TAP CHi KHOA HQC PHAPLY SO 03(115)/2018
KIEM SOAT Sir DU NHAP CUA SENH VAT NGOAI LAI XAM HAI NHIN TlT GOC DO PHAP LY
PHAN HUY HONG
Khoa Lu?t thucmg mai, Truong Dai hgc Lu^t TP. Ho Chi Minh Department of Commet^ia! Law, Ho Chi Minh City University of law Email; [email protected]
DANG HOA TRANG
Khoa Luat thuang mai, Tmang D91 h^c Lugt TP. H6 Chi Minh Department of Commercial Law, Ho Chi Minh City University of law Email: [email protected] D A N H P H ^ M M Y D U Y £ N , Khoa Lu§t thucmg m^i, Tmang Dgi hpc Luat TP. Ho Chi Minh Department of Commercial Law, Ho Chi Minh City University of law Email; [email protected]
Tdm tdt
Ciing v&i suphdt tnen nhanh chong ciia du lich, van tdi vd thuang m^i hdng hoa qudc te, cdc loai ngogi lai dugc di chuyen tic vdng lanh thd ndy din vting Idnh thd khdc vai tdn suat ngdy cdng gia tdng, cgng thim su lay lan cua sinh vat ngoai lai (SVNL) khong bi giai han bdi biin gi&i chinh tri da khiin SVNL xdm hgi khong chi tra thdnh moi de dga d timg qudc gia riing biit, md con Id mgt thdch thuc todn cdu Bdi viet phdn tich su du nhap CO chu dich vd du nhap khong cd chit dich cua SVNL xdm hgi vd thuc trgng phdp lugt Viit Nam ve kiem sodt sif du nhap ciia SVNL xdm hgi nham tim kiem cdc gidi phdp phdp ly cho viic kiim sodt su du nhgp cua SVNL xam hai mgt cdch hiiu hiiu han.
Tir khda; sinh vgt ngoai lai xdm hgi, kiim sodt sv du nhgp cua sinh vdt ngoat lai xdm hgi, kiim sodt su du nhap CO chu dich cua sinh vdt ngoai lai xdm hai, kiem sodt sir du nhgp khong co chd dich cua sinh vdt ngogi lai xdm hai, phdp lugt Viit Nam vi kiim sodt su du nhap cua smh vgt ngogi lai xdm hgi, Cong uac quoc te vi Kiem sodt vd qudn ly nudc ddn tau vd can lang nuac ddn tau
Abstract
Along with the rapid development of tourism, transportation and international trade, alien species are transported over territories with an increasing frequency. Besides, the expansion of alien species, which are not limited by political boundaries, makes themselves not only a thread in specific countries but abo a global challenge The article analyzes the intentional and unintentional introduction of invasive alien species and the current law controlling the introduction of invasive alien species in Vietnam in order to find legal solutions to control effectively the introduction of invasive species.
Keywords: invasive alien species, controlling the introduction of invasive alien species, controlling the intentional introduction of invasive alien species, controlling the unintentional introduction of invasive alien species, current law controlling the introduction of invasive alien species in Vietnam, International Convention for the Control and Management of Ships 'Ballast Water and Sediments
Ngdy nhgn bdi 20/01/2018 Ngdy duyit ddng: 26/2/2018
C inh vat ngoai lai (SVNL) xam hai du cong cu, trong do c6 cong cu phap luat con
*^nhap vao cac qu6c gia bSng nhi8u nguoi co th§ kiam soat t6t su du nh^p co ducmg khac nhau, co the phan thanh ba chii dich va khong co chu dich cua SVNL ducmg chinh: (i) du nhap tu nhien theo dong xSm hai. Bai vay, bai y\k khong d^ cap chay ciia song va bi§n hoac phat tan trong viec kigm soat SVNL xam hai th6ng qua du gio; (ii) du nhap co chu dich; (iii) du nhap nhap tu nhien, ma tap trung vao v4n d6 kiim khong CO chu dich. Trong khi con nguoi co soat SVNL xam hai du nhap co chu dich va rat it kha nang can thiep vao su phat tan tu khong co chu dich bing cong cu phap luat.
nhien ciia SVNL xam hai, thi bSng nhigu Tru6c hit, bai viit di cap vdn di nhan di$n
LUAT KINH TE 11 SVNL va SVNL xam hai dua tren quy dinh
cua Cong uac Da dang sinh hgc va Luat Da dang sinh hoc nam 2008; tiip do neu mpt s6 tac dpng diin hinh cua SVNL xam hai den phat trien kinh te va moi truang tai Viet Nam v^ mot so nuac tren thi giai; cu6i ciing phan tich cong cu phap luat kiim sodt sir du nhap co chu dich va khong co chu dich ciia SVNL va de xuat cac bien phap phap ly kiem soat co hieu qua hem su du nhap cua SVNL xam hai bang cac con duong nay.
