Luận văn một số giải pháp đổi mới quản lý việc sử dụng vốn vay ở việt nam trong giai đoạn 2003 2010

BO G1AO DUC VA DAO TAO TRUONG DAI HOC KINH TE QUOC DAN I TRUONG DHKTQB VU DUY NGUYEN j TUHfjNGTW w Vf EN I U MOT SO GIAI PH AP DOI MOI QUAN IV VIEC SU DUNG VON VAV ODA O VIET 2003 - 2010 • NAM TAONG GIAI DOAN • LUAN VAN THAC SI KHOA HOC KINH I E CHUYEN NGANH KHOA HOC QUAN LY Ma so: Ngudi liudng dan khoa hoc: GS.TS DO HOANG TOAN Hanoi - 2002 Ld! CAM ON Qua LuAn van nay, tru'dc het tac gia xin bay to Idi cam on sAu sAc tori Dai hoc Kinh td Qiioc dAn, Khoa Sau Dai hoc, Khoa Khoa hoc Quan ly cung cac thdy co giao da dao tao va giup tac gia qua trinh hoc tAp va nghidn ciiu tai Trirdng; dac biet la GS.TS DO Hoang Toan da tAn tinh hitdng dAn tac gia sudt qua trinh nghien ciiu va da true tidp gop y su'a ban LuAn van Tac gia cung xin bay to long cam on tori lanh dao Hoc vien Tai chfnh, Khoa Tai chfnh Doanh nghiep, Bo mon Quan ly Kinh td cung cac dong nghidp da quan tAm, nhidt tinh giup de tac gia lioan LuAn van cua minh Kdt qua nghien ciiu cua LuAn van co str dong gop, dong vien cd vu cua gia dinh va ban be; dAy la nhung dong luc thiic dAy tac gia tidn dudng nghien ciiu khoa hoc //« z/dz, than}} 10 ndm 2002 l ac gia VU DUY NGUYEN MUC LUC Trang BANGCHU VIET TAT DANH MUC CAC BANG BIEU VA SO DO PHAN MO DAU f CHUONG 1: CO Sil LY LUAN Vf' QUAN LY VI$C SU DUNG VON VAY ODA 1.1 Tong quan ve von vay ODA 1.1.1 Khai niem 1.1.1.1 Dinh nghia 1.1.1.2 Dac diem cua von vay ODA 1.1.2 Phan loai von vay ODA 14 1.1.3 Sir ton tai khach quan cua von vay ODA d cac nude dang phat trien 17 noi chung va d Viet Nam noi rieng 1.2 Noi dung co ban quan ly viec su dung von vay ODA 27 1.2.1 Su edn thiet khach quan phai quan ly viec su dung von vay ODA 27 1.2.2 Quan diem ve von vay ODA 31 1.2.3 Hoach dinh von vay ODA 32 1.2.4 To chuc thuc hien von vay ODA 33 1.2.5 Kiem soat va danh gia hieu qua sir dung von vay ODA 1.3 Mot so kinli nghiem quan ly viec su dung von vay ODA d mot so 36 39 nude dang phat trien 1.3.1 Hoach dinh viec str dung von vay ODA 1.3.2 To chtrc thuc hien viec sir dung von vay ODA KET LUAN CHUONG CHUONG 2: I IIUC TRANG QUAN LY VIEC SU' DUNG VON VAY ODA 47 VI$T NAM 2.1 He thong quan diem va the die quan ly viec su dung von vay ODA 2.1.1 He thong quan diem cua Dang va Nha nude ta ve quan ly viec sir 47 47 dung von vay ODA d Viet Nam 2.1.2 The che quan ly viec sir dung von vay ODA 51 2.2 Hoach dinh va to chuc thuc hien von vay ODA 54 2.2.1 Hoach dinh von vay ODA 54 2.2.2 To chile thuc hien von vay ODA 62 2.3 Kiem soat va danh gia liieu qua sir dung von vay ODA 82 2.3.1 Kiem soat viec sir dung von vay ODA 82 2.3.2 Danh gia hieu qua sir dung von vay ODA 85 KfeTLUAN CHVONG 87 CHUONG 3: MOT SO GIAI PHAP CHU Y^U NHAM DOI Mill QUAN LY VIEC 88 SIT DUNG