CHlNH TR! - AN NINH THE GI6I
Quan diem xay dyng chinh sach bien can dai va hien dai
TS. NGUVEN THANH MINH
NghiSn Clhi cdc quan diim vi xdy dung hay hogch dinh chinh sdch bien Id vdn de khd nhung rdt cdn bdn, bdi vi chinh sdch bien cita moi quoc gia ven bien duac hogch djnh vd triin khai thuc hien nhu thi ndo hodn todn phu thuoc vdo nhgn thirc chU quan cita con ngudi Nhdn thtic vi bien ddo diing se co mot chinh sdch ve bien phii hap vd mang tinh todn dien tren tdt cd cdc linh vuc.
Tic khoa: Nhitng quan diim, hoc thuyet, chinh sdch ve bien.
1. Gidi thifiu
Cac quan diem ve xay dung chinh sach bien hau nhu deu xuat hien frong thdi ky each mang tu san, can dai va hifin dai. Song viec phan biet cac hgc thuyfit hay quan difim xay dyng chfnh sach bifin hoan toan khdng mang nhieu y nghTa ca ve mat ndi dung Ian qua trinh trifin khai thyc hien. Vi xuyen sudt viec hoach dinh chinh sach bifin van la van de khai thac bien dao gin vdi bao vfi chu quyen bien dao cua moi qudc gia ven bifin. Tuy nhien, each thiic va tu duy friln khai chinh sach bien giiia cac qudc gia cung cd sy khac bifit. Chinh vi vay, thyc te lich sur cung da cho thay cd qudc gia giap biln nhung nfin kinh tfi ndi chung va kinh tfi bien ndi rifing cua qudc gia do khdng phat trifin, ITnh vyc qudc phdng, an ninh cung han chl, tham chi thut liii frong cudc dua quyfit liet de trd thanh cucmg qudc hang hai thfi gidi; cd qudc gia cd biln nhung bdi le cac qudc gia dd ap dung chinh sach be quan tda cang, xem luc dia la vin dl mill chdt cua sy phat triln kinh tl va dam bao qudc phdng - an ninh cua qudc gia, cdn biln
*B9 TIT I|nh CSnh sit bien, B6 Quoc phdng •
dao la thli ylu. Dilu do da dan den he qua la qudc gia cd bien nhung kinh te bifin khdng phat trifin, dau tu cho viec xay dung luc lugng bao ve chu quyen bien dao cdn don gian. Tham chi d mgt thdi ky ljch su nhat dinh, cd nhfing qudc gia cdn ban hanh chinh sach cam bien, tu duy hudng luc dia dd da iam lu md va han che dfin vific quan ly va khai thac sii dung bifin.
Khdng the xem nhe tam quan trpng cua bifin dao trong qua trinh hinh thanh va phat trien ciia cac qudc gia ven bifin. Tuy nhifin, bifin phap quan ly va khai thac bien dao nhu the nao lai tiiy thudc vao viec hoach dinh va frien khai thuc hifin chinh sach ve bien 6 moi qudc gia. Chinh vi tam quan trgng do ma trong lich sii nhan loai da xuat hifin nhieu ly thuyet gia ndi tifing vfi xay dyng chinh sach bien. Mat khac, vi ban chSt quan trgng ciia chinh sach bifin nen ciing cd nhieu quan difim khac nhau vfi xay dyng chinh sach bien, cd quan nifim chinh sach bifin nhu la van ban thfi hien quyen lyc tdi thugng ciia qudc gia ve khai thac va quan ly bien dao, cung cd quan niem chinh sach vfi bien nhu la bifin phap de thyc hifin quyen ty do hang hai quoc tl...
26 r -NhOng vin di KINH Jt VA CHiNH TR! THt Gidl So 12(224) 2014
Nguyin Thanh Minh Quan dilm xay dyng chinh sach biln..
Dudi day la mdt sl quan dilm xay dyng chinh sach bien can dai va hifin dai va mdt sd ggi y cho Viet Nam trong qua trinh hoach dinh va thyc thi chinh sach biln.
2. Cac quan diem can dai va hien dai ve xay dung chinh sach bien
2.1. Chinh sdch bien - vdn bdn dirac quy dinh bdi nhd nu&c
Mdt trong nhung van de co ban khi hoach dinh va trifin khai chinh sach bifin la nhin nhan va xem xet chiic nang cua chinh sach biln. Day la van dfi CO ban, nhung rat tific ring hien nay nhan thiic ve van de nay chua mang tinh phd quat. Mpi sy vat van ddng va bien ddi theo thdi gian: hdm nay van de dugc hifiu nhu vay la diing, nhung nd se khdng cdn diing frong mgt thdi diem khac. Nhung dii cd su bifin ddi may di chang nua thi chiing vin gifi dugc cai can nguyen vdn cd cua chiing, neu khdng phai nhu vay thi chiing khdng cdn la chiing nita. Chiic nang ciia chinh sach bien cd vi tri quan trpng trong ddi sdng xS hdi ciia cac qudc gia ven bifin.
Vai trd cua chinh sach bien bao gio cfing xuat hien trong nhiing dieu kien hoan canh nhat dinh. Chiic nang ciia chinh sach bien dugc quy dinh bdi nha nudc de thyc thi chu quyen ciia qudc gia bien dao va phat trien kinh te bifin, day la chiic nang can ban vdn cd ciia chinh sach bien ddi vdi mdi qudc gia dan tdc bifin tren the giai. Sy hifin difin cua mdt van ban ciia ca quan nha nudc quy dinh hoat ddng vfi bien dao la su the hifin quyfin luc ciia nha nuoc ddi vdi viing bien dao trong pham vi Ianh thd cua minh. Do dd, duy nhat chi cd each thdng qua chinh sach bifin thi mdi qudc gia dan tpc mdi khang dinh dugc chil quyen ciia minh ve mat nha nudc ddi vai cac viing bien dao. Day la ngi dung quan trpng dugc quy dinh bdi he thdng luat phap qudc tl vl xac lap chu quyen Ianh thd qudc gia.
