinh la t r u n g tam t a n g trfldng chi t r o n g 1 giai doan thi dupc coi la t r u n g t a m t a n g t r u d n g t i l m nang.
Diia vao k e t qua t i n h toan, trong giai doan 1940-1950, cd 3 t h a n h phd' cd diem so' cao n h i t la: t h a n h phd' Cubatao (mdt t h a n h phd n a m trong vung do thi Sao Paulo); Sao Josd dos Campos (nam d true dd thi gifla Sao Paulo va Rio de Janeiro) va Periera Barreto (mdt t r u n g t a m tfldng dd'i mdi d vung bien gidi phia Tay ciia Braxin). Ca 3 t r u n g tam t a n g trfldng n a y chiem tdi 38,3% tong so diim. D i n giai doan 1950-1960, ca ba t h a n h phd' t r e n v i n d a t dfldc so diem cao; giai doan nay cung x u a t hien t h e m 3 t r u n g tam tang trfldng mdi, dd la: Dracena va Jales (d g i n vflng bien phia Tay) va M a u a (thudc vflng dd t h i Sao Paulo). Ca 6 t r u n g t a m nay chiem tdi 77,69% td'ng diem so"(Keith, 1972). Tfl sdlieu t i n h toan cho t h i y xu hudng t a n g trfldng cua Braxin d ca 2 giai doan d i u cd dp phan ctic ngay cang ldn.
Nhfl vay, 6 Braxin cd 2 loai t r u n g tam t a n g trfldng, do la t r u n g t a m tang trfldng tfl nhien va t r u n g t a m t a n g trfldng lap k l hoach. Vflng t h u dd Sao Paulo ludn khang dinh la t r u n g t a m t a n g trfldng tfl nhien vdi sfle m a n h k i n h te b i n vflng Qau dai) va mdt sd' t r u n g t a m gan bien gidi phia Tay cua Braxin dfldc coi la t r u n g t a m tang trfldng lap k l hoach (san p h i m cua nhflng chfnh sach flu tien cua n h a nfldc n h a m khuyen khich p h a t t r i i n cac t r u n g t a m nay).
3. K i n h n g h i e m v e c h i n h s a c h p h a t t r i e n v u n g k i n h t e d o n g \iXc 3.1. Kinh nghiem cua Rumani Theo Q u y l t dinh 998/2008 cua Chfnh phu, R u m a n i da t h a n h lap 7 cUc t a n g trfldng qud'c gia va cac cflc t a n g trfldng nay d i u nhan dfldc ngudn vd'n flu tien d i u tfl p h a t trien tfl cac Chfldng trinh/dfl an sxi dting ngan sach quo'c gia va ca ngan sach d I u tfl tfl EU. Ben canh dd, d l giflp giam thieu mflc dd tap t r u n g dan so" va viec lam d 7 cflc t a n g trfldng, Chinh phu da t h a n h lap t h e m 13 cflc phat trien dd t h f xung q u a n h cac cflc t a n g trfldng.
Vai trd cua 13 cflc p h a t t r i i n dd t h i la k i t nd'i 2. https://danso.org/brazil/ (cap nhat ngay 5-4-2018)
9 0 Nghidn cdu Kmh tdsd9(484) - Thing 9/2018
Phat trien vung kinh te dgng iUc .
7 cflc t a n g trfldng va cac thi tra'n vfla va nhd trong hd thd'ng dd thi nham giam t h i i u xu hfldng phat trien mSl can b i n g gifla cac k h u vflc trong mdt vflng. Nhfl vay, trong mdi vflng deu cd 1 cue tang trudng qud'c gia va 1 den 2 cflc p h a t trien dd thi (Cristina, 2015).
Vide xac (Enh cac cflc p h a t tridn dd thi cung dfldc dfla tren tfnh toan diem so' theo cac tidu chi cd ban (ap dung lua chpn cflc t a n g trfldng), tuy nhien, so' diem ciia cflc p h a t triin dd thi thfldng t h a p hdn ciic t a n g trfldng (Branca, 2013).
De phat trien cac cflc t a n g trfldng va cflc phat t r i i n do thi, Chinh phu Romania da ban hanh Chfldng t r i n h h a n h ddng vflng (ROP).
