Đang tải... (xem toàn văn)
Tap chi Khoa hoc va Cong nghe bien TIO (2010) S6 1 Tr 81 96 MOT SO VAN DE CO BAN VE QUAN LY TONG HOfP VUNG BOf BIEN d VIET NAM TRAN Dire THANH Vien Tai nguyen va Moi trirong bien Torn tat Qudn ly tong[.]
Tap chi Khoa hoc va Cong nghe bien TIO (2010) S6 Tr 81 - 96 MOT SO VAN DE CO BAN VE QUAN LY TONG HOfP VUNG BOf BIEN d VIET NAM TRAN Dire THANH Vien Tai nguyen va Moi trirong bien Torn tat: Qudn ly tong hap viing ba bien (QLTHVBB) Id mdu hinh mai nhdt vi qudn ly vung ba biin nham tien tdi sir cdn bdng ve cdc muc tiiu mdi truong, kinh ti vd xa hoi ndm pham viphii hap voi qud trinh tu nhiin No cd chuc ndng qudn ly Nhd nude vai the thicc tap trung vd duac kit noi thdng nhdt tir Trung uang den dia phuang QLTHVBB da thu duac nhicng thdnh tuu nhdt dinh, nhiin nhiiu no lire qudn ly chua thuc sir bin viing md ly quan nhdt Id thiiu y chi chinh tri vd cdc nhuoc diim tir chinh each thicc qudn ly hdnh chinh tap trung Viit Nam cd the chi thuan lai cho QLTHVBB, dang duac dat nhu mot dinh huang tdt yiu cho phdt triin bin vimg Han mudi ndm qua, mot sd di tdi nghien cicu vd du dn trien khai, mot phdn vai su hd tra Quoc ti da cd nhiing ddng gdp quan vi biin kiin thicc ndng cao nhan thicc vd tich lay kinh nghiem QLTHVBB Bin canh nhicng kit qud buac ddu, su nghiep QLTHVBB dang phai doi mat vai nhicng vdn di cdn gidi quyit ve ca so ly luan, ca che, ndng luc, phuong phdp vd tdi chinh bin vicng, Tic nhan thicc den thuc hdnh hiiu qud la cd mot chang duong ddi, QLTHVBB cdn din y chi chinh tri cua cdc cdp chinh quyin tic Trung uang din dia phuong vd sir dp dung sdng tao diiu kiin thuc tiin Viet Nam I MO DAU Viing bo bien Viet Nam trai dai tren ba nghin kilomet, bao gom cac he sinh thai tieu bieu lihu dao, cira song, dam pha, vung, vinh, rimg ngap man, ran san ho va tham co bien, Tai nguyen thien nhien va nhan van viing bo bien phong phu va da dang cho phep phat trien nhieu linh vuc kinh te quan trgng nhu giao thong - cang, nong lam nghiep, ngu nghiep, diem nghiep, cong nghiep, khoang san, du lich - dich vu Day la viing c6 nhiiu khu bao ton thien nhien c6 gia tri va ciing la vimg tap trung dan si c6 mat cao Hoat dong nhan tac dieu kien phat trien nen kinh te thi truong nhieu phin da gay nhieu anh huong tieu cue den tai nguyen va moi truong viing bo bien [18] Tac dong ciia bien doi hau gan day lam gia tang thien tai va su co moi truong Trong bii canh nhu vay, quan ly tong hgp vimg ba bien (QLTHVBB) huong toi phat trien bin vung da tro yeu cau cap bach [6, 17] Tuy nhien, de nhan rgng hieu qua thuc tien, (|ua trinh QLTHVBB Viet Nam, tir nhan thiic den thuc tien, phai vugt qua nhiiu kJio 81 khan va thach thiic Bai viet trinh bay mot si vin di co ban vi QLTHVBB a Viet Nam, mot so thuan Igi va nhiing thach thiic chii yeu phai dii mat giai quyit II BAI HOC Tir QUAN LY TONG HQfP VUNG B BIEN NlTdC NGOAI Quan ly vimg bo bien khong chi don thuan la quan ly Nha nuoc mang nang tinh hanh chinh, ma ve ban chat co "chirc nang san xuat" nham kit hgp cac yeu to dau vao nhu lao dong, tai nguyen thien nhien, von va thoi gian de tao cac san pham mong dgi nhu nghi duong cong cong a bai bien, tien nghi hang hai, chat lugng nuoc dam bao, cac vu ca hang nam on dinh, bao ton bien, giam ton thuang dang cao muc bien hoac cac tac dong tiem tang ciia bien doi hau, [22] Quan ly tong hgp nham phoi hgp tat ca cac ben co Igi ich ve cac nhiem vu can thiet de hoach dinh va thuc thi cac boat dong nham bao ve, phat trien va sir dung ben viing cac khu vuc va cac nguon lire No thira nhan moi quan he ton tai giiia cac boat dong sir dung khac va tac dong tiem nang tai moi truong, nham vugt qua sir ran va von co tiep can quan ly theo nganh Quan ly tong hgp dua tren phan tich cac khia canh phat trien, mau thuan sir dung, thiic day sir lien ket va hai boa giiia cac boat dong khac Quan ly tong hgp vung bo bien (QLTHVBB) la mot chuang trinh dugc tao dimg nham quan ly tai nguyen viing bo bien, c6 sir tham gia lien ket ciia tat ca cac nganh kinh te chiu tac dong, cac co quan Chinh phii va cac to chiic phi Chinh phii [5] Do la mau hinh mai nhat ve quan ly cac viing bo bien, lien ket cac boat dong doi tac, tap hgp cac ben co quyen Igi, la mot qua trinh phoi hgp vai cac boat dong khong trung lap QLTHVBB danh gia toan dien, dat cac muc tieu, quy hoach va quan ly he thong vung ba bien va tai nguyen, c6 xet den cac dac diem lich sir, van hoa va truyen thing, mau thuin Igi ich va sit dung Do la mot qua trinh tien hoa lien tuc nhim dat toi su phat triin bin viing [16, 23] QLTHVBB la mot qua trinh dong, da nang va lap lai Mot chu ky QLTHVBB hoan thien bao gom thu thap thong tin, lap ke hoach, quyit dinh, quan ly, giam sat va danh gia thuc hien [16] QLTHVBB dua vao sir tham gia va phoi hgp hanh dong mot each ding thuan cua tat ca cac ben co Igi ich de dat dugc cac muc tieu xa hoi a mot viing bo biin xac dinh Ve lau dai, QLTHVBB tien toi su can bang