Thực trạng và giải pháp nâng cao hiệu quả đầu tư chương trình phát triển kinh tế xã hội các xã đặc biệt khó khăn miền núi và vùng sâu, vùng xa

DHKTQD I.V ThS 2248 BO GIAO DU [G TRINH PHAT TRIEN i - XA HOI CAC XA BO GIAO DUC VA DAO TAO TRLONG DAI HOC KINH TE QUOC DAN ***** NGUYfeN HUU HIEP DAI HOC KTQD TRUNG TAM THONG TIN THU VIEN I THUC TRANG VA GIAI PHAP NANG CAO HIEU QUA DAU TU CHUONG TRINH PHAT TRIEN KINH TE - XA HOI CAC XA DAC BIET KHO KHAN MIEN NUI VA VUNG SAU, VUNG XA Chuyen nganh: Kinh te Dau tu LUAN VAN THAC SY KINH TE NGUOl HUONG DAN KHOA HOC: TS BUI VAN HUNG DAI HOC KTQD TRUNG TIM THONG TIN THUftl^N Ha Noi, 10 - 2006 MUC LUC Trang MO DAU 1 Sir can thiet cua de tai Muc tieu nghien cuu Doi tuong va pham vi nghien cuu Phuong phap nghien ciru Nhung dong gop cua Luan van Ket cau cua Luan van Chuong - NHUNG VAN DE CHUNG VE DAU TU * PHAT TRIEN VA CHUONG TRINH PHAT TRIEN KINH TE - XA HOI CAC XA DAC BIET KHO KHAN 1.1 Mot so van de chung ve dau tur phat trien 1.1.1 Khai niem dau tu, tang truong va phat trien kinh te - xa hoi 1.1.2 Cac yeu to anh huong den tang truong, phat trien kinh te - xa hoi va xoa doi giam ngheo 1.1.3 Danh gia hieu qua kinh te - xa hoi cua chuong trinh, du an dau tu 1.2 Sy can thiet cua Chuong trinh 135 11 1.2.1 Tinh hinh kinh te - xa hoi o cac xa DBKK 11 1.2.2 Phat trien kinh te - xa hoi cac xa DBKK la noi dung quan trong Chien luqc phat trien kinh te - xa hoi nude ta tu 2001 -2010 14 1.2.3 Chuong trinh 135 la mot Chuong trinh muc tieu quoc gia quan 16 1.3 Noi dung Chiromg trinh 135 (giai doan I tir nam 1999 - 2005) 1.3.1 Noi dung va quan diem chi dao chung 18 18 1.3.2 Nhiem vu cua chuong trinh 135 21 1.3.3 Co che quan ly dau tu Chuong trinh 135 22 1.3.3.1 Nhimg nhdn to co tinh dac thu dnh hudng den qua trinh xay dimg co che quan ly dau tu Chuong trinh 22 1.3.3.2 Co che quan ly du an dau tu xay dung co so tang 24 1.4 Mot so noi dung mui ve muc tieu, nhiem vu cua Chiromg trinh 135 giai doan II (2006-2010) ’ 29 1.4.1 Cac muc tieu nhiem vu 29 1.4.2 Cac diem doi mbi co che quan ly von dau tu xay dung co so tang Chuong trinh 135 giai doan II 30 1.4.3 Co che quan ly dau tu cac du an phan khac 33 Chuong - THU*C TRANG DAU TV CHV0NG TRINH PHAT TRIEN KINH TE - XA HOI CAC XA DAC BIET KHO KHAN 36 2.1 Tinh hinh thirc hien Chuong trinh phat trien kinh te - xa hoi cac xa dac biet kho khan 36 2.1.1 Tinh hinh thuc hien du an dau tu xay dung co so tang 2.1.1.1 Cong tac to chirc chi dao thirc hien 36 36 2.1.1.2 Cong tac trien khai thirc hien dau tir xay dimg co so tang 39 2.1.2 Du an on dinh va phat trien san xuat nong, lam nghiep gan vbi che bien va tieu thu san pham 43 2.1.3 Du an dao tao can bo 2.2 Ket qua dat diroc qua nam thurc hien Ch iron g trinh 135 2.2.1 Ve dau tu xay dung cac cong trinh co sb tang 46 47 47 2.2.2 Ve on dinh phat trien san xuat, dinh canh dinh cu va dao tao can bo 51 2.3 Nhirng ton tai, virbng mac qua trinh thirc hien 54 2.3.1 Ton tai cong tac dau tu xay dung co sb tang 54 2.3.1.1 Ve co che chinh sach 54 2.3.1.2 Trong cong tac to chirc trien khai cua cac cap, dia phirong 55 2.3.1.3 Ve xac dinh muc tieu, co cau dau tir: 57 2.3.1.4 Cac biroc chuan bi dau tir chira tot 58 2.3.1.5 Nang lire va trinh thi cong cua tir van va nha thau yeu 60 2.3.1.6 Ouy che dan chu va cong khai, minh bach chira diroc phat huy 60 2.3.1.7 Cong tac kiem tra, giam sat cua cac cap, nganh chira sau sat 62 2.3.1.8 Cong tac tu bao dirong chira cd co che thirc hien hieu qua62 2.3.1.9 Muc tieu tao viec lam chira dat diroc 2.3.2 Ton tai hoat dong on dinh phat trien san xuat 63 63 2.3.3 Ton tai hoat dong dao tao, boi dubng can bo va nang cao nang lire cong dong 65 2.3.4 Nhirng ton tai chung cua Chuong trinh 135 67 69 2.4 Nguyen nhan ton tai, han che 2.4.1 Nhung nguyen nhan thuoc ve khach quan 69 2.4.2 Nhirng nguyen nhan chu quan 71 2.4.2.1 Tic twang chi dao cua cac ngdnh, cap tic trung wang den dia phicang cd nai, co luc chica kien quyet, triet de to chicc thwc hien Chwang trinh 71 2.4.2.2 Viec dan tic von cua Nha nicdc han hep, chica dap icng dwac yeu cau tao da cho phat trien kinh te - xa hoi cac xa DBKK 72 _ A A 2.4.2.3 Cong tac dao tao, boi dieting