1. NhSn dien sinh vat ngoai lai, sinh \kt ngoai lai xam hai
Khai niem SVNL, SVNL xam hai da duoc dinh nghia tai Quyet dinh VI/23 cua Hpi nghi Cac ben tham gia Cong uac Da dang sinh hpc (CBD).' Theo do SVNL la loai, phan loai hay dan vi phan loai thap han duoc dua ra khoi vung phan bo tu nhien trong qua khii hoac vung phan bo tu nhien hien tai cua chiing, ke ca cac bp phan bat ky ciia sinh vat nhu: cac giao tii, hat thuc vat, trung dpng vat hay choi mam ciia nhiing loai nay c6 the song sot va sau do sinh san dugc. Con SVNL xam hai la SVNL du nhap vaThoac phat tan, de doa d§n da dang sinh hpc.
Ngay 14/02/1995, Viet Nam chinh thiic tra thanh thanh vien cua CBD.^ Ngay 13/11/2008, Qu6c hpi ban hanh Luat Da dang smh hpc. Dua tren dinh nghia cua Hpi nghi cac ben tham gia CBD, Luat nay dinh nghTa loai ngoai lai !a loai sinh vat xuat hien va phat trien a khu vuc von khong phai la moi truang song tu nhien cua chiing, con loai ngoai lai xam hai la loai ngoai lai lan chiem nai sinh song hoac gay hai doi voi cac loai sinh vat ban dia, lam mat can bang sinh thai tai noi chiing xuat hien va phat trien.^
Co thi neu mot s6 vi du ve SVNL xam hai nhu sau: loai ran an thit Bioga iregularis la tac
' Decision VI/23 of the Sixth Meetmg of the Conference ofthe Parties to the Convention on Biological Diversity, the Hague, Netherlands 7-19 April 2002.
^ Xem: https://www.cbd.int/infomiatioii/parties.shtml truy clip ngay 29/11/2017.
' Khoan 18, 19 Dieu 3 Luat Da dang sinh hpc nam 2008.
nhan din din su tuyet chung cua nhieu loai ban dia tai dao Guam a Thai Binh Duong.
Chiing dupe dua len dao Guam vao khoang diu nam 1950 va da lam 10 trong s6 13 loai chim rung, 2 trong s6 3 loai co vu, 9 trong so 12 loai bo sat tren dao Guam biin mit hoan toan." Di phong trii SVNL xSm hai, hang nam chau Phi phai tieu ton khoang 60 triSu USD. Cac nghien ciiu tai My va An Dp cho th4y chi phi di d6i pho voi SVNL xam hai o cac quoc gia nay xap xi 130 ty USD moi nam. Tai Anh, hang nam mat 334 trieu USD cho viec diet trir cac loai co dai ngoai lai xam hai.^ Tai Viet Nam, To chiic nong luang the gioi (FAO) da phai vien trp khan cap 250.000 USD nham ho trp ky thuat cho Viet Nam diet 6c buou vang. Ca nuoc phai huy dpng lire lupng va chi phi de diet 6c buou vang len toi hang tram ty dong.^
Tuy nhien ciing c6 the thay, khong phai tat ca SVNL deu la sinh vat gay hai, bai thuc tien chiing minh rang, nhieu sinh vat khi du nhap vao moi truang moi khong lam mat can bang sinh thai va tham chi dong vai tro quan trpng d6i voi nen kinh te quoc gia. Chang han, cay khoai tay, cim... la nhirng loai ngoai lai dupe nhap vao Viet Nam da dem den cho Viet Nam nhieu cai thien ve mat kinh te ciing nhu luong thuc. Nhu vay, mpt loai ngoai lai chi dugc xem la loai ngoai lai xam hai khi sir xuat hien ciia chung tac dpng tieu cue den he sinh thai ban dia, nen kinh te cung nhu tinh on dinh ciia mot quoc gia.
* Global Invasive Species Programme (GISP), Introduction to invasive alien species, module 1 2005, tr. 18, http://www.issg.org/pdf/publications/
GISP/GISP_TrainmgCourseMaterials/Management/
ManaginginvasivesModulel.pdf, truy cap ngay 29/11/2017
^ Hoang Thi Thanh Nhan (chu bien), Kien thuc ca bdn ve sinh vgt ngogi lai xdm hgi, c6ng thong lin di?n tir cua Bo Tai nguyen va Moi truong, tr. 23, http://vea.
gov.vn/vn/quanlymt/baotondadangsh/tintuchoatdong/
tintucvasukien/tintuc/Documents/g.pdf, truy c§p ngay 29/11/2017
* Hiing Long, "Sinh vat ngoai lai xam hai vuQt tiim Idem soaf', ht^://baotainguyenmoitmong.vii/moi-truong- va-phat-trien/201609/suih-vat-ngoai-lai-xam-hai-vuot- tam-ldem-soat-2730741/, truy c i ^ ngay 29/11/2017.
12 TAP CHI KHOA HOC PHAP LY SO 03(115)/2018 2. Con durorng du nhap va cac bif n phap
kiem soat sinh v§t ngoai lai xam hai 2.1. Kiem sodt du nhap cd chU dich Doi voi con duong du nhap co chii dich, SVNL di vao vung npi dia cua cac quoc gia th6ng qua hoat dpng nhap khau mpt each hgp phap hoac bat hop phap (buon lau).
Tuy nhien, pham trii kiem soat SVNL xam hai dupe de cap a day chi la viec kiem soat SVNL xam hai thong qua con duong nhap khau hgp phap.