C) cac qudc gia ven bifin tren thfi gidi va trong khu vuc thuo ban dau deu cd chfnh sach biln nhung chinh sach nay chua thanh van, nha nudc khdng ban hanh chinh sach bifin-bang van ban cu thl dfi thyc hien. Chinh sach biln thl hien chu yeu d nhiing tap tuc, truyen thdng khai
thac biln khac dugc hinh thanh dan dan tir xa xua, ma khi tiln hanh khai thac bien, cac nha nudc budc phai ap dung, Chi cd nha nudc moi ban hanh chinh sach bifin de tiiyc hifin chiirc nang khai thac, quan ly va xac lap chu quyen ddi vdi bien dao. Sau vin dfi xac lap chii quyen la van dl triln khai thyc hien quyen lyc cua nha nudc ve khai thac va bao vfi chii quyen bien dao - mgt ndi dung quan trpng cua chinh sach bien.
Theo Alfred Thayer Mahan, Anh hudng cua chinh phu se duac the hien mot cdch chinh danh nhdt irong viec duy tri luc luang hdi qudn tuang xifng vdi su phdt trien cua ngdnh vdn tdi bien va vai trd quan trong vi nhitng lai ich gdn vdi ngdnh ndy'. Trifin khai thyc hien nhiem vu bao ve chii quyfin bien dao cua nha nuoc the hien qua phuong dien quan su, do la bao vfi chil quyfin bien dao dugc thuc hien bdi luc Iugng hai quan va phuong dien kinh tfi thdng qua cac bifin phap khai thac ngudn tai nguyen bifin. Tuy nhien, theo thdi gian chinh sach bifin dugc bieu hien qua nhieu phuang thiic va bifin phap khac nhau.
Trong bdi canh hien nay, vdi tu each la cuong qudc bien diing dau thfi gidi, tir cudi thl ky XIX den nay. My ludn nhat quan trong vific hoach dinh va trifin khai chinh sach bifin vdi y nghTa la mpt cdng cu chifin lugc quan trgng nhat ciia nha nudc de xac lap, ciing cd va duy tri siic manh dfi kiem soat tren cac dai duong ciing nhu thuc hien chinh sach ddi ngoai va thucmg mai qudc te cua minh. Vific hoach dinh va trifin khai chinh sach bifin d My Ididng dugc giao cho mgt CO quan nao ma tryc tiep do Phii Tdng thdng My quan ly, thdng qua vai frd cua hdi ddng dai duong qudc gia. Dieu dd cho thay tim quan^rgng ciia vific hoach dinh va trien khai thyc thi chinh sach bifin d My .
Mpi the che nha nudc cua cac qudc gia ven bien deu phai tien hanh hoach dinh chinh sach
' Alfred Thayer Mahan (2012): The Influence of Sea Power Upon History, 1660 - 1783, NXB Tri thuc, H^
Noi, trang 128,
" Dang Xuan Phucmg, Nguyen Le TuSn (2014): Quan ly nha nirac tong hap va thong nhdt ve bien, hdi dao.
NXB.Chinh tn quic gia, Ha N6i, tr, 324 - 325,
NhOng vin di KINH it VA CHINH TR! THt GIOI So 12(224) 2014 -
27;
Nguyin Thanh IVlinh vl bifin, churc nang nay khdng thfi phd thac cho
bat ky mpt ca nhan hay mdt td chiic phi chinh phu nao thyc hien. Chinh sach bien dugc the hien trong cac van ban quy pham ciia nha nuoc tir hifin phap den cac van ban phap luat va dudi luat do nha nudc ban hanh de mgi ngudi thyc hien. Chfnh sach bien la sy thdng nhat, cd sy phan cdng va phdi hgp giiia cac co quan nha nudc trong viec thuc hien cac ndi dung ciia chinh sach bien. Mgt qudc gia khi xac lap chu quyfin ddi vcri mdt vimg lanh thd phai thfi hifin day dli tinh chat ve mat nha nuac, tiic la nha nudc do cd ban hanh van ban, chinh sach va td chiic quan ly hanh chinh vimg lanh thd dd hay khdng khi nd chua thudc chu quyin cua bat ky mdt qudc gia hay viing lanh thd nao, ddng thdi each thiic xac lap chu quyen phai dugc thuc hifin boi td chiic hanh chinh true thudc nhanudc^.
Cd mdt thyc te, trong bdi canh hifin nay, khi tranh chap chu quyen bifin dao dien ra gay git d nhieu noi trfin the gidi va khu vyc, cac thl chfi nha nudc cd lifin quan da loay hoay di tim bing chung de khang dinh chii quyin vimg biln dao bi tranh chip dd la thudc Ianh thd ciia minh, nhung hp da quen ring dl khing dinh chii quyen vung lanh thd dd thi nha nudc phai cd chinh sach ve bien dfi xac lap chu quyen vimg bifin dao do. Liic nay vai trd chirc nang ciia chinh sach bien cua mdi qudc gia ven bifin dugc thfi hien ro nham khang dinh chii quyin cua minh ddi vdi viing lanh thd dd.