chica dicac quan tam dau tic thich dang 73 2.4.2.4 Cong tac on dinh, phat trien san xudt chica dicac tap trung nguon lice dau tic phii hop 74 2.4.2.5 Viec licang, danh gid hieu qua dau tic chica dicac quan tam thoa dang 74 A 2.5 Nhirng bai hoc kinh nghiem rut qua trinh thyc hien, nham khac phuc ton tai va phat huy hieu qua cua Chiro’ng trinh 75 Chuong - CAC GIAI PHAP NANG CAO HIEU QUA DAU TlT CHlTONG TRINH PHAT TRIEN KINH TE - XA HOI CAC XA BAC BIET KHO KHAN 78 3.1 Cac giai phap nang cao hieu qua dau tir Chiro’ng trinh phat trien kinh te - xa hoi cac xa dac biet kho khan 78 3.1.1 Xac dinh dung muc tieu dau tir, tap trung diem 78 3.1.1.1 Rd soat doi twang, pham vi dau tic Chwang trinh a * 78 r 3.1.1.2 Xac dinh muc tieu dau tic on dinh va phat trien san xudt 79 3.1.1.3 Muc tieu dau tw phat trien ca sa tang 80 3.1.2 Hoan thien co che quan ly dau tir xay dung co so tang cac xa DBKK 83 3.1.2.1 Ve xay dieng die an quy hoach 83 r r r r 3.1.2.2 Hoan thien quy trinh lap, giao ke hoach dau tw, gan ket giica ke hoach von vai kha nang thwc hien, dan gian thru tuc hanh chinh 84 a 3.1.2.3 Gan ket chat che giica ke hoach von va quyet dinh dau tw r f f 3.1.2.4 Thong nhatphicang thwc quan ly von 86 87 3.2.1.5 Ap dung cac phicang phap quan ly die an dau twphii hap dieu kien cac xa DBKK 87 3.2.1.6 Thuc hien cor che quart ly, su dung va tu, bao duomg cong trinh 88 3.1.3 Phan cong trach nhiem va co quy che phoi hop giua cac co quan tham gia quan ly va thuc hien chuong trinh 88 3.1.3.1 UBND tinh, huyen 88 3.1.3.2 Cor quan ke hoach va dau tu 89 3.1.3.3 Ccr quan Dan toe cap tinh, huyen 89 3.1.3.4 Cor quan tai chinh 89 3.1.3.5 UBND xa, Ban quan ly, Ban giam sat xa 90 3.1.4 Thue hien dong bo cac giai phap voi cac du an phan 90 3.1.4.1 Thue hien du an on dinh phat trien san xuat theo hinh thuc du an dau tu 90 > r 3.1.4.2 Thuc hien dong bo cac giai phap ddi voi noi dung dao tao, boi duomg can bo, nang cao nhan thuc cong dong 92 x 3.1.5 Phat huy toi da cac ngudn luc va ngoai nuoc de dau tu cho Chuong trinh 95 A 3.2 Dieu kien thirc hien cac giai phap nang cao hieu qua dau tir 97 3.2.1 Day manh tuyen truyen, nang cao nhan thuc, tu tuong cho can bo, nhan dan cac xa DBKK 97 3.2.2 Tang cuong phan cap, tang tinh chu dong cho co so 98 3.2.3 Thuc hien chinh sach uu dai ddi voi cac cac nhan va don vi tham gia thuc hien chuong trinh 99 3.2.4 Thuc hien cong khai, minh bach, dan chu quan ly va thuc hien Chuong trinh 100 3.2.5 Tang cuong cong tac kiem tra, giam sat 101 3.2.6 Phat huy vai tro va nang cao hieu qua hoat dong cua co quan quan ly, kiem soat, toan von 102 3.2.7 Xay dung he thong thong tin giam sat, danh gia chinh xac va lupng hoa hieu qua hoat dong dau tu cua Chuong trinh 103 KET LUAN 105 DANH MUC TAI LIEU THAM KHAO 107 CAC PHU LUC DANH MUC CAC CHC VIET TAT CTMTQG Chuong trinh muc tieu quoc gia DBKK Dac biet kho khan UBND Uy ban nhan dan HDND Hoi dong nhan dan KBNN Kho bac Nha nuoc KTKT Kinh te ky thuat NN&PTNT Nong nghiep va phat trien nong thon KH&DT Ke hoach va dau tu BO GIAO DUC VA DAO TAO TRUONG DAI HOC KINH TE QUOC DAN NGUYEN HUU HIEP _ x ■> z /\ a A> ■> _ THUC TRANG VA GIAI PHAP NANG CAO HIEU QUA DAU TU , , _ x Z _ Z? _ a'' a z — CHUONG TRINH PHAT TRIEN KINH TE - XA HOI CAC XA DAC BIET KHO KHAN MIEN NUI VA VUNG SAU, VUNG XA Chuyen nganh: Kinh te Dau tu TOM TAT LUAN VAN THAC SY KINH TE Ha Noi, 10 - 2006 Chuong 1- NHUNG VAN DE CHUNG VE DAU TV PHAT TRIEN VA CHUONG TRINH PHAT TRIEN KINH TE - XA HOI CAC XA DAC BIET KHO KHAN 1.1 Mot so van de chung ve dau tw phat trien 1.1.1 Khai niem dau tw, tang troOng va phat trien kinh te - xa hoi - Khai niem tang truong kinh te; - Phat trien kinh te; - Dau tu phat trien; - Su khac va moi quan he giua hieu qua tai chinh va hieu qua kinh te- xa hoi r r r H ' 1.1.2 Cac yeu to anh hwong den tang truong, phat trien kinh te - xa hoi va xoa doi giam ngheo - Dieu kien tu nhien va lich su phat trien kinh te - xa hoi; - Chu truong duong loi, chinh sach va ke hoach phat trien KT-XH - Xu the mo cua va hoi nhap quoc te; 1.1.3 Danh gia hieu qua kinh te - xa hoi cua chuong trinh, du an dau tu - Danh gia hieu qua kinh te - xa hoi cua Chuong trinh va