KINHTE KINH NGHIEM CUA MOT SO QUOC GIA CHAU A TRONG VIEC THU HUT VON TI/ NHAN VAO NGANH DIEN THEO HINH THlfC PPP » TRAN THANH PHl/dNG TOM TAT Trong bd''''i canh khd khSn cbung cua toan c^u trffdc sff hoa[.]
KINHTE KINH NGHIEM CUA MOT SO QUOC GIA CHAU A TRONG VIEC THU HUT VON TI/ NHAN VAO NGANH DIEN THEO HINH THlfC PPP » TRAN THANH PHl/dNG TOM TAT: Trong bd'i canh khd khSn cbung cua toan c^u trffdc sff hoanh hanh cua dai dich Covid - 19, Tai Vi$t Nam, ngknh Dien dang dd'i mat vdi bai toan thieu vd'n nghi6m nguon vd'n cdng khdng dii dap ffng nhu cdu vd^n phai trien nganh Vi vSy, nhu clu huy ddng them vd'n tff khoi tff nhan 1^ hd't sffe ca'p thie't Tuy nhien, nhffng rui ro Idn cua nganh Dien nen cac nha dau tff tff nhSn khdng mud'n chiu trSch nhiem hoan toan vdi mot dff an dien Trong hoan canh dd, hdp tac Cdng - Tff (Public Private Partnership - PPP) - hinh thffc dau tff phdi hdp giffa Nha nffdc v^ Tff nhan Ik mdt Iffa chon tdt da bid'n d nhilu qud'c gia viec xay dffng vS phat tri^n cic cdng tiinh cd sd ting, dac bidt la linh vffc didn Bai vid't nghien cffu kinh nghidm ciia Trung Qud'c v^ An Dd - hai quo'c gia da cd nhiJng cdng nha't dinh viec thu hiit dau tff ph^t trien nganh Dien theo md hinh PPP di nit bai hoc cho Viet Nam Tuf khda: ChSu A, ng&nh Dien, vd'n tff nhan, hinh thffc cdng - tff l.DatvS'nd^ Nhu ciu sff dung di8n d Viet Nam dang c^ng gia tang, tdc dp tSng trung binh khoang 12.1%/nam, gS'p ddi da tang trffdng cua GDP Trffdc day, nguon vd'n chinh ddng gdp cho nganh Di6n Viet Nam thffdng de'n tff khu vffc Nha nffdc bao g6m Tap doan EVN, Vinacomin va Petrovietnam Tuy nhien, ban than tap doan EVN lai gap khd khan tai chinh thdi gian gan day Trong dd, cde cdng ty nha nffdc lai khdng tie'p tuc dffdc phep dau tff nhieu vao nganh Dien theo Ngbi dinh s6'91/2015 cua Chinh phu ve viec Ichdng cho phep cdng ty nha nffdc dau tff ngoai Do do, nganh Dien Viet Nam khdng the tie'p tuc dffa vao nguon vd'n cdng nhff trffdc Vay giai phap dat de giai quyet dffdc nhu cau vdn tang manh d nganh Dien chinh la viec thu hut nguon vdn tff nhan Tuy nhien, nhffng rui ro idn den tff dff lin dien it cd nha dau tff iff nhan mud'n chiu trach nhiem thffc hien toan bo mot dff an dau tff dien So 17-Thang 7/2020 173 TAP CHJ CONG THIfdNG Chinh VI vay, hinh thffc dau tff phd'i hdp ca khu vffe cdng va tff hay hmh thffc PPP se la giai phap lot nhat de giai quyet van de thieu vdn cho nganh Dien Hinh thffc da xua't hien tff nhffng nam 80 cua the ky XX va cang diTdc ap dung phd bid'n, cdng linh vffc phat trien cd sd tang lai hdn 50 qud'c gia tren the' gidi PPP ichdng chi xua't hien d cac qudc gia phat trien ma cdn dUdc trien khai d cac nen kinh te mdi noi, da chffng to dffdc tinh hidu qua viec chia se rui ro, ganh nang lai chinh vdi Chinh phu; tiet kiem thdi gian, chi phi; tan dung ky nang chuyen mdn va chuyen giao cdng ngh^ qua trinh thiet ke', mua sam, thi cdng, vSn hanh cdng