N G H I E N CtifU - TRAO DOI
THU HUT, suf DUNG VON ODA VA VON VAY l/U DAI KHAC 6 VIET NAM
TS. PHAM THI HONG Dl$P ThS. BOI DINH VliN*'
'•i hoach phit tridn kinh td - xa hdi 2011 - 2015 da xdc djnh, dd dam JL Xs.bao cdc mue tidu tang trudng cua dit nudc, du kidn nhu cdu vd'n ddu tu toin xa hdi la 290 ty USD, trong dd vd'n ODA, vdn vay uu dai khdc (sau ddy gpi tit la vd'n ODA) cam kdt cin dat 32 - 341^ USD, giai ngdn cdn dat 15 - 17 ty USD. Nhu vly, trong bd'i canh mdi, cdn nhin nhdn vd ddiih gii thuc trang thu hit vd s i dung vd'n uu dai dd cd nhihig giai phdp phi hpp nham ndng cao hon nia hidu qua thu hit, su dung vdn tm dii phuc vu phit trien kinh te - xa hdi Viet Nam la vide ldm cin thidt.
1. Thuc trang Ihu hut va sir dung vdn ODA trong giai doan 2001 - 2010
Hien nay, d Vidt Nam cd 51 nhd tdi trp song phuong va da phuang, trong dd 28 nhd tai trp song phudng vi 23 nha tdi trp da phuang ed ede chucmg trinh ODA thudng xuyen. Hiu bd't cde nha tai trp deu ed chidn lupc hoie ehuong trinh hpp tac trung ban ve hpp tde phdt tridn vdi Vidt Nam. Ngudn vdn hd trp phdt trien chfnh thic t i cdc nhi tdi trp song phuong vi da phuemg da ddng gdp khoang 3 - 4% GDP cia Viet Nam.
So vdi giai doan 2001 - 2005, cd the nhin thay sd cam kdt vd'n ODA giai doan 2006 - 2010 dat khoang 31,76 ty USD (vuot so vdi mic 1 9 - 2 1 ty USD du kien, tdng 21,4% so vdi thdi ky 2001 - 2005). Sd ky kdt hidp djnh vdn ODA dat khoang 20,26 ty USD, chidm 63,8% so vdi sd cam kd't, cao hdn so vdi mic 12,35 - 15,75 ty
USD du kidn. Giai ngdn vd'n dat khoang 13,86 ty USD da cao hon so vdi mic 11 - 11,9 ty USD dukien. Trong dd, Ngdn hang 'Thdgidi (WB), Ngdn hang Phit tridn chdu A (ADB) va Nhdt Ban Id ba nhd tai trp eung ed'p ODA ldn nhit cho Vidt Nam giai doan nay. Tong quy md tdi trp eua 3 nha tai trp nay hon 16,48 ty USD, chidm 81,69% ODA dupc ky ket trong thdi ky.
Vdn uu dai thu hit trong giai doan 2001 - 2010 da cd nhing tie ddng tfch cue dd'i vdi su nghidp phdt trien kinh td - xa hdi, thd bidn trdn cic mat sau:
Thd nhd't, vd'n ODA dd gdp phdn gia tdng nguon liic tdi chlnh quoc gia, gop phdn cdn dd'i Idi chinh vT md vd ddu lu phdt trien. Nhu mdt chit xic tie, ODA da bd sung mpt ngudn vdn quan trpng cho diu tu t i ngdn sdch dd phat tridn kinh td - xa hdi.
ODA da tao tie ddng lan toa cho phat tridn kinh td - xa hdi vi xoa ddi giam ngheo. Ngudn vd'n ODA da hd trp phat tridn kd't ci'u ha ting kinh te vd ha ting xa hdi, gdp phin rit quan trpng trong vide khoi diy ngudn vdn trong nudc vd thu hit, diu tu nudc ngodi, thie diy ehuydn djch CO cd'u kinh tdtheo hudng edng nghidp hod vd hidn dai hod, cai thidn cdc djch vu xa hdi, gdp phdn tang trudng kinh td, xoi ddi
• Trddng E3qi hpc Kinh t^ - Dgi iipc Qudc glo Hd Ndl
*' VOn phdng Chinh phO
TAP CHi QUAN LY NHA NU6C - SO 195 (4-2012) 49
N G H | £ N ciru - TRAO o6t
gidm nghdo. ODA cing ddng mdt vai trd quan trpng trong vide hd trp thue hidn cic Muc tidu Phdt tridn thidn nidn ky cia Vidt Nam vi Qud'c td (VDGs vd MDGs).