tung du an la can thiet nhung het sue phuc tap - Danh gia dinh tinh nhieu hon la dinh luung, chua co cac chi so tin cay - Hieu qua kinh te - xa hoi truu tuong, cac moi quan he da dang, tac dong nhieu chieu - Viec thu thap cac thong tin can ky nang, phuong phap khoa hoc va chi phi ton kem - Co nhieu chuong trinh muc tieu khac cung dau tu tren mot dia ban; - Co che quan ly mang nang tinh bao cap, chua dat yeu cau phai danh gia hieu qua dua tren tinh toan chi phi - lui ich KT-XH; - Chua co co che phan hoi va thu thap thong tin tu cac ben lien quan 1.2 Sur can thiet cua Chirooig trinhi 133 1.2.1 Tinh hann kinn he - xx hoi ccc xx DBKK - Cac xa DBKK chu yeu o vung dan toc thieu so, co tiem nang ve tai nguyen, co vai tro quan ve moi truong sinh thai, vi tri quan ve chinh tri, an ninh quoc phong 11 - Trinh kinh te- van hoa xa hoi lac hau va kem phat trien, hau khac nghiet, dia hinh hiem trn, giao thong cyc ky kho khan - Kinh te mang nang tinh ty cap, ty tuc, ty le doi ngheo cao; cac dieu kien van hoa, ty te, giao duc rat kho khan 1.2.2 Phat trien kinh te - xa hoi cac xa DBKK la noi dung quan trong Chien loyc phat trien kinh te - xa hoi noc ta th 2001-2010 1.2.3 Choong trinh 135 la mot Choong trinh muc tieu quoc gia quan - Chuong trinh quoc gia: la mot tap hop cac muc tieu, nhiem vu va giai phap dong bo ve kinh te - xa hoi, khoa hoc, cong nghe, moi truong, co che chinh sach, mot thoi gian nhat dinh - Chuong trinh 135 co day du cac yeu to cua CTMTQG va duoc Chinh phu luon xac dinh co vai tro quan can duoc uu tien 1.3 Noiddug Churomg trinh 133 (giai doon 11 irnam 1999 - 2200) 1.3.1 Noi dung va quan Oiem chi Ono chung - Muc tieu cua chuong trinh: nang cao nhanh doi song vat chat tinh, giai quyet ngheo nan, lac hau; bao dam an ninh qudc phong - Nguyen tac chi dao: khai thac cac nguon lyc tai cho ve dat dai, lao dong, cac dieu kien ty nhien, kinh te - xa hoi - Pham vi chuong trinh: 2412 xa cua 52 tinh toan quoc 1.3.2 Nhiem vu cua Choong trinh 135 1) Phat trien CSHT nong thon theo quy hoach san xuat va bo tri dan cu 2) Quy hoach va xay dyng cac trung tam cum xa, hinh cac trung tam giao luu kinh te- van hoa - xa hoi; 3) Quy hoach bo tri lai dan cu, on dinh doi song va san xuat o nhung noi co dieu kien; •» z z z z 4) Phat trien san xuat nong, lam nghiep, gan voi che bien, tieu thu san pham, phat trien san xuat hang hoa; 5) Dao tao can bo xa, ban, ve quan ly hanh chinh, kinh te; Trong do, noi dung dau tu CSHT dong mot vai tro dac biet quan trong, la hoat dong dac trung cua Chuong trinh 135 1.3.3 Co che quan ly Oau to Choong trinh 135 1.3.3.1 Nhung nhan t o co tinh dac thu anh huonh hen quatrinh xay dyng co che quan ly dau tu Chuong trinh 97 kho thurc hien, va mire khong dang ke Tuy nhien, co nhung khau cdng viec co the va can thiet phai huy dong nguon luc dan tham gia Vi du nhu gop cdng lam cac cdng viec san lap mat bang, tu, sua chua cac cdng trinh gan veri viec sir dung, bao quan cdng trinh Huy dong ngudi dan tham gia cac cdng viec cd y nghTa gan bo tinh cam, trach nhiem cua ngudi dan viec nang cao y thuc bao ve, khai thac su dung hieu qua cac cdng trinh A A 3.2 Dieu kien thuc hien cac giai phap nang cao hieu qua dau tu’ 3.2.1 Day manh tuyen truyen, nang cao nhan thirc, tu tudng cho can bo, nhan dan cac xa DBKK Nang cao nhan thuc, tu tudng cua can bo, nhan dan cac vung DBKK z doi vdi viec thuc hien chuong trinh la van de het sue quan trong, quyet dinh r r \ r tu tudng chi dao cung nhu ca qua trinh to chuc thuc hien tai co sd Nam vung tu tudng chu dao se khoi thong moi kho khan ach tac phat sinh De dua chinh sach ap dung va phat huy tac dung thuc te, can phai thong Z •» Z X nhat nhan thuc, y chi va quan diem chi dao cua cac cap chinh quyen dia phuong Tai cac dia phuong, viec trien khai thuc hien Chuong trinh 135 lien quan den hoat dong cua nhieu co quan, ban nganh tu tinh den huyen, xa ma viec chi dao, don doc cua cac cap chinh quyen dia phuong la het sue quan UBND cac cap la co quan co tham quyen cao nhat tai dia phuong viec chi dao, don doc, to chuc phoi hop giua cac nganh chuc nang, co vai tro la co quan quan ly nha nude ve moi mat chinh tri- kinh te - xa