VON VAY ODA VIET NAM TRONG GIAI DOAN 2003 - 2010 3.1 Co sb de xuat 88 3.1.1 Co hoi va thach lliuc doi vdi von vay ODA tai Viet Nam 88 3.1.2 Dinh hudng quan ly viec sir dung von vay ODA tai Viet Nam 92 3.2 Mot so giai phap chu yen 3.2.1 Doi mod quan diem nh'tn nhan doi vdd von vay ODA 3.2.2 Tiep tuc hoan thien moi trubnig phap ly cho viec sir dungvon vay 95 95 99 ODA 3.2.3 Nang cao hieu qua cong tac hoach dinh von vay ODA 104 3.2.4 To chuc str dung co hieu qua von vay ODA 105 3.2.5 Tang curing cong tac kiem tra va danh gia hieu qua cac du' an sir dung von vay ODA 3.2.6 Tang curing cong tac dao tao, boi duong va su dung can bo H3 quan ly viec su dung von vay ODA 3.2.7 Van hanh co hieu qua hoi dong quan ly no von vay ODA quoc gia 3.3 Nhung dieu kien dam bao su dung hieu qua cac giai phap 3.3.1 Kien tri thuc hien cong cuoc doi mod dat nude theo co che thi truring 116 117 [ 17 dinh hudng xa hoi chu nghia 3.3.2 Co sd vat chat phuc vu cho cac co quan quan ly von vay ODA 119 KfiT LUAN CHUGNG KET LUAN CHUNG 120 TAI li£u tham khao 121 BANG CAC CHIT V1€T TfiT ADB - Ngan hang phat trien Chau A BKH&DT - Bo Ke hoach va Dau tir BTC - Bo Tai chfnh DAC -Uy ban vien tro phat trien IMF - Quy tien te quoc te NHNN - Ngan hang Nha nude ODA - HO tro phat trien chfnh thuc OECD - To chuc hop tac va phat trien kinh te VPCP - Van phong Chfnh phu DANH MUC CAC BANG BIEU VA S0 DO Trang Bang so 2.1: So lieu nguon von vay ODA dupe giai ngan 62 Bang so 2.2: Co cau von vay ODA buy dong vao tong dau tir toan xa hoi 63 Bang so 2.3: Co cau von vay ODA phan theo nganh giai doan (1993-2000) 64 Bang So 2.4: Phan bo von vay ODA cho cac vung va lanh tho 66 Bang so 2.5: Co cau phan bo theo muc dfch chi tieu 67 Bang so 2.6: Co cau phan bo von vay ODA h6 trp NSNN theo linh vuc 68 Bang so 2.7: Co cau phan bo von vay ODA cho doanh nghiep vay lai theo 69 linh vuc Bang so 3.1: Du bao kha nang huy dong von vay ODA giai doan 90 2001-2010 Bang so 3.2: Du bao tra no von vay ODA cua Viet Nam giai doan 2000-2010 92 10 So 1.1: Phan loai von vay ODA 15 11 So 2.1: Cac co quan phoi hop thuc hien giai doan Ky ket dinh udc 56 quoc te khung vd von vay ODA 12 So 2.2: Cac co quan phoi hop thuc hien Chuan bi du an, tham dinh, 58 phe duyet du an 13 So 2.3: Cac co quan phoi hop thuc hien dam phan, ky ket didu udc 59 quoc te cu the ve chuong trinh, du an von vay ODA 14 So 2.4: Cac co quan phoi hop qua trinh thuc hien du an von vay 69 ODA 15 So 2.5: Cac co quan tham gia vao kiem soat va danh gia hieu qua su- dung 82 von vay ODA 16 So so 3.1: Co che xac dinh va cong bo lai sual cho vay lai 103 PHAN Md DAU TINH CAP THlffr CUA DE TAI xay dung nen tang de den nam 2020 dat nude co ban mot nude cong nghiep, phat trien nhanh va ben vung, tang trudng kinh te di doi vdi thuc hien tien bo, cong bang