Irinh; doi mdi vi6c cung ca^p dich vu cong cong va gdp phan cai thien manh me he thd'ng cd sd tang kinh le - xa hdi Nhilu qud'c gia d chau A da ap dung Iffdng dd'i cdng md hinh irong dau tff phat trien nganh Didn Trong dd, Trung Qud'c va An Do la hai dai didn tieu bieu da pbat trien cdng nganh Dien nhd PPP Day la cac quo'c giacd nhieu net tffdng ddng vdi Viet Nam klii bit dau tien hanh ap dung md hinh PPP Do vay, viec nghidn cffu kmh nghiem cua hai qud'c gia ap dung PPP la hd't sffe can ihie't de riit bai hoc cho Viet Nam, hien cdn dang thdi ky dau cua qua trinh ap dung md hinh vao ITnh vffc dau tff phai trien nganh Dien Kinh nghi$m ciia Trung Qud'c viec thu hiit dau tff theo hinh thtfc PPP vao nganh Di^n Theo sd' lieu cua World Bank, tff nam 19922019, dffdi tac dong cua chu'dng trinh cai each nganh Dien nham thu hiit sir tham gia cua khu vffc tff nhan vao nganh Dien, Trung Qud'c cd long cdng 478 dff an PPP dien diTdc thffe hiSn vdi cdng suat da dang tff 13,5 MW den 4.000 MW thu hut 58 282,506 trieu USD vdn dau tff tff khu vffc tu nhan, td chffc tai chinh va ngoai nirdc Hien nay, cac dff an PPP dang boat ddng phan bd tap trung chii yeu d cac tinh ven bien mien Ddng Trung Qud'c nhff Quang Ddng Giang Td cd cdng suat phat dien da dang tff 10 MW den 3.600 MW Cac tram pbat dien cd cdng sua't nhd thu hiit dau 174 So 17-Thang 7/2020 tff bdi yeu cau ve gia'y id khdng qua k H khe, nhu cau vdn khdng qua Idn, it rui ro, cd the \ay dffng thdi gian ngln Nhffng edng cd dffdc nhd Trung Qudc da thffc hign nhffng bien phap -sau: Tha nhat, Trung Qudc ehu xay dffng cde cd che ffU dai dau tif cho nha dau tff tff nhan tham gia PPP nganh Dien nhff: Trao nhffdng quyen vdi dieu khoan d^c biet, bao dam mua dien, cung cap nhidn lieu, bao dam dieu kien ba't kha khang, Mae dii chinh phii khdng dam bao doanh thu va ldi nhuan ciia dff an, song lai dffa dieu kien thufin ldi de dd'i tac tff nhan nang cao hieu qua van hanh Cde thoa thuan dam bao dffdc ky ke't giffa nha dau tff tff nhan vd Quy bao dam Cd s6 tang Ngoai ra, cac thda thuan ve quyen truy doi cung dffde lap de hd trd eho thoa thuan dam bao dd (Thu, 2014) Thii hai, dp dung da'u thau canh tranh di lffa ehpn nha dau tff tff nhan Chinh phii Trung Qudc thue cdng ly tff nhan mdi nha dau tff tham gia vao dff an PPP tang nganh Dien Sau chuan bi bao cao nghien cffu kha thi cho dff dn phu hdp vdi cde tidu chuan, thdng le qud'e te vS yeu cau thffc te d Trung Qud'c, cdng ly se trinb de cffdng thffe bien va bao cao nghidn cltu kha thi de xay dffng dff an, ciing nhff hd trd chinh quyen dia phffdng tim kiem sff chap thuan tff Chinh phu Trung ffdng Sau hoan edc lai lidu sd tuyen, chinh cdng ly edng khai mdi gpi cac nha dau tff tiem nang tham gia dau thau dff an BOT, BTO nganh Dien; xem xet cac de xua't dff thau dffdc giifi tham dff va ehpn ddi tae tff nhan phii hdp Thii ba, cd cd che chia se nii ro khd hdp ly Trong dd, rui ro