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Tæ c«ng t¸c Liªn ngµnh CPRGS, Ng©n hµng Ph¸t triÓn Ch©u ¸ (ADB), Tæ chøc Hîp t¸c Kü thuËt §øc (GTZ),Quü Nhi §ång Liªn hiÖp quèc (UNICEF)vµ Së KÕ ho¹ch vµ §Çu t c¸c tØnh T©y Nguyªn

§¸nh gi¸ chung cña:

Hµ Néi, th¸ng 4 n¨m 2005

Lång ghÐp ChiÕn lîc Toµn diÖn vÒ T¨ng trëngvµ Xo¸ ®ãi Gi¶m nghÌo (CPRGS) vµo c«ng t¸c lËp kÕ ho¹ch

Bµi häc kinh nghiÖmcña c¸c tØnh t©y nguyªn, ViÖt nam


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Lêi giíi thiÖu

Tµi liÖu: “Lång ghÐp ChiÕn lîc Toµn diÖn vÒ T¨ng trëng vµ Xo¸ ®ãi Gi¶m nghÌo (CPRGS) vµoc«ng t¸c lËp kÕ ho¹ch – Bµi häc kinh nghiÖm cña çc tØnh T©y Nguyªn, ViÖt Nam” tr×nh bµy tãm t¾ttæng quan vÒ çc kinh nghiÖm còng nh lµ çc bµi häc trong qu¸ tr×nh lång ghÐp ChiÕn lîc toµn diÖn vÒT¨ng trëng vµ Xo¸ ®ãi Gi¶m nghÌo (CPRGS) vµo kÕ ho¹ch ph¸t triÓn kinh tÕ - x· héi cña ®Þa ph¬ng (KHPT KT-XH) t¹i bèn tØnh T©y Nguyªn (§¾c L¾c, §¾c N«ng, Gia Lai vµ Kon Tum). Víi hç trî kü thuËt cña çcnhµ tµi trî (Ng©n hµng Ph¸t TriÓn Ch©u ¸, Tæ chøc Hîp t¸c kü thuËt §øc (GTZ), Quü Nhi ®ång Liªn hiÖpquèc (UNICEF) vµ Bé KÕ ho¹ch vµ §Çu t) trong n¨m 2004, çc tØnh trªn ®· nhËn ®îc çc tËp huÊn n©ngcao n¨ng lùc vµ híng dÉn lËp kÕ ho¹ch thu ®îc nh÷ng kinh nghiÖm còng nh lµ ®· rót ra ®îc nh÷ngbµi häc cã gi¸ trÞ trong c«ng t¸c lËp kÕ ho¹ch cña tØnh m×nh khi tiÕn hµnh lång ghÐp CPRGS vµo KH PTKT-XH. Tµi liÖu nµy ®· m¹nh d¹n ®a ra mét sè kiÕn nghÞ ban ®Çu ®èi víi qu¸ tr×nh ®æi míi kÕ ho¹ch ho¸t¹i ViÖt Nam trong t¬ng lai.

T¸c gi¶ cña bµi viÕt nµy lµ nhãm chuyªn gia: t¸c gi¶ chÝnh lµ bµ Ng« ThÞ Minh H¬ng, Chuyªn giaGi¶m nghÌo (ADB-TA4252) víi sù ®ãng gãp cña bµ Vò ThÞ TuyÕt Mai (Khoa KÕ ho¹ch,Trêng §¹i häc KinhtÕ quèc d©n) vµ çc ®ãng gãp quÝ b¸u cña chuyªn gia vÒ hîp t¸c ph¸t triÓn: Ts. Ramesh Adhikari, sù trîgióp to lín cña ¤ng Lan Green (t vÊn, dù ¸n ADB -TA4163) vµ Bµ Vò Xu©n §µo (t vÊn, dù ¸n ADB -TA4163); vµ ¤ng Dan Seymour, Bµ Lisa Ng Bow vµ ¤ng NguyÔn Träng Quang (UNICEF). Nhãm t¸c gi¶tõ çc tæ chøc trªn xin ®Æc biÖt c¶m ¬n Ts. Cao ViÕt Sinh, ¤ng Ph¹m H¶i vµ Tæ c«ng t¸c liªn ngµnhCPRGS, Bµ NguyÔn ThÞ Thu Hµ, ¤ng TrÇn Quèc Ph¬ng (Ban th ký CPRGS) vµ çc ®ång nghiÖp kh¸ct¹i Bé KÕ ho¹ch vµ §Çu t, ®Æc biÖt lµ sù hîp t¸c cña çc ®Þa ph¬ng vïng T©y Nguyªn trong qu¸ tr×nhx©y dùng tµi liÖu nµy vµ trong c«ng t¸c triÓn khai CPRGS t¹i ®Þa ph¬ng.