2.2. Chinh sach - mdt trong nhirng bien phap ai thu-c hien quyen tit do hang hai quoc te
Nhan loai da nhan thiic dugc ring, nhiing tuyen dudng giao thuang tren biln cd anh hudng sau sac ddi vdi su thinh vugng va siic manh ciia cac qudc gia trudc khi nhiing nguyen ly chi phdi su phat triln va thinh vugng dugc phit hifin. Mudn cho dan tdc minh chilm dugc phan Idn hon frong nhung lgi ich ma biln ca
^ Xern them Nguyen Thanh Minh, Vi mgt sS hoi nghj quoc te lien quan din chu quyin cua Viet Nam ddi voi hat qudn dao Hoang Sa vd Truang Sa giai dogn 1943 - 1951. Tap chf Nghien ciiu Ljch sii, sl 9/2014.
mang lai, ngudi ta da lam tit ca mgi bien phap cd the, bao gdm ca nhOng bien phap phap ly dn hda, nham gifi ddc quyen hoac cam doan va khi cac bien phap dn hda that bai, hg se dimg vfi luc nham day cac qudc gia dan tdc khac ra xa Igi fch cua bifin va dai duong. Thai ky cd dai, khi nfin kinh tfi va khoa hpc - ky thuat chua phat trien, viec quan ly bien dao, khai thac va sii dung tai nguyen bien moi chi dimg d viing bifin ven bd-, cdn viing bifin xa bcr dugc xem la khdng thudc so huu ciia bat ky qudc gia nao khac, tit ca cac qudc gia khac deu cd quyfin ty do khai thac, sir dyng tai nguyen bifin va ty do hang hai.
Ban dau nhung quyen nay la bat thanh van, bdi vi cac td chiic qudc tfi chua xuit hien dl ban thao va thdng nhat nhfing vin dfi lifin quan din chil quyen bien dao.
Trong lich sur thl gidfi, cac mdi quan he qudc tfi ludn van ddng, ludn bifin chuyen theo nhiing quy dao rifing cua nd, trong dd tam cua chuyfin ddng van la cac cudng qudc hang hai cua thl gidi. Khdi thuy cua ty do biln ca dugc phat triln thanh nguyfin tic ty do hang hai. Nguyen tac nay dugc hinh thanh va phat triln dua tren hgc thuyet ty do bifin ca ma dai dien tieu bilu nhat la luat gia ngudi Ha Lan Hugo Grotius (1583 - 1645), ngudfi soan thao lap luat cdng phap qudc te tren co so- luat ty nhien, Hugo Grotius dugc xem la cha de ciia luat qudc tl va luat biln. Hugo Grotius cho ring, luat ty nhien cfing cd vai trd hinh thanh nen he thdng phap luat giua cac qudc gia. Theo dng, luat tu nhifin dugc mpi ngudi irng hd do tinh hgp ly cua nd.
Tuy vay, quyin ty do danh ca tren bifin khdng phai la mgt quyin tu do tuyet ddi ma bi gidi han bdi mgt sd dilu kien nhit dinh nhu khdng dugc ddc chilm, thilt lap chu quyin hay quan ly ngudn tai nguyen tren biln dudi bit ky hinh thiic nao khac. NghTa la tai bit cii vimg bien nao, mdt qudc gia khdng dugc xac lap quyfin chu quyin de mdt minh khai thac, sii dung ngudn tai nguyen biln. Nhu vay, ngay tir khi the gidi chua cd nhung chl dinh cu thl vl chii quyin ciia qudc gia tren biln thi vific khai thac va su dung tai nguyen biln da bi han chl de dam bao dung hda quyin va Igi ich cho cac
28- -NhOng vin di KINH T^ VA CHINH TR! TH6 Giai S6 12(224) 2014
Nguyin Thanh Minh Quan dilm xay dyng chinh sach biln..
qudc gia khac, nhit la nhfing qudc gia khdng cd bien hay bit Igi vl mat dia ly.
Dfin thdi ky can dai va hien dai, khi trinh do khoa hpc - ky thuat va nin kinh tl thfi giai da cd budc phat friln cao, con ngudi da cd thfi khai thac va su dung ngudn tai nguyfin bifin khdng chi nham muc dfch phat friln kinh te don thuan ma cdn de phuc vy nghien ciiu khoa hgc, xay dung cac cdng trinh tren biln... Tir thl ky XV, vific tim kiem nhiing con dudng giao luu budn ban giiia chau Au va phuong Ddng dugc dat ra vd ciing biic thifit ma chu yeu la giao thdng ducmg bifin. Liic dd, khoa hpc - ky thuat va cdng nghfi da cd buoc phat trifin so vdi thea ky trudc, dac biet la nganh hang hai, da tao dilu kifin cho cac thuong nhan chau Au di tim nguyfin lieu va thi trudmg mdi. Cac cudc phat kifin Idn ve dja Iy da dugc thyc hifin, dieu dd da dem lai nhthig ngudn Igi kinh tl ldn cho thl gidi nhu huong lieu, vang bac, thi trudng va sy hifiu biet ve tri thiic khoa hpc, nhu be rdng va hinh the ciia trai dat va sy giao luu van hoa giua cdc chau luc.
Cac boat ddng ciia con ngucri trfin bifin cung khdng chi cdn gidi han d nhiing vimg nudc ven bd ma da each bdf hang fram va hang nghin hai ly'*. Khi dd cac qudc gia cd xu hudng md rdng quyfin tai phan cua minh ra phfa viing bifin qudc tfi dfi cd thfim nhfing dac quyfin, dac biet la ve kinh tl, frong dd ITnh vyc danh bat tai nguyfin sinh vat bifin va van tai bien la quan frgng nhat.
Mdt quy luat bit biln dd la su phat trien cua cac qudc gia ven bifin khdng the tach rdi hai yfiu td phat trien kinh tl biln va dam bao qudc phdng - an ninh fren bien. Do dd, nhu cau phat trifin kinh tfi va quan su trfin bien la dieu tat yeu cua cac qudc gia ven bifin. Chinh vi vay, nhu cau sir dung bien ca de dat dugc nhiing muc tieu dd da bugc cac qudc gia ven bien phai md rgng cac boat ddng frfin bien ve kinh te va quan sy. Sy phat triln cua nganh hang hai thfi gidi da dua cac qudc gia xich lai gan nhau hon, mac dii rat xa vl khoang each dia ly.
^ M 6 t h a i l y = 1852 m.
