nh hng s dng ODA

L Quc Hi Ging vin, i hc Kinh t quc dn (NEU) Nghin cu vin, Din n Pht trin Vit Nam (VDF) ODA v tc ng ca ODA Vit Nam tr thnh mt im n hp dn i vi ODA cho pht trin kinh t - x hi t nm 1993. Hnh 1 cho thy dng vn ODA vo Vit Nam c xu hng tng, nhng khng phi lun lun tng. Vn cam kt nm 1997 v 1998 gim st l do tc ng ca khng hong tin t chu . Trong thi k 1993-2007, Vit Nam t c nhng kt qu n tng trong thu ht v s dng ODA. Tng cng 37 t USD c cc nh ti tr cam kt cho Vit Nam, chim khong 2% tng ODA ton cu. Trong s vn cam kt , 22,6 t USD c k kt. Bnh qun mi nm Vit Nam thu ht c 2,5 t USD vn ODA. Hnh 1. ODA cam kt v gii ngn thi k 1993- 2007
5 4.5 4 3.5 3 2.5

ODA Cam kt
2 1.5 1 0.5 0 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007

ODA Gii ngn

Nm
Ngun: B k hoch v u t (MPI)

Nh c minh ho Hnh 1, vn ODA gii ngn tng hn 4 ln trong thi gian t 1993 n 2007. Hu ht s gia tng di hn ca vn gii ngn l vn vay hn l vn khng hon li. Gn mt na (49%) ngun vn vay c li sut thp hn 1%/ nm v thi gian tr n t nht l 30 nm, trong c 10 nm n hn. Mt phn ba ngun vn vay l vi li sut hng nm t 1% n 2,5% (MPI, 2007). Hn na, phn ln khon vay ODA s c xem xt trong iu kin hn ch kh nng tr n bn ngoi ca Vit Nam. Tng n quy i ca Vit Nam khong 37%GDP nm 2007 (MPI, 2007), iu ny cho thy khng c du hiu nguy him ca khng hong n Vit Nam. ODA ch yu tp trung cho cc d n u t (41%), vi mt lng vn tng i c dnh cho cc d n h tr k thut (23%) v phi h tr k thut (20%). Ch c 13% vn gii ngn nm 2005 l cho cc chng trnh vin tr ngn sch v tr gip cn cn thanh ton (xem Hnh 2).

Hnh 2. ODA gii ngn theo loi hnh nm 2005

Khc, 3% Vn u t c tr gip k thut, 23%

Vin trngn sch v trgip cn cn thanh ton, 13%

Vn u t khng c tr gip k thut, 20%

Tr gip cn dn u t, 41%

Ngun: MPI

Vn ODA c phn b ch yu theo s u tin m chnh ph t ra cho cc ngnh kinh t. S phn b vn gii ngn ODA tng ng vi cc lnh vc c th hin trong Hnh 3. Giao thng vn ti, bu chnh vin thng, nng lng v cng nghip, l nhng lnh vc c d n c s h tng quy m ln, chim t l ln nht (42%), tip theo l nng nghip, pht trin ti nguyn v nng thn (21%), ODA phn b cho gio dc, o to, y t, mi trng v cng ngh chim t l thp hn (12%). Cc lnh vc cn li chim khong 18% tng s vn ODA gii ngn. Hnh 3. C cu ODA gii ngn theo ngnh, 2001-2005