diTdc phan bd cho dd'i tdc nao c6 nang Iffc kiem soat va anb bifdng tdi nii ro mdi each td't nha't Theo nguyen tac na>, rui ro ve xay dffng, van hanh, ky thuat va tai ehinh chu yeu Consortium chiu; rui ro ve ehinh in phdp ly chii ye'u chinh quyen tinh Quang ,i\ chiu' nii ro lien quan den dieu kien bat kh • , ,,,2 dffdc hai ben cung chia se KINHTE Thii tu, boat ddng gidm sdt dff an PPP ngdnh Dien dffdc trien khai chat ehe va dffdc quan ly theo hai cap: cap TW va e^p tinh, phd, nhd dd, quy che ve PPP dffdc thay ddi linh boat theo dieu kien cua tffng dia phffdng, cac dff dn PPP diSn lai Trung Qud'c dffdc trien khai thuan ldi hdn Ben canh do, bd mdy nhdn sff phuc vu PPP dffdc chuyen nghidp hda, phat tridn toan dien Cd quan chuydn trach PPP dffdc ihanh Idp bdi Bd Tai chinh Trung Qud'e va Uy ban Doi mdi va Cai edeh Qud'c gia NDRC vdi vai trd nghien cffu va hogch dinh chinh sach; iff van, hudng ddn cho cde cd quan dia phffdng va nha dau Iff tham gia vdo boat ddng PPP; quan li va giam sat hoat ddng dau tff PPP nganh Dien Bd may nhan sff d cd quan khdng chi cd nang Iffc phap ly, ndng Iffc qudn ly ma cdn cd ea nang lffe chuyen mdn, cd khd ndng ki ke'l cac hdp dong mang tieu chuan qud'c le, han che tha'p nha't tranh chap phatsinh Kinh nghidm cua An DO viec thu hiit d^u tff theo hinh thtfc PPP vao nganh Di^n Trong giai doan 1991-2019, long sd'du an ket thiic dam phdn nganh dien An Do la 518 dff dn, chidm 5,06% dff an PPP dien tren the gidi Sd Iffdng dff dn tang din qua tffng nam va thffc sff biing nd Iff nam 2008-2015 De thu hut dffdc sd Iffdng dff dn PPP nhieu nhff v3y An Dp da thffc hien nhffng giai phap sau: Thu: nhat, chinh quyin Trung ffdng An Dd da chii ddng xay dffng, hoan thi6n ed ehe' chinh sach vd cde edng cu hffdng dan trien khai md hinh ndy nganh Nhd do, cac dff an PPP dien tai qud'c gia nhdn dffdc cac cam kdt bd trd ve chinh tri manh me tff phia chinh phii Day ia ye'u to' quan trgng nha't thu hiit sff sdng lao va van hanh hieu qud eua md hinh PPP phat trien tang nganh dien ThU hai, viee ban hanh ho sd PPP mdu xdc dinh rd rang vai trd cua cac ben tham gia dff dn PPP, va'n de phan bd rui ro va thu hdi bii dap ehi phi cho tha'y sff minh bach, c^n trpng thiet ke hdp ding PPP, giiip giam thieu tham nhung cde hdp ding cua khu vffe nha nffdc Thii ba, chinh phu An Dp da dffa nhffng chinh sach ho trp mang linhffudai ra't Idn cho nha dau tff tff nhan Cac hd trd cua chinh phu la ra't can thiet de cai thien tmh hinh tai chinh va tang tinh hap din ciia dff dn PPP Ngoai An Dp cung da xay dffng cdng ed ehe ca'p vd'n cho cac du an PPP ihdng qua quy VGF Xuat phat iff thffc te cac ngan hang thffdng khdng ffu dai cho cac du dn cd thdi gian trien khai tren nam, cac dff an PPP dau tff phat tnen tang dien thffdng cd thdi gian trien khai tff - 10 nam Do do, viec ihiet lap lien minh tai trd giup dam bao tai chinh cho tff nhan thffc hi6n ede dff an lang dai hdi