Thd hai, vd'n ODA gdp phdn chuydn giao khoa hgc cdng nghi hiin dgi vd kinh nghiim qudn ly tiin liih. Ngodi cde du dn ddu tu bdng ngudn vdn ODA true tidp tao ra CO sd vdt chd't, ky thudt cho edng tdc nghidn ciu khoa hpc, cdng nghd (cdc phdng thf nghidm d cie trudng dai hpc, cic vidn nghidn ciu khoa hpe; xdy dung tram vidn thdm,...), thdng qua nhidu du in diu tu bing ngudn vd'n ODA, ede cdng nghd mdi, ky ndng vi kinh nghidm qudn ly tidn tid'n dupc chuydn giao (edng nghd ldm dudng, Idm edu hidn dai, bao vd mdi Irudng, chpn gidng cdy trdng, vdt nudi...) ODA da gdp phin phit tridn thd chd, nhi't Ii hd trp hoan thidn vd xdy dung mdi nhidu bd ludt nhu: Ludl Doanh nghlip, Ludl Ddt dai, Ludt Thuang mai, Ludt Ddu tu, Ludl Ddu thdu, Ludt Canh tranh, Ludt Chd'ng tham nhung... C^e du dn ODA da giip ndng cao ndng lue quan Iy eia ede bd, ngdnh va ede dja phuemg, thdng qua cde chuong trinh, du in ODA, trinh dd chuydn mdn vd tidng Anh cia ddi ngu cdn bd eung cd budc tidn bd ddng kd.
Thd ba, ngudn vd'n ODA dd hd tra phdt triin kinh te - xa hdi cdc dia phuang, bao gdm phdt tridn co sd ha tdng quy md nhd (nude, dudng, trudng, tram, ludi didn, didn thoai...) vd phdt tridn ndng nghidp, Idin nghidp, thuy Ipi, thuy sin cia nhidu dja phuang nhd't Id cie tinh ngheo, ving siu, ving xa, ving ddng bio din tde thilu sd.
Ngudn vdn ODA cdn ddng gdp eho vide ting cudng ngudn luc con ngudi thdng qua ede ehuong trinh, du dn hd trp phdt tridn cdc cd'p hpe (tidu hpc, trung hpc co sd, trung hpc ph6 thdng, dai bpc vd day nghd);
dao tao vd ddo tao lai ddi ngi cdn bd, edng chic trdn nhidu Ilnh vue, nhit Id khu vue cung cd'p cde djch vu cdng.
Thd tu, quan hi hgp ldc phdt triin cda
Viit Nam vdl cdc nhd tal trg tiip ttfc dugc Idng cudng vd phdi Irlin vdl quy md vd'n ODA cam ki't hdng ndm diu tdng, kd ca thdi didm kinh td thd gidi rdi vio tri trd vd khing hoing, nhit li nim 2008, nhidu nudc ddi tic phdt tridn gip khd khin vd tdi ehi'nh. Diy Id nhing ddng gdp qu^ bdu cia cdc nhi tii trp cho su nghidp phit hidn kinh td - xa hdi cia Vidt Nam ndi chung vi tidn trinh hdi nhip kinh tdqudc tdsiu rdng ndi ridng.
Thd ndm, cdng ldc id chdc vd qudn ly ngudn vdn ODA dd dugc hodn Ihlin mdl budc quan Irong. Da hinh thinh vd vdn hdnh trong thuc tidn mdt khung khd phdp
\S tuong ddi hoin ehinh vi rd rdng, dam bao cdc nguydn tic co ban dd qudn I^ cd hidu qua ngudn vdn ODA. Vide phdn cip trong quan ly, s i dung ODA dupc thuc hidn manh me trdn co sd ning cao tfnh chu ddng, phin djnh rd ring trich nhidm vd quydn ban cia cdc cip quan Iy. Hoat ddng theo ddi, dinh gii dupe quan tim vi ting bude di vio nd ndp. Cie cudc ddi thoai chfnh sich vd ky thudt giiia ede cd quan thude Chfnh phu, ede don vi thu hudng vdi eie nhd tdi trp da dupe tidn hdiih rdng rai hon, thudng xuydn hon vd sdu sde hon.