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Lêi nãi ®Çu

T¨ng trëng vµ gi¶m nghÌo lµ môc tiªu xuyªn suèt trong çc KÕ ho¹ch ph¸t triÓn kinh tÕ - x· héi c¶ níc, còngnh cña tõng Bé, ngµnh, ®Þa ph¬ng. ChØ thÞ sè 33/2004/CT-TTg cña Thñ tíng ChÝnh phñ vÒ x©y dùng kÕ ho¹chph¸t triÓn kinh tÕ - x· héi 5 n¨m 2006-2010 ®· nhÊn m¹nh yªu cÇu ph¶i ®æi míi c«ng t¸c x©y dùng kÕ ho¹ch ®Ó phïhîp t×nh h×nh hiÖn nay, ®Æt lªn hµng ®Çu vÒ chÊt lîng ph¸t triÓn, ®Èy m¹nh xãa ®ãi gi¶m nghÌo, n©ng cao møc sèngvËt chÊt vµ tinh thÇn cña nh©n d©n.

Qu¸ tr×nh triÓn khai vµ thùc hiÖn ChiÕn lîc toµn diÖn vÒ T¨ng trëng vµ Xãa ®ãi Gi¶m nghÌo (CPRGS) ë çcBé, ngµnh vµ ®Þa ph¬ng ®· rót ra ®îc nhiÒu bµi häc kinh nghiÖm quý b¸u ®Ó tõng bíc n©ng cao chÊt lîng kÕho¹ch ph¸t triÓn kinh tÕ - x· héi. Tµi liÖu “Lång ghÐp ChiÕn lîc Toµn diÖn vÒ T¨ng trëng vµ Xo¸ ®ãi Gi¶mnghÌo (CPRGS) vµo c«ng t¸c lËp kÕ ho¹ch – Bµi häc kinh nghiÖm cña çc tØnh T©y Nguyªn, ViÖt Nam" doNg©n hµng Ph¸t triÓn Ch©u ¸ (ADB), Tæ chøc Hîp t¸c kü thuËt §øc (GTZ) vµ Quü nhi ®ång liªn hiÖp quèc (UNICEF)phèi hîp víi Tæ c«ng t¸c liªn ngµnh CPRGS vµ Së KÕ ho¹ch vµ §Çu t çc tØnh T©y Nguyªn biªn so¹n, víi hy vänghç trî çc ®Þa ph¬ng cña T©y Nguyªn n©ng cao chÊt lîng kÕ ho¹ch. Nh÷ng kÕt qu¶ ®¹t ®îc, nh÷ng bµi häc kinhnghiÖm vµ nh÷ng kiÕn nghÞ cô thÓ sÏ gióp cho çc tØnh cã ®iÒu kiÖn t¬ng tù nh÷ng ®Þnh híng quan träng trongqu¸ tr×nh x©y dùng kÕ ho¹ch kinh tÕ - x· héi 5 n¨m 2006-2010 vµ kÕ ho¹ch hµng n¨m tiÕp theo.

Nh©n dÞp nµy Tæ C«ng t¸c Liªn ngµnh CPRGS xin c¶m ¬n çc tæ chøc quèc tÕ, çc nhµ tµi trî ®· hç trî cho qu¸tr×nh triÓn khai thùc hiÖn ChiÕn lîc toµn diÖn vÒ T¨ng trëng vµ Xãa ®ãi Gi¶m nghÌo.

Xin tr©n träng giíi thiÖu cïng b¹n ®äc tµi liÖu nµy.

Ts. Cao ViÕt Sinh

Vô trëng,

Tæ trëng Tæ C«ng t¸c liªn ngµnh CPRGS


Lång ghÐp ChiÕn lîc Toµn diÖn vÒ T¨ng trëng vµ Xo¸ ®ãi Gi¶m nghÌo (CPRGS) vµo c«ng t¸c lËp kÕ ho¹ch

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Môc lôc

A. Bèi c¶nh vµ tãm t¾t 5

B. C«ng t¸c X©y dùng vµ lång ghÐp CPRGS t¹i T©y Nguyªn 6

1. Tæng quan 6

2. Çc kinh nghiÖm ë çc tØnh T©y Nguyªn 9

a) §¾c N«ng 9

b) §¾c L¾c 11

c) Gia Lai 13

d) Kon Tum 13

C. Nh÷ng g× cßn tån t¹i? 14

D. Th«ng tin ph¶n håi tõ çc nhµ lµm kÕ ho¹ch trung ¬ng 14 vµ ®Þa ph¬ng vµ çc bªn liªn quan.

E. Bµi häc vµ khuyÕn nghÞ 16

Phô lôc 1: TËp huÊn x©y dùng n¨ng lùc ®Ó lång ghÐp CPRGS trong 20lËp kÕ ho¹ch t¹i tØnh T©y Nguyªn