nganh difin, ban che dffdc mil that ve vo'n, tao ddng Iffc ra't Idn thu hiil lUnhan Bai hoc thu hiit dau tff theo hinh thtfc PPP vao nganh Di0n Vi$t Nam 4.1 Hoan thi$n khuon kho the che ve PPP nganh Bi$n tai Viet Nam Bai hoe kinh nghiem eua Trung Qud'c va An Do cho tha'y hanh lang phap ly thd'ng nha't, minh bach, nang lffe trien khai cua cd quan nha nffdc, kha nang dam bao linh kha thi va hieu Iffc ciia ehinh sach vl PPP ddng vai tro quan trpng dd'i vdi thu hut nha dau iff iff nhan iheo md hinh PPP irong linh vffc phdt di^n Trong do, khudn khd the che hien ciia Viet Nam cho mang dau tff PPP dang tdn dpng nhieu van d l Vi vay, hoan thien khudn khd the che ve PPP, dffa nhffng tieu chuan, thong Id tdt nhaft, lam rd trdch nhiem va quyin ldi cae ben sudt vdng ddi dff an PPP la giai phap can thiet nham nang cao hieu qua thu hiitdautfftffnban Thii nha'l, hoan thien khuon khd phap ly ve PPP, hd trd ddc Iffc cho sff tham gia eua tff nhan nganh Dien Hien da cd van ban luat cho hinh Ihffc PPP Tuy nhien, van ban cdn mdi nen vdn cdn nhieu dilu khoan khd cho cde nha dau tff thffc hien Do dd, Chinh pbu can sdm ban hanh Thdng tff hoac Ngbi dinh hffdng ddn thffc hien Luat de cac nha dau tff khdng gap phai cac vffdng mac qua trinh tnen khai ede dff an PPP Can quy djnh eu the bdn ve ed che phdi hdp So 17-Thang 7/2020 175 TAP CHi CONG THlftfNG giffa cde cd quan nha nffdc ed tham quyen viec quan ly, gidm sat dff dn PPP dien de nit ngan nhffng thii tuc, quy trinh ddnh gia lai khdng ein thiet, tao moi trffdng thdng thoang thu hiit tff nhan tham gia Dam bao linh nha'l quan giffa cac ed quan nha nffdc xae dinh, ddnh gia, phe duyet va quan ly dff an PPP dien Cd che phdi hdp kem hidu qua giffa Bd Dien Iffc An Dp vdi Bp Than va Bd Dffdng sdt la bai hpc dat gid de Viet Nam nit kinh nghiem Thff bai, tang cifdng nang Iffc ciia edquan nha nffdc ve quan ly, gidm sdt edc dff an PPP nganh Dien Mot nhffng bai hpc tff edng eua md hinh PPP nganh dien Trung Quo'c la do'i tac nha nffdc va tff nhdn thd'ng nha't xay dffng cd quan quan ly dff an theo tffng dff an cu thd nham linh boat thay ddi cd che giam sat phii hdp vdi dac thii mdi dff an Song, rao can chi phi Idp vd sff khae biet irong each thffc quan ly ciia hai khu vffc khien phffdng phap khdng phii hpp vdi dieu kien va mdi tri/dng phap ly tai Viet Nam Vi vdy, ngffdi vidt dl xua't thiet lap mpt ed quan quan ly, giam sat cac dff dn PPP chuydn bidt, ddc Idp, boat ddng Ihffdng xuyen vdi sff tham gia cua cac Bd, nganh lien quan nganh Dien de thuc hien vai trd dieu phd'i, tham mffu vl cd che chinh sdch cung nhff kie'nnghicacgiaipbdptbuhutdau tu thffc te, kha thi, hieu qua Mpt cd quan quan ly doe lap se ban eh6' dffdc nhffng ydu kem khau quan ly cua khu vffe nha nffdc nhff tham nhflng, cd che xin cho; ddng thdi tan dung dffde trinh quan ly eua khu vffe Iff nhan Thii ba, cung cap bao dam can thiet de dff an PPP dffde trien khai thuan ldi