Kiem soat su du nhap cua SVNL xam hai th6ng qua con duong nhap kh4u hpp phap la mpt qua trinh, dugc thuc hien theo 3 buoc dua tren cung ducmg di chuyin cua chiing. Cu the la truoc khi qua bien giai, tai bien gioi va sau khi qua bien gioi. Tuy nhien, bien phap phong ngua chi thuc sir hiru ich khi SVNL xam hai chua vao dupe bien gioi Viet Nam. Diiu do co nghia, cac bien phap kiem soat SVNL xam hai truoc khi vao bien giai va tai ciia khiu se co y nghia dac biet quan trgng.
Giai doan truoc khi qua bien giai: truoc khi SVNL den cua khau thi mpi bien phap kiem soat ciing chi dung lai o viec du bao, viec dy bao cang chinh xac bao nhieu thi hieu qua cua bien phap phong ngua cang cao bay nhieu. Thuc te cho th4y, viec phat hien kip thai mot loai sinh vat co phai la loai ngoai lai xam hai hay kh6ng la diiu kh6ng dl dang. Phin lan SVNL du nhap vao Viet Nam dupe xip vao danh muc SVNL xam hai chi khi chiing da sinh truang mpt thai gian, tao lap dugc quin thi va gay ra nhirng hau qua dang tiic. Nguyen nhan chu yeu la do danh muc SVNL co nguy co xam hai cua Viet Nam mang tinh du bao chua cao.
Hien nay, di du bao SVNL co nguy co xam hai, chiing ta da ban hanh "Danh muc sinh vat ngoai lai c6 nguy co xam hai da xuat hien a Viet Nam" va "Danh muc sinh vat ngoai lai co nguy co xam hai chua xuit hien a Viet Nam".' Dang luu y, d6i
' Phu luc I, II, n i Thong tu hen tich s6 27/2013/
TTLT-BTNMT-BNNPTNT.
vai nhiing loai chua xuat hien a Viet Nam thi chi dugc ghi nhan la SVNL co nguy ca xam hai khi da gay hai tai hai quoc gia tra len CO dieu kien sinh thai tuong tu vai Viet Nam.^ Do do, viec cap nhat kip thai thong tin ve SVNL xam hai 6 cac quoc gia nay CO y nghia dac biet quan trgng. Tuy nhien, Viet Nam hau nhu chua co dam phan song phuang hoac da phuang voi cac quic gia CO he sinh thai tuong tu v6 viec trao dii thong tin. Vi vay, danh muc SVNL co nguy CO xam hai cua Viet Nam mang tinh du bao chua cao la dieu kh6 tranh khoi. Nhung theo chiing t6i, neu mpt SVNL da gay ra nhung hau qua tieu cue cho m6t quic gia Cling du CO so de du bao chiing co kha nang gay hai a quoc gia khac co he sinh thai tuong tu, nen viec xac dinh SVNL co nguy CO gay hai hay khong chi can dua tren tieu chi "da gay hai o mgt quoc gia co he sinh thai tuang tu" ma kh6ng nhit thiit phai la hai quoc gia nhu hien nay.
Giai doan tai cua khau: nhan thiic duac nguy CO tac dgng tieu cue ciia SVNL din moi truong va phat triin kinh ti, phap luat cua hau hit cac qu6c gia diu thiit lap mpt
"hang rao phong ngu" di ngan chan ngay tu diu su xam nhap cua SVNL xam hai tai ciia khiu. Tai Viet Nam, muc 3 Chuong IV Luat Da dang sinh hpc nam 2008 da quy dinh trach nhiem ciia Uy ban nhan dan dp tinh, Bp Nong nghiep va Phat triin nong th6n, Bp Tai nguyen va Moi truong trong viec kiim soat SVNL xam hai. Cac bp nay da ban hanh tieu chi xac dinh SVNL xam hai va danh muc cac loai ngoai lai xam hai.
Chung ta cting da co quy dinh vi kiim dich va phan tich nguy co dich hai dii voi dong, thuc vat truac khi nhap khIu vao Viet Nam tai Luat Bao ve va kiim dich thuc vat nam 2013 va Luat Thii y nam 2015. Danh muc dpng thuc vat thupc dien phai kiim dich hoac phan tich nguy co dich hai do Bp Nong nghiep va Phat triin nong thon ban hanh la
^ Diem b khoan 2 Digu 1 Thong tu lien tich f 27/2013/TTLT-BTNMT-BNNPTNT.