Nhidu nd lue trong vide hii hod thi tuc (hd thdng bdo cdo ehung, miu nghidn ciu khd thi ehung...) da dupe thue hidn. Da hinh thdnh dupe mdt ddi ngu edn bd cd kinh nphidm vd kinli td ddi ngoai, hidu bidt siu sdc cdc ddi tdc tai cdc co quan qudn I^ nhd nudc vd ODA cua cic bd, tinh, thinh phd.
Tiy nhidn, vide thu hut, sft dung vdn ODA thdi gian qua vin cdn nhing bit cdp, ban ehd. Dd Id: trong bdi canh phdn cip manh me, vai trd Idm chi cia nhidu CO quan chu quin, ehu du an ehua phdt huy ddy du trong toin bd qua tiinh cbufb hj, thue hidn theo ddi, danh gii cie chuong ttiiih, du dn ODA.
Tmh trang thidu ddng bd, thidu nhil qudn giia cdc vdn ban quy pham phdp luit vd quan I^ vi s i dung ODA vi cde vdn ban
50 TAP CHi QUAN LV NHA NUdc - S6 195 (4-2012)
NGHIEN Cihj - TRAO 001
ehi phdi vide quan Iy ngudn vd'n nay (vd diu tu, xdy dung, dd'u thiu, giai phdng mit bdng...) edn bd't edp vi chim dupe khic phue. Nhidu vi'n dd nay sinh trong thue tidn chim dupc thd chd hda nhu s i dung mdt sd phuemg thic tdi trp mdi, quan 1}?
hpp ddng, su tham gia eua khu vue tu nhin v.v.
Theo y kidn chung cua cic bd, nganh, cdc tdng edng ty/td chic cung nhu cdc tinh/thanb phd thi quy trinh, thi tuc, quy djnh cia cdc nha tai trp va cia phfa Vidt Nam cdn thidu su ddng nhdt din ddn nhidu phic tap trong qui trlnh ehuin bj vd thue hidn. sir khdng hai hoi thd hidn chu ydu li cie quy djnh vd trinh, thim djnh, phd duydt du dn, phd duydt kd hoach, cic quy djnh vd ndi dung du dn, vd diu tu xiy dimg, mua sim di'u thiu, eac djnh mic chi tidu cia du in, cie quy djnh vd giai phdng mat bang vi hd trp tii djnh eu... do dd, giy lung ting cho chi diu tu, cie ban quan Iy du in trong qud trinh vdn dung.
Ndng lue td chic va quan ly cic chuong trinh, du dn ODA 6 nhidu tinh, thdnh phd va hiu hdt cd'p eo sd cdn nhidu han chd vd thidu linh chuydn nghidp ldm anh hudng ttuc tidp ddn chit lupng chuin bi, thim djnh vd phd duydt du an, cung nhu cdng tie theo ddi, gidm sit vd danh gia kdt qua cdc chucmg trinh, du an ODA.