hoi tai dia phuong De chuong trinh thuc hien thong suot, dat ket qua thi cac cap chinh quyen dia phuong phai thuc hien tot vai tro lanh dao, dieu hanh Cac co quan chuc nang phai co su phoi hop nhip nhang, dong bo ca ve noi dung, thoi gian, cac khau tir chuan bi dau tu den thuc hien dau tu xay dung va nghiem thu, toan, quyet toan vdn Ban chi dao cac chuong trinh muc tieu can doi mdi phuong thirc chi dao, phoi hop cdng tac giua cac vien thuoc cac 98 nganh Giam thieu cac khau thu tuc trinh duyet mang tinh hinh thuc, khong co tac dung va hieu qua thiet thuc ma tham chi gay can tro, ach tac, lam cham tien thuc hien chuong trinh Ve phia nhan dan cac xa, cac cong trinh tang xay dung tai cac xa r \ r vung cao, vung sau, phuc vu true tiep cho nhu cau sinh hoat va san xuat cua ddng bao, nen can phai nang cao y thuc lam chu cua ddng bao va coi day la r r r r \ mot yeu to het sire quan quyet dinh hieu qua cua chuong trinh Can lam cho nhan dan cac xa hieu ro viec tham gia xay dung, khai thac, su dung va bao duong cac cong trinh la quyen loi va trach nhiem cua chinh minh, gan bo tinh cam, trach nhiem cua ngudi dan vdi cong trinh Ben canh do, can day manh cong tac thdng tin tuyen truyen, van dong nhan dan cac xa tham gia xay dung, kiem tra va quan ly su dung cong trinh De chuong trinh thuc su hieu qua, can gan bo chat che vdi nhan dan tu khau lay y kien de lap quy hoach, ke hoach dau tu den to chuc xay dung, khai thac su dung cong trinh Viec huy dong dong gop sue dan tham gia hien han che vi la cac xa DBKK, san xuat chua du de tich luy, nguon luc tai cho rat han hep Nhan thuc cua ngudi dan mang nang tinh thu dong, y lai vao su giup cua nha nudc va cap tren Tap quan lao dong san xuat cua ddng bao chua phu hop vdi yeu cau ve ky thuat, ky luat lao dong Vi vay can phai nang cao nhan thuc, tap huan, hudng dan, tao dieu kien cho nhan dan cd the chu dong tham gia va cd du nang luc de tham gia ddng gop y kien, xay dung cong trinh, giam sat qua trinh dau tu, thi cong va su dung, bao ve cong trinh Tu phat huy hieu qua mot each tich cue nhat, nhan dan co viec lam, thu nhap, cd cong trinh de su dung lau dai, ben vung 3.2.2 Tang cuong phan cap, tang tinh chu dong cho co’ sd Can cu de phan cap cho cap xa lam chu dau tu cac cong trinh, du an Chuong trinh 135 la UBND xa la cap chinh quyen gan dan nhat, am hieu lich su phat trien, dieu kien tu nhien - xa hoi, tam tu nguyen vong cua ngudi dan, 99 nhu cau can thiet, huu ich nhat cua cac cong trinh tang, cac linh virc can dau tu; dong thai, la cap true tiep to chuc thuc hien viec huy dong nguon luc tai cho dan dong gop, kha nang tham gia cua ngudi dan Viec giao nhiem vu, dong thdi boi dudng, md rong kien thuc, linh vuc quan ly cho can bo cap xa se tao dieu kien nang cao trinh can bo ve quan ly kinh te - xa hoi, van dong nhan dan vao cac chuang trinh phat trien kinh te - xa hoi khac Viec day manh phan cap cho co sd la xu hudng phat trien tat yeu hien nay, di doi vdi viec nang cao trinh can bo, cung ung day du nguon luc va tang cudng kiem tra giam sat da mang lai hieu qua rat tich cue cho cac dia phuong ap dung mo hinh Md hinh quan ly tien bo hon han co che cac co quan cap tren true tiep quan ly va chi dao thuc hien tai co sd Nhat la cac hoat dong kinh te - xa hoi co sir gan ket chat che vdi dieu kien cu the tai dia ban tung xa, thon, ban nhu d cac xa 135 3.2.3 Thirc • hien • chinh sach iru dai doi vdi cac cac nhan va don vi• tham gia thyc hien chuong trinh Ddi vdi can bo tham gia thuc hien Chuong trinh 135 can duqc chu y uu tien dung muc, thoa dang nham tao dieu kien khuyen khi'ch ve vat chat, tinh than Cac Bo, nganh tu Trung uong den dia phuong, cac to chuc doan the can cd chinh sach uu tien, uu dai va khuyen khich can bo, nhat la can bo tri thuc tre, nien tinh nguyen cong tac tai cac xa vung cao, vung sau, nang cao ' ' ' kinh nghiem va kien thuc thuc te Dong thdi khai day va phat huy long nhiet tinh va tam huyet cua can bo ddi vdi dong bao mien nui Cd chinh sach dai ngo, quy hoach, su dung can bo da trai qua thu thach va co cong hien doi vdi mien nui mot each hop ly, cong bang Ddi vdi cac nha thau tham gia xay dung cong trinh, cac