18% 5% 7% 7% 25% 17%

Nng nghip, thu li, lm nghip, gim i ngho v pht

21%
trin nng thn

0%
Ngun: MPI

5%

10% 15% 20% 25% 30%

ODA b sung mt ngun vn quan trng cho pht trin kinh t - x hi Vit Nam. Trong giai on 2001-2005, ODA b sung khong 11% tng vn u t ton x hi v khong 17% tng vn u t t ngn sch nh nc. Nh vn ODA, s pht trin t c trn nhiu mt ca nn kinh t, bao gm gim i ngho, pht trin ngun nhn lc, chuyn giao tin b cng ngh, kinh nghim qun l tin tin v nng lc th ch. Mt cu hi cn c tr li l: Ti sao Vit Nam thu ht c rt nhiu ODA nhng nm gn y. C mt vi l do chnh cho cu hi ny. Th nht, ch chnh tr n nh v s nghip i mi ton din kinh t - x hi ca Vit Nam a Vit Nam tr thnh mt trong nhng nc c cng ng vin tr a thch. Th hai, Vit Nam hng li nh t c nhng kt qu n tng v tng trng kinh t v gim i ngho nhanh ng vo thi im m cc nh ti tr ang tp trung hn vo lnh vc gim ngho v sn sng vin tr cho nhng nc s dng tt ngun vn ny. Th ba, tin trnh hi nhp su v ch ng vo kinh t th gii v khu vc, s nng ng ca nn kinh t, tin trnh ci cch hnh chnh v mong mun ca chnh ph Vit Nam tip tc gn b vi cc nh ti tr khin h cng nhit tnh vi Vit Nam hn. i vi nc tip nhn vin tr, ODA c xem nh mt ngun lc thc s nu n c kt hp hiu qu vi cc ngun lc trong nc khc t c cc mc tiu quc gia trong tng thi k nht nh. i vi cc nh ti tr, ODA s tr thnh mt ngun vn vin tr thc s nu n c chuyn cho nc tip nhn gin tip hay trc tip to ra cc iu kin cho pht trin. T hai cch tip cn trn, v t nhng tc ng ca ngun vn ny trong thi gian qua, c th khng nh rng ODA Vit Nam tr thnh mt ngun vn thc s v c hiu qu trong tin trnh i mi. Tuy nhin, bn cnh nhng thnh cng trong thu ht v s dng vn ODA, cn tn ti nhiu vn m Vit Nam cn phi gii quyt s dng ngun vn ny c hiu qu hn trong tng lai. Mt s vn hin ti ca ODA Hiu qu s dng Nng cao hiu qu s dng ODA l mt trong nhng vn quan trng m Vit Nam phi gii quyt. Mt trong nhng nguyn nhn chnh ca vic s dng ODA cha c hiu qu l nhn thc v hiu v bn cht ca ODA cha c chnh xc v y trong qu trnh huy ng v s dng. Nhn thc cho rng ODA l cho khng v trch nhim tr n ngun vn vay ODA thuc v chnh ph. Nhn thc sai lch nh vy dn n tnh trng km hiu qu trong vic thc hin mt s chng trnh v d n ODA. Thc t, mc d hu ht ODA l di dng cc khon vay u i vi li sut thp, thi gian tr n v n hn di, ODA khng phi l th cho khng v vic s dng ODA l mt s nh i. Nu s dng ODA khng hiu qu, gnh nng tr n s tng ln. Mt khc, vic kt hp ngun vn ODA vi cc ngun vn khc cn yu, iu ny cng lm gim hiu qu ca ngun vn ODA. Gii ngn T l gii ngn ODA Vit nam vn cn thp. T nm 1993 n 2006, vn ODA gii ngn l 15,9 t USD, ch chim 42,9% tng s ODA cam kt (37 t USD). Nh trong Hnh 1, t l gii ngn bnh qun ch khong 50% trong nhng nm gn y. T l gii ngn bnh qun ca Vit Nam cng thp hn ca cc nc ASEAN (xem Bng 1). T l ODA trong GDP ca Vit Nam dao ng t 3,5% n 4,5%, thp hn mt s nc c cng trnh pht

trin kinh t1 . Vit Nam cn phi n lc hn na y nhanh tin gii ngn ODA v so vi s tng ln ca vn cam kt mi nm, kt qu t c cn xa vi mong i. Theo d on ca cc chuyn gia Ngn hng Pht trin Chu , nu Vit Nam ci thin c t l gii ngn ODA, tc tng trng GDP c th tng t mc 8 8,4% nh hin ti ln ti 9% v Vit Nam c th tr thnh nc c mc thu nhp trung bnh vo nm 2009, sm hn mc tiu l nm 2010. Bng 1. T l gii ngn vn ODA ca Vit nam v mt s nc ASEAN 2 giai on 2001-2005 Nh ti tr Ngn hng th gii Ngn hng pht trin chu Nht Bn ( JBIC)
Ngun: MPI