LUAT KINH TE
tuong doi khai quat.' Viec quy dinh khai quat nhu vay se giiip ca quan chiic nang khong bo sot doi tugng can kiem dich. Diiu nay cho thay Viet Nam da co nhiing n6 luc nhat dinh nham kiem soat sir du nhap ciia SVNL xam hai. Tuy nhien, thanh qua cua hoat d6ng ngan chan va kiem soat SVNL xam hai tren thuc te con rat han chi. Diiu nay xuat phat tir nhung bat cap sau:
Thir nhdt, cac quy dinh ve quy trinh danh gia nii ro doi voi cac loai SVNL la dpng vat hien nay van chua hoan thien. Quy trinh danh gia riii ro 6 npi dung nay dugc xem xet 6 hai khia canh: (i) kiem dich va phSn tich nguy CO dich hai; (ii) danh gia tac dpng ciia SVNL doi voi he sinh thai ban dia trong truang hgp sinh vat nay dugc phep nhap khau. Trong khi quy trinh danh gia riii ro doi vdi cac loai sinh vat la thuc vat theo quy dinh tai Th6ng tu so 36/2014/TT-BNNPTNT'° tuong d6i diy du va ro rang, thi d6i voi SVNL la dpng vat, Viet Nam chua co quy dinh rieng v6 danh gia tac dpng cua SVNL doi v6i he sinh thai ban dia ma chi don thuan la xet nghiem dich hai va cac mam benh" co trong dgng vat, san phara dpng vat dupe nhap khau. Bien phap nay chi hieu qua trong viec ngan chan cac loai ngoai lai la nam, virus, tao gay ra dich benh s6ng ky sinh tren dpng vat nhap khau ma kh6ng danh gia dugc ban than sinh vat nay co phai SVNL xam hai hay kh6ng. Chang han, mot s6 SVNL hoan toan mdi kh6ng mang dich benh nhung khi dua vao moi truang tu nhien
* Phu luc I, Phu luc IV ban hanh kem theo Thong tir s6 25/2016/rT-BNNPTNT ngay 30/06/2016 quy djnh v6 kiem dich dong vat, san phSm dong vat tren can; Thong tu s6 30/2014/rr-BNPTNT ngay 05/09/2014 vh "Ban hanh danh myc v^t the thuoc dien kiem dich thirc vat, danh muc vat thS thuQc dien kiSm dich thuc vat phai phan tich nguy CO dich hai tnrdc khi nhSp khS.u vao Vi?t Nam".
'" Thong tu s5 36/2014/TT-BNNPTNT ngay 31/10/2014 ciia Bo Nong nghiep va Phat trien nong thon vS viec ban hanh Quy dinh v l quy trinh phan tich nguy ca dich hai doi vdi vat the IhuQC di?n kiem dich thuc vat phai phan tich nguy ca truoc khi nhap khau vao Viet Nam,
" IChi phan tich nguy ca djch h^i doi vai cac loai d6ng vit thiiy san dirge nhap ve d^ lara giong thi npi dung phin tich chi la lly mau xet nghiem c4c benh dich.
cua Viet Nam, no co thi sinh truang nhanh chong khiin moi truong sing ciia^ sinh vat ban dia bi thu hep, hoac pha va chu6i thiic an tu nhien ciia he smh thai ban dia va tro thanh SVNL xam hai. Truoc tinh hinh do, cin thiit phai c6 nhung quy dinh cu thi vi quy trinh danh gia tac dpng ciia SVNL la dpng vat dii vdi he sinh thai ban dia, day cimg la mpt van di phap ly dang luu tam neu chiing ta mu6n hoan thien cac quy dinh ve kiim soat va ngan chan sir du nhap ciia SVNL xam hai vao Viet Nam.
Thu hai, nang cao trinh dp cua cac chu the thuc thi nhiem vu kiem soat SVNL xam hai:
van di nSng cao trinh dp cua cac chu the quan ly va thuc thi nhiem vu kiem soat SVNL tuy khong phai la mpt van de phap ly nhung viec nang cao trinh dp cho cac chu the nay co the dugc xem nhu la mgt bien phap bo trg de co the han che mpt each thap nhat loai ngoai lai xam hai co the hien dien tren lanh tho Viet Nam. Bai le, mot khi chinh sach phap luat da hoan thien, chiing ta lai can dpi ngu ap dung phap luat chuyen m6n co nghiep vu va ky nang cao. Hien nay, theo khao sat cua Tong cue Moi truong, co toi 40% can bp o cap Trung uong, 60% can bp tai Sa Tai nguyen - Moi trudng hay So N6ng nghiep va Phat trien n6ng th6n tra loi sai, chua nam dugc cac npi dung quan ly SVNL theo quy dinh ciia Luat Da dang sinh hpc nam 2008. Khoang 85 - 100% a cap Trung uong, 90% can bp d p dia phuong nhan dinh, co quan noi hp dang c6ng tac chua du nang luc quan ly SVNL, do chua CO can bp hieu biet sau ve ITnh vuc nay hay thieu ky thuat, tai chinh. Hau hit can bg cap trung ucmg va dia phuong dugc hoi, diu chua tham gia cac de tai, du an vi SVNL.'^
Khac phuc dugc nhiing han che nay cung vol su hoan thien ciia he th6ng phap luat thi van de kiem soat va ngan chan SVNL xam hai du nhap vao Viet Nam la dieu hoan toan co thi thuc hien dugc.
'= Tuyet Hoa, "Quan ly sinh vat ngoai lai tu chinh sach dgn trach nhiera", httpV/www.daibieunhandan.
vn/default.aspx?tabid=83&Newsld=311675, truy cap n g a y 2 9 / l l / 2 0 1 7 .
14 TAP CHI KHOA HQC PH LY SO 03(n5)/20I8 2.2. Kiem sodt du nhap khong chu dich
SVNL c6 t h i du nhap khong chu dich bang con duang (i) di kem hang hoa nhap khau hoac cac phuong tien chuyen cho hoac (ii) theo nuac d i n tau va can lang nuoc dan tau.