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Bèi c¶nhChiÕn lîc toµn diÖn vÒ T¨ng trëng vµ Xo¸ ®ãi Gi¶m nghÌo (CPRGS) ®· ®îc ban hµnh tõ th¸ng 5 n¨m 2002. ChÝnh

phñ ®· kh¼ng ®Þnh mong muèn t¨ng cêng chÊt lîng cña kÕ ho¹ch ë tÊt c¶ çc cÊp th«ng qua viÖc ®æi míi vÒ c«ng t¸ckÕ ho¹ch. §iÒu nµy ®Æc biÖt ®ßi hái ph¶i cã (i) sù hµi hoµ gi÷a CPRGS víi kÕ ho¹ch 5 n¨m vµ hµng n¨m; (ii) t¨ng cêngsù phèi hîp vµ hîp t¸c gi÷a ChÝnh phñ ë trung ¬ng nhÊn m¹nh vai trß cña chÝnh quyÒn çc cÊp ë ®Þa ph¬ng; (iii) thÓ chÕho¸ nh÷ng ®æi míi trong c«ng t¸c kÕ ho¹ch vµo hÖ thèng vµ c¬ chÕ cña çc ®Þa ph¬ng víi vai trß lín h¬n cña chÝnh quyÒn®Þa ph¬ng; (iv) t¨ng cêng n¨ng lùc cña çc nhµ ho¹ch ®Þnh chÝnh s¸ch vµ çn bé kÕ ho¹ch ë ®Þa ph¬ng nh»m thùc hiÖnçc néi dung cña CPRGS vµ ChØ thÞ x©y dùng kÕ ho¹ch vµo trong thùc tiÔn; vµ (v) cñng cè quy tr×nh lËp kÕ ho¹ch, thùc hiÖnkÕ ho¹ch vµ gi¸m s¸t kÕ ho¹ch ë cÊp ®Þa ph¬ng.

ViÖc lång ghÐp çc ph¬ng ph¸p tiÕp cËn cña CPRGS vÒ ph©n bæ nguån lùc vµo qu¸ tr×nh ng©n s¸ch ë cÊp tØnh ®îccoi lµ nhiÖm vô khã kh¨n vµ lµ th¸ch thøc ®èi víi viÖc lËp kÕ ho¹ch “tõ trªn xuèng” tõ nhiÒu n¨m nay. Nh×n chung, çc bªn®· nhËn thøc ®îc nh÷ng yªu cÇu cÇn thiÕt cho kÕ ho¹ch 5 n¨m tiÕp theo lµ hÖ thèng kÕ ho¹ch theo1, ®ã lµ: cÇn ph¶i ®æimíi hÖ thèng kÕ ho¹ch truyÒn thèng ®Ó ®¶m b¶o ph¸t triÓn kÕ ho¹ch kinh tÕ - x· héi ®¹t ®îc çc môc tiªu ph¸t triÓn cñaquèc gia. Çc bªn còng ®· nhËn thÊy r»ng, çc ®Þa ph¬ng cßn hiÓu biÕt rÊt Ýt vÒ ph¬ng ph¸p tiÕp cËn CPRGS, kh¶ n¨ngtiÕp nhËn nh÷ng thay ®æi trong quy tr×nh kÕ ho¹ch cña çc ®Þa ph¬ng cßn h¹n chÕ. ViÖc ®æi míi quy tr×nh kÕ ho¹ch cÇnph¶i ®îc tiÕn hµnh hÖ thèng vµ thèng nhÊt, theo kh¶ n¨ng cña çc ®Þa ph¬ng (nhÊt lµ trong ®iÒu kiÖn mét sè ®Þa ph¬ng®· cã sù chuÈn bÞ s½n sµng tríc çc ®Þa ph¬ng kh¸c). N¨ng lùc kiÓm so¸t qu¸ tr×nh thay ®æi trong lËp kÕ ho¹ch cÇn ph¶i®ùîc cñng cè, t¨ng cêng dÇn dÇn, tõng bíc, n¨m nµy qua n¨m kh¸c, theo mét ph¬ng thøc cã hÖ thèng vµ cã thÓ ®olêng ®îc.