Cac dao luat lien quan can dffde xem xet lai, sffa ddi, bo sung nhdm tao sff dong bd, nha't quan hanh lang phap ly; guip dd'i tdc tff nhdn khdng bi liing tiing irong qud trinh thffc thi phap luai Song song vdi dd, moi du dn tai cd edc dae thu khac nhau, dac biet la cae dff dn xay dffng tang nganh Didn, dien thdi gian dai, lien quan den nhieu ddi Idc khac nhau, chiu sff dieu chinh eiia nhieu van ban phdp luat khac ddi hdi nhffng dieu 176 So 17-Thang 7/2020 chinh ridng, dam bao khdch qiun ^'^"S ''^"8 thu hut dau W lif nhan theo hinh thffc PPP Ddc biet can luat hda edc dieu kien ve phIn tham gia cua Nha mfdc qua irinh chuan bi va trien khai dff dn, bao gom: vdn nha nffdc, cde ffu dai dau tff, cbi phi den bu giai phdng mdt bdng, chinh sdch tai chinh cd lien quan, de tff nhan ed niem tin thffe sff vao cde cam ket eua khu vffc nha nffdc tham gia vao dff an 4.2 T^chiic quy trinh da'u thau minh bqck Viec lffa ehpn nha dau tff dff an PPP can phdi dffdc Ihffc hien thdng qua da'u thau canh tranh, cdng khai, minh bach, han che tdi da cd che xin cho hay viec chi dinh thau, da'u thin ban chd de trdnh nil ro vl ldi ich nhdm, giam tinh canh tranh ngdnh didn cung nhff dam bao cdng bang cho Iff nhan De lam dffdc dilu nay, thdng tin ve dff dn phdi dffdc dang lai cdng khai tren phffdng lien truyen thong va he thd'ng thdng tin da'u thau theo quy dinh cua tffng qud'e gia dd nhd thau tff nhan dffdc tidp can thdng tin mpt cdch binh dang Ben canh dd, edc vdn ban phdp ludt cin quy dinh ro rang quy trinh da'u thau ddi vdi tdi ca cac khau, tff thidt kd, mdi thdu, cham than, thdng bdo kdt qua tning ihau, tranh gdy liing lung cho ddi tdc tff nhdn Ngoai ra, de thu hut ddi tde tff nhan tham gia vdo nganh Dien mot each hieu qua thdng qua dau thau canh tranh, Nha nffdc nen thay ddi cd che da'u thau theo dau thay vi theo diu vdo Vide dd'u thau theo diu vao bdt bupc Nha dau tff tff nhan phai ddp ffng theo cae lieu ehi Nha nffdc dat ma khong cd gia tri ddi mdi, sang tao Mffc can thiep ciia Nha nffdc cung eao hdn ddi vdi cde va'n de nhff ddn gid, dinh mffc san xua't, Ngffpc lai, dd'u thau theo dau eho phep phat huy tri tue, ngudn lffe, edng ngh?, nang Iffc ddi mdi sang tao tff tff nhan Nha nffde chi can quan tam de'n cha't lifdng va mffc phi dieh vu cudi eung de lffa chon ddi tac tif nhan pbii hdp nha'l, thay vl can tbiep vao qua trinh len ke hoach, tbiet ke, thi cdng, 4.3 Xay dting edc chinh so tdc tu nhdn Cde dff dn PPP la mdi hinh , , aai cho doi ,„ ]^^^ ^^^^ KINHTE vdn dau tff Iff khu vffc tff nhdn de giai quyet edc van de lai chinh - xa hpi nganh Dien Song, ve bdn chd't day vln Id mot dff dn diu tff, dffpc thffc hien theo phffdng thffc kinh doanh va dilu nha diu tff quan tam nhd't vln la ldi nhudn ngdn han vd dai ban ma ho thu dffdc tff viec diu tff vdo dff an Ngoai ldi nbuan cd dffdc tff viec trffe tidp thu phi tff nhffng ngffdi sff dung hoac ngffdi mua di6n, nha diu Iff