2. Mpt sd kien nghi gdp ph£n ning cao hieu qua thu hut va siir dung vd'n ODA trong thdi gian tdi
Mdt Id, hoin thidn vin ban phdp quy, khung chi'nh sdch vd vdn uu dai. Mdi trudng phdp ly vd thd chd nhit qudn, thudn Ipi, phi hpp vdi thdng Id qudc td, via bao dam hidu luc cia cde eo quan Chfnh phi trong didu phdi vidn trp, via phit huy tfnh ehu ddng, sing tao eua cic co quan chu quan, chi du an, cie ddi tupng thu hudng li didu kidn edn ban dd hpp tdc vdi cdc ddi tdc phdt tridn trong vin ddng tai trp vd trong td chic, quan Iy hidu qud ngudn vdn
ODA vd vdn vay uu dai. Cu thd la: sdm ban hdnh Ludt Ddu lucdng dd dam bdo quan 1^
ddng bd, thdng nhit vd hidu qua ngudn vd'n diu tu cdng, trong dd cd ngudn vdn ODA vi vdn vay uu dai eua cdc nha tdi trp;
ban hinh kjp thdi cic vin bin chfnh sdch vi thd chddudi luit bao gdm hd thd'ng theo ddi, gidm sat vi ddnh gid diu tu edng;
hodn thidn khung khd thd chd vd ban hanh kjp thdi ede vdn ban hudng din thuc hidn khung khd thd chd quan Iy va s i dung ngudn vd'n im dai cho giai doan 2011 - 2015, bao gdm: ban hanh Nghi djnh mdi cia Chfnh phi thay thd Nghj djnh sd 131/2006/ND-CP eia Chfnh phii vd quan Iy vd su dung vdn uu dai; thd chd hod vide eac doanh nghidp boat ddng theo Ludt Doanh nghiip dupe binh dang tidp cdn vd s i dung ngudn vdn ODA vi vd'n vay uu dai eia cdc ddi tdc phit tridn; rd soil vi cai thidn thi tuc hinh chfnh lidn quan tdi quan
\-jl tdi chinh trong nudc ddi vdi ngudn vdn ODA vi vd'n vay im dai lidn quan tdi giai ngin, thanh quydt toin, kidm todn, chuydn giao cdng trinh sau khi hodn thdnh xdy dung,... Ban hdnh hudng din vd td chic vd hoat ddng cia co quan diu mdi qudn 1;^ vd s i dung ODA vi vdn vay uu dai. Quy djnh chd dp giim sit, ddnh gii vi phan hdi thdng tin; ban hdnh hudng din vd td chie vi boat ddng eua don vi quan ly thue hidn (ehi du in, ban quan Iy du in) vd'n ODA vi vdn vay uu ddi ddi vdi cdc phuemg thie vd md hinh ed'p vdn.
Hal Id, ndng eao hidu qua cdng tic quan ly nhd nudc vi s i dung vdn ODA cua cdc bd, ngdnh, dja phudng. CBng tdc didu phdi tdi trp edn dam bdo tfnh thdng nhit quan Iy cia (ihfnh phi trong sudt qui trinh t i lua chpn, xiy dung du in ddn giim sdt, theo ddi, dinh gid, kidm tra cdng tde thue hidn du dn. Phai dam bao su phdi hpp chat che giia cie ci'p quan Iy va eie nha tii trp t i khiu xiy dung danh mue ydu ciu lai trp ddn khiu thidt kd du an, sao cho mdi du dn ddu dupc lua chpn chfnh xdc, phuc vu
TAP CHi QUAN LY NHA N U 6 C - S6 19S (4-2012) 51
NGHIEN Ciru - TRAO B 6 |
nhing muc tidu uu tidn cho phdt tridn.
Tang cudng vai trd Td Cdng tdc ODA cila Chinh phu dd giai quydt nhing vudng mdc Irong qua trinh chuin bi vd thuc hidn du in cd tfnh chd't lidn nganh nham ddy nhanh licii dd giai ngin cho cic du dn, die bidt cac du an trpng didm. Mdt sd giai phdp cua cac CO quan quan ly nha nudc, cdc ed'p bd, nganh, dja phudng cin tdp trung la: tdng cudng trdch nhidm ddng gdp vdn dd'i ing, giai phdng mat bdng, giai quyd't tde nghidp cac vd'n dd pliat sinh trong qud trinh thuc hidn cae chuong trinh vd du dn dd cdi thidn linh hinh giai ngin vd'n tdi trp. Bd tri kjp thdi vdn dd'i ing cho cdc chuong trinh/du an; ddy nhanh tid'n dd giai phdng mat bdng nhim han chd su chim trd cua cic chuong trinh/du an. Cdc CO quan quan ly nha nudc va cdc bd, CO quan cd lidn quan 6 trung uong edn phan ing kjp thdi vd x i ly, thio gd nhing khd khan, vudng mdc theo ydu ciu cua CO so dd diy nhanh cdng tie chuin bj chuong trinh, du dn vd thic diy giai ngdn vd'n tai trp.
Ba la, phat buy vai trd lam chi cia phfa Viet Nam trong lira chpn, xdy dung cic chuong trinh va du dn eung nhu td chic thuc hien phi hpp vdi tinh hinh thuc Id.
Tinh thdn ldm chu 6 cd'p qud'c gia cing nhu 6 cd'p CO sd trong vide thu hit, quan ly vd s i dung ngudn vd'n ODA ed vai trd quydt dinh su thanh bai cua chuong trlnh, du dn.
