Doanh nghiep du an trong hinh thuc PPP d4 phat tri^n CO s o ha tang aViet Nam
T3 van Hung
So xay dung Ha Ntfi
Tom tdl: Hpp tae Cdng -Tu (vifit tdt Id PPP) la mdt phuong thde thue hifin d y dn d u p e c h e ^ nhdn dp dyng 6 Vift Nam gan ddy dfi ddu tu phal trifin e o sd ha tdng. Doanh nghifp d u a n la mpt sdng kifin d u p c dp dyng gidp cho cdc du dn dau tu Ioai nay dupc thuc hifn thdnh cdng tren thfi gi<^. Trong khudn khtf bdi vifit tdc gid ddnh gid logi hinh d u dn nay tr&n co sd ap dung thuc tifin d Vift Nam vd d f n thfi gidi theo b a khia cgnh; Thtfi difim vd vai trtf Pong ddu thdu d u dn PPP, tdi ehinh eho logi doanh nghifp ndy vd cdch thdc doanh nghifip ndy lya chpn cdc nhd thdu dfi thue hifin vd van hanh d u dn PPP dfi thye hifin thdnh edng cdc d u dn CSHT theo hinh thde PPP.
TU khoa: Doanh nghifp d u an, huy dtfng vdn cho d p an, lya c h p n n h a ddu tu, c o s d hg tdng, PPP.
1. fiat van fle
Theo Yescombe tac gid cda eutfn sdeh Public Private Partnerships: Principles of Policy and Finance (Tam dich Id: Hpp tdc cdng — tu: cdc nguyfin ly ehinh sdch vd ldi ttp), xuat ban n a m 2007 thual ngd "hpp ldc cdng — lu" bdl ngutfn Id Hoa Ky vdi cdc chuong ttinh gido dyc dupc cd khu vue cdng vd khu vue tu cimg ldi ttp ttong thgp nifin 1950. Kf tu thdp nien 1980, thudt ngd "hpp tde edng - lu" ddn phtf bifn d nhifiu nudc ddc bift d Anh, Hoa Ky vd hifiu Id su hpp tdc giua nhd nudc vd lu nhdn df eung xdy dyng kfit eau ha tdng hay cung edp cdc dich vy cdng cdng. Cdc nudc ndy dd dua ra hinh thuc qudn Iy cdng mdi (NPM) theo nhung tifiu ehi nhu hifn dai, ndng dtfng, nhgy bfin vd thich ngiii cao nhdm ddp dng cdc yfiu cau vfi qudn ly vd djch vu trong btfi cdnh kinh tfi th! trudng phdt trifin m a n h m e va cac quan hf qutfc le ngdy edng phy thupc chgi che vdi nhau.
Do Ipi nhudn thuang mai cua hang h d a cdng Ihudng thdp, khu vuc tu nhdn se rdt khd khdn dfi tgo ra doanh thu bd ddp chi phi nfin khu vuc ndy se khdng cung cdp hode eung cdp khdng du hang h d a theo yfiu cdu Clia thi trudng.
Cu thf:
Muc phi thu cua ngudi sd dung cao gdy tdn that phiic lpi xd hdi. Hdng hda cdng Id hdng hda mang hai tinh ehdt. Khdng cgnh tranh vd khdng loai trd, nghia Id vifc thy hudng lgi ieh cua cd nhdn ndy khdng ngdn cdn ngudi khac cung dtfng thdi hudng thu, dan dfin linh trgng "ngucri hudng thy mifin phi" — la nhung ngudi hudng thu hudng hang hda nhung khdng ganh chiu hoac gdnh ehju m d e chi phi thap hon so vdi Ipi ich ma hp duoc hudng. Nfu vific cung cdp hdng hda cdng d o thi ttudng quyfit dlnh, chdc chdn no se khdng dupc san xudt hode sdn xudt khong dd.
Tuy nhien, tinh khdng canh tranh va khdng loai tru khdng nhat Ihiet di ddi vdi nhau. Mpt sd hang hda hpi
du ea hai ddc difim ttfin gpi Id hdng hda ctfng thudn hiy, n h u qutfc phtfng, dfin hdi ddng, phdt thanh... Dffi vdi nhdng hdng h d a nay, chl phi edn bifn bdng khdng vi tdng ngudl s d dyng khdng Idm tdng thfim chi phf.