T l gii ngn bnh qun ca mt s nc ASEAN (%) 18%/nm 20%/nm 15%/nm

T l gii ngn bnh qun ca Vit nam (%) 15%/nm 18%/nm 9,3%/nm

C mt vi nguyn nhn gii thch v sao ODA li gii ngn chm Vit Nam. Th nht, thng thng phi mt mt thi gian di cc chng trnh v d n ODA c trin khai. Khong 50% ngun vn ODA Vit Nam c dnh cho cc d n c s h tng, lnh vc cn nhiu thi gian hn tin hnh v thm ch kt thc chm hn t 3 n 5 nm so vi cc d n cc lnh vc khc, iu ny dn n vic gii ngn chm. Mt s nc ang pht trin khc, chng hn nh mt s nc chu Phi, ch s dng mt phn ba ngun vn ODA cho cc d n c s h tng v c t l gii ngn cao hn. Th hai, nng lc qun l v gim st thc hin d n v chng trnh ODA ca Vit Nam cn hn ch v bt cp, c bit l khi c s tham gia ca chnh quyn a phng. Th ba, khun kh php l v qun l v s dng vn ODA cha ng b v vic hiu cc vn bn ny cng khng thng nht. Hn na, s khc nhau trong nhn thc gia cc i tc Vit Nam v cc nh ti tr cn ln, lm hn ch vic thc hin cc d n. Trong Hi ngh t vn cc nh ti tr gn y (2007), cc nh ti tr cho Vit Nam khng nh rng vic gii ngn ODA s c ci thin mnh m nu cch thc thc hin ca Chnh ph Vit Nam v cc nh ti tr hi ho c vi nhau. C cu t chc v nng lc cn b C cu t chc v nng lc cn b trong cng tc qun l v thc hin ODA cn yu v cha p ng nhng yu cu ca vic nng cao hiu qu ODA. S tht thot v tham nhng d n PMU18 v nhng d n ln trong lnh vc du kh l nhng v d v hn ch trong qun l v theo di ODA. Theo kt qu iu tra thc hin bi CIEM v JICA (2003), hu ht nhng ngi tham gia trong qu trnh thc hin ODA u by t quan im rng cc th tc thm nh v chp nhn cc d n mi ca bn Vit Nam cn phc tp v c bn cha hi ho vi quy trnh v th tc ca cc nh ti tr. Mt ngh nh ca chnh ph gii quyt vn ny c ban hnh nhng n nay vn cha c thc hin y . Thch thc cn li l m bo s minh bch v trch nhim trong qun l ODA t pha Vit Nam.

1 2

Xem Thi bo Kinh t Vit Nam (2006) Cc nc ASEAN bao gm Thi Lan, Malayxia, Indonexia v Philipin.

Phn cp Phn cp trong qun l v s dng ODA c thc hin v thu c nhng kt qu quan trng nh m rng i tng hng th v nng cao quyn t ch ca chnh quyn a phng. Tuy nhin, vic phn cp ODA cha p ng c nhng yu cu ca i mi qun l ngun lc cng. Chnh sch phn cp trong qun l v s dng ODA cha c s thng nht gia trung ng v a phng. Nhng hn ch v nng lc ca i ng cn b a phng trong chuyn mn nghip v v ngoi ng cng l nhn t lm hn ch vic phn cp v s dng hiu qu ngun vn ny. S phi hp km gia chnh quyn trung ng v a phng, gia chnh quyn a phng v cc nh ti tr dn ti s chm tr trong qu trnh thit k v thc hin d n. Tnh trng ny cng d dn n vic s dng ODA lng ph v km hiu qu. nng cao hiu qu s dng ODA, cn phi u t nhiu hn vo vic xy dng nng lc cho qun l v iu hnh a phng. Tr n Vn tr n ODA ca cng cn c t ra t by gi. Vit Nam, vic huy ng ODA mi ch tp trung vo vic thu ht cng nhiu ODA vi cc iu kin d dng, tuy nhin ngun lc v kh nng tr n vn cha c quan tm ng mc. Theo s liu t MPI, tng n ca Vit nam hin nay khong hn 22 t USD v chim khong 37% GDP. Vi mc n an ton l 40% GDP theo nh khuyn co ca IMF, kh nng vay n ca Vit Nam khng cn nhiu. Do vy, Vit Nam cn quan tm n ngun tr n v vn nng cao hiu qu s dng ODA tr nn quan trng cho vic tr n ODA. Bng 2. Tng cc khon n ca Vit Nam 2000 11,8 39,0 2001 11,9 37,4 2002 11,8 34,0 2003 13,3 34,1 2004 16,7 36,8 2005 18,9 35,8 2006 22,2 36,6