ve cac muc tieu moi truong, kinh ti va xa hoi nam dieu kien phii hgp vai cac qua trinh tu nhien [8] "Ting hgp" a day mang nghia tong hgp cac muc tieu, tong hgp nhieu each thiic can thiet di dat dugc muc tieu, la tong hgp mgi linh vuc chinh sach va mgi nganh lien quan, la tong hgp cac phin bien va dat lien cua viing quan ly va tong hgp ve ca khong gian, thai gian Ve ban chat, QLTHVBB co chiic nang quan ly Nha nuac voi the thiic tap t 82 g va dugc ket nii thing nhit o ba miic chinh quyin: dia phuang, tinh va Trung uong hai boa vai luat phap va quy chi cua cac ti chiic chinh quyen [24] Hien nay, hau bet cac nen kinh te vT mo ciia cac nuac tren Thi gioi la kinh te thi truong phi tap trung, da bgc 16 ro nhiing van de cay nghiet phai dii mat vi tai nguyen va moi truong, dan den kha nang phat trien thieu ben vung, khong chi vi xa hoi, moi truong ma ca ve phuong dien kinh te Vi vay, QLTHVBB dugc dat nhu mot tat yeu cho phat trien ben viing, nhung tiep can la ca mot duong dai tir nhan thiic, ly luan den thuc tien va tir y tuong din cong Vao nam 1972, Hoa Ky ban hanh sac lenh quan ly viing bo biin va dugc coi la moc quan trgng dau tien lich sir quan ly ting hgp viing bo biin va Dai duong Tir do, ly luan va thuc tien quan ly viing bo bien da dugc biin din cac viing, mien nho su trg giiip Quoc te Den diu the ky XXI, The gioi da co khoang 380 dia diim thuc hien quan ly viing ba biin va sau gan bon thap ky thuc hanh, QLTHVBB da thu dugc nhung tuu nhat dinh phu hgp voi muc tieu phat trien ben viing viing bo biin [4] Mot si nuac da dat dugc nhung tuu tot dep theo thi thiic QLTHVBB a quy mo Quic gia, dam bao tang truong kinh te nhung van bao ve dugc tai nguyen va moi truong Tuy nhien co the nhan thay, la nhiing nuoc giau va mat dan si khong lan nhu Thuy Diin a chau Au [9], hay dit nuoc dien tich nho nhu Singapore Dong Nam A [2] Dau thi ciing la cac mo hinh c6 gia tri tham khao cho cac Quoc gia ky vgng ve phat trien ben viing viijig bo bien tiep can tir quan ly tong hgp , -, Phan Ion cac nuac Dong Nam A huong img tich cue voi QLTHVBB, it nhit la thai ky nhan dugc tai trg cho cac du an thi diim tu cac nuac phat triin va cac to chiic Quoc te Trong do, quy mo Ion nhit la cac du an diim QLTHVBB theo he thing cua Chuang trinh doi tac quan ly moi truong cac viing bien Dong A (PEMSEA) vai sy ho trg ciia Quy Moi truong toan cau (GEF), Chuang trinh Phat triin ciia Lien Hiep Quic (UNDP) va Ti chiic hang Hai Quic te (IMO) thuc hien thap ky diu tien ciia thi ky XXI Do la xac du an diem o Shianoukville (Campuchia), Shihwa (Han Quic), Bali (Indonesia), Klang (Malaysia), Batangas (Philippines), Nampho (Triiu Tien), Ha Mon (Trung Quic ), Chonburi (Thai Lan) va Da Ning (Viet Nam) [13] Tai Malaysia, the thiic tap trung boa quan ly viing bo biin dinh huong quart If tong hgp da tao an tugng tit vai sir phat trien kinh ti cao, ding thai vin di bao ve moi truong dugc quan tam diing miic [10] Philippines coi trgng va la nuoc da thuc b'ien nhieu nhat cac du an QLTHVBB Dong Nam A, mii nam 25 trieu USD a cac nguin khac nhail dugc dau tu cho cac du an quan ly viing bo biin Cac du an nhan dugc sir hi trg nhiiu nhit ciia chuang trinh khu vuc GEF/UNDP/IMO/PEMSEA da dugc triin khai tai Batangas, Bataan, Cavitae, Vinh Manila va Puerto Galera Trong do, du an QLTHVBB thuc hien tren co so tu chii - tu quan dugc coi la cong hon ca tai Batangas [3,13] Tai Ha Mon (Trung Quic) voi sir ho trg cua boat dong QLTHVBB, tir 1994, hang nam GDP tang - 25% ma khong suy giam chit lugng moi truong [4, 15] Bai hgc cong ciia mo hinh QLTHVBB a Ha Mon truoc bet la thing Igi ciia y chi chinh tri thong qua su ho trg ve luat phap, chinh sach va tai chinh voi su ung hg cua cac cip chinh quyen nham tao mot mau binh tot cho Trung Quoc va khu vuc Viec thuc thi chinh sach va luat phap nghiem minh da tao nen su nhat quan va dong luc thiic diy thuc thi chuang trinh QLTHVBB Su dong thuan ciia cac to chiic tham gia va ciia cac ben c6 Igi ich ciing la nhan to quan trgng dam bao cho cong Sir dong thuan khong chi la tu nguyen ma la tac dong che tai khuon kho cua luat dinh Van de thui va phi moi truong dugc thuc hien nghiem chinh, tao nen nguon tai chinh ben viing cho QLTHVBB, dam bao cho qua trinh phat trien "tu lire" [13, 15] Nhung kinh nghiem von co ve each thiic quan ly phat trien nen kinh te tap trung truoc c6 the cung gop phan cho sir cong ciia mo hinh Tuy nhien, nhieu no lire QLTHVBB chua thuc su ben viing hoac chua cong, ve CO ban lien quan den ba ly chinh Truac het thieu y chi chinh tri hoac yeu ve cam ket chinh tri o cac cap chinh quyen ve chinh sach, phap che va phan bo nguon luc de ho trg va tri boat dong ciia du an Thii bai, mau thuan giiia cac don vi tham gia tao nen sir ran niit, thieu no lire phoi hgp lam ban che hieu qua lien ket cac ben co Igi ich viec cac quyet dinh va chinh sach Thii ba, sir thay doi ve chinh quyen ca a cap Quoc gia va dia phuang, ma chinh