Mdt sd hdng h d a khdc k h d r ^ ddp dng d u p c cd hai dgc difim nay, gpi Id hdng htfa gia ctfng khdng thudn tiiy n h u cdu, dudng giao thtfng s e bi tde nghfin nfiu qud nhifiu ngudi sd dyng, tuc Id vifc s d dyng eua nhdng ngudi d u d c dd d n h hudng dfin vific sd dyng cda nhdng ngudi sau. Lgi ich c d a hdng hda cdng khtfng thudn tdy cd thfi dinh gid n f n cd thfi logi trd bdng gid n h u cdu, dudng giao thdng cd ddt cdc trgm thu phi dfi hgn ehfi bdt ngudi sd dyng n h d m gidm tdc nghen.
Nhin Chung, cdc kfit q u d eho thdy, nfiu tu nhdn dtfc ldp cung cdp hdng h d a cdng khdng thudn tdy tinh ttang qud tdi td giao thdng, cho dfn nhtmg llnh vpc khac ludn xdy ra, dfi gidi quyfit tinh ttgng tdc nghfin thdng q u a thu phf, s e gdy ttfn thdt phue Icfi xd htfi, ddy ehinh Id thdt bai c d a thj ttuoTig. Cdu hdi d$t ra Id, phdi chdng s u can thifp c d a chinh phd sda c h d a dupc nhdng thdt bgi cd thl trudng? Lifu chfnh p h d cd khd ndng dtfc ldp cung cdp hdng h d a cdng hifu qud md khdng Idm gidm p h u c Ipi xd htfi? Hay sy h p p tdc gitta tu nhdn vd nhd n u d c sfi gidi quyfit bdi khtf khdn trfin?
Hinh thuc PPP ctf gidi quyfit d u p c nhdng khd khdn khdng?
2. Mot so CV Sff phap fy ve liop tac cong ta v i doanh nghiep dy an a Viet Nam
Theo Ngbl djnh sd 15/2015/ND-CP ngdy 14/02/2015, ddu lu theo hinh thdc dtfi tdc cdng tu (sau ddy gpi tdt Id PPP) Id hinh ttidc ddu tu d u p c ttipc hifn ttfn c o sd hgp dtfng gida c o quan nhd nudc ctf thdm quyfin vd nhd ddu tu, doanh nghifp d y dn dfi ttiyc hifn, qudn 1^
vdn hdnh d p dn kfit cdu hg tdng, eung cdp djch vy cdng.Nghi dlnh ndy Id s y kfl hpp vd thay thfi NflhI djnh lOa/2009/ND-CP ngdy 27/11/2009 cda Chfnh phd (vfi ddu tu theo hinh ttidc Hpp dtfng Xdy dyng — Mnh
^ . r ^ " ^ u * ' ° ' H i d i n g Xiy dung-ChuySn SX ™},"'°^.HWd6ngXiydimg- Chuyfo giao) fL^S. ^f^ "«»10/QE)-rrg nga, 9/1 l/ioio CUa Olnih PhU v« mil diim diu hr theo hinh thUc doi tic cdng —hi hay cdn gdi li Nghi dinh PPP).
. u l ^ ^ ""^^ " T " ^ ' ' ^ « '?° ra Idrung phip If thffip nhat, ddng bd, minh bach, cd hieu luc CKi hon nhim khing dlnh cam kft cua CWnh phu r i S , ^ T v - r ' / l " '^'^^" '^'^ Khu w c hr n^in pMt W n ket ciu ha ling, gdp phin ttiuc diy til co ciu diu hi mi frong tim li diu ttr cong.