Khi thl gidi cd nhumg che dinh ve chu quyen trfin biln thi viec khai thac va sir dung biln da dugc gidi han, luy nhien dii nhung chfi dinh dd cd dugc thi hanh thi cung khdng anh hudmg tdi quyfin ty do hang hai qudc.tfi. He thdng quy pham phap ly qudc tl vl bifin dao ngay cang phat trien va mang tinh chat toan difin ban. Sy ra ddi ciia Cdng udc ciia Lifin hgp qudc vfi Luat Biln qudc tl nam 1982 gpi tit la UNCLOS da tao dilu kifin vl mat phap ly cho cac qudc gia ven biln mo rdng vimg bifin ciia minh theo quy dinh cua UNCLOS. Ngoai vung bifin thugc chu quyfin tuyet ddi cua qudc gia ven bien nhu vimg ndi thuy, cac qudc gia khac cd quyen ty do hang hai trong viing lanh hai cita cac qudc gia ven bien.
Trfin CO sd nhfing quy dinh ciia he thdng quy pham phap luSt quoc tfi vfi bien, du mudn hay khdng, du la cudng qudc hay chi la mdt nudc nhd thi dieu hien nhien la tat cac qudc gia dii cd bifin hay khdng cd bien, khi ho^ch dinh chinh sach vfi bifin dfiu phai thira nhan quyfin ty do hang hai qudc te. Khdng mdt qudc gia nao chdng lai quyfin ty do hang hai qudc tfi, tat nhifin tiiy theo dieu kien cua mdi qudc gia de thuc hien chiic nang giam sat vific thuc hien quyfin dd nhu the nao tren vimg bifin ciia minh.
2.3. Chink sdch bien - phirffng thuc khai thdc kit hop v&i bao ve chu quyen Men dao
Chfnh sach bifin ciia cac qudc gia frfin thl gidi ludn cd sy gan Hfin giu'a cdng tac quan ly bien dao vdi vific khai thac bifin dao. Day la mdi quan he bifin chiing hai mat ciia mgt vin dl. Mdt khi cac qudc gia ven bien khdng dii dilu kien vfi nang lyc, phuang tien va trinh do khoa hpc - cdng nghfi de quan ly tdt, it se bi cac thfi lyc ben ngoai de dpa, xam pham chii quyen bifin dao. Ngugc lai thyc hien tdt bifin phap khai thac ngudn tai nguyen bifin se phuc vu cho viec dau tu mua sam cac trang bi, vu khi va phuomg tifin hien dai dfi bao ve toan ven chii quyen bien dao.
NhOng vin di KINH T^ VA CHJNH TR| THt GIC^I S6 12(224) 2014 - "29
Quan dilm xay dyng chinh sach biln.
Trong lich sir thl gidi hien dai, quan niem vfi chinh sach biln dugc hilu rdng hon, nd bao frum len nhilu ITnh vyc quan trgng cua ddi sdrig xa hpi ciia cac qudc gia ven bien nhu qudc phdng, an ninh, kinh tl, hgp tac qudc tl, bao ve mdi truong biln..., do vay chinh sach biln cfing dugc quan niem mang tinh chat toan difin hon.
Chinh sach biln dugc hilu la nhiing sach lugc, kl hoach va bien phap cu thl nhim thuc hifin thing lgi chiln lugc, dudng ldi ciia qudc gia ve quan ly, khai tiiac va sii dung bien dao. Nhumg sach lugc, kl hoach va bifin phap ciia qudc gia vl bifin nhim thyc hifin thing lgi ducmg ldi phat triln kinh tl bifin va dam bao qudc phdng - an ninh biln dao, hpp tac qudc te vfi bifin, phan dinh biln, bao vfi va gin gifi: mdi truang bifin ma chifin lugc bifin hoach dinh, Chinh sach bien dugc thl hien qua nhilu hinh thiic quan ly ciia nha nudc, quan ly nha nuoc thdng nhat ve bifin dao la mdt trong nhumg hinh thiic dupc cac qudc gia ven bien sii dung trong qua trinh hoach djnh va thyc thi chinh sach bifin: Quan ly nha nudc thdng nhat ve bien dao la mdt chiic nang quan ly nha nudc, dugc thyc hien dya tren viec xac l^p va van hanh mdt he thdng cac hinh thiic td chiic va cdng cu quan ly cd tinh chat toan difin, hudng tdi muc tifiu phat trien ben virng ve kinh tfi - xa hdi va mdi trudmg nham duy tri, cimg cd su toan ven lanh thd, thdng nhat va hai hda vfi lpi ich qudc gia trong khai thac, su dung va bao ve bien dao.
Mudn phat trien kinh tfi bifin, nha nudc phai cd chinh sach bien thich hpp nhit la trong ITnh vyc kinh te bien, neu khong cac tap doan kinh tfi bifin se roi vao khiing hoang va se khdng tdn tai. Theo Mahan, trong thdi binh, bing chinh sach cua minh, chinh phu cd thl tao dilu kifin thuan lpi cho sy phat trieri cac nganh nghl va xu hudmg tim kiem van may dk lam giau nhd bien ca, hoac cd thfi cd ging phat triln nhfing nganh nghl va sd thich di biln nlu dan chiing chua cd nhung nganh nghe va sd thich nhu thl, hay mat khac, do chinh sach sai lim, chinh phii cd thfi ngan chan hoac kiem chl sy phat triln so vcri nhimg gi dan chiing cd thfi lam nlu hg dugc
tu do^. Chinh sach vl biln dugc xem nhu la bifin phap hiiu hifiu de cac qudc gia ven bifin trifin khai thyc hien nham dat dugc nhiing muc tifiu phat trien trong ITnh vyc kinh te bifin va xay dyng lyc lugng bao vfi chu quyen bifin dao.
Trong dd xac lap chu quyen la van dfi co ban sau dd mdi tien hanh phat trifin kinh tfi bien.