Tng n (T USD) % GDP

Ngun: MPI

S dng ODA vi chin lc pht trin vng Vic s dng ODA hin khng hon ton ng b vi chin lc pht trin vng vi trng tm l pht trin c s h tng. Do pht trin c s h tng l mt trong nhng u tin hng u trong k hoch pht trin ca Vit Nam, phn ODA ln nht c phn b vo lnh vc ny. Tuy nhin, nhiu d n ODA c ph duyt vn nm trong k hoch v/hoc cha c hon thnh do nhiu l do khc nhau. Trong iu kin s tham gia ca khu vc t nhn vo c s h tng cn hn ch, ODA khng nn ch tp trung nhiu vo c s h tng m cn phi cn c vo chin lc pht trin kinh t di hn. nh hng s dng trong tng lai nh hng trong giai on 2008-2010 l tip tc thu ht ODA, ch trng n vic nng cao hiu qu qun l, s dng ODA v m bo kh nng tr n. Trng tm ca giai on ny l cn y nhanh tin gii ngn cc d n v chng trnh ODA k kt a cc cng trnh vo khai thc v s dng, gp phn nng cao hiu qu s dng ODA. m bo hiu qu ODA, cc chng trnh v d n phi c s dng da trn cc k hoch pht trin kinh t - x hi ca ngnh, a phng v c nc. Cc n v th hng cng phi lng ghp cc 5

chng trnh v d n ODA vo k hoch pht trin kinh t - x hi ca mnh. Cc lnh vc u tin s dng vn ODA trong thi k ny bao gm: pht trin nng nghip, nng thn; xy dng c s h tng kinh t ng b v hin i; xy dng kt cu h tng x hi; bo v mi trng v cc ngun ti nguyn thin nhin; tng cng nng lc th ch v pht trin ngun nhn lc; chuyn giao cng ngh, nng lc nghin cu v trin khai. Hn na Vit Nam cn xy dng cc chng trnh v d n gi u c cht lng v hiu qu cho giai on sau nm 2010. Trong nhng nm ti, nhu cu v xy dng c s h tng vn rt ln nhm p ng s gia tng ca sn xut cng nghip. Chnh ph Vit Nam t ra mc tiu cho nhng nm ti l pht trin nhng ngnh cng nghip s dng nhiu lao ng v gim t l lao ng trong lnh vc nng nghip. Theo s thay i c cu kinh t ny, mt chin lc mi s dng ODA l rt cn thit. Mt mt, pht trin c s h tng, c bit l cc ngnh giao thng vn ti, bu chnh vin thng v in, cn c xem l nhng u tin cao nht. Mt khc, ODA cn c phn b cho cc khu vc v vng u tin, nh cc vng ngho v kh khn. S u tin ODA cho c s h tng v nhng vng u tin l cn thit nhm duy tr tng trng kinh t bn vng v gim i ngho. Vit Nam ang hng ti ngun vn vay thng mi sau nm 2010. Theo kinh nghim quc t, mt nc ang pht trin c xp c mc thu nhp trung bnh (GDP bnh qun u ngi t trn 1.000 USD) s nhn c t vn ODA c iu kin u i cao hn. n nm 2010, GDP bnh qun u ngi ca Vit Nam d nh t n 1.050 USD. Khi thi im n, cc nh ti tr s mun tng lng ODA cho vay thay v ODA u i. ng thi, Vit Nam cn phi s dng tt hn ngun vn ODA nhn c. Mt khc, khi Vit Nam tr thnh mt nc m nhiu ngi dn c mc thu nhp trung bnh, nhng vn mi s ny sinh. Thc t cho thy, mt s nc nh Philipin hay Sri Lanka khng c s ci thin no sau khi t c mc thu nhp trung bnh. Do vy, Vit Nam khng nn theo bc chn ca nhng nc ny. Thay vo , Vit Nam cn phi xy dng v i theo chin lc ring ca mnh, c bit l ci cch vic huy ng v s dng vn ODA. Xy dng nng lc cho tng lai cng l mt iu quan trng, trong c bit l nng lc qun l v nng lc con ngi. Khi Vit Nam tr thnh mt nc c mc thu nhp trung bnh, t trng ngun vn ODA c iu kin u i cao trong tng vn ODA s gim xung, ng thi vn vay ODA c iu kin gn vi vay thng mi s tng ln. Do vy, Vit Nam cn phi xy dng k hoch gim vn vay ODA sau nm 2010. Hn na, kinh nghim s dng cc khon vay thng mi cng cn c nghin cu chun b cc iu kin thu ht v s dng c hiu qu ngun vn ny trong tng lai. s dng hiu qu cc ngun vn ny, Vit Nam cn c nh hng phn b ODA hp l. C th, trong khi vn ODA vi cc iu kin u i cao cn c u tin s dng pht trin c s h tng kinh t x hi, vn ODA gn vi cc iu kin km u i v vn vay thng mi cn phi c s dng cho cc chng trnh, d n, ngnh v vng c kh nng thu hi vn nhanh v m bo kh nng tr n vn vay mt cch bn vng. Do c cu ngun vn ODA s thay i v ODA c th c thc hin qua nhiu phng thc khc nhau, vic s dng mt phng thc c th no cn phi da trn nhng yu cu c th ca s pht trin m bo s dng c hiu qu ODA. Hn na, Vit nam s cn phi p dng cc phng thc v m hnh vin tr mi nh tip cn theo chng trnh, ngnh v h tr ngn sch. Nhng m hnh vin tr mi ny s pht huy vai tr lm ch ca chnh ph, gim chi ph giao dch, tng cng hi ho gia chnh ph v cc nh ti tr, v y nhanh tin gii ngn cc chng trnh v d n ODA.