quyen mai thang cir khong chap nhan chuang trinh QLTHVBB da CO [13] Ngoai ra, QLTHVBB can quan tam den Igi ich va su tham gia ciia cong dong, nhung nhieu truong hgp, sir tham gia co tinh hinh thiic va phong trao, chua mang tinh ban chat QLTHVBB dugc coi la quan ly da nganh, da muc tieu va da Igi ich va la chia khoa ciia phat trien ben viing Tuy vay, y niem bien chua ban da dugc chip nhan o mgi hoan canh Con co nhung quan diem cho rang QLTHVBB chua bin la each quan ly tit nhat va chii dao, vi kho c6 kha nang cong chinh cac nhugc diem tir each thiic quan ly tap trung, kho co kha nang tra mot qua trinh "ty tin tai" Khong it noi van coi trgng vai tro quan ly vimg ba bien phi tap trung va phat trien cac mo hinh chu dao kiiu "quan ly theo nganh", "quan ly dua vao cong dong" Luat 22/1999 thi hien ro y chi chinh tri ciia Chinh phu Indonesia la phi tap trung quan ly viing bo bien va tang cuang vai tro cong dong quan ly tai nguyen Quan ly hanh chinh tap trung dugc cho la se tao chinh sach moi truong ap dung dong nhat tai tat ca cac viing ciia dat nuoc, thiiu xem xet nhiing van de dia phuong va sy da dang, phiic tap ve kinh te, van hoa, xa hoi va se tao khuon phep nang ni lam ban che kha nang suy nghi va sang tao ciia chinh quyin va cong ding dia phuong [10] Thai Lan la nuac tu lau da quan tam den quan ly vimg bo bi , 84 nhien theo huong quan ly phi tap trung vai phuang thiic quan ly dya vao cong dong Tu cho thiy ciing khong nen tuyet dii hoa QLTHVBB cho mgi nai, mgi hoan canh, ma can CO su phii hgp cac each thiic quan ly o quy mo phu hgp HI THU^C TIEN QUAN LY TONG HOP VUNG BOf BIEN d VIET NAM Tiep can QLTHVBB a Viet Nam da trai qua hon 10 nam ki tu di tai cip Nha nuac KHCN.06-07 "Nghien ciiu xay dung phuang an quan ly tong hgp viing ba bien Viet Nam gop phan dam bao an toan moi truong va phat trien bin viing" Vien Tai nguyen va Moi truong bien chii tri thyc hien cac nam 1996 - 1999 voi hai trgng diim nghien cim la khu vyc Di Son - Cat Ba - Ha Long va Da Ning [11] Vao cac nam 2000 - 2002, Vien Hai duong hgc da tien hanh nhiem vu nghien ciiu nhim xay dyng phuong an QLTHVBB Nam Trung bg vai trgng diim Binh Dinh theo Ngbj dinh thu hgp tac Viet Nam - An Do [1] Tiep theo, mot so dy an trien khai da dugc tien hanh vai su bo trg ve chuyen gia va tai chinh ciia mot so nuoc va to chiic Quoc te Thanh cong nhit vi mat ly luan va thyc tiin CO le la dy an QLTHVBB tai Da Ning, nam khuon Chuong trinh hgp tac ciia PEMSEA giai doan I (2000 - 2006) va giai doan II da dugc tiip hic tu nam 2009 [20] Dy an Viet Nam - Ha Lan vi QLTHVBB Viet Nam (VNICZM) giai doan 2000 - 2006 dugc thyc hien o ba diem trinh dien Nam Dinh, Thua Thien - Hui va Ba Ria - Viing Tau [7] Dy an hgp tac vi QLTHVBB Ha Long lUCN Viet Nam, Bg Thuy san va UBND tinh Quang Ninh thyc hien khuon kho hgp tac voi Co quan Khi quyen va Dai duong Hoa Ky (NCAA) giai doan I (2003 - 2005) va giai doan II (2006 - 2008) [12] Gin day nhat la dy an quan ly tong hgp cac boat dong tren dam pha Tam Giang - Ciu Hai (IMOLA) FAO tai trg voi sy ho trg ciia cac chuyen gia Italia thyc hien tir nam 2005 va hien dang tiip tuc gia doan II Chi rieng dy an QLTHVBB Quang Nam (2005 - 2007) la mo hinh QLTHVBB cap tinh lan dau tien cac nha khoa hgc va quan ly Viet Nam xay dyng va thyc hien theo kinh nghiem ciia Da Nang [20] Cac boat dong noi tren da co nhung dong gop quan trgng vi phi biin kiin thiic, nang cao nhan thirc va tich luy kinh nghiem QLTHVBB a Viet Nam [6, 17, 20] d miic khac nhau, cac dy an trien khai deu chii y den thu thap, danh gia va xay dyng co so du lieu va bien thong tin, ke ca viec lap cac trang web phuc vu QLTHVBB; quan tam xay dyng CO so vat chat va nang lye quan ly tir viec lap va boat dong ciia cac van phong dy an, cac nhom chuyen gia, tu van den mo cac lop tap huan ngin ban, dao tao chuyen mon GIS, tuyen cir nguai hgc tap, tham quan a cac nuoc da co kinh nghiem, Sy tham gia ciia cong ding boat dong QLTHVBB da dugc chii y, dii mang tinh hinh tliiic nhieu hon la thyc chat Cac ke hoach hanh dong va cac chuang trinh mang tinh chiin luge 85 deu dugc quan tam soan thao Tuy nhien, cQng mai chi c6 dia phuang cip tinh la Nam Dinh, Thua Thien - Hue, Da Nang va Quang Nam thong qua dugc chiin luge QLTHVBB lam dinh huong cho boat dong lau dai Cac dy an da uu tien triin khai mot so boat dong ho trg quan ly cu the: Dy an IMO/GEF/PEMSEA Da Ning nhin manh din ngan ngua nhiim; Cac dy an VNICZM hgp tac voi Ha Lan da uu tien quan ly thien tai (x6i la, dang cao myc bien, ) co lien quan den bien doi hau va bao ve dat ngap nuac; Dy an lUCN/ NOAA/MOFI a Quang Ninh chii y den cac khu bao tin biin vai sy tham gia cua cong ding, giai doan II da xay dyng dugc mot khuon kho QLTHVBB Quang NinhHai Phong va dugc chinh quyen hai dia phuong ky cam kit thyc hien Dy an IMOLA/FAO dac biet quan tam den quan ly cac boat dong thuy san tren dam pha Tam Giang - Cau Hai, Ben canh nhung kit qua tiep can