xa hoi va bao ve moi trudng" [34, 141 ] till Viet Nam cAn sang tao viec khoi day, phat buy moi nguon luc nude cung nhu tan dung mot each hop ly va cd hieu qua nguon von nude ngoai Mot nhung nguon von quan la von vay ODA Trong khoang thdi gian hon 50 nam ton tai va phat trien cua nguon von vay ODA tren the gidi Mot thuc te da va dang chi rAng cd mot so nude da quan ly va tan dung cd hieu qua nhung uu dai cua von vay ODA de dua nude minh khoi tinh trang ngheo nan, lac hau, kem phat trien de trd mot nhung nude cong nghiep mdi nhu: Han Quoc, Dai Loan, Singapore, Hong Kong Nhung cung cd nhieu quoc gia khong nhung khong khai thac duqc uu diem cua von vay ODA phuc vu cho su tang trudng va phat trien dat ma day quoc gia roi vao tinh trang no nfin chong chat khong the tra noi, khung lioang khong loi thoat va phai phu thuoc vao nude ngoai: nhu mot so nude Nam My (Mexico, Argentina, Chile, Peru), Trung Phi (Congo, Tandania, Dambia, 110 ♦ Su dung cac doan thd dia phuong, chfnh quydn co sd, phuong tidn thong tin dai chung dd tuydn truydn, thuydt phuc va lam cho ngudi ddn hidu nhung lqi fch ma du an dem lai cho xa hoi, cho su phat tridn cua dia phuong ♦ Doi vdi nhung phdn tu co tinh khOng nhdn ddn bu, khong chiu di chuydn thi chu ddu tu va chfnh quydn dia phuong kidn quydt su dung lu’c luqng de cu’dng chd vidc di ddi • Giai phap doi vdi giai doan vdn hanh du an (dua du an vao hoat dong) - Chfnh phu ndn co xu hudng th ddu la gdn ban quan ly du an vdi co quan vdn hanh du an lam mOt (vd mat nhdn su) Dd th ho ndng cao y thu’c trach nhidm qua trinh thuc hidn du an va vdn hanh du an sau - Ndu ban quan ly du an giao du an cho mOt co quan khac vdn hanh thi bdn tidp nhdn phai kidm tra nghidm tuc chdt luqng du an duqc thuc hidn, chi nhdn ban giao nhung hang muc dam bao chdt luqng dd Con cac hang muc khong dam bao thi kidn quydt tra lai dd ban quan ty du an va nha thdu phai sua chua lai - Xay dung co chd' quan ly, co cdu bO may hqp ly, lua chon can bo quan ly co kha nang dd dam duong cOng vidc quan ly - Co co chd' thfch hqp khuydn kJhfch su tham gia cua ddn chung, cua cac phdn kinh td' vao qua trinh vdn hanh du an nham phat huy cao nhdt nhung tac dung cua du an 111 dung vdn vay ODA Kinh nghidm thu’c te cho thdy, cac nha tai tro song phuong, da phu’ong va cac quoc gia sir dung co hieu qua vdn vay ODA ddu coi cong tac kiem soat, theo doi va danh gia hieu qua vide su’ dung vdn vay ODA co vai tro rdt quan va la mdt nhung nhiem vu Dm nhdt Ddi vdi Viet Nam tidn hanh tang cu’dng vide phdn cdp phe duydt dir an vdn vay ODA va thuc trang nhu’ng nam vita qua ciia cong tac kidm soat, theo doi va danh gia bi buong long thi giai doan (2003-2010) cong tac cdn phai duoc quan tdm va thuc hien tot Muon vdy thi Chfnh phu ndn: - Chfnh phu nhanh chong ddi mdi va