Kinh te bifin phat trifin hay khdng ngoai nhung ndi dung do nha nuoc hoach dinh cdn tuy thudc vao sy toan ven chu quyen bien dao cua mdi qudc gia ven bien. Lich sii cua nhan loai cho thiy, khi chii quyen ve bien dao bi de dpa hoac bi xam chiem thi cac ITnh vuc kinh tl bifin ciia qudc gia dd khdng the phat trifin binh thuang dugc.
Nam Minh Mang thii 17 (1836), nha vua phfi: Thuyen di den ddu, cdm moc tdi do de luu ddit. La ngudi diing dau nha nudc phong kien, vua Minh Mang cdn ra cac chi du thudng ph^t thudng xuyen cho cac chuyen cdng vu ra hai quin dao Hoang Sa va Trudng Sa' de quan ly va khai thac viing Ianh thd cua minh. Khai thac bifin ket hgp vdi bao ve chu quyfin qudc gia trfin cac viing bien dao la van dfi tat yeu cua mdi qudc gia ven bifin. Ljch sii cho thay, cac qudc gia ven bifin da hoach dinh chinh sach bien chii yfiu tren hai phuong difin co ban dd la phat trien kinh tfi bien va dam bao qudc phdng - an ninh trfin bien. Trong qua trinh khai thac tai rigujen bien, de bao vfi loi ich qudc gia fren bien viing bien cua qudc gia ngay cang dugc md rdng ra
^ Alfred Thayer Mahan (2012): The influence of Sea Power Upon History, 1660 - 1783, Nxb, Tri thiic.'H^
Noi, trang 128,
^ Chau phe ciia vua Minh Mang nam thii 17 (1836).
' Thong thucmg, dSn binh dpi Hoang Sa luon durpc thuong tir 1 den 2 quan tien va miln thue vi cuc khi v^
vat va theo doan ra hai quan dao Hoang Sa \k Truimg Sa. Con c^c vien chi huy nhu cai doi, chanh suat dpi, cSc vien chiic tinh phai mk cham tri, ]o 1^ diu bi tri tgi rat nang. Theo Dai Nam thuc luc chinh bien, thdi gian chuan bj di hai quan ddio Hoang Sa va Tru6ng Sa IA tli ha tuan thdng Gieng. Ngay tii nam Minh Mang ihii 15 nhA vua da co chi du cho cic tinh ven biln phai d6ng 2 - 3 thuyin nhanh, tuyen mo dan ven biln lam thg \i\ \i thiiy thu. M6i thuydn can du 20 nguoi 14m thCiy binh thugc tinh ven bien dfi khi khan cap se tiln hanh tuSn tiiu, thong bdo va van lai cho nhanh.
30" -NhOng vin de KINH T 6 VA CHINH TRj TH^ Gidl S6 12(224) 2014
Nguyin Thanh Minh Quan ^ I m xay dyng chinh sach bien..
ngoai ndi thiiy va lanh hai cua minh. Trong quy dinh ciia lu^t bifin qudc tfi hien dai, ngoai vimg lanh hai la viing tiep giap lanh hai, vimg dac quyen kinh tl va thim Iuc dia, day la nhfing vimg bifin thudc quyfin chii quyfin va quyen tai phan cua qudc gia ven biln.
Bao vfi chil quyfin bien dao va phat triln kinh tfi bien nhu la mgt muc tifiu thiet yeu ciia chinh sach bien. Chinh muc tieu nay ma cac qudc gia ven bien hoach dinh chinh sach bien, nhiing van ban quy pham ciia nha nud-c khdng chi quy dinh each thiic thuc hien cac bien phap bao vfi chii quyin biln dao, phat triln cac ITnh vyc kinh tl bifin ma cdn la bien phap nhim muc dich ngan chan nhfing nguy co xam pham chii quyin biln dao. Diing la vay, de khang dinh mgt vimg biln dao thudc chii quyen ciia minh budc cac nha nuoc phai chung minh dugc qua frinh xac lap chu quyin vl mat nha nudc, tiic nha nudc dd cd ban hanh chinh sach ddi vdi viing bifin dao dd hay khdng. Chinh sach biln la rit cin thilt cho sy phat trien cua con ngudi, cac qudc gia dan tgc ven bien tren thfi gidi va trong khu vyc da sdm hoach dinh chfrih sach bien mdt each toan dien ciia minh xet tren tat ca cac phuang dien chfnh fri bifin, phat trien kinh tfi - xa hdi va dam bao qudc phdng - an ninh, hgp tac qudc tfi vfi bien va bao vfi, gin gifi' mdi trudmg biln.
2.4. Chinh sdch bien - bien phdp thuc hien quyen lure cua qu6c gia tren bien
Dfi thuc hien quyen lyc trfin bifin, chinh sach bien dugc hoach dinh dya tren yeu td dia - chinh tri cua cac vimg bien dao, van de cdt loi la chfnh sach bien dugc hoach dinh dya tren vi tri dia - chinh tri dfi trien khai lyc lugng bao vfi chu quyen qudc gia tren bien, chii yfiu la luc lugng hai quan. Quan nifim xay dung chinh sach biln dua tren ly thuylt dia - chinh tri, tiic la vific hoach dinh chinh sach vfi bien phai dya fren sy tuong tac giura cac yfiu td chinh tri va dia ly frong viec xac lap frat ty quyen luc ciia qudc gia ddi vdi vung lanh thd dugc xac dinh cu thl la toan bg cac viing bien dao ciia qudc gia dd.
Quan difim nay chii ylu dua trfin nghifin ciiu each thirc sir dung quyin Iuc, hay anh huong
chinh tri trfin mdt pham ,vi Ianh thd nhat dinh ma cu the la cac vimg bien dao cua mdt qudc gia, rdng ban la chinh sach ve bien qudc gia cd Iifin quan dfin cac dai duomg cua the gidi.