khai dau dang ghi nhan, sy nghiep QLTHVBB a Viet Nam ciing bgc 16 nhiiu tin tai, kh6 khan va phai duong dau voi nhiing thach thiic to Ion IV NHLTNG V A N D E CO BAN VE QLTHVBB VIET NAM Tu nhan thiic va thyc tiin qua cac nghien cim va boat dong trien khai, co the nit mot s6 van de co ban ve QLTHVBB a nuoc ta Dinh huong Muc tieu QLTHVBB a Viet Nam la xay dyng va thyc hien chuang trinh bao g6m cac chu trinh quan ly theo dinh huong phat trien ben viing dieu kien hoi nhap va mo rgng hgp tac Qu6c te, tren ca so sir dung hgp ly va bao ve tai nguyen - m6i truong, bao ton thien nhien va van hoa, ngan ngua va phong tranb thien tai, dung boa cac mau thuan va dam bao Igi ich cong dong Qua trinh QLTHVBB can thyc hien cac chirc nang nhu du bao va ke hoach boa; dieu chinh va b6 sung; t6 chirc, tap hgp va lien ket; tuyen truyen va giao due; giam sat va danh gia Mot m6 hinh khung QLTHVBB cin dugc dinh hinh vi muc dich quan ly; cac buoc mot chu trinh quan ly; chii thi va phuong thirc quan ly; pham vi va d6i tugng quan ly; quy m6 va co che quan ly; khung hanh dong va cac van de quan ly uu tien; tien trinh quan ly [19] QLTHVBB cin dya tren cac nguyen tic chii dao ve tinh kha thi va hieu qua, tinh t6ng hgp - hai boa va viec dam bao Igi ich cho cong ding QLTHVBB can dya tren cac tieu chi nhu: dam bao phat trien ben vung, gop phin thiic diy phat trien kinh te, dam bao bao ve m6i truong, bao ton ty nhien va van hoa, dam bao an ninh qu6c phong; phu hgp va gop phan dieu chinh t6 chiic lanh th6, quy hoach ting thi dia phuong hay viing 86 Co- so- phap ly va y chi chinh tri Viet Nam co moi truong tit cho viec thyc thi QLTHVBB Thi chi dugc Hiin phap nuoc CHXHCN Viet Nam nam 1992 quy dinh phii hgp vai yeu ciu xay dyng ca che QLTHVBB ma chii thi quan ly Nha nuac th6ng qua cac co quan chirc nang voi phuang thiic quan ly thing nhit va tap trung Vai tro lanh dao dat nuoc xuyen su6t cua Dang c6ng san, sy 6n dinh ciia chi chinh tri va chinh quyen rat quan trgng doi voi tinh ben viing ciia qua trinh QLTHVBB can thyc hien thoi gian rat dai theo cac chu trinh n6i tiep Mac du thiiu cac chinh sach, luat dinh cy the, nhung he th6ng van ban phap quy bien co ve tai nguyen, m6i truong va phat trien ben viing h6 trg rat Ion cho hoat dong QLTHVBB [14, 20] Tuy nhien, thyc hien luat phap thiiu nghiem minh va che tai yiu la ban chi rit lan cho QLTHVBB Y chi chinh tri ve phat trien ben vung noi chung va QLTHVBB noi rieng la tich eye Tuy nhien cac cap dia phuang, sy thay d6i chinh quyen qua cac nhiem ky hay cam ket chinh tri yeu tu phia chinh quyen c6 the dan den thieu phan b6 nguon lye va tac dong den tiin trinh QLTHVBB Ngay 9/10/2007, Chinh phii da ban hanh Quyit dinh si I58/2007/QD-TTg phe duyet Chuong trinh quan ly t6ng hgp dai ven bien vung Bac Trung bg va Duyen hai Trung bg den nam 2010 va dinh huong den nam 2020 [2L] Muc tieu t6ng quat ciia chuong trinh la tang cuong nang lye quan ly, bao ve, sir dyng va khai thac tai nguyen, m6i truong, phuc vu phat trien ben vung cac tinh, ph6 tryc thuoc Trung uang viing thong qua ap dung phuong thiic QLTHVBB Muc tieu cu the den nam 2010 la tao hanh lang phap ly, hinh co che, chinh sach va tang cuong nguon lye, co so ky thuat de t6 chiic thyc hien va trien khai QLTHVBB tai tat ca cac tinh, ph6 tryc thuoc Trung uong viing Tuy chuong trinh it nhieu han che ve tinh khach quan chua co dugc ch6 dya nen tang ciia chien luge Qu6c gia hay chien luge viing ve QLTHVBB Mat khac, dai ven bo bien Bac Trung bg va Duyen hai Trung bg chua ban la viing yeu cau cap bach nhat ve QLTHVBB xet duoi goc tac dong nhan sinh Nhung quyet dinh da the hien ro y chi chinh tri ciia Chinh phu d6i vai van de Nhung kinh nghiem quan ly nen kinh te tap trung truoc day, c6 gia tri tham khao doi voi quan ly tap trung bao ve tai nguyen va m6i truong cua tien trinh QLTHVBB D6ng thai, nhirng kinh nghiem quan ly phat trien nen kinh te thi truong nhieu phan dinh huong XHCN bien ciing se b6 sung nhung kinh nghiem quy bau, tranb nhung quan lieu de co tir co che quan ly hanh chinh tap trung Nhan thirc va nhu cau thong tin Nhan thiic dung vi vai tro, sy cin thiit va each thiic tiin hanh ciia QLTHVBB oin phai bien va quan triet cac cap quan ly truoc nang cao cho cong ding CJin 87 tranh each nghi cho rang QLTHVBB la c6ng viec ciia cac nha nghien ciiu, quan / viing ba va bien la c6ng viec cai quan ciia cac cap chinh quyin QLTHVBB khong phai chi t6n tai th6ng qua dy an, ma cac dya an chi la sy khoi dau mang tinh trinh dien va thir nghiem, de boat dong QLTHVBB di vao khung on dinh se dugc chuyen giao cho co quan quan ly co chirc nang chuyen trach de tri thuong xuyen Nhan thiic va hieu biet ve kinh nghiem thyc tien QLTHVBB o Viet Nam van ban chi, tham chi mot so khai niem chua ro, co the din den hanh d6ng thieu chuan xac Vi du, mot bg phan tham gia quan trgng vao qua trinh QLTHVBB la ''cdc ben co lai ich " (stakeholders) thuong hieu lam la "nhirng nguai