n h l T ! "^ t* ? ^ "** ""^'•'P''*"S du in, khdi tt, nMn tta each tam gia vio du in PPP u,dng qua vise
" f f J f P ™« ""«•* nghiip du in di IhanT^a c ^ 7 « n cho khu vuc cdng. THeo thdng le qudc te d»j*ngh,ip duin cdn dupc goi la d o a n ^ n g W ^ t a '
?p?^S'n^l"*' ? ' * ' " '^ " " > " * * 1^ thuc hien d u ^ PPP, khdng thuc htdn cic boat ddng kinh doanh khiT
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Nghi djnh so 15/2015/NB-CP quy dmh doanh nghiepdirin ttong cic duan BOT BTO RT„h»^
Ulinh lip mdi de cUng vdi nha d l u T ^ T i r ; ^ ^ Bdticuahop ddng d u i n chinh thuc, sau iSi h 7 d ? , 2 du an ducrc ky tat vdi co quan nhi nudc cd S S h o ' h - ' r ^ . l ^ " ' * " " * "S°*' tninVl^iut^
d o a n f „S;*!* '*" ''°^'' "§"«P " " ^ tmbc va dd doanh nghep nay Iham gia diu Ihiu du in cung cd nhung uu didm nhit dlnh sd vdi vide Ihinh li^ L , ? l , « nhi diu hi Cd thd ttiam gla t h i n ^ ' ^ . r J , H o S nghiep du an cung vdi cac ddi tie khic ntau d S kha nang ttdng thiu cua minh, ndu luit phip n ^ S lai cho phep. Doanh nghiep du in th^h lip s S T r a
"I ^"A'"' ^ ™ « "«" hinh lua chon vTS'' m
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dau h, Id, 1,1 phii lam cic thu Iyc ky lidHsi d o ^ h ngtaep du an va di doanh ngidp nay Mp nhta v i Z c khdi luong cong viec hinh chinh dang ki vi UA2 duoc m, IO do Vide chuydn giao cdng vile mang l^
cn„„"c"'l'"*'' "'™'' '^P "^"^ " ^ n h nghidp d u i n diu 1,? r f T "i' " • " * ''*" ""*' "'nh ctio cic nhi diu tu Thu luc thanh lip mdt doanh nghidp vd m S phap ly o mdl sd qudc gla, ttong dd cd Met Nam S i i tu Ion Neu doanh nghiep Ihanh lip ra khdng ttUm, thau, viec xu ly giil ,he doanh nghiep dien ,a cUng^f viZI^'V^i' * " *""• "' <^'™^ canh phip I an MirSiacTec e'"' T.^^' """ ^ """" g-'hinh^l P Mat khac vtec cac nha diu tu chi cd ttich nhiem hdu ban ttong doanh ngh.dp du in gay la tim K k e m l ^ t ™ s doanh nghiep du in hon so vol nh^ d i n r , ! "
cun^h" t ' " " " ^ ? "'•" " " ' « " lua Chon nha tha^
cung nhu khi cac nha lal tto xel duydt vdn.
3.2 Tii chinh cho doanh nghidp du in.
Theo Ihdng le qudc le, doanh nghiep du an la doanh nghiep ihuc hidn nh.em vu die b a " do d i ng£;h S f •°-' "5^ """"^ """•= 'hue hidn bi, ky nganh nghd san xuil nio mi khdng lien quan vl kfiong la mot phan cUa du in. v,ec huv ddng , ^ 0 0 3 doanh nghiep du in la huy ddng vdn bang du "n hay Cda d u t i ' ^ h i ' " * ' " ""y •="' "" *" '* doanh Vhu cua du an ch, duoc phep su dung de bio dim hoa, dpng cua du an va tti no ngin hing, khdng di^c phep su dung vio cac muc dich khic. Hlnh ihuc huv ddng von nay con duoc coi li lai iio imy Ml h T c h / CO nghia ia nguon lidn duoc su dung dung di hoan IM no chmh la ddng lien lu v,ec vin hinh duTn san „ va iai san dung ihe chip cua doanh ngh'dp dnTn " " '
i^nr 95
Trudng hpp khdng ttd d u p c np, ttach nhifm eda doanh nghifip d u dn ciii gidi hgn ttong tai sdn cua chinh doanh nghifip, e h d khdng phai tdi sdn eua cda cdc don vi gdp vtfn thanh igp doanh nghifp. Dieu ndy ddm bdo han e h f nil ro eho c a c nhd ddu tu nhung eung chinh Id iy do doanh nghifp d u dn khdng thfi thuc hifn c a c hoat dtfng kinh doanh khac ngodi hogi dtfng Clia du dn. Tuy nhien, d Viet Nam, van dfi ndy ehua dupe lam rd ttong cdc quy dinh phdp lugt nhdt Id trude khi hinh thdc hop tde cdng tu chinh thue d u p c dp dyng d Viet N£im
Nghi dinh stf 15/2015/ND-CP bo xung quyfin tifp nhan d u dn ciia bfin eho vay:
- B6n cho vay ed quyen dfip nhgn hode chi dinh to chdc du ndng lue tiep nhdn mtft phdn bode todn bd cac quyfin vd nghia vu eua nhd ddu tu, docinh nghifip d u an (sau ddy gpi Id quyfin tiep nhdn d u an) ttong trudng hpp nhd ddu lu hode doanh ngiiifp d u an khdng thuc hifn dupc cac nghia vp quy dinh tai h g p dtfng d u an hogc hpp dtfng vay.