(!) cd'p qudc gia, vai trd lim chi thd hidn d ning luc didu phd'i ngudn vd'n ODA dd phuc vu cic ydu edu phdt tridn mdt edeh thdng nhd't, cd hidu qua cao. d cip co sd, vai trd lam chu la trdch nhidm dd xud't y tudng, lua chpn du dn, chu ddng hpp tdc vdi nha tai trp vd bd trf cdc ngudn luc trong vide chudn bj ndi dung ehuong trinh/du dn, td chie thue hidn dd dat dupc kdt qua du dn mdt each bdn ving vd cd hidu qua kinh td va xi hpi.
Bd'n la, ting cudng ndng lue thidt kd vi quan ly du dn eho cac cd'p. Xdy dung vd thuc hidn kd hoaeh trung ban vd tdng
cudng ndng luc thidt kd ndi dung cdc chucmg trinh vd du dn tdi trp, edng tac thim djnh vd quan ly thuc hidn cde ehuong trinh, du dn s i dung ngudn vdn ODA is trung uong eung nhu eo sd. Kd hoach nay cdn dupc xdy dung cho 5 ndm, bd tri di cdc ngudn luc tdi chfnh vi con ngudi cdn thidt vi cdn dupc djnh ky kidm tra, danh gid tinh hinh thue hidn.
Trude mdt, cin thue hidn chucmg trinh ddo tao CO ban vd quan ly du dn cho cdc edn bd lidn quan tdi quan ly du an tdi trao cdc cd'p vi cdc ban quan ly du dn. Thd chd hda boat ddng quan 1;? du dn trdn eo sd cJp ehing chi dio tao quan ly du in cua co quan cd thim quydn. Tidp tue diy manh vide phin ci'p quan Iy vd s i dung ODA.
Phdn cd'p phdi di ddi vdi trao quydn vd xic djnh rd trdeh nhidm, dde bidt trich nhidm cia ngudi ding diu.Ting cudng ndng lire cho dpi ngu edn bd quan ly cac cd'p chinh li didu kidn dam bao phin ci'p thinh cdng.
Ndm Id, ting cudng hop tie vdi cic ddi tde phdt tridn. Chia se thdng tin, ddi thoai thing thdn, cdi md trdn tinh thin xdy dung vi trich nhidm, phdt tridn quan hd ddi tdc tin cdy Id ydu id ddc bidt quan u-png ddi vdi lioat ddng thu bit vd s i dung cac ngudn vd'n tdi trp. Minh bach hod eac quy trinh vd thu tuc tai trp vi giai quydt dilt didm nhung su khde bidt cdn tdn tai: phdi hpp vdi cic dd'i tdc phdt tridn cdng khai hod va cd nhimg hudng din ein thidt vi quy trinh vi thi tue, didu kidn eung cSp ngudn vdn ODA cia cic nha tai trp trdn cdc phuemg tidn thdng tin dai ehung.
Nhing su khde bidt cdn tdn tai giia cdc quy trinh vd thi tuc cua nha tai trp va nhing quy djnh quy pham phdp ludt ciia Vidt Nam lidn quan tdi quan ly vd sft dung ngudn vd'n ODA cia nha tai trp phai duijc cic CO quan quan Iy nha nudc vd ngudn vdn ndy d cdc cip thdng bio eho eac don vj thu hudng, cung nhu cac eo quan quan
\S cd lidn quan cing vdi nhing giai phdp (Xem tiep trang 74).
52 TAP CHi QUAN LV NHA NUdC - s6 195 (4-2012)
TO CHl/C VA CAC TRaONG HANH CHlNH TR^N THt' Gldl
giang vien cd thd dua ra nhing nhin xdt, ddnh gia vd nhing ban chd cua ehuong trtnh cing nhu phuang phdp gidng day eua Tru&ng,
Gid'ng nhu cdc chuang trtnh dio lao, chuang trinh nghien ciu sinh cua Tru&ng ed linh chuyfin nghiep rit cao. Cac nghien ciu sinh cua Trudng thudng khdng bit ddu nghien ciu ngay sau khi Ifi't nghidp cu nhdn.