co liin quan" Mot s6 van de ve ly luan chua dugc lam sang to, dac biet la tinh phii hgp giiia co cau to chiic QLTHVBB voi the chi cua nuoc ta Sy tiep thu thieu lya chgn ly luan chung va kinh nghiem cua cac nuoc CO the chi xa hoi khac co the dan den cac boat dong QLTHVBB mang tinh hinh thirc va giao diiu Vi du, mot chu trinh QLTHVBB ciia PEMSEA gom sau buac, nhung buoc diu tien "chudn bi" kh6 co the coi la thoi khoang thyc hien mot dy an QLTHVBB dieu kien Viet Nam Nhan thirc ve vai tro quan ly Nha nuac va the thiic quan ly tap trung da co dinh huong dung, nhung chua dugc the hien n6i bat nhung dac thii ciia Viet Nam, co le chiu anh huong nhieu cua tu van Qu6c te cac dy an diem Dac diem thyc tien ciia cac dia phuong da dugc chii y, nhung sy lya chgn uu tien cac boat dong ciia dy an mang tinh ca biet, lam giam di tinh chat da nang ciia mot dy an quan ly t6ng hgp De phuc vu cho viec xac dinh khung hanh dong, ke hoach hay chien luge QLTHVBB, lya chgn cac boat dong uu tien, viec lap ho so m6i truong la buoc quan trgng dau tien, can den he thong th6ng tin, tu lieu day du va toan dien Tuy nhien, nhiing khoang tr6ng th6ng tin la van de Ion tai lieu dieu tra co ban va quan trac ve tai nguyen, m6i truong viing bo bien thuang thieu d6ng bg, thieu tin cay va tinh khach quan Viec b6 sung nhiing tu lieu can thiet cho cac khoang tr6ng thong tin quan trgng voi thai khoang ngan khuon kh6 m6t dy an kho co the dap ling Xac dinh pham vi va doi tirong Pham vi QLTHVBB o Viet Nam van la mot chii de can phai thao luan va lam ro Pham vi khong gian quan ly dugc xac djnh theo ranh gioi ty nhien hay hanh chinh? Sy khong phii hgp giiia hai loai ranh gioi nhieu gay liing tiing cho lya chgn kh6ng gian quan ly Ciing kh6ng nen qua le thuoc vao pham vi ty nhien ma dieu quan trgng la xac dinh dugc khong gian nao can quan ly tong hgp va mo rgng den dau de co tinh kha thi va thu hep den dau khoi pha va tinh hoan chinh ciia mot thyc the ty nhien ven ba Viec chgn ranh gioi phia biin, tai sau 30 m hay 50 m theo vung, khong qua phiic tap nhu 88 ranh gioi phia luc dia Co le, pham vi QLTHVBB quy m6 hi cip tinh tro len co sy d6ng thuan cao la chgn theo cac huyen ven biin, dii m6t s6 huyen co phin dien tich rgng thuoc ve d6ng bing hay miin mii Tuy nhien, tai m6t s6 ph6 Ion ven bien, vi du nhu Hai Phong, cac quan sat biin dien tich nho nhung deu d6ng dan va boat dong kinh te s6i dong va nhieu quan sat ki phia sau vin mang dam ban chat ven bo bien ve ca ty nhien va kinh te - xa hoi, ciing cin dugc dua vao pham vi khong gian QLTHVBB Hien dang co xu thi lay quy m6 QLTHVBB cap tinh lam quy mo co ban Co le la mot lya chgn diing dan vai dieu kien hau bet cac quan, huyen sat bien ciia 28 tinh, ph6 tryc thuoc Trung uong ven bien c6 quy m6 dien tich va dan so vira phai Tuy nhien, kh6ng it truong hgp, m6 hinh kh6ng phai khong c6 nhiing bit cap Nhieu tinh ven bien o Bac bg va Nam bg chung cac cira song lan va thang nen phan nira cira song thuoc tinh c6 noi dung, tien QLTHVBB khac voi phin nira lai ciia tinh kia, hoac tham chi phan nira dugc QLTHVBB phin nua thi kh6ng Tinh trang tuong tu ciing co the xay giiia cac tinh chung mot thyc the ty nhien nhu mot ban dao (vi dy Da Nang va Thira Thien - Hue co chung ban dao Hai Van); hay m6t vinh bien (vi dy, Quang Ninh va Hai Phong deu c6 khong gian bo ciia vinh Ha Long) Vi vay, QLTHVBB theo dan vi hanh chinh cap tinh co le kh6ng nen la m6 hinh nhat, ma co the b6 sung nhiing m6 hinh theo don vi hanh chinh cip duoi tinh Dac biet, cin c6 ca mo hinh QLTHVBB theo cac thyc the tu nhien nhu m6t vinh bien, mot viing cira song Ion hay mot hai dao de khac phuc nhiing ban che m6 hinh don vi hanh chinh cap tinh va the hien tinh nang dong, sang tao va tinh da dang, mien la tuan thii dung cac nguyen tac chung va dap ling myc tieu cua QLTHVBB Mat khac, o Viet Nam dang hinh cac viing phat trien kinh te - xa hoi ven bien nhu: ven bien Bac bg, ven bien Bac Trung bg, ven bien Nam Trung bg va ven bien Nam bg Ngay 10 /7/2008, Thii tuong Chinh phii da Quyet dinh s6 865/QD-TTg ve viec phe duyet quy hoach xay dyng vung Duyen hai Bic bg din nam 2025 va tam nhin den nam 2050 Tinh thong nhat va hoan chinh ciia mot viing ven ba bien ve dieu kien ty nhien va kinh te - xa hoi dat nhiing van de chung ve QLTHVBB ciia mot m6 hinh cap vimg M6 hinh cap vung co le can dugc coi la mot dac thii rieng cua Viet Nam tao nen mot he th6ng QLTHVBB cap Qu6e gia, cip vimg va cip dia phuong (tinh, tryc thuoc Trung uong va cac don vi hanh chinh cip duoi tinh) Tuy nhien, ve ca cau t6 chiic, khung hanh dong, chien luge va ke hoach hanh d6ng giiia cac cap vua can c6 sy th6ng nhat, vira can co sy phan dinh rach roi ve chiic nang va nhiem vu Malaysia ciing c6 mo hinh QLTHVBB cap bang, mac du cac bang khong co quy m6 lan bang viing ciia Viet Nam Dii tugng QLTHVBB Viet Nam cung la vin di cin dugc lam ro them Tai nguyen va m6i truong chac chin la dii tugng chu