(i) Bi kem hdng hoa nhgp khdu hoac cdc phuang tien chuyen cha
Su mo rgng pham vi s6ng cua loai ngoai lai kh6ng bi gioi han boi bien giai chinh tri, mpt phan xuat phat tu s\r du nhap ngau nhien ciia chiing th6ng qua boat dpng thuong mai, du lich va van tai, dac biet nhung lo^i ngoai lai c6 kich thu6c nho ma mat thuong kh6 nhan biet. Don cu, cac loai nam, au tning, tning cua con tning, vi sinh vat, hat gi6ng,...
hoan toan co the "an nap" trong cac kien hang, trong dat bam vao nong san nhap khau, trong vSt ch^n hang, hay cong cu chuyen cho.... Bao ngu Nam Phi {Haliotis midae) dugc nhap khau vao California nham phuc vu hoat dgng nuoi trong thuy san, loai trung Commensal sabellid polychaete ky sinh tren vo bao ngu cung dupe dua vao California va tro thanh sau hai gay bSnh 6 q u i c gia nay.'^ Nam 2003, Viet Nam nhap khIu hat giong Ilia b6i tap Son Thanh tu Trung Quoc, sau do da phat hien trieu chiing benh do loai nam Eballistra oryzae gay nen tren Ilia giing boi tap San Thanh gieo trong b Thai Nguyen v^ B I C Can. Cac vuon uom, vuan h-ong giong sau rieng Monthong nhap khau tu Thai Lan deu nhiem nang loai tuyin tning Radopholus durianphilus. Loai tuyin tning nay mac dii c6 n g u i n g i c tu Thai Lan nhung da theo giong cay sau rieng du nhap vao nuac ta.'"*
Thuc te cho thay, thuang mai hang hoa, du lich, van tai q u i c t i cang phat triin thi cang kho co co so de khing diiih su du nhap cua SVNL mpt each ngSu nhien th6ng qua con duong nay co dau hieu dung Iai hay chi it la giam di ttong thoi gian sip tai. Chiing '^ Global Invasive Species Programme (GISP) tldd, tr. 6- 14.
'" Hoang Thj Thanh Nhan (chii bien), tldd tr 15 -16.
ta kh6ng the can thiep de giam bat tan xuit di chuyin ciia phuang tien van tai, va cang kh6ng the tao ra cac rao can thuong m^i giira cac n u a c nham han che sir du nhap ciia SVNL. Chinh vi vay, muc tieu ciia chiing ta la d i ra nhiing giai phap kiem soat SVNL trong s\r can xung v a i lgi ich cua t\r do thuong mai.
Trong khuon kh6 W T O , Hiep dinh ve Cac bien phap kiem dich dgng thuc vat (Hiep dinh SPS) da quy dinh nhiing nguydn t i c va d i i u kien ma cac n u a c thanh viSn phai tuan thu khi ban hanh va ap dung cac bien phap ve sinh va kiem dich dpng thi;c vat {Sanitary and Phytosanitary Measure - SPS) tai quoc gia minh, sao cho cac nuoc thanh vien van bao ve dugc sue khoe, tinh mang cua con nguoi, v^t nuoi va cay tring khoi b$nh dich o muc can thiet ma khong gay ra bat ky can tro bat hgp ly nao cho thuang mai. N h u vay, npi dung ciia Hiep dinh nay da thoa man muc tieu hai hoa cac lgi ich do thuang mai mang lai va viec ngan chan, kiem soat SVNL xam hai. Nhung nguyen tac va dieu kien cua Hiep dinh SPS la ly tuong de thiet lap mpt "hang rao phong ngu" giiip cac qu6c gia ngan chan ngay tii dau sir xam nhap cua SVNL xSm hai tai cua khau qu6c gia. Song duoi goc dp kiem soat SVNL, viec cac nuoc thanh vien da tiep nhan nhu t h i nao va thuc thi CO hieu qua hay khong lai la mpt v i n de hoan toan khac. Ci Viet Nam, Thong tu lien tich s6 27/20 1 3 / T T L T - B N N - B T N M T ngay 26/09/2013 da ban hanh tieu chi xac dinh SVNL xam hai va danh muc cac loai ngoai lai xam hai, loai ngoai lai co nguy co xam hai da xuat hien tren lanh t h i Viet Nam, va loai ngoai lai co nguy c a xam hjii chua x u i t hien tren lanh t h i Viet Nam.'^ Chung ta ciing co nhung quy dinh v i kiem dich va phan tich nguy c o dich hai d i i voi dpng thuc vat truoc khi nhap k h I u vao Vi$t Nam tai Ludt Bao ve va k i i m dich thuc v^t 2013 va Luat Thii y nam 2015. D6ng thai, cac '^ Xem: Phy luc I, II, lU Th6ng tu lifin tjch s6 27/2013/TTLT-BTNMT-BNNPTNT
LUAT KINH TE 15 vSt the CO the mang theo sinh vat gay hai
ngay nay ciing dupe Viet Nam liet ke vao danh muc vat the thuoc dien kiim dich thuc vat.'^