Khai niem dia - chinh tri chii yfiu chi sy tac ddng ciia yeu td dia ly len yfiu td chfnh tri frong viec hoach dinh chinh sach biln cua mdt qudc gia. Theo ddng chay lich sii cua thdi gian va sy phat frien cua xa hdi loai ngudi, khai nifim dia - chinh tri ngay cang phat trifin va mang nghTa rgng hon, dugc van dung mgt each cd hieu qua trong qua frinh hoach dinh chinh sach bifin dao.
Vfi ly thuyet, nghien ciiu dia chinh tri bao gdm viec phan tich cac ylu td dia ly, lich siiva khoa hgc xa hdi trong sy tuong quan vdi chinh tri, khdng gian va cac md hinh d cac quy md khac nhau tir cap dp qudc gia dfin qudc te.
Khai niem dja chfnh tri do Rudolph Kjellen, ngudi Thuy Diln dua ra lin diu tifin vao nam 1899, sau do dugc nhifiu hpc gia khac nhu Phridrich Ratzel, Halford Mackinder ngudi Anh, Karl Haushorfer la ngudi Diic va Nicholas John Skyman ngudi My phat trien thanh mgt hpc thuyet kha hoan chinh. Sy hinh thanh va phat trifin cua hgc thuyfit dia - chfnh tri da cd sy tac ddng tich cue den sy hoach dinh va friln khai thyc hien chfnh sach bifin ddi vai cac qudc gia ven bien va mdt sd qudc gia da trd thanh nhfing cucmg qudc hang hai cua thl giai.
Alfred Thayer Mahan (1840 - 1914), dng la ngudi dua ra khai niem ''quyin luc biin, sdc mgnh tren bien" dya tren y tudng cho ring biln cd vai trd dac biet quan frgng bdi vay, cac lyc lugng hai quan manh nhat se kiem soat the gicri . Tac pham dugc coi la kinh difin ciia dia - chinh tri hgc cd ten ggi la "Su dnh huang cua quyen luc hdng hdi dot vai lich sit''' dugc Mahan viet nam 1890. Trong tdc pham cua minh, Mahan cho rang viec kiem soat quyin lyc tren bien la van dfi cyc ky quan trgng doi vcri quyen lyc qudc gia, nhirng qudc gia cd ldi vao tren bifin dfi frd thanh cudng qudc hon cac qudc gia tren bd. Chinh vi vay, theo dng, cac thl chl
^ Alfred Thayer Mahan (2012): The Influence of Sea Power Upon History. 1660 - 1783, NXB. Tri thirc, H i Ngi.
NhOng vin di KINH i t VA CHINH TRj TH^ Gidl S6 12(224) 2014 ~
tu
Quan dilm xSy dyng chinh sach bien..
nha nudc hoach dinh va thuc thi chfnh sach bifin phai ap dung va kit hgp hai hda hai yeu td dia ly va chinh tri. Tu tudng nay ciia Mahan cd anh hudng rit ldn ddi vol cac l^ thuyfit dia - chinh tri vl sau ciia till gicri. Cac khai nifim da cd mpt anh hudng rit ldn trong vific dinh hinh tu tudng chiln lugc ciia lyc lugng hai quan frfin toan the gidi, dac bifit la tai cac qudc gia nhu My, Diic, Nhat Ban va Anh.
Mackinder da md ta ro rang va tuong ddi phong phli vfi the gidi duoi gdc dp dia - chinh tri. Mackinder da 'dua ra true quay dia ly cua lich sir. Mackinder cho rang, trai dat la mdt he thdng ddng, frong do sy thay ddi fren mdt bg phan cua he thdng nay se iam thay ddi sy can bang ciia cac mdi quan he trfin tat ca cac phan cdn lai. Mackinder rat quan tam tdi sy chi phdi ve mat dia l^, dac bifit la quyfin luc ciia luc dia va quyin luc ciia bifin va dai duong. Sau Dai Chifin Thfi gioi lan thii I, Mackinder dua ra hpc thuyet viing ddt trung tdm. trong do dng da nhin thay mdi quan he ciia 3 yfiu td dia ly - ky thuat - chinh fri ciia' mdt qudc gia, sy phat trien cua 3 yfiu td ay se dem lai quyfin lyc trfin dat liln chii khdng phai tren bien nhu Mahan quan nifim.
Theo Rudolph, trfin phuong difin dia - chinh fri, ddi vdi bifin dao cac qudc gia phai thilt lap quyen lyc nha nuoc dl quan ly va khai thac, chinh sach vfi bifin phai dugc xac dinh rd rang va lien tuc de bao ve chu quyin cac vimg biln dao phuc vu cho su phat triln.
cac hpc gia nghifin Cliu theo thuylt dia chinh tri da cho rang, cac yeu td dia ly bao gdm lanh did, dan sd, vi fri chien lugc, ngudn tai nguyen thifin nhifin va mdi quan he giua cac qudc gia khdng chi ddng vai frd trung tam frong quylt dinh luan vfi chfnh sach qudc tfi ciia qudc gia nay hay qudc gia khac, ma cdn cd y nghTa frong viec franh gianh vj fri tiidng fri khu vyc va till gidi. Dfi thuc hien tiianh cdng muc tieu chinh tri dd, yfiu ciu can ban ddi vdi mdt qudc gia phai hoach djnh chinh sach bifin phii hgp dfi dam bao chii quyin qudc gia fren cac vung biln dao, kinh tl biln dugc phat frien mdt each bfin vfing, mdi trudng sinh thai bifin dugc bao ve, qua frinh phan dinh bien gidi
frfin bien hda binh, dam bao dugc lgi ich cua qudc gia frfin bifin khdng bi xam pham.