chit ciia QLTHVBB va la trach nhiem 89 quan ly va bao ve ciia Nha nuoc, vi cac c6ng ty dau tu, cac nganh va cac ti chirc, ca n i trong nen kinh te thi truong vi Igi ich ciia rieng minh kh6 c6 thi co nhiing quan tam thich dang toi van de The nhung cac boat dong kinh ti nim pham vi khong gian quan ly ciia boat dong QLTHVBB c6 thuoc ve d6i tugng quan ly ciia qua trinh nay? Chuong trinh QLTHVBB khong lam thay c6ng viec quan ly ciia cac ban, nganh chiic nang khac, ciing nhu kh6ng d6ng vai tro quan ly bao triim len cac boat dong ciia cac chuang trinh kinh ti - xa hoi khac Nhung chac chin, QLTHVBB can quan tam den nhiing boat dong kinh ti - xa hoi gay tac d6ng den tai nguyen va m6i truong hoac chiu tac d6ng ciia qua trinh QLTHVBB, ki ca mat thiic day phat trien hoac ban che phat trien cac boat dong do, thong qua vai tro tham gia va trach nhiem cua cac ben co Igi ich, dac biet la ben CO Igi ich kinh ti Vin di nay, ro rang can tiep tuc dugc b6 sung va lam ro qua cac trai nghiem thyc te voi cac hoan canh cu the Tang cuong to chirc va nang luc Hien nay, diu moi ti chirc QLTHVBB cap Qu6c gia theo chiic nang thuoc vi Tong cue Biin va Hai dao Viet Nam, true thuoc Bg Tai nguyen va M6i truong Day la diem moi vi mat thi chi, nhung giai doan dau se khong thuan Igi vi thieu co che, chinh sach lien nganh di Ting cue Bien va Hai dao Viet Nam ph6i hgp vai cac bg va cac tinh, phi tryc thuoc Trung uong thyc thi QLTHVBB Trung Quic, T6ng Cue Dai duong Quic gia dam trach nhiem vu dau m6i va ciing thuoc mot Bg da nganh true thuoc Qu6c Vy vien Mot nhung dieu kien quyet dinh sy c6ng ciia qua trinh QLTHVBB la t6 chiic bg may boat dong, xay dyng cac nhom chuyen gia, nhom tu van va dao tao nguon nhan lye Sau nhieu nam tiep can, chiing ta gan nhu chua co cac chuyen gia ve QLTHVBB theo dung nghia cua tu Mot nhiing kh6 khan la QLTHVBB can tiep can ve mat phuang phap luan ciia khoa hgc xa hoi, dong thoi lai can sy bieu biet sau sac ve cac d6i tugng quan ly thuoc ve linh vyc khoa hgc ty nhien Cac chuyen gia tu van, cac nha nha khoa hgc tham gia dy an co the tu cac vien nghien ciiu, cac truong dai hgc, tham chi tir cac t6 chiic Qu6c te Tuy nhien, lye lugng dieu hanh quan ly tryc tiep tai cac van phong dy an phai la cac can bg ngu6n dia phuong Hien tai, lye lugng mong ve s6 lugng, ban che ve ly luan quan ly t6ng hgp, chua dii sire tiep thu co lya chgn kinh nghiem tir nuoc ngoai va de xuat, dieu hanh cac boat dong pham vi trach nhiem cua minh D6 la mot thyc ti kho khan can dugc cai thien th6ng qua viec dao tao chuin bi nhan lye truac mit va lau dai ma Nha nuac cin c6 sy quan tam ve tam chien luge vT m6 Xac dinh nguon tai chinh ben vung Khong chi Viet Nam, nhiiu boat dong QLTHVBB a nuoc ngoai chua tro unb 90 qua trinh ty lye thiiu nguin tai chinh diu tu in dinh va roi vao tinh trang hit tai trg la ngimg dy an Vi vay, viec xac dinh nguin tai chinh diu tu ben vung la hit siic quan trgng nham dam bao cho sy tin tai lau dai va boat dong hieu qua ciia mot chuang trinh QLTHVBB Cac nguin tiim nang, truoc het phai la tir ngan sach Nha nuoc, giiip cho tri bg may, dam bao cac hoat dong dinh ky, tuong ty nhu khoan chi dinh miic cho cac don vi sy nghiep nha nuoc hien Thue tai nguyen - m6i truong va phi moi truong can tra ngu6n ho trg chinh va thuong xuyen cho QLTHVBB Kinh phi tir viec thyc hien cac de tai, dy an bao ve tai nguyen va m6i truong pham vi viing quan ly chi dinh hay tuyen chgn theo cac quy dinh hien hanh ciing la nguon b6 sung quan trgng Ngoai ra, c6 cac nguon tai trg Qu6c te va nuoc, d6ng gop ty nguyen ciia cac t6 chiic va ca nhan, Ngoai tao ngu6n ben vung, ciing can xac dinh co che sir dyng tai chinh dau tu phu hgp voi cac boat dong ciia qua trinh QLTHVBB nhim in dinh cac boat dong nhu van hanh bg may quan ly, tri he thong th6ng tin, quan trie va danh gia moi truong, tu van va kien nghi dieu chinh quy hoach, thyc thi cac dy an diu tu bao ve tai nguyen va m6i truong, Ciing can phai c6 co che hinh va boat dong cac quy QLTHVBB lam nen tang cho boat d6ng cac dy an quan trac, nghien ciiu va ling dung trien khai cac van de nam khu6n kh6 QLTHVBB Day chinh la diem khac biet vai sir dung tai chinh cho cac hoat dong quan ly hanh chinh don thuan Dau tu tai chinh ben viing phai gan vai qua trinh t6n tai "ty lye" ciia chuong trinh QLTHVBB Niu nguin tai chinh diu tu kiiu bao cip theo CO che tap trung se phat sinh "quan lieu", kh6ng the dam bao cho qua trinh QLTHVBB ty luc lau dai Nhung neu kh6ng c6 sy h6 trg can ban tir ngan sach, se thiiu nen tang, thieu 6n dinh Vi vay, co che quan ly tai chinh a day theo phuong thiie ciia cac don vi sy nghiep Nha nuoc c6 thu, voi m6 hinh ban ty chii di phat huy nang dong, sang tao ciia d6i ngQ quan ly, chuyen gia va nhan vien he thong t6 chiic quan ly Ciing nen tham khao m6 hinh quan ly tai chinh cua cac to chiic khoa hgc theo Nghi dinh 115 cua Chinh phii ve ty chii, ty chiu trach nhiem boat dong khoa hgc