Chfldng trinh nay da dfldc uy b a n Chau Au phe c h u i n theo Quye't dinh sd' 3470 ngay 12- 7-2007 (Draca, 2013). Muc tieu cua ROP la tap trung d i u t u vao ciic t a n g trfldng va cflc phat trien, cai thien mdi trfldng kinh doanh va ha t i n g cd b a n de giup cac cue nay cd sfle hiit d i u t u va can bang sU p h a t trien kinh t l gifla cac vflng t r e n l a n h tho. ROP dfldc coi la tai lieu chid'n lUdc n h a m cu t h e hda, thUc hidn cac ndi dung trong C h i l n Ifldc qud'c gia v l phat trien vung (mpt npi dung quan trpng trong Kd' hoach p h a t t r i i n qud'c gia). ROP va cac Chfldng t r i n h h a n h ddng khac nhfl:
ChUdng trinh p h a t trien h a t i n g giao thdng, Chfldng trinh n a n g cao n a n g Iflc canh t r a n h kinh te... da giup giam khoang each chenh lech v l phat trien kinh td' va xa hdi gifla Romania va cac nfldc t h a n h vien EU cd mflc phat t r i i n t r u n g binh (Nicolae, 2010).
Trong mdt chiing mflc n h a t dinh, ROP va Quyet dinh 998/2008 da dem lai mot sd' k i t qua n h i t dinh, c h i n g h a n nhU: cac cflc t a n g trfldng da t h u hflt tfl 10-20% dan sd' cua vflng; 16-50% sd' Ifldng lao ddng trong n g a n h cdng nghiep cua vflng; 25-40% sd' Ifldng doanh nghiep cdng nghiep cua vflng (Cristina va cdng sfl, 2015:65). Tuy nhien, theo nghien cflu cua World Bank (2009) "Rumani - chfnh sach cflc tang trfldng: giai doan t i l p theo" cho r i n g chi cd 3 cflc t a n g trfldng la: Constanta, Cluj-Napoca va Timisoara dem lai hidu qua
kinh td' thflc sfl d t i m q u a : gia, 4 cflc tang trfldng cdn lai d i u cho hidu qua kinh t l dudi mflc binh quan chung cua ca nfldc va day thflc sfl khdng phai la cflc t a n g trfldng quoc gia.
ROP va Quyet dinh 998/2008 mac dfl khdng d l cap tdi each thflc ma Chfnh phu p h a n chia d i u tfl (trong giai doan 2008-2013) gifla cac cflc t a n g trfldng va cflc phat trien dd thi, nhflng thdng thfldng trong thflc t e viec p h a n bd tai chinh cho nhflng linh vflc quan trpng can cd sfl can thiep cua N h a nfldc thi theo ty le 80% cho 7 cflc t a n g trfldng (thfldng chie'm 30% td'ng ngan sach ciia ROP) va 20%
cho 13 cflc p h a t trien (thfldng chilm hdn 7%
td'ng ngan sach cua ROP) (Dranca, 2013).
Viec p h a n bd tai chinh cho cac cflc t a n g trfldng cung ra't khac nhau. Cu the, trong khi lasi va Craiova n h a n dfldc khoan d i u tfl ldn nhSit tfl Chfldng t r i n h ROP (vdi 200 tridu Euro cho mdi cue t a n g trfldng; chilm tdi 64,4% tong vdn d i u tfl cho 7 cflc t a n g trfldng), thi Constanta va Ploiesti lai n h a n dfldc khoan d i u tfl ra't khiem td'n (vdi 50 trieu Euro cho mdi cflc tang trfldng) (Benedek va Cristea, 2014:133). Cac cflc tang trfldng cflng cd nhflng flu tien d i u tfl khac nhau. Chang ban, 3 ctic t a n g trfldng t h a n h cdng nhfl: Constanta; Cluj-Napoca va Timisoara lan Ifldt t a p t r u n g d i u tfl dac bidt vao dd'i mdi dd thi va hd trd doanh nghidp vfla va nhd; vao ha t i n g kinh doanh; v l vao ha t i n g giao thdng va do t h i (Benedek va Gistea, 2014).