Tãm t¾tViÖc lång ghÐp CPRGS vµo kÕ ho¹ch ph¸t triÓn kinh tÕ - x· héi 5 n¨m ®îc coi lµ then chèt ë c¶ trung ¬ng vµ ®Þa

ph¬ng. ViÖc lång ghÐp CPRGS cã çc lîi thÕ lµ: nã ®· ®îc sù khuyÕn khÝch m¹nh mÏ th«ng qua çc cam kÕt mang tÝnhquèc gia ®èi víi c«ng t¸c gi¶m nghÌo, ®¶m b¶o c«ng b»ng x· héi vµ qu¶n lý nhµ níc tèt ë cÊp ®Þa ph¬ng, ®ång thêi x©ydùng ®îc çc khu«n khæ ph¸p lý míi nh»m cñng cè viÖc ph©n cÊp m¹nh h¬n cho ®Þa ph¬ng (nh ChØ thÞ 33/2004/CT-TTg cña Thñ tíng chÝnh phñ ra ngµy 23 th¸ng 9 n¨m 2004, C«ng v¨n sè 2215/BKH-TH ngµy 14/4/2004 cña Bé KH&§TLuËt söa ®æi ng©n s¸ch Nhµ níc, Quy chÕ d©n chñ c¬ së). Nh÷ng lîi thÕ nµy ®· t¹o nÒn t¶ng cho ®êng híng ®æi míic«ng t¸c kÕ ho¹ch ho¸.

C«ng t¸c kÕ ho¹ch ho¸ t¹i çc cÊp ®Þa ph¬ng ®· nhËn ®îc sù hç trî m¹nh mÏ tõ trung ¬ng, çc tæ chøc ph¸t triÓnvµ çc nhµ tµi trî quèc tÕ. Tuy nhiªn, ®èi víi çch lµm cña quy tr×nh x©y dùng kÕ ho¹ch tríc ®©y, nh÷ng th¸ch thøc ®Ætra cho viÖc ®æi míi lµ ph¶i thiÕt lËp çc môc tiªu, ®èi tîng vµ thø tù u tiªn ®óng ®¾n dùa trªn çc tiªu chÝ râ rµng vµ cãsù c©n ®èi vÒ nguån lùc. VÉn cßn nhiÒu ®iÓm yÕu trong c¬ chÕ phèi hîp vµ hîp t¸c gi÷a çc c¬ quan chøc n¨ng víi nhauvµ gi÷a chÝnh quyÒn trung ¬ng víi ®Þa ph¬ng, theo ngµnh däc vµ theo chiÒu ngang vÒ nh÷ng vÊn ®Ò nh ®Çu t, x¸c ®Þnhthø tù u tiªn, lùa chän ch¬ng tr×nh dù ¸n trong ®iÒu kiÖn nguån lùc cã h¹n. Çc h¹n chÕ kh¸c cÇn ph¶i kh¾c phôc lµ: thÓchÕ vµ n¨ng lùc cßn yÕu ë ®Þa ph¬ng2. ThÓ chÕ/n¨ng lùc yÕu ®Æc biÖt ë cÊp x· ®· h¹n chÕ viÖc thùc hiÖn x©y dùng kÕho¹ch vµ ng©n s¸ch theo híng tiÕp cËn “tõ díi lªn” vµ cã sù tham gia cña ngêi d©n.

Tuy nhiªn, nh×n chung c¶ cÊp trung ¬ng, ®Þa ph¬ng vµ çc tæ chøc kh¸c còng nh çc tæ chøc phi ChÝnh phñ trong®· cã nh÷ng cè g¾ng lín trong viÖc ®Èy m¹nh h¬n viÖc x©y dùng kÕ ho¹ch cã sù tham gia cña ngêi d©n. Çc tæ chøc phiChÝnh phñ ë nhiÒu ®Þa ph¬ng ®ãng vai trß hç trî ®Þa ph¬ng gi¶i quyÕt nh÷ng khã kh¨n, víng m¾c nµy. H¬n n÷a, th«ngtin ®Ó c«ng t¸c lËp kÕ ho¹ch híng vÒ ngêi nghÌo, kÓ c¶ nh÷ng th«ng tin vÒ nguån lùc, th«ng tin ®Þnh tÝnh vµ ®Þnh lîngvÒ nghÌo ®ãi vÉn cha ®Çy ®ñ. Ph©n tÝch ®ãi nghÌo cÇn ph¶i ®ñ réng ®Ó híng tíi gi¶i quyÕt nhiÒu mÆt cña vÊn ®Ò nghÌo®ãi, vµ kh«ng chØ ®¬n thuÇn dõng l¹i ë viÖc x¸c ®Þnh sè ngêi nghÌo sèng díi mét ngìng nghÌo cô thÓ nµo ®ã. Trongquy tr×nh x©y dùng kÕ ho¹ch vµ néi dung kÕ ho¹ch cßn tån t¹i mét sè kho¶ng çch nh c«ng t¸c ph©n tÝch çc vÊn ®Ò kinhtÕ, x· héi, ®ãi nghÌo vµ viÖc x¸c ®Þnh mèi quan hÖ gi÷a ®ãi nghÌo, t¨ng trëng vµ c«ng b»ng x· héi cha ®¸p øng ®îcyªu cÇu. Trong quy tr×nh lËp kÕ ho¹ch, còng nh trong viÖc ho¹ch ®Þnh chÝnh s¸ch, vÉn cßn Ýt sù tham vÊn vµ tham gia cñangêi d©n.