Iff nhan can dffdc Nhd nffdc cung c^p them cde ffu dai khac Nhin tff bdi hpc kinh nghiem cua Trung Qud'c va An Dp, Viet Nam cd the dp dung mdt sd'chinh sach ffu dai nhff sau: Dffdc Nha nffde bdo Ianh mffc lieu thu bang cam kdt mua lai san Iffdng dien lai mffc gid ma hai ben da thda thudn tff dau de dam bao ldi nhudn td'i thieu cho nha dau tif Gia mua ed thd dffdc dieu chinh tdng can eff vao linh hinh hinh bidn dgng nhu elu, ly gid thay doi hay thdi gian nhffdng quyin bi nit ngan Dong thdi dffde Nha nffdc boi hodn kinh phi chuyen giao eho Nha nffdc mdt phan hoac loan bp cdng trinh nha mdy dien dff dn PPP lao sau thdi gian khai thac nhff da thoa thuan hdp dong PPP Ngoai cdn dffdc Nha nufdc mien hoac giam thud mdt khoang thdi gian nha't dinh: Mien thud thu nhdp doanh nghiep vdng - nam dau tidn diu ti6n ciia dff an hode dp dung mffc thue sua't tha'p tff - 10% toan bp hodc mot phan thdi gian thffe hien dff dn; Miln thud sff dung da't toan bd thdi gian thife hien dff an; Midn giam thue nhap kha'u ddi vdi cac hang hda nguyen lieu can thiet Nha ihlu phai ed trdch nhiem bao cdo nhu can, so'Iffdng can nhap de nha nffdc phe duyet Ket luSn Thanh cdng va ban che qua trinh thu hiit dau Iff lu" nhan ctia cac qud'c gia Trung Qud'c, An Do la bai hpc kinh nghiem dat gia eho khong chi rieng Viet Nam ma cdn cho edc qud'c gia dd va dang qua trinh cai each nganh Dien, nhdm giai quyet triet de "nut that" ve vd'n dau tff phdt trien tang nganh Dien Cac bai hoc dffde rut tff qud trinh ap dung md hinh PPP thiic day sff tham gia cua khu vffe tif nhdn nganh dien Trung Qud'c va An Dp la: Hoan thien khudn khd the chd vl nganh Dien eiia Viet Nam vdi khung chinh sach on dinh vd cd quan gidm sdt cd ndng life; Ap dung phffdng thffe da'u thau canh tranh edng khai, minh bach lffa ebon nha dau tff; Chii trpng xay dffng cde cd ehdffUddi dau tff, ed ehe' chia se nii ro hdp ly khai thac td't nang lffe ciia khu vffc nha ni/dc giai quydt cac nil ro chinh tri, cd ehd phd'i hdp hidu qua giffa cac Bg, nganh cd lien quan • TAI LI^U THAM KHAO: Bo CSng Thu'dng, (2010) Nghien ciiu ve lo trinh hinh thdnh vd phdt tnen ihj trucmg ndng lUOng Viet Nam Mai Thi Thu, 92014) Phifdng thffc ddi tdc c6ng - tif (PPP): Kinh nghiem quoc leva khuon kho thi che tgi Viet Nam 1st ed: NXB Tri thffc Vien Kinh te Nang Iffdng va Phan tieh Tai ehinh lEEFA, (2019) Trung Quoc d ngd mdudng: Hd tra lien tuc cho dien than Idm my yeu vai Ird Idnh dao ndng luang sach ciia Trung Quoc, Hoa Ky Cenu-al Elecnicity Authority, (2019) All India Installed Capacity (in MWl of Power Station Government of India; Ministry of Power Chan, Albert P C, (2010) Critical success factors for PPPs in InfrastrucUire developments: Chinese perspective, Journal of Construction Engineering and Management 136(5), 484 - 494 Davis, (20130 Beijing endorses market role in economy The Wall Street Journal Department of Economics Affairs, (20160 PPP GMi