Trflde khi t h a n h lap 7 cflc t a n g trfldng qud'c gia, cd q u a n p h a t t r i e n vflng (RDA) da dfldc t h a n h lap d tflng vung theo L u a t P h a t trien vung (Luat sd' 315/2004). Cd q u a n n a y khdng p h a i la mdt ca'p h a n h chinh, dUdc t h a n h lap nhfl la mpt to chflc phi chinh p h u va cd chflc n a n g nhfl mpt cd quan t r u n g gian gan k i t gifla ca'p cd q u a n t r u n g fldng
3. G6m: In Arad, Baia Mare, Bacau, Braila, Galati, Deva, Oradea, Pitesti, Ramnicu-Valcea, Satu Mare Sibiu, Suceava, Targu-Mures.
Nghien cOU Kinh tesd9(484) - Thing 9/2018 91
Phat trien vung kinh te dong iuc .
va chinh q u y i n dia phfldng trong qua t n n h thflc hien ROP. S a u k h i t h a n h lap 7 cflc t a n g trfldng quoc gia, bd p h a n dieu phdi cflc tang trudng quoc gia (growth pole coordinator - GPC) dupc t h a n h lap; bd p h a n nay trflc thupc RDA (theo Quyet thnh so' 998/2008 cua Chfnh phu). Theo Quylt dinh 1513/2008 cua Chi'nh phu, GPC cd chflc nang: (i) t h a m gia xay dflng va thflc thi ke' hoach p h a t trien dd thi tich hdp (lUDP) cd lien quan tdi cflc t a n g trfldng; (ii) t h i i t lap mdi Hen ket b i n vflng va tfl van d d p trung fldng va dia phfldng vdi cac cd quan cd hen quan t h a m gia xay dflng va thflc thi rUDP; (ih) t h a m gia nhdm tfl va'n ky t h u a t trong sudt qua trinh xay dflng va thiic thi lUDP; (iv) giam sat tie'n do thuc hien lUDP;
va (v) dinh ky bao cao v l thflc trang trien khai lUDP. Theo lonescu-Heroiu (2013), t h a n h vien cua GPC Id nhflng ngfldi dfldc tuyen chpn tfl cac cd quan chfnh q u y i n dd thi'* (trudng hdp cUc tang trudng: Constanta, Brasov va Ploiesti) hoac tfl can bp cua RDA (Craiova, lasi, Cluj-Napoca va Timisoara) (Ramona, 2015).
Trflde khi t h a n h lap GPC, theo Luat v l Td' chflc hanh chfnh dia phfldng (Luat so' 215/2001), moi vflng cd t h a n h lap Hidp hdi phat trien cdng dong (Inter-community development association-IDA). Day la Hiep hdi dUdc t h a n h lap mdt each tfl nguyen, cd tfl each phap n h a n rieng, dfldc dilu chinh bdi luat tfl n h a n va dfldc thanh lap bdi cac ddn vi h a n h chfnh lanh tho trong vflng. IDA cd chflc nang xay dflng lUDP dfla tren sfl dong t h u a n cua cac dia phfldng trong vung va trinh lUDP cho Bp phat trien viing va h a n h chfnh edng phe duyet. Sau khi GPC t h a n h lap, g i n nhfl ehfle nang xay dflng lUDP do GPC dam nhiem.
3.2. Kinh nghiem cua Braxin Nam 1973, da ed 9 vung dd thi dfldc chinh thflc t h a n h lap xung quanh cac t h a n h phd' cua Sao Paulo, Rio de Janeiro, Belem, Fortaleza, Recife, Salvador, Belo Horizonte, Porto Alegre va Curitiba (Marcos, 2016). Ben canh dd, nam 1974, Chinh phu Braxin da b a n h a n h ChUdng trinh trung t^m ndng nghiep va khoang san
ndng nghiep d vflng Amazon (thudng dUdc gpi la ChUdng trinh POLAMAZONTA). ChUdng trinh POLAMAZONTA dat muc tieu phat t r i i n cd trpng diem 15 t r u n g t a m tang trUdng d vflng Amazon^. Cae t r u n g tSm t a n g trfldng nay dfldc hinh t h a n h ed chpn lpc, dfla t r e n ke't qua tfnh toan, do Ifldng 9 chi so'. Day la nhflng t r u n g tam cd t i l m nang ldn v l : khoang san, rflng, ndng nghiep chan nudi va ndng nghiep edng nghiep.