- Thdo thugn vfi quyfin tiep nhdn d y an phdi d u p e igp thdnh vdn bdn giua bfn cho vay vdi c o quan nhd nudc ctf thdm quyfin hode cdc b f n ky kfit h p p dtfng d p dn. Bfin cho vay vd c o quan nhd nudc cd thdm quyfin quyfit dinh thdi difim ky kft thda thudn vfi quyfin tifip nhdn d y an.
- Sau khi tifp nhdn d p dn, b f n cho vay hogc ttf chdc dupc bfn eho vay chl dinh phdi thpc hifn ddy dd ede nghia vy tuong dng cua nhd ddu tu, doanh nghifp du an theo quy djnh tgi hop dtfng d u dn vd thda thudn vf quyfin tifp nhdn d u an.
Dtfi vdi chuyfin vifc ehuyfn nhupng quyfin va nghia vy theo hpp dtfng d y an thi Nghi dinh sd 15/2015/ND-CP chi quy dlnh dtfi vdi nhd ddu tu, ctfn doanh nghifp dp dn khdng cd quyfin ndy.
Chuyfin giao cdng Irinh d u an cda nhd dau tu, doanh nghifip d u an: Dtfi vdi ede hop dtfng d u dn etf quy dinh vfi vifc chuyfin giao cdng trinh d p dn, c o quan nhd nudc cd thdm quyfin vd nha ddu tu thda thudn trong hop dtfng d u dn cac difiu kifin thti tye ehuyfn giao. Sau khi tifip nhdn edng trinh d y dn, c o quan nhd nudc cd thdm quyfin td chuc qudn ly vdn hdnh cdng trinh theo chuc ndng, tham quyfin. Doanh nghifp d u an kfil thuc su m e n h cua minh.
3 3 Vific lua chon cdc nhd thau tham gia thuc hifn d y a n
Cd nhifiu each lifip can khac nhau vfi vifc lya chpn cac nhd thau tham gia thuc hien d y an khi d u dn bdl ddu duoc lien hdnh Theo ludt chung vfi mua sdm c d a lien hiep chau Au, doanh nghifp dp an khdng phdi ttf chuc dau thau de chon nha thau tham gia thuc hifn dy dn neu hg ky kft vdi doanh nghiep tham gia thdnh ldp doanh nghi&p d u an, tuy nhien trong mgt stf trudng hop dgc biet. vi du nhu lua chon nha thau EPC, nfu Hop dtfng du an de cap, hp phdi tifin hanh ddu thdu
96 .,_„„.„.„.., „™. , . „ . „ , , „ , . ,
lya c h p n nhd thdu logi ndy. Trong trudng h p p nhd d d u tu bode d o a n h nghifp d p dn khdng d u p c lya c h p n thdng q u a ddu thdu, h p phdi ttf c h d c ddu thdu dfi Ipa c h p n cdc nhd thdu thyc hifn d p dnCVescombe 2013).