ViÖc lång ghÐp CPRGS vµo quy tr×nh lËp kÕ ho¹ch ë çc tØnh T©y Nguyªn ®· ®¹t ®îc nh÷ng thµnh c«ng nhÊt®Þnh. (i) §· t¨ng cêng sù phèi hîp vµ hîp t¸c gi÷a ChÝnh phñ ë trung ¬ng vµ chÝnh quyÒn çc cÊp ë ®Þa ph¬ng; (ii) KÕho¹ch ph¸t triÓn kinh tÕ - x· héi ë ®Þa ph¬ng ®· ®Ò cËp nhiÒu h¬n çc vÊn ®Ò x· héi vµ xo¸ ®ãi gi¶m nghÌo (iii) ViÖc ¸pdông çch tiÕp cËn “tõ díi lªn” hay lµ “kÕt hîp tõ díi lªn vµ trªn xuèng” ®· ®îc ®¸nh gi¸ cao víi sù tham gia cña ngêid©n trong viÖc ®ãng gãp ý kiÕn, s¾p xÕp thø tù u tiªn vµ trong viÖc ra quyÕt ®Þnh çc vÊn ®Ò cña céng ®ång. Nh÷ng hç trîkü thuËt cho çc ®Þa ph¬ng ®· cñng cè n¨ng lùc cña çc çn bé lµm kÕ ho¹ch còng nh çc cÊp l·nh ®¹o trong c«ng t¸c

1 KÕt qu¶ th¶o luËn trong buæi PTF ngµy 14/10/20042 B¸o ço cuèi cïng TA-4163 cña ADB.

A. Bèi c¶nh vµ tãm t¾t



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lËp kÕ ho¹ch, qua ®ã lµm t¨ng chÊt lîng kÕ ho¹ch ph¸t triÓn kinh tÕ - x· héi 5 n¨m vµ hµng n¨m. §Æc biÖt lµ, trung ¬ngvµ ®Þa ph¬ng ®· t×m ra mét quy tr×nh cã ý nghÜa ®èi víi sù thay ®æi theo híng tÝch cùc ®Ó cã thÓ gi¶i quyÕt ®îc çc vÊn®Ò ph¸t triÓn cña vïng T©y Nguyªn: nh lµ nghÌo kinh niªn, ph©n bæ vµ sö dông ®Êt cha hîp lý vµ çc vÊn ®Ò di d©n, lùclîng lao ®éng kh«ng cã tay nghÒ, çc vÊn ®Ò vÒ d©n téc thiÓu sè, thiÕu sù tham gia, kho¶ng çch gi÷a çc khu vùc. ViÖcc¶i çch thÓ chÕ còng nh ®æi míi c«ng t¸c kÕ ho¹ch sÏ gióp gi¶i quyÕt çc kho¶ng çch ph¸t triÓn cña vïng.

Çc bµi häc kinh nghiÖm vµ çc khuyÕn nghÞ cho viÖc lång ghÐp CPRGS trong viÖc x©y dùng KH PT KT-XH trong tµiliÖu nµy cã thÓ ®îc chia lµm n¨m lÜnh vùc chÝnh: 1) çc vÊn ®Ò vÒ c¬ cÊu vµ thÓ chÕ; 2) x©y dùng n¨ng lùc ; 3) néi dungcña KH PT KT-XH ; 4) quy tr×nh x©y dùng KH PT KT-XH; 5) gi¸m s¸t ®¸nh gi¸ KH PT KT-XH