D I phat t r i i n cac t r u n g t a m tang trfldng, theo Costa (2015), Chfnh phu Braxin da dfla r a Kd' hoach hdi n h a p quoc gia (BrEtzil's Plan for National Integration - PIN), theo do tap t r u n g vao cac chinh sach n h a m tao lap thi trfldng qud'c gia va khuyd'n khfch phat triin vung Amazon (Simone, 2017). PIN da dfldc trien khai tfl n a m 1972 d i n 1985. Thay vi tap t r u n g vao giam sfl b a t binh dang gifla cac vflng, PIN tap t r u n g khuye'n khich d i u tfl vao san xua't d cac t r u n g tam t a n g trfldng va duy tri d u true t r u n g t a m - ngoai vi (Simone, 2017). Bdn canh cac chfnh sach khuyen khich san xua't (nhU: trd cap vdn san xuit, miln/giam thud'....), chinh quyen hen bang cdn d i u tfl r a i ldn vao xay dflng h a t i n g , dac biet la h a t i n g giao thdng, vien thdng va nang Ifldng. P I N dfldc thflc hien dfldi chfnh quyin ddc tai quan sfl, cd tinh t a p t r u n g cao va da dem lai sfl t h a y dd'i tfeh cflc bd mat cua cac t r u n g t a m t a n g trudng va cac khu vflc ngoai vi. Tuy vay, P I N cung da gay r a cac v i n de xa hdi va mdi trfldng nghiem trpng va cho den ngay nay cac v l h d l v l bat binh dang vung v i n chfla dfldc giai quylt.
4. Ca quan chfnh quydn d6 Ihi bao gdm: ciic co quan chinh quyin hoat ddng cr cue t ^ g trudng va ca d nhiJng khu vuc lan cftn cue tang tnidng (thu6ng trong ban kinh 30 km xung quanh cue tang trUdng), Tuy nhien, theo nghifin clhi cua WB thi vific xac dinh khu VUc chiu anh hudng cua cue tang trucmg dang con c6 nhiiu tranh cai.
5. 15 trung tam lang tntdng gdm: Xingu-Araguaia;
Carajas; Araguaia-Tocantins; Trorabctas; Altamira; Pre- Amazonia Maranhense; Rondonia; Acre; lurua-Solimoes;
Roraima; Tapajos; Am^)a;,Juruena; Aripuana; and Marajo.
92 Nghien aiu Kmh tdsd9(434) - Thing 9/2018
Phdt trien vung kinh te ddng Itfc .
4. M d t so' b a i h o c k i n h n g h i e m d o i vdi Vidt N a m
ThU nha't, md hinh phdt triin viing kinh ti' dgng ItXc vdn Id cdng cu td't de thuc day phdt triin kinh ti' ddt nude: thdi gian qua, chinh sach vflng kinh te' ddng luc td r a kdm hieu qua d nhieu nfldc da khid'n cho n h i i u ngfldi tin r i n g khdng cdn ly do gi de theo d u l l md hinh nay nfla. Tuy nhien, theo John P a r r (1996), Peroux (1955), Quigley (2013)... cho r a n g md hinh vflng kinh te ddng Iflc cung cd nhiing Uu diem cua ndi bdi nd cd the giup nang cao ldi the cua met sd' dia ban dae bidt, nha't la eae dia ban ed t i l m nang phat t r i i n va tfl dd se giup d i y n i n kinh t l dat nfldc tien len (Michael, 2000).