d V i f l N a m , td Nghj dttih 108/2009/ND-CPvd Quyfit djnh stf 71/2010/QD-TTg d f n Nghi djnh 15/2015/ND- CP dfiu khdng dinh rdng c d c d p dn thutfc p h g m vi difiu chinh c d a Ludt Ddu tiidu phdi thpc hifn vifc !pa chpn nhd thdu tu vdn, m u a s d m h a n h htfa, xdy ldp vd nhd thdu khac dfi thue hifn vfi d p dn t h e o quy dinh cda phdp lugt vfi ddu thdu, n h u quy dinh rtf tgi difiu 1, Ludt Dau ttiau hifn hdnh (2013). Ludt ddu thdu hifn hdnh quy djnh rd vfi m d e dtf va gid tri tuyft dtfi phdn vtfn gdp e u a Nhd Nudc cho c d c d p dn edn thpc hifn ddu thdu. Tuy nhifn, khi dp dyng vao cdc d p a dn PPP thi ctf diem edn c h u a rd Id phdn u u ddi c d a Nhd nudc, phdn ddt Nhd n u d e giao c h o nhd ddu tu ctf d u p c tfnh todn thanh phdn vtfn gtfp c d a Nhd n u d c hay khdng dfi dp dyng cdc quy djnh phdp ludt c h o phd hpp.
4. Mot SO dexuat
Hodn thifn chinh sdch n h d m khai thdc ttfi d a cdc ngutfn vtfn ngodi ngdn sdch ddu tu phdt trifin kfit cdu hg tdng dfi gidm gdnh ndng eho ngdn sdch nhd nudc.
- Cdng khai quy hogch (quy hogeh phdt ttifin kinh tfi-xd htfi; quy hogch giao thdng v$n tdi vd quy hogch dd thi).
- Trfn CO sd quy hogch d u p c phf duyft Idp danh sdch cdc d p dn phdt trifin kfit cdu hg ldng ndi chung vd kfit cdu hg tdng giao thdng nhdt Id kfit cdu hg tdng giao thdng dudng btf. ndi rifng. Tdy theo quy m d vd tinh ehdl cda cda tung d u dn, cdn phdn logi theo tdng hinh thdc ddu lu Ididc nhau td dd lya chpn cdc danh m y c d p dn phu hgp vdi hinh thdc ndy. Cdc d y dn dupc dfi xudt phdi d u p e nghifin cdu, chudn bj thgt ddy diJ, todn difn dfi ed mtfi d u dn thdt sy khd thi, dgc bift Id vfi ky thudt, phuang dn tdi chfnh dfi ddm bdo vifc huy dtfng dupc vtfn td cdc Itf c h d c b'n dyng, nhdt Id ngutfn vtfn xd hdi h d a vd hodn vtfn hifu qud.
- Cdn tinh todn ky cdng, d d m bdo ddng gid tri ctfa ddt dai dfi d d m bdo cho cdc nhd ddu tu thu dupc Ipi nhudn nhung cdng khdng Idm Idng phi tdi nguyfn ciia nbd nudc trong phuong thdc BT (ddi ddt Idy hg tdng).
- Xdy dung tifiu chf, phuong phdp xdc d|nh gid tt|
cua dal trong phuang thdc dtfi ddt Idy hg tdng (BT).
- Cdn lya chgn nhdng nhd ddu hr tham gia d y dn PPP du tifim Iyc tdi chinh vd edng nghf dfi cd thfi tifin hdnh thyc hifn d p dn PPP m a khdng qud phy thutfc vdo sy bifn dpng cda thi tmdng b f n ngodi. Rifng dtfi vdi nhd ddu tu tu nhdn ttong n u d c nfn kfit hpp nhifiu cdng ty theo hinh thdc cd p-hdn n h d m khdc p h y c cdc hgn ehfi vf quy md. nang Iyc tdi chfnh vd gidm thifiu rdi ro ddu tu.
- Hpp dtfng gida CO quan nhd n u d c ctf ttidm quyfin vd nhd ddu tu phdi d u p c ddm phdn chi tift, ddy dd, dd
a* cic Dnh hudng phit sinh ttanh chip. Cic ben phai cd ^ c h nhidm cad ttong quin IJi, thuc hidn hpp ddng CO ttich nhidm khi da cam kel thuc hidn cdng vide, du in khic di khai thic, kft ndi ddng bo vdi cic du an PPP di ttldn khai.
-Tuydn ttuyen di cOng ddng ttiam gia quin ly glam sit cdng tic diu ttiiu, Uiuc hidn du i n nhim nang eao chit lupng vi bleu qui cua cdng ttinh giao thdng.