Ø Çc vÊn ®Ò vÒ thÓ chÕ lµ: i) cÇn t¨ng cêng hîp t¸c gi÷a ChÝnh phñ vµ çc nhµ tµi trî; (ii) thiÕu mét c¬ chÕ hîp t¸cgi÷a çc ngµnh theo chiÒu däc vµ chiÒu ngang, gi÷a cÊp T¦ vµ ®Þa ph¬ng trong qu¸ tr×nh triÓn khai lång ghÐpCPRGS; (iii) thiÕu khung ph¸p lý vµ çc c«ng cô ®Ó lång ghÐp çc néi dung cña CPRGS vµo trong KH PT KT-XHiv) çc ®Þa ph¬ng cÇn ®ång ý mét chiÕn lîc nhiÒu n¨m ®Ó c¶i çch tõng hîp phÇn trong quy tr×nh x©y dùng KHPT KT-XH vµ (v) cÇn ph¶i ®¶m b¶o sù phï hîp vÒ kÕ ho¹ch thêi gian gi÷a cÊp T¦ vµ ®Þa ph¬ng còng nh ®¶mb¶o nguån lùc ®Çy ®ñ cho viÖc x©y dùng kÕ ho¹ch kiÓu míi.

Ø VÒ sù tham gia vµ tÝnh së h÷u, cÇn cã cam kÕt cao vÒ chÝnh trÞ cña cÊp trung ¬ng vµ tÝnh së h÷u tù chñ cña ®Þaph¬ng trong qu¸ tr×nh lËp kÕ ho¹ch KT-XH.

Ø C«ng t¸c x©y dùng n¨ng lùc cÇn ®îc coi lµ träng t©m cña qu¸ tr×nh triÓn khai lång ghÐp CPRGS, ®Ó çc cÊp ®Þaph¬ng cã ®ñ kh¶ n¨ng ®Ó thùc hiÖn tr¸ch nhiÖm ®îc giao mét çch hiÖu qu¶. KhuyÕn nghÞ trong tµi liÖu nµy lµ:(i) cÇn ®¸nh gi¸ nhu cÇu vµ kh¶ n¨ng tiÕp nhËn cña ®Þa ph¬ng; (ii) cñng cè n¨ng lùc cho çn bé c¬ së ®Ó thùc hiÖnçc quy tr×nh lËp kÕ ho¹ch (vÝ dô: thu thËp vµ ph©n tÝch th«ng tin, lËp kÕ ho¹ch cã sù tham gia, liªn kÕt kÕ ho¹ch vµng©n s¸ch, lËp kÕ ho¹ch chiÕn lîc, ph©n tÝch chÝnh s¸ch); vµ (iii) nhu cÇu x©y dùng n¨ng lùc ®Ó ph©n tÝch vµ ®¸nhgi¸ t×nh h×nh yªu cÇu cã sù tham gia hç trî cña çc viÖn nghiªn cøu vµ çc tæ chøc cung cÊp kiÕn thøc kh¸c. Sùhîp t¸c víi çc tæ chøc phi chÝnh phñ rÊt h÷u Ých. Çc ph¬ng ph¸p lËp kÕ ho¹ch tèt nh PPA, PRA, VDP cã thÓ®îc ®iÒu phèi hç trî tèt h¬n víi sù hç trî cña çc tæ chøc phi chÝnh phñ, hoÆc tæ chøc quÇn chóng ë ®Þa ph¬ng.

Ø VÒ Quy tr×nh vµ Néi dung cña KH PT KT-XH: viÖc x©y dùng KH PT KT-XH cã thÓ ®îc cñng cè thªm b»ng çcht¨ng møc ®é tham gia trong qu¸ tr×nh lËp kÕ ho¹ch, ®Æc biÖt sù tham gia cña ngêi nghÌo vµ nhãm dÔ bÞ tæn th¬ng,nh÷ng ngêi d©n vµ çc tæ chøc. Thªm vµo ®ã, cÇn cã sù hîp t¸c trong x©y dùng kÕ ho¹ch (tõ çc cÊp huyÖn, x·,th«n bu«n, çc dù ¸n) lµ cÇn thiÕt. CÇn cã sù c©n ®èi gi÷a t¨ng trëng vµ gi¶m nghÌo còng nh ph¸t triÓn x· héi.Cã thÓ ¸p dông ph¬ng ph¸p lËp kÕ ho¹ch chiÕn lîc cho viÖc x¸c ®Þnh môc tiªu cho KH PT KT-XH n»m trongkhu«n khæ cña Môc tiªu Ph¸t triÓn ViÖt Nam. Trong çc quy tr×nh lËp kÕ ho¹ch còng nh néi dung kÕ ho¹ch, vÉnthiÕu sù tham gia vµ nh÷ng ph©n tÝch vÒ çc vÊn ®Ò x· héi, nghÌo ®ãi vµ nh÷ng vÊn ®Ò ®»ng sau nã (vÝ dô liªn quan®Õn çc nhãm d©n c dÔ bÞ tæn th¬ng nh trÎ em, phô n÷, d©n téc vµ nh÷ng ngêi d©n sèng ë vïng s©u vïng xa).Râ rµng lµ, KH PT KT-XH cÇn ®îc x©y dùng híng vÒ ngêi nghÌo h¬n vµ gi¶i quyÕt ®îc víi nh÷ng th¸ch thøccña nh÷ng nhãm nãi trªn.