Thii hai, kinh nghiem ihtlc tien thdnh cong b mdt so'quoc gia cho thdy, dia diem ddu tU td't nhdt vdo viing kinh tedgng lUc chinh Id cung cd'cdc vdng tdng trUdng tU nhien: cac t h i t bai v l md hinh phat t r i i n vung kinh td' dpng liic d nhieu nude cho thay, do cac n h a hoach dinh chinh sach khong p h a n biet ro r a n g gifla 02 loai vflng kinh t l ddng Iflc, do la vflng kinh t l ddng Iflc tfl nhien va vflng kinh t l dpng Iflc dfldc lap ke hoach. Chinh vi vay, vide cfl cd gang thuc d i y phat t r i i n vflng kinh td' dpng Iflc dfldc lap k l hoach (vung cham p h a t trien) thudng la r i t khd k h a n va ra't khd de dat dfldc mue tieu k;y vpng (Michael, 2000). Cae nghien ciiu (Parr, 1996; Higginns, 1988; Miyoshi, 1997) cung chi trich lap luan cho rang, vflng tang trfldng tfl nhien d mdt khdng gian dia 1;^
cd the dfldc "sad chep" dfldi hinh thflc vflng kinh t l ddng Iflc dfldc lap k l hoach thdng qua viec dfla vao cac n g a n h cdng nghidp mui nhpn/nganh cdng nghiep "day" va cung d p he thd'ng ha t i n g d nhflng trung t a m do thi. Bdi lap luan nay chUa nhin tha'y ro b a n c h i t va'n di, dd la cd n h i i u dae tinh ma vung kinh t l ddng Iflc theo ke hoach khdng ed nhfl vflng kinh te ddng liic tfl nhien, dd la: mdi trudng t h u a n ldi cho cac ddanh n h a n cd d i u dc phat trien, cd nang Iflc sang tao, cd quy md dan so' du ldn, cd k h a nSng t h u h u t ngudn von tfl cac vflng khac... Vl vay, viec p h a t t r i i n vung kinh
td' ddng liic dfldc lap ke hoach c i n phai dfldc xem xet mpt each t h a n trpng.
Tha ba, cdn cd st/ nghiem tuc vd minh bach trong viec lUa chgn viing kinh ti'dgng lUc: da cd r i t nhieu tieu chf dfldc dfla r a d l lam cd sd Ifla chpn cac vflng kinh te' dpng Iflc d cac nfldc.
Tuy so' Ifldng cac tieu chf va viec p h a n nhdm cac tieu chf cd sfl khae bidt nha't dinh gifla cac nfldc, song eo mpt so' tieu chf cd b a n thfldng dfldc cac nfldc sii diang, do la: mflc dp t a p t r u n g kinh t l (GDP, GDP cdng nghidp, GDP dich vu, sd' Ifldng doanh nghiep, so' Ifldng cac k h u cdng nghiep, cum cluster), trinh dp phat t r i i n khoa hpc - xa hdi (thu nhap binh quan/ngfldi, GDP/ngudi, so' Ifldng ddn vi giao due dai hoc, vien nghien cflu, ty Id ngfldi dfldc dao tao dai hpc, t r u n g hpc, ty Id gifldng hdnh, ty le bac sy/dan so', ty le dan so dd thi), vi tri chiln lupc va cd sd h a t i n g . Mpt so nfldc (nhfl trfldng hdp Rumani) mac dfl da dfla r a tieu chf ro rang, song viec Ifla chpn vung kinh t l ddng liic trong nhieu trfldng hdp lai thie'u di sfl nghiem tuc, t h a y vao dd la nhfliig q u y l t dinh mang nang ye'u td'chfnh tri. Vi vky, mot sd' vung kinh te' ddng Iflc trong mdt thdi gian dai phat t r i i n v i n khdng t h e hien dfldc vai trd la vung nang ddng, vung d i u t l u phat trien, va ta't yd'u la khdng hoan t h a n h dUdc muc tieu, sfle menh de r a khi b i t d i u hinh t h a n h vung.
ThU tu, trong nhieu thdp ky vUa qua, chinh sdch phdt trien vdng kinh ti' dgng lUc i£d vd ddng dUdc xdy dUng khd da dang, do vdy rat khd di cd thi khdi quat hoa cdc chinh sdch ndy. Tuy nhiin, chinh sdch viing kinh ti'dgng lite cd ddc diem chung, do Id:
+ Thfldng chi tap t r u n g vao mdt so khu vflc/vflng vdi so' Ifldng gidi b a n (day ludn dfldc coi la mdt phan trong nd Iflc dieu chinh cd cau khdng gian vung) va chi'nh sach thfldng da dang. Viec gidi h a n cac vflng kinh te dpng Iflc thfldng lien quan tdi loai hinh hoat ddng kinh t l tap trung trong vflng. Nghien cflu cua Klaassen (1972) cho rang, cang cd nhieu vflng kinh te ddng Iflc thi cac lam cham qua trinh phat trien cua viing va se cang keo dai giai
Nghien aiu Kinh tdsd9(434) - Thing 9/2013 93
Phat trien vung kinh te dong luc .
doan " d t canh" eua mdi vflng kinh t e ddng Iflc (Michael, 2000).