cong trinh tang cd quy md nhd, d dia ban kho khan nen cong tac thi cong rat kho khan, lqi nhuan cua cac doanh nghiep xay lap khdng ldn, khdng thu hut duac cac dan vi thi cong Giai quyet van de nay, can phai cd co che, chinh sach hop ly 100 \ r \ r \ ddi vai cac don vi nhan thau nhu: tao dieu kien ve ung vdn, toan cho cac don vi, xay dung he thong don gia, dinh muc ve vat lieu, nhan cdng, van chuyen, dinh muc hao hut vat lieu phu hop vdi dieu kien thuc te dia phuong Tranh truong hop dinh muc khong phu hop nen don vi thi cdng bdt xen khoi luong, thi cdng khong dung thiet ke, tieu chuan quy dinh Trong hoat dong ho tro phat trien san xuat, can thiet phai cd uu dai ve mdi trudng dau tu cho cac doanh nghiep tham gia cac du an phat trien san xuat, che bien nong, lam san, tieu thu san pham thong qua chinh sach tin dung, cap phep kinh doanh, tien thue dat, mien giam thue, theo dung quy dinh cua phap luat 3.2.4 Thuc hien cdng khai, minh bach, dan chii quan ly va thuc hien Chuong trinh _ z Tang cudng tinh cdng khai, dan chu va minh bach cdng tac lap ke hoach dau tu, quan ly vdn dau tu, kiem tra giam sat qua trinh dau tu la mot nhung yeu cau quan doi vdi cac co quan quan ly chuong trinh Nhat la boi canh thuc hien Luat Phong, chong tham nhung, Thuc hanh tiet kiem chong lang phi su dung ngan sach nha nude Day la mot xu the tien trinh cai each tai chinh cdng, cai each hanh chinh linh vuc tai chinh Dong thoi, cung la bien phap quan de nang cao hieu qua dau tu \ r r r r r chuong trinh, giup dap ung yeu cau cap thiet nhat ddi vdi ddi song ngudi dan tren dia ban xa 135 Cdng khai, minh bach xac dinh ke hoach dau tu, ngudi dan co quyen dupc biet va tham gia y kien vdi chinh quyen cap xa ve nhu cau ho tro, giup tir Chuong trinh, dupc biet kha nang nguon vdn ho trp hang nam cho xa, cac nhu cau nao la can dupc uu tien va kha nang hieu qua kinh te - xa hoi cao nhat Ngudi dan cd quyen dupc biet each thirc tien hanh dau tu, nhung cdng viec ma ngudi dan cd the tham gia thuc hien, theo dung phuong cham “xa cd cdng trinh, dan cd viec lam va thu nhap" Qua viec cdng khai nguon 101 von dau tir, ngudi dan biet duqc cac khoan ma cong dong phai dong gop de dau tir cho cac cong trinh, dir an Viec thi cong cac cong trinh tren dia ban can diroc thdng bao cong khai ve thiet ke, dir toan, don gia nhan cong, vat lieu, tren co so do, ngudi dan co kha nang giam sat viec thirc hien cua chu dau tir, cac nha thau thi cong Day chinh la quy dinh can thiet de nang cao hieu qua giam sat cua cong ddng doi vdi viec thirc hien chirong trinh Viec cong khai ke hoach von giup danh gia tinh cong bang, hop ly viec phan bo von giua cac xa, cong ddng thon, ban Ddi vdi cac co quan quan ly cac cap, can cong khai viec luan chuyen luong von tir trung irong den dia phirong, lam can cd de cac co quan quan ly giam sat, danh gia viec sd dung von va kha nang dap dng nhu cau von Mot van de het sue quan la hinh thuc cong khai phai phu hop vdi kha nang tiep can thdng tin cua ngudi dan, dam bao viec cong khai thuc chat va cd tac dung Cong khai cd the thuc hien qua trang web cua cac Bo, nganh, dia phuong de cac co quan chuc nang, cac doi tac dau tu, tai tro von cd the < r r y r tiep can, nhien doi vdi da sd ngudi dan thi can tiep can d hinh thuc don gian, thuan tien hon nhu thdng bao tren cac bang tin tai xa, thon, thdng bao tren loa, dai truyen d xa, thon, ban, tai cac cuoc hop hang quy, nam hoac hop dinh ky de thdng bao cac van de can lay y kien ngudi dan Cac quy che can duqc ban hanh va thuc hien day du, mang tinh chat bat buoc va la mot nhung can cu de kiem tra, danh gia hoat dong cua cac xa 135 3.2.5 Tang cirdng cong tac kiem tra, giam sat Cong tac kiem tra, giam sat can tien hanh toan dien va thudng xuyen, noi dung kiem tra giam sat bao gom toan bo cac noi dung hoat dong cua Chuong trinh, dac biet la lTnh vuc dau tu xay dung co sd tang Cac cong trinh muc von khong ldn, ky thuat don gian nhung cd y nghia quan ca ve kinh te - chinh tri - xa hoi; mat khac lai d cac dia ban vung sau, vung cao, viec kiem tra, giam sat het sue kho khan, vay cong tac 102 cang phai duoc chu nham dam bao chat luong cdng trinh, chong