Cac quy dinh tren cua Viet Nam duoc nhin nhan khong tao ra bit ky rao can thuang mai nao, nhung di kiim soat SVNL xam hai thong qua hang hoa hay phuang tien van chuyen thi nhiing quy dinh nay chi to ra hieu qua khi SVNL dugc phat hien nam trong 03 danh muc ban hanh k^m theo Thong tu 27/2013/TTLT-BTNMT- BNNTPNT. Viec bo sung danh muc loki ngoai lai co nguy co xSm hai chua xuat hi§n tren lanh thi Viet Nam (Phu luc HI Th6ng tu 27/2013/TTLT-BTNMT-BNNPTNT) phan nao lam tang them tinh du doan cho boat dpng kiem soat SVNL xam hai. Tuy nhien, danh muc quy dinh tai Phu luc III chi moi dung lai 6 nhom dpng vat kh6ng xuang s6ng, ca, luotig cu va thuc vat; trong khi SVNL di kem h^ng h6a va phuang tien van chuyen cdn co the la cac loai vi nIm, hat giong nlm trong dit, hoac vi sinh vat khac (vi khuan, vi tao, vi nit,...). Han chi nay la dieu kho tranh khoi, bai tieu chi di xac dinh mpt loai ngoai lai co nguy co xam hai chua xuat hien tai Viet Nam la viec sinh vat nay da xam hai tai hai quoc gia tro len co dieu kiSn sinh thai tuong tu vol Viet Nam." Nhu vay, van de cot loi nam 6 viec lam the nao de Viet Nam co the tiep nhan dugc thong tin tu nhiing nuac nay mpt each nhanh chong, kip thoi de dam b^o danh muc "SVNL co nguy co xam hai chua xuat hien tai Viet Nam" luon dugc cap nhat va mang tinh dy bao cao. Vi vay, se thuan tien hon va hieu qua hon neu Viet Nam tang cucmg ban nua hgp tac qu6c te vai cac nuoc trong van de nghien ciiu, du doan va chia se thong tin ve loai ngoai lai xam hai.
'* Khoan 7 Dieu 1 Thong tu so 30/2014/TT- BNPTNT ngay 05/09/2014 ban hanh danh myc v^t the thuoc di^n kiem djch thyc v^t, danh muc vat thi thuoc dien kiem dich th\rc vat phai phan tich nguy ca dich hai tnrac khi nhap khau vao Vi^t Nam.
'^ Diem b khohn 2 Dieu 1 Thong tir lien tich si 27/2013/TTLT-BTNMT-BNNPTNN.
(ii) Theo nu&c dan tau vd can Idng nu&c ddn tdu
Nuac din la lugng nuoc dugc bom tii ben ngoai vao he thing ballast thuy luc ciia tau biin nham dam bao cho tau duoc can bing. Nuoc din dugc bom vao khi hang tren tau xip khong diu hoac khi tau kh6ng chd hang va dugc thai ra de nang tau len khi tau cap cang hoac di vao khu vuc bien hep va can.'* Do do, nu6c dan thuang la su pha trpn nuac tu nhieu cang nam trong hanh trinh di chuyen cua tau bien. Day la diSu ki$n thufin lgi de sinh vat thiiy sinh nam lan trong nuoc dan dugc bom o cang di, chuyen den cu ngu tai mpt vung bien moi khi tau thai ra nudc dan o cang den. Chuong trinh Globallast uac tinh, trong mpt ngay co khoang tu 3.000 den 10.000 sinh vat bien di chuyen tren khap the gioi thong qua nuac dan tau." Cac nghien ciiu thuc hien a My chi ra rang hoat dpng trao doi nuoc dan cua cac tdu vSn chuyen quic te la con duang dem den s6 lugng sinh vSt thiiy sinh ngoai lai lan iihlt.^°
Thuc trang tren cho thay, nuac dan la con duong du nhap pho bien cua sinh vat thuy sinh ngoai lai, vi vay lam thi ndo de kiim soat sinh vat thuy sinh ngoai lai va lam sao de kiem soat chiing hieu qua khong chi la nhu cau cap bach cua tung quoc gia ma doi hoi can phai co sy "chung tay" cua toan thi gioi. Hien nay, T6 chiic Hang hai quic te {International Maritime Organization - IMO) da thong qua Cong uoc quic ti vi kigm soat va quan ly nu6c din tdu va can lang nuoc din tau {International Convention for the Control and Management of Ships' Ballast Water and Sediments - BWM), bit diu CO hieu luc ki tu ngay 08/09/2017.
'* Christopher F. Deacustis, Richard C. Ribb (2002), Ballast Water and Introduces Species: Management Option for Naragansett Bay and Rhode Island, tr.
2, http;//www.nbep.org/publications/other/ballast/
BallWaterIntroSpeciesRpt.pdf, 2002, truy cap ng^y 29/11/2017.
'' Global Invasive Species Programme (GISP), Tldd, p. 14.
^° Christopher F. Deacustis and Richard C. Ribb , tldd 2002, tr. 1.