hoan thien lie thong theo doi va danh gia (Monitoring and Evaluation - M&E) vdi viec phdn chia hd thdng ba cdp: Cong tac theo doi va danh gia dirge tdp trung va thd che d cdp trung uong ban tu’ vdn quan ly ODA ket hop vdi Bo Kd hoach va Ddu tir, Bo Tai chfnh, Ngdn hang Nha nude, Van phong Chfnh phu, cdp bo, nganh dia phuong tinh hay true thuoc Trung uong) cd mot bo phdn theo doi, danh gia la vu kinh te ddi ngoai hay ban kinh td' ddi ngoai cua cac tinh phd, cdp du an cd mot don vi theo doi va danh gia, giam sat qua trinh td chu'c thu’c hien du’ an Xac ldp co chd lam viec cho tu’ng cdp va mdi lidn he giu’a cac cdp hop khac tir du an ldn cdp trung uong Cdp cang thdp till cang phai chi tiet va cu the vita thudn tieu cho ngu’di thu’c hien nhung vdn bao dam duoc cac ydu cdu ciia cong tac bao cao 112 - Xay dung phuc/ng phap ludn tidp edn vd cdm nang hudng ddn thuc hien vd theo doi vd danh gia du an su dung vdn vay ODA d cac cdp cung nhu cac linh vu’c - Cdn nhanh chong tridn khai hd thdng tin hoc hd thdng theo doi vide thuc hien cac du an vdn vay ODA Trude mat, han hep vd kinh phf thi edn td chu’c xdy dung vd lap dat mang may tfnJh d cac co quan dieu phoi vdn vay ODA d cdp trung uong Mang bao gom lidn ket giua ban tu vdn quan ly ODA, Bo kd hoach va ddu tu vdi Van phong Chfnh phu, Bo Tai chfnh, Ngdn hang Nha nude va mot sd Bo sir dung nhidu vdn vay ODA nhu Bd giao thdng vdn tai, Bd ndng nghidp va phat tridn ndng thon Trong ddn nam nua edn noi mang ddn tdn ban quan ly cua tirng du an dd tao mOt hd thdng thong tin theo doi hoan chinh - Hd thdng theo doi vd danh gia phai nhdn duqc su cam kdt va hd trq thudng xuydn, quydt tdm tir phai Chfnh phu va co quan tai trq thi mdi dam bao cho hd thdng hoat dong mdt each trdi chay va tao sir gdn kdt hd thdng tir cdp trung uong ddn cdp du’ an - Tang cudng edng tac dao tao, boi du’dng, bo trq kidn thiic dudi dang cac khoa hoc va ngoai nude cho cac can bo quan ly vdn vay ODA tai Trung uong, cdp, nganh, Ban quan ly dir an vd edng tac theo doi vd danh gia dir an sir dung vdn vay ODA - Vide danh gia hidu qua du’ an sir dung von vay ODA phai duqc coi la edng vide thudng xuydn, duqc quy dinh vdo kd hoach cua tirng nam Cdng vide danh gia phai duqc to choc co khoa hoc vd hd thdng vdi nhung miifc dd khac nhau, dac bidt Id tfnh bdn vfing ciia du an vd sau du an duqc thu’c hien Dong thdi cung phai dap ling ddy du, kip thdi ngudn tdi chfnh cho nhidm vu Xu hudng la 113 dua kinh phi vao phdn tai chfnh d khdu thidt kd' du an, vdn doi ung chi tra - Chfnh phu, cac bo, cac dia phuong cdn tao didu kidn, moi trudng thuAn lpi dd cac trung tdm tu vdn vd danh gia ddi cung nhu tao didu kidn, thud cac trung tdm nay, cac vidn nghidn cu'u co chuydn mOn cao, cac to chu'c phi chfnh phu tham gia vao cong tac danh gia du an vdn