Cc gii php chnh sch C s cho vic tip tc thu ht v s dng ODA Vit Nam l r rng. s dng c hiu qu hn ngun vn quan trng ny trong tng lai, Vit Nam cn thc hin cc gii php v chnh sch sau y. Th nht, cn nng cao nhn thc v hiu ng v bn cht ca ODA. ODA nn c coi l ngun lc c tnh cht b sung ch khng thay th ngun lc trong nc i vi mi cp th hng. Mt iu cng quan trng na l cn nng cao quyn t ch trong huy ng v s dng ODA p ng s pht trin kinh t - x hi ca quc gia, ngnh v a phng, v nng cao hiu qu s dng vn ODA. Th hai, s dng ODA c chn lc. Mt vn quan trng l ODA cn phi c s dng ph hp v kt hp hi ho vi cc ngun vn u t khc. Thc t, cc tranh lun chnh sch chnh khng cn l liu c nn thu ht ODA hay khng m vn l lm cch no ti a ho cc li ch ca ODA. Do vy, cht lng trong thu ht ODA s quan trng hn l s lng ODA. iu ny c ngha l vic huy ng v s dng ODA cn phi cn c vo cc yu t kinh t - x hi v phi nh gi k cc li ch mang li t vic chuyn giao vn, kin thc, cng ngh, k nng v kinh nghim qun l tin tin. Th ba, cn y nhanh tc gii ngn ODA. Yu cu tng tc gii ngn ODA l trch nhim ca c bn Vit Nam v cng ng ti tr. V pha Vit Nam, chnh ph cn phi n gin ho vn bn php l v th tc lin quan n ODA. V pha cc nh ti tr, hi ho v n gin ho quy trnh th tc vi chnh ph Vit Nam cng l iu cn thit nhm m bo tin trnh thc hin c hiu qu. Nh li ni ca Gim c WB Vit Nam Ajay Chhibber ti Hi ngh nhm t vn nm 2007: Mt iu cng thng thng cho cng ng ti tr l cn xem xt h thng ca Vit Nam, ch khng phi lun lun yu cu s dng h thng ring ca h cho vic thc hin d n. Th t, ti a ho hiu qu v tc ng lan to ca ODA. Vic huy ng v s dng ODA phi da trn s nh gi tng quan gia chi ph v li ch ca cc chng trnh v d n m bo rng cc chng trnh v d n ny c hiu qu cao, to ra tc ng lan to ti a v ng gp vo pht trin kinh t. Mt vn quan trng na l trnh vic s dng trn lan v dn tri vn ODA, dn n gnh nng n cho t nc. Hiu qu ca ODA phi c t trong mi quan h vi tng trng kinh t v pht trin bn vng. Hn na, chin lc, quy hoch v k hoch pht trin kinh t - x hi ca c nc, ca tng ngnh v a phng phi c xem xt nng cao hiu qu s dng vn ODA. Th nm, m rng din th hng ODA ti khu vc t nhn thc hin cc chng trnh v d n phc v cc li ch cng cng. Huy ng s tham gia ca cc i tng th hng l mt cch quan trng m bo ngun vn ODA c s dng cng khai, minh bch, c hiu qu, v trnh c tht thot, lng ph v tham nhng. Th su, xy dng k hoch hp l cho vic phn cp ODA. Phn cp qun l v s dng ODA l tin trnh khng th o ngc trn th gii cng nh Vit Nam. Vn quan trng l Vit Nam cn phi xc nh c phn cp n mc no v nhng d n no cn c phn cp. T cch nhn ny, nhng kt qu v kinh nghim phn cp trong thi gian qua cn c xem xt. Mt h thng cc tiu ch cho vic phn cp ODA bao gm thi gian v chi ph thc hin d n, nng lc qun l ODA v hiu qu hot ng cng cn phi c xy dng.