TAP CHI KHOA HQC PH SO 03(n5)/20i8 Cong u6c dugc ap dung d6i voi tau mang
CO ciia quoc gia thanh vien, cac tau khong mang co ciia quoc gia thanh vien nhung hoat dpng duoi tham quyen cua quoc gia thanh vien.-' Tau dupe nhac den 6 day bao gom tat ca cac loai: tau ngam {submersibles), tau noi {floating craft), cong trinh noi {floating flatforms), kho chua noi (FSUs, FPSOs)
boat dpng trong moi truong nuac.^^ C6ng uac khong ap dung d6i voi tau khong dugc thiet ki hoac dugc dong de cha nuac dan;
tau chi hoat dpng npi dja; tau chi boat d6ng trong vung nuac thupc quyen tai phan cua mpt quoc gia thanh vien va bien quoc te;
tau chien, tau hai quan hoac cac tau su dung cho muc dich phi thuang mai; tau co nuac dan CO dinh trong cac ket dupe han kin ma khong xa ra ben ngoai.^^
Nhu vay, ve phuang dien quoc te, sinh vat thiiy sinh ngoai lai da dupe quan tam kiem soat tuang doi chat che. Viec gia nhap Cong uac se dem den cho cac qu6c gia thanh vien mpt CO che phap Iy thong nhat nham hd trg nhau trong viec ngan chan su lay lan cua SVNL xam hai thong qua dudng thiiy, va khi Cdng udc nay co hieu luc, no se anh hudng den hoat dpng cua cac tau tren tuyen qudc te trong do cd Viet Nam. Cac quy dinh vi pham vi dieu chinh cua Cdng udc cho thiy, nd dugc ap dung cho cac tau hoat dpng tren vung bien ciia cac quoc gia thanh vien ngay ca khi nhiing tau nay khdng mang qudc tich ciia qudc gia thanh vien. Nhu vay, m^c dii Viet Nam chua gia nhap Cdng udc nhung tau Viet Nam boat ddng tren cac tuyin cd quic gia thanh vien Cdng udc vin phai dap iing day dii cac yeu cau ve quan ly nudc din theo quy dinh cua Cdng udc bing each chiing minh da thuc hien viec kiem tra va dugc d p tai lieu phu hgp vdi quy dinh cua Cong udc.
Day se la mpt trd ngai cho hoat ddng van chuyen quic te cua dpi tau biin Viet Nam, vi tinh din thdi diim nay Viet Nam chua cd quy dinh vi quy trinh va quy chuin ky thu^t
^' Article 3 BWM.
2^ Di6u 1 BWM.
^3 Digu 3 BWM.
quan ly nudc dan ddi vdi cac tau Viet Nam boat ddng tren tuyen qudc te ciing nhu cac tau qudc te cap cang Viet Nam. Dieu nay keo theo tam ly hdi hgt ddi vdi boat ddng xa thai nudc din tau, va la nguyen nhan khiin cho viec kiem soat sinh vat thuy sinh ngoai lai trd nen khd khan. Ddng thdi, tau Viet Nam trudc day chua trang bi cdng nghe kiem soat nudc dan thi nay se phai bd them chi phi de trang hi nhirng thiet bi nay niu mudn boat ddng tren vung bien cua cac qudc gia thanh vien Cdng udc, trong khi cdng nghe tau biin khdng phai la the manh cua Viet Nam thi chi phi nay se tang cao khi chung ta phai nhap khau cdng nghe tu nudc ngoai.
Dung trudc nhiing thach thiic nhu trSn, viec Viet Nam chuan bi nhiing tien de de gia nhap Cdng udc quan ly nudc dan tau va can lang nudc dan tau la dieu nen dugc xem xet trong thdi gian sap tdi. Khi gia nhap Cdng udc, Viet Nam se cd san nhiing quy chuin va nguyen tac quan ly nudc dan tau do IMO ban hanh, chiing ta khong phai mit nhiiu thdi gian de ty xay dung cho minh mpt bo quy chuan quan ly nudc din tau va budc cac qudc gia phai tuan thu. Khdng nhiing vay, sii dung cac nguyen tac va quy chuan da dugc cdng ddng qudc te cdng nhan la diem mau chdt giiip tau biin Viet Nam phong tranh nhiing nii ro do vi pham quy dinh quan ly nudc dan mdt each hieu qua, hon la cac quy dinh quan Iy nudc dan ciia rieng chiing ta, Va mdt khi da la thanh vien ciia Cdng udc, chiing ta se nhan dugc sy hd trg ve cdng nghe tii cac nudc thanh vien khac,^'* viec hgp tac nghidn cuu cdng nghe kiim soat nudc dan tau khdng chi giiip chiung ta tiet kiem duoc chi phi nghien ciiu va chi phi lip dat ma cdn giiip cac ky su, nha khoa hpc cua Viet Nam cd co hpi tiep can dupe c6ng nghe mdi nhanh chdng va kip thdi.
Khi Viet Nam chua la thanh vien Cdng udc, vi phuong dien chu tau, cin cd ke hoach chii ddng tim hiiu cac quy dinh ve vung trao ddi nudc dan ciia cac qudc gia thanh vien Cdng udc ma minh se ghe qua
'"DiSuUBWM.