that thoat lang phi vdn Trong cdng tac kiem tra can phan dinh rd trach nhiem cua tung co quan tung khau cdng viec, theo dung chuc nang, nhiem vu va quy dinh cua phap luat 3.2.6 Phat huy vai tro va nang cao hieu qua hoat dong cua co1 quan quan ly, kiem soat, toan vdn r r f He thong KBNN duoc giao nhiem vu quan ly, cap phat toan vdn dau tu cua chuong trinh Viec quan ly, cap phat vdn la mot bien phap giam sat qua trinh dau tu, dam bao von duoc su dung dung muc dich, den dung doi tuong va theo dung ke hoach Viec kiem soat toan vdn chat che se gop phan han che tham nhung, lang phi va kem hieu qua ■» r De nang cao hieu qua cdng tac quan ly, kiem soat, toan vdn, KBNN can dap ung cac yeu cau cu the la: (1) cung cap vdn day du, kip thoi cho cdng trinh theo tien thuc hien; (2) quan ly, kiem soat toan vdn dung chinh sach, che do, tiet kiem, chong tham o lang phi; (3) chi tra vdn den dung ddi tuong duoc huong; (4) thuc hien quy trinh quan ly, toan von hop ly, tao thuan lqi, giam thoi gian va chi phi cho cac chu dau tu cung nhu cua he thong KBNN; (5) cung cap thong tin bao cao chinh xac, kip thoi de phuc vu cdng tac dieu hanh cua cac co quan chuc nang De dap ung cac yeu cau nay, he thong KBNN can tien hanh cac giai phap dong bo, cu the la: a) Nang cao chat luong kiem soat chi cua KBNN: can cu cac quy dinh ve quan ly, cap phat toan vdn, KBNN kiem tra tinh day du, hop phap hop le, can cu phap ly cua ho so, kiem tra quy trinh thuc hien cac thu tuc dau tu, tinh chinh xac cua sd lieu, ho so toan vdn Ben canh do, KBNN chu dong tham gia, phoi hop vdi cac co quan lien quan kiem thuc te tai hien truong, doi chieu voi ho so toan 103 b) KBNN tiep tuc nghien cuu, hoan thien xay dimg quy trinh kiem soat, toan von cua KBNN, phu hop voi dac diem cu the cua cac xa DBKK Dong thdi, thuc hien cai each thu tuc hanh chinh quan ly, toan von cua he thong KBNN c) Thuc hien chuc nang thong tin, tham muu: tinh hinh va tien cap phat, toan von cua KBNN duoc luong hoa bang tien, day la mot kenh thong tin quan can duoc tong hop, phan tich, danh gia va khai thac phuc vu yeu cau quan ly dieu hanh cua cac co quan quan ly Qua so lieu cap phat, toan co the danh gia tien dau tu tung khau cong viec, nang luc quan ly, dieu hanh, trien khai thi cong cua cac chu dau tu, Ban quan ly, don vi thi cong, so sanh, danh gia muc hop ly cua cac loai chi phi cua edng trinh so vdi cong trinh khac cung loai, tren cung dia ban va giua cac dia ban Tu ket qua so sanh, phan tich dua cac de xuat, kien nghi doi vdi chu dau tu, cac co quan chuc nang, tham muu cho lanh dao dia phuong xay dung va dieu chinh ke hoach dau tu, nguon von cho cac cong trinh va dia phuong thuc hien tot hon d) Dua ung dung tin hoc vao cong tac quan ly, nang cao hieu qua va chat luong thong tin, bao cao, dam bao tinh chinh xac, kip thdi Bien phap se gop phan nang cao chat luong cong tac quan ly, giam thieu thdi gian tong hop, lap, gui thong tin bao cao, tao dieu kien nang cao chat luong va hieu qua quan ly 3.2.7 Xay dung he thong thong tin giam sat, danh gia chinh xac va luong hoa hieu qua hoat dong dau tir cua Chiro’ng trinh Viec danh gia tinh hinh thuc hien, tien va hieu qua dau tu cac hoat dong cua Chuong trinh den van la mot van de mdi, het sue phuc tap, can duoc cac cap, cac nganh quan tam xem xet de co giai phap cu the Ddi vdi cac hoat dong dau tu xay dung co sd tang va dau tu phat trien san xuat thi can thiet phai co su danh gia hieu qua kinh te cua tung du an dau tu, timg 104 cong trinh Can xac dinh cac chi tieu hieu qua tir khau lap du an, cac chi tieu la can cu de so sanh, lua chon du an uu tien dau tu, dong thdi la tieu •» r z chuan danh gia ket qua thuc hien Khi ket thuc du an co su so sanh giua muc z •> z > tieu va thuc te, so sanh chi phi vai ket qua quy ddi ve cung thudc Trong dieu kien trinh can bo cap xa, huyen han che, de thuc hien danh gia hieu z Z A -w ■» qua kinh te, can dua khuon mau, cong thuc tuong ddi dan gian, de hieu viec thu thap sd lieu, phuong phap va cac chi dan cu the de cac dia phuong co can cu ap dung _ ' ' ' Tu viec thu thap sd lieu co tinh thdng nhat tu co sd se giup cho viec danh gia chung pham vi dia