cho cac t6 chiic QLTHVBB Mau thuan loi ich, su tham gia ciia cong dong va cac ben co loi ich Trong cac dy an QLTHVBB a Viet Nam, mau thuin Igi ich la vin di ti nhi va thuang bj ne tranh Kh6ng the phat trien da nganh, da Igi ich, da myc tieu niu kh6ng doi mat de giai quyet van de mau thuan Igi ich Cac mau thuan Igi ich viing bo bien thuong xuat hien tranh chap khong gian, tranh chip tai nguyen va'tac dong tieu eye din m6i truong lam anh huong den nh6m Igi ich khac Cac hinh thiic mau thuin c6 thi xuit hien giiia hai hay nhiiu ITnh vyc (du lich - nghi ca - giao th6ng) theo mot chiiu hoac da chiiu, CO thi noi bg mot nganh (nuoi fring va danh bit thuy san), giira ca nhan va cong 91 d6ng, giira bao ton ty nhien va phat trien kinh ti Mau thuin co thi xuit hien kbi co c ^ dinh gia tri sir dung true tiep hay gian tiep hoac quyit dinh cac gia tri phi sir dun^ ciia ciing mot loai tai nguyen Tuy nhien, dang ngai hon ca chinh la mau thuan giiia cac don vi tham gia QLTHVBB co the xuat hien dan den sy ran niit cua chuong trinh Kh6ng thi thyc hien c6ng QLTHVBB huong tai phat triin bin viing Igi ich cong ding khong dugc dam bao Do la nhung Igi ich khong chi vi vat chat, ma ve siic khoe va van hoa - tinh than M6 hinh QLTHVBB phai huong toi Igi ich cong dong va gop phin xoa giam doi ngheo QLTHVBB phai chu y den cac van de bao ve va tri tai nguyen truyin thing, cai thien sinh ke, tao viec lam mai, giii gin chat lugng m6i truong sing, ton trgng tam linh va giu gin cac di san van boa Muon dam bao dugc Igi ich chinh dang va sy ding thuan ciia cong dong thi qua trinh QLTHVBB can phai c6 sy tham gia cua hg QLTHVBB a Viet Nam can tranh hai xu huong thai qua Xu huong thii nhat dieu hanh quan ly (management) viing bo bien giong nhu cai quan (governance), tuyet d6i boa he thing luat dinh va cac bien phap che tai ma coi nhe giao dye, tuyen truyen, nang cao y thiic tham gia "ty giac" cua c6ng dong va cac ben c6 Igi ich Xu huong thii hai la QLTHVBB kiiu "phong trao" de cap den sy tham gia ciia cong d6ng, nhieu roi vao tinh trang quan ly phi tap trung nhu "quan ly dya vao cong d6ng" ma coi nhe vai tro quan ly Nha nuoc Thyc ra, quan ly dya vao cong d6ng thuang cac to phi chinh phii diing dam trach co mot vai tro nhat dinh o nhiing quy m6 va thai diem thich hgp, c6 the c6 nhiing dong gop nhat dinh nhung khong the thay the vai tro quan ly tap trung cua Nha nuoc tien trinh QLTHVBB Sy tham gia ciia cac ben co Igi ich vao boat dong QLTHVBB o nuoc ta chua dugc xac dinh ro rang Cong dong la mot bg phan d6ng dao c6 Igi ich rgng ve ca vat chat lan tinh than lien quan den chuong trinh QLTHVBB va sy tham gia cua hg lu6n dugc de cao Tuy nhien, cac ben c6 Igi ich khac, dac biet la cac ben co Igi ich ve kinh te, dai dien la cac cong ty, cac doanh nghiep Nha nuac hoac tu nhan, cac tap doan kinh te va cac dy an dau tu phat trien la cac ben tham gia quan trgng can dugc xac dinh ro ca che tham gia, trach nhiem chia se va phai dugc coi la mot ngu6n luc dong gop quan trgng, tham van y kien, chap hanh cac che tai va ca quyen dugc huong cac Igi ich QLTHVBB mang lai V KET LUAN QLTHVBB la mot dinh huong diing din co tinh kha thi di huong toi phat triin bin viing Do hoan canh kinh ti - xa hoi, co nhiing sy khac biet nhat dinh viec ap dung mo hinh QLTHVBB cac nuoc khac nhau, dac biet a cac nuoc phat trien va dan ibat triin Mac dii da c6 nhiing m6 hinh c6ng a mot s6 nuoc hoac mot so noi, ung 92 nhiiu boat dong QLTHVBB chua dat dugc hieu qua cao va chua tro mot qua trinh "ty lye" Nhiing bai hgc QLTHVBB a cac nuac rit co y nghia d6i vai viec lya chgn m6 hinh QLTHVBB cho Viet Nam - mot nuac ma the che xa hoi co rat nhieu thuan Igi cho phuong thiic quan ly Ben canh nhiing kit qua buoc dau, sy nghiep QLTHVBB dang phai doi mat vai nhiing van di can giai quyet ve co so ly luan, ca che, nang lye va phuong phap, Ngoai m6 hinh cap tinh, can xay dung mot so mo hinh khac, co mo hinh cap viing hay m6 hinh theo dia he ty nhien Di dam bao QLTHVBB tro qua trinh ty lye, can phai xac dinh dugc co che dau tu tai chinh ben viing va kh6ng ne tranh giai quyit mau thuan QLTHVBB phai huong toi Igi ich, sy tham gia cong ding va cac ben co Igi ich, g6p phin xoa giam doi ngheo Cin tranh hai xu huong thai qua QLTHVBB: theo kieu cai quan, tuyet doi hoa luat phap va che tai; hoac theo kieu "phong trao" voi sy tham gia ciia cong dong chi la hinh thiic va vai tro quan ly Nha nuoc bi xem nhe Tir nhan thiic den thyc hanh bieu qua la ca mot chang duong kho khan, cin din y chi chinh tri cua cac cap chinh quyen tu Trung uong den dia phuang, cin mot co so ly luan viing chac nhung co sy ap dung sang tao diiu kien thyc tien Viet Nam TAI LIEU THAM KHAO Nguyen Tac An (chii bien), 2003 Hgp tac nghien ciiu xay dyng phuong an quan ly t6ng hgp dai ven bo khu vyc Nam Trung Bg Viet Nam voi diim nghien ciiu trinh diin: viing ven bo bien tinh Binh Dinh Bao cao nhiem vu Nghi dinh thu Viet Nam An Do Luu