2.5. Chinh sack biin - bien phdp di bdo ve chd quyen ldnh thd qudc gia tren bien ddo
Bao ve toan ven chu quyfin bifin dao cua moi qudc gia la dieu tdi thugng, dii d thdi difim lich sir nao thi nd van la van dfi then chdt ddi vdi cac qudc gia cd bien. Bdi vi mdi khi chii quyen bien dao bi de dga, xam lugc thi khd de thuc hien dugc va tham chi la khdng thyc hien dugc nhiing vin dfi khac nhu phat trien kinh tfi biln, hgp tac qudc te vfi bifin... Khi hoach djnh chinh sach bifin yeu cau ddi vcri cac qudc gia ven biln la phai can cii vao tinh hinh cy thfi ciia timg ITnh vyc nhu kinh te - xa hdi, qudc phdng - an ninh va tinh hinh chung cua dat nudc cung nhu tinh hinh khu vuc va the gicri, ddng thdi dam bao giir vfing dudng ldi, muc tifiu, nhifim vy va linh hoat trong van dyng, sat thyc tien cudc sdng va dat hieu qua cao. Tuy nhien, khi dieu kien thay ddi, chinh sach bifin phai dugc ddi mdi, difiu chinh va bd sung cho phii hgp fren nfin tang vdn cd cua nd. Tuy nhien, neu thay ddi lien tuc chinh sach bien se lam giam hifiu qua thuc thi cua nd.
Van de khai thac va bao vfi chii quyfin bien dao trd thanh mdt trong nhihig ndi dung chinh cua chinh sach bien. Bifin phap khai thac bifin va bao ve chu quyen bifin dao la ndi dung quan trpng den miic neu khdng cd chinh sach bifin thi cung khdng the cd cudng qudc vl bifin va qudc gia bien nhu bay gid. Khai thac va bao ve chii quyen bifin dao da trd thanh ndi dung quan trgng dugc hoach dinh frong chinh sach bifin ciia mgi qudc gia dan tdc ven biln.
Hifin nay, hau het cac qudc gia ven bien da hoach dinh chinh sach biln mang tinh chit toan dien hon so vdi nhirng thdi ky trudc, cac qudc gia ven bien da xay dyng he thdng quy pham phap ly ve bifin dao. Dieu nay thl hifin quyfin lyc nha nudc ddi vdi toan bd vimg biln dao ciia minh nhu luat bifin va van de bao ve chii quyfin bien dao dugc xac dinh la ndi dung quan trpng nhat trong nhung ndi dung ciia chinh sach biln.
Nha nudc thyc hifin chii quyin hoan toan, tuyfit
IT
-NhCmg vin ei KINH T t VA CHiNH TRj THt GIOI So 12(224) 2014Nguyen Thanh Minh Quan dilm x^y dyng chfnh sach bi§n...
ddi va day dii ddi voi ndi thuy nhu trfin lanh thd dat lifin^. Thuc tifin cho thay, chinh sach biln dugc the hien trong hifin phap ciia mdt sd thl che nha nudc khi ma van de bao vfi chii quyin bien dao va van dfi phat trien kinh tl bien da dan chifim dupc mdt vi tri quan trpng trong ddi sdng xa hdi. Chfnh sach bien dugc cu thl hda bang cac van ban quy pham phap luat cua nha nudc vfi bifin dao vdi muc dich thyc hifin su kit hgp hai hda va cd hieu qua giua phat triln kinh tfi bien gan vdi bao ve chu quyin toan ven lanh thd qudc gia. Quan niem chinh sach bifin la bifin phap dfi bao ve chii quyfin lanh thd qudc gia tren bifin dao da dugc Nha nudc Viet Nam quy dinh rat rd trong Luat Bien nam 2012: Cac co quan, td chiic va mgi cdng dan cd trach nhifim bao ve chii quyfin, quyen chii quyen, quyfin tai phan qudc gia trfin cac vimg bien dao va quan ddo, bao vfi tai nguyfin va mdi trudng bien'"
3. Goi y ve hoach dinh va triln khai thu-c thi chmh sach bifin hien hanh cua Viet Nam
Mac dil, viec tiep tuc hoach dinh va frien khai thuc thi chinh sach bifin da dugc thfi hifin frong chien lugc bien va luat bifin cung nhu mdt s6 van ban quy pham phap luat khac, nhung cdn cd y kien cho rang chinh sach bien cua Viet Nam chua mang tinh chat toan difin, ddng bd cd tinh chit tuomg thdng va lifin thdng. Tat nhien, su khdng ddng bd dd ft nhieu da cd tac ddng din sy phat frien kinh tfi bien ciia Viet Nam la chua xiing tam voi vi fri va vai trd ciia bifin dao trong ddi sdng xa hgi. Sy ddng bd trong chinh sach bifin cang Idn thi hieu qua phat trifin kinh tl biln cang cao. Sy thifiu ddng bd dd can phai dugc sira ddi. Bdi chinh sach biln la do con ngudi lam ra, ma nhan thiic ciia con ngudi khdng thfi toan difin, cho nfin chinh sach biln do con ngudi lam ra cfing khdng the khdng cd thieu sdt. Phai bd sung va siia ddi nhiing van dfi cdn bit cap frong ndi dung ciia chinh sach bifin hien hanh la tat yfiu va phu hgp vdi quy luat ' Dilu 10 Lu$t Bign Viet Nam (2013): NXB. Hong Dire,
Ha N6i.
'" Dilu 4 Luat Bien Vifit Nam (2013): NXB. H6ng Diic, Ha Ngi-
phat friln. Mdi nguyen tic chi dung chi phii hgp trong nhiing dilu kien nhit dinh. Cin phai dugc thl he tifip theo cd quyin lua chgn cho minh chinh sach biln phii hgp va toan dien hon vdi thuc tifin phat trifin ciia dat nudc.