Ø C¬ chÕ gi¸m s¸t ®¸nh gi¸ cã sù tham gia vµ c«ng khai lµ rÊt cÇn thiÕt trong KH PT KT-XH híng vÒ ngêi nghÌo,vµ còng lµ ®Ó cã thÓ sö dông nguån lùc mét çch hiÖu qu¶. Cuèi cïng, do ®Æc ®iÓm cña kÕ ho¹ch kiÓu cò ®îc x©ydùng dùa trªn chØ tiªu ®Çu vµo vµ ®Çu ra, còng cÇn thiÕt ph¶i híng KH PT KT-XH kiÓu míi theo çch tiÕp cËn dùavµo kÕt qu¶, cã nghÜa lµ ®Þnh ra nh÷ng môc tiªu vµ kÕt qu¶ ph¸t triÓn, t¸c ®éng ®èi víi mäi ngêi d©n, ®Æc biÖt lµngêi nghÌo vµ ngêi yÕu thÕ.

Nãi tãm l¹i, vÊn ®Ò ®Æt ra kh«ng ph¶i lµ liÖu ChÝnh phñ cã nªn thùc hiÖn lång ghÐp CPRGS vµo kÕ ho¹ch c«ng t¸c lËpkÕ ho¹ch KH PT KT-XH mµ lµ nh thÕ nµo. Tµi liÖu nµy chia sÎ nh÷ng çch thøc mµ trung ¬ng vµ ®Þa ph¬ng vµ çc tæchøc ph¸t triÓn quèc tÕ ®· cïng phèi hîp víi nhau trong qu¸ tr×nh thùc hiÖn triÓn khai c«ng t¸c lång ghÐp CPRGS vµo kÕho¹ch ph¸t triÓn kinh tÕ x· héi t¹i 4 tØnh T©y Nguyªn.

1. Tæng quan: Môc tiªu tæng qu¸t cña viÖc lång ghÐp CPRGS trong kÕ ho¹ch ph¸t triÓn kinh tÕ x· héi t¹i çc ®Þa ph¬ng lµ ®Ó t¨ng

cêng c«ng t¸c kÕ ho¹ch vµ x©y dùng kÕ ho¹ch chÝnh s¸ch híng vÒ ngêi nghÌo vµ tõ ®ã thóc ®Èy t¨ng trëng kinh tÕbÒn v÷ng vµ ®¶m b¶o ®îc c«ng b»ng vµ ph¸t triÓn x· héi. Trong bèi c¶nh nµy, viÖc lång ghÐp CPRGS vµo c«ng t¸c lËpkÕ ho¹ch ph¸t triÓn kinh tÕ - x· héi sÏ lµ cÇu nèi ®Ó thùc hiÖn ChØ thÞ cña Thñ tíng ChÝnh phñ vµ çc yªu cÇu ®æi míi c«ngt¸c kÕ ho¹ch ph¸t triÓn kinh tÕ - x· héi víi çc kÕt qu¶ ph¸t triÓn tèt h¬n. Sù trî gióp trong viÖc lång ghÐp CPRGS sÏ lµmthay ®æi çc çch nghÜ vµ quan niÖm còng nh thãi quen tõ kiÓu x©y dùng kÕ ho¹ch tËp trung sang x©y dùng kÕ ho¹ch cãsù ph©n cÊp h¬n.

§Ó hiÓu vÒ kÕ ho¹ch vµ kÕ ho¹ch hãa, mét sè ®Þnh nghÜa vµ çc lo¹i kÕ ho¹ch ë ViÖt Nam sÏ ®îc tr×nh bµy ë b¶ngdíi ®©y. Çc ®Þnh nghÜa ng¾n gän sÏ gióp çc çn bé lµm kÕ ho¹ch vµ b¹n ®äc cã mét çi nh×n tæng quan vÒ sù ®æi míitrong c«ng t¸c kÕ ho¹ch t¹i ViÖt Nam, cô thÓ lµ nh÷ng g× ®· vµ ®ang diÔn ra t¹i çc tØnh T©y Nguyªn.