Hp thudng Id nhihig ngudi da cd sy ngbifip vd cac ludn an cia hp IhUdng xudi phat t i chinh kinh nghiem chuyen mfin cia minh. Vd nhu viy, hp id nhing lifin sy ed ehuyen mdn cao nlid't ttong Chinh phi.
Nhd ttudng cing tidp nhdn nghien ciu sinh Id cdc cdng chftc, vien chie t i nhing nudc khdc. Chuong trinh nghien ciu sinh dd vd dang cung cd'p nhung cdng chic cao ci'p khdng chi ddnh rifing cljo Wellington md eho ca nudc Niu Di-ldn, Ot-xlrdy-li-a vd nhidu nudc khdc tren thfi gioi.
Hien nay, sd lupng sinh vifin, hpe vifin b
eie nudc mong mudn dupc hpe tip vi nghlfin ciu lai Tru&ng ngiy cdng ldn, ddy cing id ly do md Tru&ng ludn phai ehi trpng diu tu thifit kfi vd xiy dyng eie phdng hoc, khufin vifin, thu vien... phi hpp vdi khfing gian, vdi mfii tru&ng hpc tip, mang phong cdch ddc trung eia Truing.
Trudng Chinh phu da kfi thia nhing truydn ihfing hon mfit thd ky phdt ttidn cua Trudng Dai hpc Victoria Wellington, die biet Id trong lien kdl qufic tfi vd giang day, nghien ciu vd xdy dyng cdc chuong ttinh dio tao cd f nghia qu6c gia vi qufic tfi. Qua cdc chuang trmh ddo lao, Tru&ng Chi'nh phu cam kdt cung cd'p cho cde sinh vifin, hpe vien, nghien ciu sinh nhidu co hfii vd didu kidn dd hp cd thd dp dung cdc kifin tliie eung nhu cic ky ndng vd cliinh sdeh efing dupc tifip thu trong qui ttinh hpc tip vdo thye tidn efing vific cua minh vd ting cu&ng phdt tridn ndng lyc cia mdi sinh vien, hpc vien ttong cflng ticQ
THU HUT, Sir DUNG VON ODA...
(Tiip Iheo trang 52) x i ly nhQng sy khic biet dd dupc thoa thuin bing vdn ban giia cdc co quan cd thim quydn Viet Nam vi nhd tdi ttp.
Cdc Cd quan quan ly nhi nudc cdc ci'p hpp tac chit che vdi cde ddi tdc phdt tridn trfin CO so song phuemg hodc nhdm cdc nhd ldi trp td chie kidm didm djnh kJ- tinh hinh thyc bifin chuong ttinh va dy dn, phdt hidn vd cing vdi nhd tdi trp giai quyfit tic nghifip cde vin dd vudng mdc thufic thim quydn. Tifi'p tuc ndng cao chd't lupng cdc hfii nghj tham vi'n cic nhd tdi trp (iidi nghj CG) gifta ky vd hing nim, tao khdng khi ddi thoai thing thdn, cdi md dd xiy dyne long tin cua cdng ddng tai trp qudc tfi. Td chic cac hpi nghj vin ddng tii trp theo ngdnh vd cdc ving lanh thd, chia se thdng
lin vd chifin lupc, quy hoach, kfi hoach phit tridn cua cie ngiiih, dja phuang dd phfii hpp chinh sich vdi cdc nha tai ttp. Phfii hpp chdt che vi tao didu kifin thuin Ipi ft tit ei cic cip quan I;? vi thyc hidn dd thuc diy qud ttinli phdn edng lao ddng vi bd ttp ttdn ea sd Ipi thfi eua eie nhi tii ttp, giam chi phf giao djch, ning cao hieu qui vidn trp. Thyc hidn cic boat ddng ning cao hidu qua mdt cieh thyc chi't ttong khung khd Didn din bidu qua vien ttp (AEF) vd cdc nhdm quan lid ddi tdc ngdiih (SPG). Thuc hien ddng bd cie kifin nghj ndu ttdn doi hoi nd lye eua Chfnh phi cung nhu cdc bfi, ngdnh, cdc dja phuang ttong c i nudc, hudng tdi muc tifiu thu hit tfii da vi si dung hifiu qua vfin ODA cia cie nbi tdi ttp ttong thdi ky IdiQ
74 TAP CHi Q U A N LY N H A N U d C - SO 195 (4-2012)