LUAT KINH TE 17 trong hanh trinh cua tau, lap dat thiet bi xu
ly nudc dan va can lang nudc dan ddi vdi cac tau chay tuyen qudc te de han che cac rui ro va chi phi phat sinh khdng mong mudn lien quan den viec bat giu va luu gift tau do khdng tuan thu cac quy dinh cua Cdng udc. Ve phuang dien qudc gia, cac co quan quan ly hang hai, quan ly mdi trudng cua Viet Nam can cd ke hoach nghien cuu cac thu tuc gia nhap Cdng udc, dy doan nhiing khd khan ma dpi tau Viet Nam cd the gap phai khi chiing ta la thanh vien ciia Cdng udc nay, tuyen truyen va trang bi kien thuc phap ly ciing nhu ky thuat khdng chi cho can bp cd lien quan ma cdn cho chii tau, thuyen trudng va cac thuyen vien tren tau. Mat khac, khi chua gia nhap, Viet Nam ciing cd the ap dung tuong tu cac quy dinh ve quan ly nudc dan ciia Cdng udc nham hd trg hieu qua cdng tac kiem soat sinh vat thiiy sinh ngoai lai xam hai, nhu quy dinh ve dia diem trao ddi nudc dan tau^^ va quy dinh ve tieu chuan nudc dan tau sau khi xu ly, nudc dan tau dugc phep xa ra bien.^'^
Viet Nam chi mdi ddi mat vdi su de dpa cua SVNL khoang niia dau thap ky 90, khi dich dc buou vang bung phat tft Ddng bang sdng Cuu Long din Ddng bang Bac Bp,^' vi thi cac quy dinh cua phap luat ve kiem soat va ngan ngua SVNL xam hai cdn nhieu thieu sdt la diiu khdng the tranh khdi. Kiera soat SVNL la mdt chiin dich dai ban cua mdi qudc gia, Viet Nam ciing dang tftng budc hoan thien thi che phap ly di ngan ngua mpt each hieu qua nhiing tac hai do SVNL xam hai gay ra. Tuy nhien, sy nd luc rieng le cua tung qudc gia khdng the dem den mpt kit qua vien man. SVNL la van de toan cau, chinh vi vay, can phai cd sy hgp tac qudc te va khu vyc trong viec kiem soat SVNL xam hai, ching han: trien khai dam phan cac hiep dinh da phuang hoac song phuang ve quan ly va kiim soat SVNL di kem hang hda nhap
^' Regulation B-4 BWM
^^ Regulation D-2 BWM
^' Bo Tai nguyen va moi truong (Hoang Thi Thanh Nhan chii bien), tldd, tr. 10.
khIu, ve diet trir va ngan chan sy lay lan ciia SVNL xam hai dii vdi cac nudc cd chung dudng bien gidi. Cd nhu vay, chiing ta mdi cd thi tao ldp nen mpt hd thing quan ly va kiim soat SVNL xam hai toan dien.
Tai lieu tham khao
[1] Luat Da d^ng sinh hoc (Luat s6 20/2008/QH12) ngay 13/11/2008 [trans: Law on Biodiversity (No. 20/2008/QH12)]
[2] Hoang Thi Thanh Nhan (chu bien), Kiin thuc ca bdn vi sinh vdt ngogi lai xdm hgi. cong thong tin dien tii ciia Bp Tai nguyen va Moi tnrong [trans: Hoang Thi Thanh Nhan (ed.), Basic knowledges of invasive alien species, website of Ministry of Natural Resources and Environment], http://vea.gov.vn/vn/quanlymt/
baotondadangsh/tintuchoatdong/tintucvasukien/
tmtuc/Docuraents/g.pdf, accessed on 29/11/2017 [3] Cong uoc qu6c t6 v6 kiem soat va quan ly nuac diin
tau va can ISng nu6c din tau [trans: International Convention for the Control and Management of Ships' Ballast Water and Sedunents - BWM]
[4] Christopher F. Deacustis, Richard C. Ribb, Ballast Water and Introduces Species- Management Option for Naragansett Bay and Rhode lsland,2002, http://wnAW.nbep.org/publications/
other/ballast/BallWaterlntroSpeciesRpt.pdf, accessed on 29/11/2017
[5] Dicision VI/23 of the Sixth Meeting of the Conference of the Parties to the Convention on Biological Diversity, the Hague, Nedierlands, 7-19 April 2002
[6] Global Invasive Species Programme (GISP), Introduction to invasive alien species, modulel, 2005,http://www.issg.org/pd£'publications/GISP/
GISP^TrainingCourseMaterials/Management/
ManaginginvasivesModulel.pdf, accessed on 29/11/2017
[7] Tuyet Hoa, "Quan ly sinh vat ngoai lai tir chinh sach den trach nhiem" [trans: Tuyet Hoa,
"Management of alien species from policy to responsibility"], http://www.daibieuiihandan.
vn/default.aspx?tabid=83&NewsId=311675, accessed on 29/11/2017
[8] Hung Long, "Sinh vkt ngoai lai xam hai vugt tam kiem soat" [trans: Hung Long,
"Invasive alien species beyond control"], http://
baotainguyenmoitruong.vn/moi-tmong-va-phat- trien/201609/sinh-vat-ngoai-iai-xam-hai-vuot- tam-kiem-soat-2730741/,accessed on 29/11/2017