+ Thfldng quan t a m de'n t a p t r u n g d i u tfl san x u l t trflc tiep va gan vdi k h a i thae n e n kinh t l t a p t r u n g . T a p t r u n g k i n h t e ro r a n g la r i t q u a n trpng n h a m t a n dung ldi t h i v l quy md k i n h te' san xuat npi dia.
Trong nhieu trfldng hdp, viee chia tach nang Iflc san x u l t d mdt so' k h u vflc trong vung cd the lam gia t a n g chi phi san x u l t va giam k h a n a n g c a n h t r a n h vflng.
+ Thfldng quan t a m tdi t a p t r u n g p h a t trien cd sd ha t i n g - mpt n h a n td' h e t sfle quan trpng trong p h a t t r i e n k i n h te'. Viec t a p t r u n g vao d i u tfl cd sd h a t i n g ehi n e n I p dung ehd nhflng vflng cd he thd'ng h a t i n g y i u kdm nhflng vflng n a y dang sd hflu heae k^ vpng sd hflu n h i i u ldi the' nhU: dd dang t i l p can vdi nguyen vat lieu thd, ngudn cung n a n g Ifldng, chi phi lao ddng tha'p hoac t h i trfldng ndi vflng p h a t t r i e n . Neu khdng cd d i y dii cac ye'u td' n a y t h i viee chi t a p t r u n g vao p h a t t r i e n h a t i n g cd sd d nhflng k h u vflc dae bidt t r o n g vflng ed t h e d i n tdi tha't bai trong viec dat dfldc muc tieu de ra.
+ Thudng ap dung chinh sach Uu dai, cd t i n h cha't thflc d i y p h a t t r i i n k i n h t l (nhfl:
midn/giam t h u e , de dang t r o n g tie'p can ngudn Iflc, khoa hpe cdng nghe,...).
Tha ndm, bin cgnh viic lita chgn vd ban hdnh chinh sdch viing kinh ti'dgng lUc phii hdp, con cdn chu y tdi:
+ Viec thflc t h i chinh sach c i n n h i t q u a n v l ddng bd: trong nhflng n a m 1960s, 1970s chflng kie'n stj( quan t a m dac biet cua cae nude v l md hinh vflng k i n h t l dpng liie. 6 cae nUdc dang p h a t t r i e n va cac nude p h a t trien, dae biet la cac qud'c gia Chau My Latin (nhflng qud'c gia ap d u n g chinh saeh vflng kinh t l ddng Iflc sdm nhd't) d i u ap dung chfnh sach vflng k i n h t e dpng Iflc mdt each da dang. Tuy nhien, thflc tidn cho tha'y, qud'c gia nao ma chinh sach vflng k i n h t e ddng Iflc dfldc thflc hien mpt each nha't
q u a n va ddng bd t h i d dd cd dfldc k i t q u a td't.
+ C i n cd mdt bd may vflng b o a t ddng hieu qua: k i n h nghidm cua mdt so' nfldc cho tha'y, d l boat dpng vflng tien h a n h cd hieu qua, c i n ed mpt cd q u a n cd du thflc quydn n a m t r o n g vflng, thflc hien ehfle nang; lap quy hoach/ke hoach p h a t t r i e n vflng; phe duyet quy hoach/ke hoach p h a t t r i e n vflng;
dieu phdi lidn kd't; t h e o doi, d a n h gia lidn kd't gifla cac dia phfldng n a m trong cflng mdt vflng. Cd q u a n n a y cd t h e cd t e n gpi khae n h a u (Hdi dong vung, Uy b a n tfl v i n , Cd q u a n d i l u phoi vflng...) nhflng la mdt y i u td' td' chflc q u a n t r p n g ddng gdp vao qua t r i n h p h a t t r i i n k i n h t l cua vflng kinh t l dpng Iflc./.
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