phuong, toan quoc dam bao tinh chinh xac, Z dang tin cay Cac co quan trung uong can xay dung he thdng cac chi tieu danh gia chi phi, ket qua cua cac loai hoat dong, cac mau phieu dieu tra dam bao de hieu, de thuc hien Ddng thdi, lua chon phuong phap danh gia hieu qua kinh te - xa hoi de hudng dan, bien cho cac dia phuong, lam co sd cho viec lap, lua chon du an cung nhu danh gia ket qua mot each chinh xac, khach quan, khoa hoc hon Ddi vdi Chuong trinh 135, cac phuong phap danh gia hieu qua dau tu tuong ddi don gian va phu hop vdi dieu kien trinh can bo va kha nang thu thap thdng tin la phuong phap danh gia hieu qua kinh te - xa hoi tong hop da muc tieu, dua tren xac dinh sd tam quan cua cac muc tieu va su khan hiem cac nguon luc Mot phuong phap khac nham lua z chon du an dau tu la phoi hop cac chi tieu hieu qua theo ma tran muc tieu, dua tren phan tich dinh tinh tam quan cac muc tieu va dinh luong he sd tam quan de lam co sd danh gia > z Cac co quan quan ly Chuong trinh can xay dung he thdng thdng tin bao cao vdi day du chi tieu can thiet, dam bao tinh kha thi va tin cay Dac biet, can cd quy che chat che ddi vdi cong tac thdng tin, bao cao d cac cap co sd, gan lien trach nhiem ve mat hanh chinh vdi quyen lqi kinh te viec phan bo von, thi dua khen thudng 105 KET LUAN Phat trien kinh te - xa hoi cac xa DBKK mien nui va vung sau, vung xa dang la mot nhung van de tam Chien luoc phat trien kinh te - xa hoi va thuc hien muc tieu xoa doi, giam ngheo cua Dang va Nha nudc Qua toan bo nhung van de duoc trinh bay, Luan van da giai quyet co ban cac muc tieu va yeu cau dat ra, the hien tren cac noi dung sau: Khai quat mot so van de ly luan ve tang truong, phat trien kinh te va vai tro cua dau tu cung nhu viec danh gia hieu qua cua chuong trinh phat trien kinh te - xa hoi De tai neu thuc trang va su can thiet cua viec dau tu phat trien kinh te - xa hoi cac xa DBKK mien nui va vung sau, vung xa; quan diem, chu chuong va chinh sach cua Dang, Nha nudc doi vdi van de Dong thoi, gidi thieu cac noi dung co ban va co che quan ly, van hanh Chuong trinh 135 mien nui va vung sau, vung xa Phan tich va danh gia thuc trang to chuc thuc hien Chuong trinh 135 theo cac noi dung, nhiem vu chinh la dau tu xay dung co so tang, on dinh phat trien san xuat va dao tao, boi dudng can bo Tu thuc te trien khai to chuc thuc hien va nhung ket qua cua Chuong trinh, Luan van da neu len nhung tac dong doi vdi doi song kinh te - xa hoi cac xa 135 Phat hien va phan tich nhung ton tai, han che cua tung noi dung hoat dong, tung khau cong viec, tim nhung nguyen nhan ton tai, vudng mac de tren co so do, rut bai hoc kinh nghiem de nang cao hieu qua cua Chuong trinh Tren co so nhung dinh hudng ve chu truong, chinh sach va nhung bai hoc kinh nghiem tu thuc tien, de xuat he thong cac giai phap nham nang cao hieu qua dau tu Chuong trinh 135; dong thoi, Luan van cung de xuat cac dieu kien thuc hien cac giai phap, nham dam bao tinh kha thi va hieu qua Chucmg trinh 106 Chuong trinh phat trien kinh te - xa hoi cac xa DBKK mien nui va vung sau, vung xa la mot nhung nhiem vu quan trong, co tinh chat thai su, duac Dang va Nha nude dac biet quan tam Chuang trinh co y nghia rat quan trong viec thuc hien muc tieu xoa doi, giam ngheo va Chien luge phat trien kinh te - xa hoi chung cua dat nuac De Chuang trinh mang lai ket qua cao nhat, phat huy hieu qua dong von bo va khai thac duac kha nang nguon luc hien co thi can phai co nhieu nghien cuu, xem xet cac khia canh khac cua Chuang trinh 135 va cac chuang trinh khac nham tim nhung mat han che, khac phuc nhung diem yeu sinh thuc hien chuang trinh Vdi mong muon gop phan hoan thien ca che quan ly dau tu de nang cao hieu qua dau tu Chuang trinh 135, tac gia hy vong rang cac giai phap de xuat tren day se duac cac ca quan, dia phuong co lien quan xem xet, nghien cuu va trien khai ap dung thuc tien Vdi dung luong nghien cuu cua mot Luan van khoa hoc, dieu kien nghien cuu thuc tien va nguon thong tin co han, chac chan khdng the tranh khdi nhung han che nhat dinh Tac gia mong nhan duoc nhieu y kien gop y cua cac thay cd giao, nha khoa hoc, cua lanh dao, can bo quan ly va dong