Vay chinh sach biln cua Viet Nam can bo sung cai gi de mang tinh chat toan difin hom nhim gdp phin thiic day phat trien kinh te bifin vira dam bao dupc chu quyfin qudc gia trfin cac vimg bien va hai dao. Day la ngi dung ciia cac cudc hdi thao khoa hpc ve bien Ddng hien nay.
Trong pham vi cua bai nghien ciiu, tac gia chi tap tnmg vao nhihig net chfnh yeu nhat. Theo quan difim cua tac gia, myc tieu cua viec sua ddi va bd sung chinh sach bien hifin nay la hoach dinh nhfing ndi dung ciia chinh sach bifin mang tinh toan difin, cd su lien thdng va tuong thdng giua phat triln kinh te bifin vdi vific bao ve toan ven chii quyen bifin dao.
Thit nhdt, Nha nudc cin tap trung diu tu xay dyng lyc lugng bao vfi chu quyfin bien dao vumg manh. Nhung lyc lugng true tifip lam nhifim vu frfin bifin vira bao vfi chii quyfin vira duy tri viec chap hanh phap lu^t Viet Nam va cac difiu udc qudc te. Cac hien tugng nay phai dugc dau tu nhung trang thiet bi hifin dai ngang tam vcri khu vyc va the gidi. Cu the la luc lugng hai quan, canh sat bifin, bd dp bifin phdng va kifim ngu phai trd thanh cac iyc lugng viing manh toan difin ve mgi mat. Trang thiet bi cua cac lyc lugng bao vfi chii quyen bifin dao phai du siic boat dgng dai ngay trfin vimg dac quyin kinh tl va thfim luc dia Viet Nam.
Thli hai, chinh sach vfi bifin can xac dinh rd vai frd ciia cac ITnh vuc kinh te bien, co chl chinh sach ve phat trifin kinh te bifin phai ddng bp va cu the franh chung chung iam loang van dl cdt ldi vdn cd cua nd. Nhung thanh phin kinh tl bien phai cd su diu tu tuong xung vcri tim nhin dai ban nhu xay dyng he thdng cang bifin, phat trien he thdng van tai bien, ITnh vyc khai thac tai nguyen bifin du siic vuon ra xa fren vimg dac quyen kinh te va thfim luc dia. Cac vimg bien dao Viet Nam rat cd tifim nang nhung hien nay cac ITnh vuc kinh te bifin dang phat
NhOng vin di KINH T t VA CHfNH TRj TH^ Gldi S6 12(224) 2014-
Quan dilm xay dyng chinh sach bien..
triln dudi mirc tilm nang dd. Nguyen nhan cua vin dk nay cd nhilu, nhung nguyen nhan can ban dugc thl hifin ro net nhitdd la chirih sach biln trong ITnh vuc kinh tl biln chua ddng bd, mdt sd IThh vyc chua cd su phat trien dot pha nhit la ITnh vyc cang biln va van tai bifin.
Thd ba, chinh sach biln phai thl hien rd muc tieu vira dam bao hda binh va dn dinh vira gifi dupc lgi ich cdt ldi cua qudc gia frfin bifin dao, ddng thdi phai phii hgp vdi he thing quy pham phap ly qudc tl vl biln, Nha nudc giai quyfit cac franh chip lien quan dfin bifin dao vdi cac nudc khac bing cac bien phap hda binh, phu hgp vdi Cong udc cua Lien hgp qudc vl Luat Biln nam 1982, phap luat va thyc frfin qudc tfi.
Tdm lai, mac du theo thdi gian ndi dung chinh sach biln cd the thay ddi, nhung cac quan diem ve xay dung chinh sach bien van giir lai
Tai lieu tham khao:
tifiu chi can ban vdn cd cua nd la phat trien kinh ll bifin gan vdi bao vfi chu quyin qudc gia tren biln. Chinh vai trd gia tri cua chinh sach bifin ma trong tu duy chinh tri cua nhan loai van dl khai thac va bao ve chu quyfin bifin dao frd thanh mdt ndi dung chinh cua lich sir hinh thanh chfnh sach vfi bien cua thfi gidi. Khai thac biln dao, bao ve chii quyen bifin dao la ndi dung quan trgng dfin miic nfiu khdng cd chinh sach vl bien thi cfing khdng thfi frd thanh cuong quoc vfi biln. Khai thac va bao ve chu quyen biln dao da trd thanh ndi dung ciia chinh sach ve biln cua mgi qudc gia dan tdc ven bien. Viec hoan thifin chinh sach bifin can cd mdt muc tieu rd rang la phai thfi hien sau sac hon nfia nhiing tifiu chi can ban ciia hpc thuyfit vfi xay dyng chinh sach bifin cho phii hgp vdi dieu kien xa hdi Viet Nam hien nay*
1. Nguyfin Thanh Minh (2014): Ve mot so hoi nghi quoc te lien quan den chii quyen cua Viet Nam doi vdi hai qudn ddo Hodng Sa vd Truang Sa 1943 - 1951, Tap chi Nghifin ciiu Lich sir, sd 9.
2. Alfred Thayer Mahan (2012): The Influence of Sea Power Upon History. 1660 - 1783, NXB.. Tri thirc. Ha Ndi.
3. H.J.MacKinder (1904):'77ie Geographical Pjvot of History. The Geographical Joumai, Vol. XXIII. No. 4. 1904.
4. Roach and Smith (1994): Excessives Maritime Claims, Intemational Law Studies, Vol.66.
5. R.Deyanov (1990): The Role and Security Objective of Confidence - Building Measures at Sea in UN, Department for Disarmament Affairs, Naval Confidence Building Measures.
6. G.Francalanci and T.Scovazzi (1994): Lines in Ihe Sea, Nijihoff, London.
7. E.GoId (1991): National and International Shipping Policies and the Environment: The Perspective of Vietnam. Rapport on the Conference ofthe Marine Policy in Vietnam.
34" -NhO-ng vin di KINH T t VA CHINH TR! THt GIOI So 12(224) 2014