Th by, tng cng theo di v qun l ODA. Gii php ny bao gm: (i) m bo tnh ng b, nht qun, r rng, n gin v minh bch ca h thng php l lin quan n qun l v s dng ODA; (ii) tng cng n lc chng tham nhng ca chnh ph; (iii) y nhanh ci cch hnh chnh v hiu qu hnh chnh nh nc; (iv) nng cao o to chuyn nghip v o to li cn b qun l d n; (v) hon thin chnh sch ti chnh i vi ODA bao gm thc hin qun l n nc ngoi v m bo chnh sch thu thng thong i vi cc hng trnh v d n ODA; (vi) tng cng qun l vn ODA theo Lut ngn sch. Th tm, xy dng k hoch gim dn ODA vi thi gian tr n ngn v gn vi iu kin cht ch. Kinh nghim t cc nc ASEAN v Trung Quc cho thy rng lng ODA huy ng ph thuc vo trnh pht trin kinh t trong tng thi k nht nh. ODA c khuynh hng gim cc nc ASEAN c v lng v bnh qun u ngi. Vit Nam cng cn phi bt u nghin cu k hoch v chin lc gim dn ODA, c bit l ODA c iu kin, ng thi tng cng thu ht cc ngun vn nc ngoi khc nh FDI. Bng cch , Vit Nam khng ch duy tr c s gia tng ca tng vn u t m cn ci thin c hiu qu ca tt c cc ngun vn, bao gm c vn ODA. Ti liu tham kho Central Institute of Economic Management (CIEM) & Japan International Cooperation Agency (JICA). (2003). A study on donor practices in Vietnam - Grant aids and transaction cost: Listen to the voice of the Recipient. Hanoi: CIEM & JICA. International Development Centre of Japan. (2002). Evaluation study of Japanese ODA for Vietnam. Tokyo: JDCA Ministry of Planning and Investment (MPI). (2004). Summary report on ODA mobilization and implementation in Vietnam, and the impacts of ODA on local economy in Central Coasts and Central Highlands, paper presented at the Workshop on ODA implementation in Central Coasts and Central Highlands in Da Nang, May 2004. Ministry of Planning and Investment. (2007). ODA Report No. 27-28. Tu, Q. P. (2007). Improving the efficiency of ODA in Vietnam. Economics and Development Review, 123. Vietnamese Government. (2006). Strategic framework for official development assistance mobilization and utilization 2006-2010, the Prime Ministers Decision No. 290/2006/QD-TTg dated 29 th December 2006. Le, T. D., Nguyen, T. T., Nguyen, T. H., & Tran, T. H. (2004). Mobilising investment for development: Role of ODA the 1993-2003 experience in Vietnam, OECD Working Papers on International Investments, 6. World Bank. (1999). Aid assessment: When useful, when not and why?. Hanoi: National Political Publishing House. World Bank. (2003). Vietnam development report 2004: Poverty. Hanoi: WB.