trii tai Vien Hai duong hgc Chia Lin Cien, 1992 Singapore urban coastal area: Strategies for management ICLARM Tech Rep.31 99p Chua T.E and others, 1996 Coastal environmental profile of the Batangas bay region GEP/UNDP/IMO Regional Programme for the Prevention and Management of Marine Pollution in the East Asian Seas Chua T.E., 2001 An analysis of the aphcation of integrated coastal management linking local and global environment concerns www.coastman.net.co/publicaciones/mizc/ (0079).pdf Clark, J.R., 1996 Coastal zone management handbook Lewis Publishers, 694 ps Nguyen Hiru Cir, 2005 Quan ly ting hgp viing bo biin Viet Nam Ky yiu Hoi nghi 93 .' Khoa bgc ky niem 30 nam Vien Khoa hgc va Cong nghe Viet Nam, quyin III, t 245 - 256 Dy an ICZM Viet Nam - Ha Lan Delft Hydraunics Vietnam - Netherland integrated coastal zone management project Project description, wwwldelft.nl European Commission, 1999 Towards a European integrated coastal zone management (ICZM) strategy - General principles and policy options - EU demonstration programme on integrated management in coastal zones 1997 - 1999 10 Hans Ackefors, Kjell Grip, 1995 The Swedish model for coastal zone management Swedish Envhonmental Protection Agency Priting Gotab Stockholm 83p 11 Hendra Yusran Siry, 2006 Decentralized coastal zone management in Malaysia and Indonesia: A Comparative perspective Coastal mangement, 34, 267 - 285 Taylor and & Francis Group.LLC 12 Nguyin Chu Hoi, Nguyen Hiin Cu, Lang Van Ken, 2000 Nghien ciiu xay dyng phuong an QLTHVBB Viet Nam, gop phan dam bao an toan moi truong va phat triin bin viing Bao cao ting kit di tai cip Nha nuoc KHCN.06-07 (1996-1999) Luu tai Bg Khoa hgc va C6ng nghe 13 Nguyen Chu Hoi (chu bien), 2005 Quy hoach va lap ki hoach quan ly ting hgp viing bo vinh Ha Long, Quang Ninh Bao cao t6ng ket nhiem vu hgp tac Quic ti Viet Nam - Hoa Ky theo Nghi dinh thu Luu tai B6 Khoa hgc va C6ng nghe 14 Huming Yu and Nancy A Bermas, 2009 Intergrated coastal management: PEMSEA'S practices and lessons learned, www2.unitar.org/hiroshima 15 Nguyin Thj Nhu- Mai, 2007 Chinh sach, phap luat biin Viet Nam: thyc trang va giai phap Bao cao thuoc nhiem vu: "Hoan thien va ti chiic thyc bien ki hoach thyc hien chiin luge phat triin bin vung cac biin D6ng A (Ki hoach 2006)", luu trii tai Cue Bao ve Moi truong Ha Noi 69 trang 16 Maren Lau, 2005 Integrated coastal zone management in the People's Republic of China - An assessment of structural impacts on decision-making processes No FNU-28, Working Papers from Research uiiit Sustainability and Global Change, Hamburg University www.uni-hamburg.de/Wiss/FB/15/Sustainability 17 Olsen S.B., Lowry K and Tobey J., 1999 A manual for assessing progress in coastal management Coastal management report #2211 The University of Rhode Island Coastal Resources Center, Graduate School of Oceanography, Narragansett, RI 02882 USA 61p 94 Vguyin Ngoc Sinh, Hwa Chiin ThSng, Nguyen Hun Cir va nnk., 2003 Quan ly 'g hgp dai bo - kinh nghiem thuc ti a Viet Nam NXB Lao dong Ha Noi 19 .n Dire Thanh, 2007 Phat triin bin viing vimg biin Viet Nam, Hoat dong Khoa hgc So574,tr.l3-14val8 20 Tran Dire Thanh, 2009 Nhiing van de uu tien d6i vai quan ly t6ng hgp dai ven ba tay vinh Bic bg Tap chi Khoa hgc & C6ng nghe biin 4(T.9), 127 - 146 21 Hira Chiin Thang, 2007 Dinh huong va ke hoach xay dyng chien luge phat trien ben vung bien Viet Nam Bao cao thuoc nhiem vu: "Hoan thien va t i chiic thyc hien ke hoach thyc hien chien luge phat trien bin viing cac biin D6ng A (Ki hoach 2006)", luu trii tai Cue Bao ve M6i truong Ha Noi 56 trang 22 Thu tuong Chinh phu, 2007 Quyit dinh so 158/2007/QD-TTg: Phe duyet Chuang trinh quan ly t6ng hgp dai ven bien viing Bic Trung bg va Duyen hai Trung bg din nam 2010 va dinh huong din nam 2020 23 UNEP, 1996 Guidelines for integrated planning and management of coastal and marine areas in the Wider Caribean Region, UNEP Caribean Envirormient programme, Kingston, Jamaica 24 UNCED, 1992 Agenda 21, The Rio Declaration on Environment and Development Rio de Janeiro, Brazil 25 UNESCO, 1994 Excutive summary Intemational workshop on integrated coastal zone management (ICZM) IOC Workshop Report No 114: 66p Karachi, Pakistan I0-14Oct.I994 SOME PRINCIPAL ISSUES ON INTEGRATED COASTAL ZONE MANAGEMENT IN VIET NAM TRAN DUC THANH t Summary: The integrated coastal zone management (ICZM) is the latest paradigm in concept of managing coastal areas, and approaching the balance on purposes of environment, society and economy in conformity with natural proccess It is a state function with the manner of united and centralized management, and linked from central to local levels Having the certain achievements, however, many efforts for ICZM have been still not sustainable yet that the most important reasons are concerned the lack of political will and weakness of just the centralized administrative management 95