• Don giin hda ttiU tuc hinh chinh: Chinh phu di CO nd luc ttong vide tip ttung chi dao, diy nhanh Sen dd dim phan cic du in BOT. Cac thij tuc hanh chinh hi«n nay con mdl sfi quy dinh khdng cin thift vdi qui cic tudo hinh ddng ttong quyft dinh hinh chinh dan Sit".,^,^", > "^ "*" •" '^ =^S O^n h, hang nam Oidu dd la vio cac du in CSHT Chi phi ciia su cd Old li lit ldn dan d€n cac doanh nghlSp du in PPP
P^p'Suc'^r" "" "^ ''" ^"^ '' "^ -
- Ting cudng bio linh cua chinh phu ve ngoai hdi can bin Ihu hut cho vay cda nuPc ngoii vao cic du an PPP CO sd ha ting. Cie ddi tic cho vay nuoc ngoi^
quan ngoai vide Nhi nudc xem xet gilm muc blo Tchl^Ti:^' * ^ •"'' ""> * "^" hid" nay tro^g
» Bnh , f ^ i "^"^ "^y "•*' Ph*n cung xuit phil S l ^ n h T * ' " 1""* '^'^" "hP'nS nha'i cic nguydn ric bio linh ttong nhung dp in dupc eip phep va cir H,^
Sy S'c bdll'ch"'' " " ' '"" •>«" "'y-^^'" ^n - u ' c ^ ^ l m ^ ,™!,""^' "8°^ ^ I* "nh ttong boi h i l n ^ h a v v ^ r " / " " ? ""™S m,i khd khin nhu ChiuT^Do vL t f / t " '^hn nhiing du in Idt nhi. d
dinh^?rci^;^rj,t,a"sr^d;"^^"'°'--'
du i n thuc hien dd tien hinh thuc hidn cac hdai ddng cua du an PPP, dd hidu bift diy dU hon vd S S doanh i^hidp nay, hi dd glUp ttipc hien Uianh S i g d^
an PPP ttong dieu kien Viel Nam./
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Tai lieu Uiam Iiiiao
diu'^u'rl'h'""!.'!'"'?' ^^"^ "'"h 108/2009/ND-CP vd dau lu Uieo h,nh thuc hpp ddng xay dung - kinh doanh - chuyen giao (BOT), Xiy dung chuydn s,ao
l4/mmn''''"TK'"™' '^"^*' "'"h W20I0/NO-CP ngay 14 7/2010 cua Thu ludng Chinh phu ve viec cho vay J nguon von vay nupc ngoii. Hi Ndi.
og/n^mn""" ^?!!""' "''''*' dinhVi/2010/NB-cp ngiy 09/11/2010 cua Thu lupng chinh phu vd viec ban hinh Tu^Himl '^^ ' " ""'° "'"" '""' d « tic C d n f Chinh phu (2011), Nghi dmh 24/201 l/ND-CP vd C^HrNd, """ ' ° ' * * " ^"'' '*^'" "'"h 108/2009/ND- immmt" ^^Tl '^*' "'"h 15/2015/ND-CP ngiy W02/20I5 cua ch,nh phu vd diu lu Ihdo hinh Ihiie hpp lac cong tu. Hi Ndi
• n „ ' ! n h ' ' * " h ! * " ^^°- '^SnySn Thd Q u i n (2014) M d X m " * t ! ' K " ' " " " " S "" "" hpp lac Cdng lu d s^ 1 1 / 2 ^ ™ " " ' "'"'^'^ 1 " * '«"• Tap chi Xdy dung,
N^a^a^ '^'"'' '* """ "^n* hdi va UNDP lai Vidl cd^'lulpVpTlcfh' ''^^"'^..Phnang ihuc ddi li'c
C o u T S . ^ ' ' ^ " ' " ' ' P ^ ' - P - n e i s h l p W „ i k s h o p PubllT^P "? ' l " ' ^ ' ' '"'"''" ^""-^^ F^clnt for Public Pnvale Pailneiships foi Ifiasttucluie Deve^pmenl, Joumal of constmction E n g i S n g and Managment, 131/13-14 s "«;e,ji,g
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