vay ODA - Cdn thd chd hoa vidc dua cac chi tidu vd theo doi va danh gia cac du an vdn vay ODA vao hd thong chi tidu thong kd cua dia phuong va quoc gia Co nhu vdy mdi thu hut dupc su quan tdm, chu y va tham gia theo doi, danh gia cua cong chung vao du an nham tri tfnh bdn vung cua du an Quan tridt quan diem: Du la bdt ky quy mo vdn nao (loai hinh du an cho vay lai, ngdn sach cdp phat, xdy dung co ban, su nghidp, hd trp ngdn sach) vidc thuc hidn du an vdn vay ODA ddu phai theo doi va giam sat chat che Tidn hanh danh gia hidu qua du an de co nhung didu chinh kip thdi vidc su dung khoan vay ODA [ 12] 3.2.6 Tang cirdng cong tac dao tao, boi (tuong va su dung can bo trout quan ly vidc su dung vdn vay ODA Nang luc va trinh cua can bO quan ly va thuc hidn cac du an vdn vay ODA du’pc coi la mot nhfing ydu td quan nhdt chi phdi tdi hidu qua su dung cua vdn vay ODA Vdi Vidt Nam, nhung nam vua qua vdn dd da co nhidu tidn bo va phat huy dupc hidu qua nhung vdn nhidu bdt cap vd nang luc va trinh cua can bO, chua dap Ung dupc nhung ydu cdu dat cua cOng vidc Vi thd cdn phai tang cudng hon nua cong tac dao tao, bOi dudng va su dung co hidu qua nguon luc can bo cho linh vuc 114 Tang cu’dng cong tac dao tao, bdi dirong ngudn can bo phuc vu cho cdng tac quan ly va thu’c hidn cac du’ an vdn vay ODA - Ban tir vdn quan ly ODA kdt hop vdi Bo Kd hoach va Ddu tir ndn du’a kd hoach phat tridn, ndng cao chdt lirqng ngudn nhdn lu’c phuc vu cho cdng tac quan ly va thu’c hidn cac dir an su’ dung vdn vay ODA giai doan (2001-2005) va (2005-2010) - Trdn co sd nay, hang nam Bo Kd hoach va Ddu tir, Bo Tai chfnh, cac Bo ban nganh, dia phuong va cac Ban quan ly du’ an ndn phdn tfcli nhu cdu vd dao tao va bdi dirong can bo tu’ dua kd hoach thu’c hidn cu thd Ddi vdi co quan quan ly Nha nudc cdp Trung uong (Bo Kd hoach va Ddu tu, Bd Tai chinh) vd co quan quan ly cdp dia phuong (Vu kinh td ddi ngoai, Ban kinh td ddi ngoai cua cac Sd kd hoach va ddu tu) cd kd hoach lira chon can bo cd nang lire va tridn vong du'a di dao tao d cdp dai hoc va sau dai hoc vd quan ly du an va cac linh vuc cd lidn quan d va ngoai nudc Ddi vdi cac can bo quan ly cdp tiling uong, dia phuong va lanh dao cac Ban quan ty du an cdn phai duoc thudng xuydn bdi duong ndng cao nang lu’c va trinh qua cac khao hoc Bo Kd hoach va Ddu tu kdt hop vdi cac nha tai tro, cac cuoc hdi thao trao ddi kinh nghiem quan ty va didu hanh du an vdn vay ODA - Noi dung cua cac khoa hoc gom kidn thu’c vd : ♦ Quan ty Nha nudc vd linh vuc vdn vay ODA ♦ Quan ty qua trinh du an, su phdi hop giOa cac co quan lidn quan va trach nhidm, quydn han cua cac co quan d tu’ng giai doan cua chu trinh du an 15 ♦ Cac kien thu’c vd kinh te thi trudng, nhung phuong phap phan tfch chfnh sach kinh te, dam phan ky ket hop ddng kinh