nghiep de tiep tuc hoan thien noi dung nghien cuu./ * * * 107 DANH MUC TAI LIEU THAM KHAO Nguyen Van Chon (2002), te dau tic”, NXB Thdng ke, Ha Noi; Chinh phu (2004), “Bao cao phat trien Viet Nam 2005 - Quan ly va dieu hanh ”, Ha Noi; Chinh phu - Ngan hang The gidi (2005), “Viet Nam quan ly chi tieu cong de tang triccmg va giam ngheo”, NXB Tai chinh, Ha Noi; Chinh phu (2003), “Bao cao Phat trien the giai 2004 — Cai thien cac dich vu de phuc vu ngiccri ngheo”, NXB Chinh tri quoc gia, Ha Noi; Chinh phu (1998), “Ouyet dinh sd 135/1998/QD-TTg 31/7/1998 cua Thu ticcmg Chinh phu ve viec phe duyet chiccmg trinh phat trien r > kinh te - xa hoi cac xa DBKK mien nui va vung sau, vung xa Chinh phu (2000), “(Twyef dinh so 138/2000/QD-TTg 29/11/2000 ve viec hap nhat die an dinh canh dinh cic, die an ho tra dan toc DBKK, Chieang trinh Xay dimg trung tam cum xa mien nui, vung cao, vao Chiccmg trinh phat trien kinh te - xa hoi cac xa DBKK mien nui va vung sau, vung xa Chinh phu (2006), “Quyet dinh so 07/2006/QD-TTg 10/01/2006 phe duyet Chiccmg trinh Phat trien kinh te - xa hoi cac xa dac biet kho khan vung ddng bao dan toc va mien nui giai doan 2006 - 2010 Chinh phu (1999), “Nghi dinh sd 52/1999/ND-CP 08/7/1999 ve ban hanh Quy che quan ly dau tic va xay dimg”; Chinh phu (2000), “Nghi dinh so 12/2000/ND-CP 05/5/2000 ve viec sica doi bo sung mot sd dieu cua Quy che quan ly dau tic va xay dimg ban hanh kem theo Nghi dinh sd 52/1999/ND-CP 08/7/1999 10 Chinh phu (2005), “Nghi dinh sd 16/2005/ND-CP ngav 7/2/2005 ve quan ly die an dau tic xay dimg cong trinh 108 11 Dang Cong san Viet Nam (2001), "Van kien Dai hoi dai bieu toan r y r quoc Ian thu IXDang Cong san Viet nam ”, NXB Chinh tri Quoc gia, Ha Noi; 12 Dai hoc Kinh te quoc dan (2004), "Kinh te dau tic”, NXB Thong ke, Ha Noi; 13 Dai hoc Kinh te quoc dan (2002), "Dau tic va tham dinh die an”, NXB Thong ke, Ha Noi; 14 Dai hoc Kinh te quoc dan (2005), "Kinh te phat trien”, NXB Lao dong - Xa hoi, Ha Noi; 15 Dai hoc Kinh te quoc dan (2004), "Lap die an dau tic”, NXB Khoa hoc va Ky thuat, Ha Noi; 16 Hoang Due Nghi (2002), "Ve cong tac dan toc 10 nam ddi mdi (1999-2000)”, NXB Chinh tri Qu6c gia, Ha Noi; 17 Ngan hang The gioi (2003), "Bcio cao phat trien Viet Nam 2004 - Ngheo”, HaNoi; 18 Ngan hang The gioi- Vien Dan toc (2004), "Bao cao giai phap cai r or thien sinh ke tic ndng nghiep cho ngudi ndng dan dan toc thieu sd tai cac xa dac biet kho khan ”, Ha Noi; 19 Qudc hoi (2003), "Luqt Xay dung sd 16/2003/QH11 ngdy 26/11/2003 ”; y 20 Uy ban dan toc (2002), “55 nam cong tac dan toc va mien nui (1946-2001)”, NXB Chinh tri Quoc gia, Ha Noi; 21 Uy ban Dan toc (2005), "Bao cao tong ket nam (1999-2005) thuc hien Chucmg trinh 135 ”; 22 Uy ban Dan toc (2005), "Chucmg trinh phat trien kinh te — xa hoi cac xa dac biet kho khan vung dan toc va mien nui giai doan 2006 - 2010 ”; Phu luc so 01 SO XA DAU TUTHEO CHUONG TRINH 135 Dcfn vi: xa TT Xa thuoc CT135 Tong so xa I Nam 1999 Nam 2000 Nam 2002 Nam 2003 Nam 2004 Nam 2005 1,200 1,878 2,325 2,362 2,362 2,374 2,412 1,012 1,490 1,884 1,907 1,907 1.919 1,939 188 388 388 388 388 388 389 53 67 67 67 84 1,753 2,200 2,233 2,240 2,240 2,275 125 125 129 122 134 137 Phan loai theo doi tuong XaDBKK Xa bien gidi Xa an toan khu II Nam 2001 Phan loai theo nguon dAu tu Ngan sach TW Ngan sach DP 1,200 (Nguon: Ban chi dao Chuong trinh 135- Uy Ban dan toc) Phu luc so 02 NGUON VON GIUP DO CAC TINH THUOC CHUONG TRINH 135 Dim vi: Trieu don AAA TT Ten du an Tong so Cac Bo, Nganh Trung uong Cac doan the Trung uong Cac tinh, co d.kicn Nam 1999 Nam 2000 Nam 2001 Nam 2002 Nam 2003 101,265 19,945 10,670 25,680 21,250 23,720 3,439 510 410 140 270 2,109 59,050 19,853 5,547 13,000 10,000 10,650 Cac Tong cdng ty 91 181,155 29,403 44,650 47,000 29,700 30,402 Quy v't ngudi ngheo 164,048 22,876 54,060 47,862 39,250 84,153 139,880 109,082 106,131 Tong so: 508,957 69,711 (Ngudn: Ban chi dao Chucfng trinh 135- Uy Ban dan toc) Phy lyc - Ban cac Xa dryc chyn vao Chuong trinh 135 Giai doan (2006-2010)1 va cac Xa dryc ho try cac dy an cua cac nha tai try Tong hyp tu danh sach cac xa kem theo QB 164/2006/QD-TTg 11 thang nam 2006