te ♦ Nhung kien thu’c co ban vd ngoai giao, luat phap qudc te, tin hoc van phong, ngoai ngu ♦ Theo doi, danh gia qua trinh td chu’c thuc hien du an va cach thuc su dung cong nghe thdng tin td chu’c thuc hien du an , Ddi tuong chfnh tap trung dd dao tao va bdi duong la can bo cdp tinh, phd (Sd kd hoach ddu tu) Hien nay, doi ngu chua tdt, mat khac Chfnh phu thu’c hien phan cdp phe duyet, quan ly mot sd loai du an vay ODA cho cac tinh, phd Vi the viec tang cudng cdng tac dao tao va bdi duong cho ddi tuong may va lanh dao cac ban quan ly du an se tao dieu kien tod dd cdng tac td chu’c thu’c hien vdn vay ODA dat hieu qua cao Cdng tac didu phdi, bd trf va su dung can bO tham gia vao quan ly du an vdn vay ODA cdn co ddi mdi Day la mOt nhung ydu td quyet dinh ddn su cdng cua mdi du an Hien nay, cdng tac bd trf su dung can bO van dang tinh trang su dung ngudi khdng duoc dao tao dung chuyen mdn, can bO da qua ldn tudi, can bO khdng co trinh dO nhung than quen ma vao Vi the cdn co su ddi mdi, lua chon can bO phai co nang luc tdt, trinh dO chuyen mdn phu hop va phai tao dOi ngu can bO tre, khoe, nang dOng, sang tao cdng viec va da su dung thi khdng nen thay the nu’a chu’ng vi nhu vay se lam cham tien dO ' du an Ddng thdi phai co co che' danh gia va dai ngO dung ddn vdi can bO 116 3.2.7 Van hanh co hieu qua hoi dong quan ly no vdn vay ODA quoc gia VAn hanh co hidu qua dir an "phat tridn nang lire quan ly no nude ngoai mdt each hidu qua va bdn vung" Dir an VIE/98/007/99 vdi tieu dd phat trien nang lire quan ly no nudc ngoai mdt each hieu qua va bdn vu’ng Bd Tai chfnh duoc Chfnh phu chi dinh lam chu tri kdt hqp vdi cac Bo Ke hoach va Ddu tu, Ngan hang Nha nudc, Van phong Chfnh phu Dir an duoc su tai trq bdi UNDP, chfnh phu OxtrAylia thdi gian tir 2001 den 2006 Khi du an van hanh co hieu qua thi kdt qua thu duoc la: - Hoan thidn khuon kho phap ly va thd chd ddy du, nhat quan cho linh vuc no nudc ngoai cung nhu co chd didu phoi hidu qua - Chfnh sach no nudc ngoai duoc xAy dung va long vao khuon khd chfnh sach kinh td vi mo, bao quat tot hon nua nhung quan ngai vd tfnh bdn vung vdi ng&n sach - Gan chat hon nua giu’a quan ly no nudc ngoai vdi ngan sach va cac nghla vu tra no bdt thudng Nhu vay, cong tac danh gia cac khoan vay ODA cho vay lai, quy trinh tra no, ngudn vdn tir ngan sach cho tra no vdn vay ODA va nguon vdn tir cac du an da thu'c hidn duoc phan tfch, giam sat chat che hon nham dam bao tfnh bdn vung cua vay no ODA - Xay dung va van hanh co hidu qua luong thdng tin vd no nudc ngoai Hd thdng thdng tin no (DMFAS) se duoc hoan tat nham nam bat duoc tinh hinh cac loai no ndi chung va vdn vay ODA ndi ridng Hd thdng (DMFAS) tai MOF (Vu tai chfnh ddi ngoai va SBV (Vu EDM) se duqc kdt hqp hull hidu va ndi 117 vdi nham cho phep danh gia d