B. C«ng t¸c x©y dùng vµ lång ghÐp CPRGS t¹i t©y nguyªn



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Çc ®Þa ph¬ng còng thõa nhËn lµ c«ng t¸c lËp kÕ ho¹ch t¹i çc ®Þa ph¬ng ®ang trong qu¸ tr×nh chuyÓn ®æi s©u s¾c4.B¶ng sè 1 sau ®©y sÏ chØ râ sù ®æi míi cña c«ng t¸c kÕ ho¹ch (sù kÕt hîp tõ díi lªn vµ trªn xuèng) mµ cã thÓ kh¾c phôc®îc nh÷ng h¹n chÕ cña c«ng t¸c lËp kÕ ho¹ch tËp trung tríc ®©y.

Hép 1: KÕ ho¹ch lµ g×?KÕ ho¹ch hãa kinh tÕ vÜ m« ë ViÖt Nam lµ mét hÖ thèng toµn diÖn bao gåm quy ho¹ch tæng thÓ ngµnh, quy ho¹ch vµchiÕn lîc vïng, chiÕn lîc ph¸t triÓn kinh tÕ - x· héi 10 n¨m, kÕ ho¹ch ph¸t triÓn kinh tÕ x· héi 5 n¨m, kÕ ho¹ch hµngn¨m, kÕ ho¹ch hµnh ®éng vµ kiÓm tra gi¸m s¸t3. HiÖn t¹i cã 4 lo¹i kÕ ho¹ch c¬ b¶n:

- KÕ ho¹ch kinh tÕ

- KÕ ho¹ch ph¸t triÓn kinh tÕ - x· héi

- Çc ch¬ng tr×nh ®Çu t vµ ph¸t triÓn céng ®ång

- KÕ ho¹ch ngµnh.

Çc ®Æc tÝnh chung cña hÖ thèng kÕ ho¹ch:- KÕ ho¹ch 5 n¨m (KH PT KT-XH) ®îc x©y dùng dùa trªn chiÕn lîc ph¸t triÓn kinh tÕ - x· héi, chiÕn lîc vïng

vµ ngµnh.

- Môc tiªu cña KH PT KT-XH thêng thÓ hiÖn çc ®Þnh híng cña §¶ng vµ Nhµ níc.

- KÕ ho¹ch 5 n¨m KH PT KT-XH cha ®îc x©y dùng dùa trªn kÕt qu¶ ®Çu ra, mµ chñ yÕu dùa vµo çc b¸ob¸o ®¸nh gi¸ hiÖn tr¹ng mang tÝnh hµnh chÝnh.

- KH PT KT-XH cÊp tØnh lµ mét phÇn trong viÖc ph©n cÊp kÕ ho¹ch, thùc hiÖn, theo dâi vµ gi¸m s¸t.

- Qui tr×nh x©y dùng KH PT KT-XH ®· cã sù tham vÊn vµ tham gia nhiÒu h¬n cña çc bªn liªn quan trong qu¸tr×nh ph¸t triÓn

3 TrÝch dÉn tõ tµi liÖu båi dìng tiÒn c«ng chøc cña Bé KÕ ho¹ch vµ §Çu t do TiÕn sü Cao ViÕt Sinh biªn so¹n 20044 Theo kû yÕu cuéc häp “Nhãm hµnh ®éng chèng ®ãi nghÌo” vÒ tiÕn ®é lång ghÐp triÓn khai CPRGS, th¸ng 10 n¨m 20045 TrÝch b¸o ço ADB, TA4163 & TA4252, 2004

Qui tr×nh lËp kÕho¹ch ph¸t triÓn

®Þa ph¬ng

ChuyÓn ®æi tõ Sang

Qui tr×nh chung o Lµ mét qui tr×nh tõ trªn xuèng vµ kh«ngcã hoÆc cã Ýt sù chñ ®éng cña chÝnhquyÒn ®Þa ph¬ng vµo qui tr×nh lËp kÕho¹ch vµ çc quyÕt ®Þnh ®Çu t cã rÊtÝt sù tham gia cña ngêi d©n

o Qui tr×nh phèi hîp tõ díi lªn vµ trªnxuèng ®îc dùa trªn sù tham gia vµoph©n tÝch çc vÊn ®Ò vµ chuÈn bÞ kÕho¹ch

ViÖc ph©n tÝch vÊn ®Ò vµ®a ra ph¬ng ¸n lùachän dùa vµo hiÖn tr¹ng®Æc biÖt lµ ®Æc ®iÓmnghÌo vµ tiÒm n¨ng ph¸ttriÓn kinh tÕ

o Çc b¶n b¸o ço cña cÊp díi lµnguån th«ng tin chÝnh

o H¹n chÕ trong viÖc hiÓu vÒ nghÌo (vÝdô: chØ dùa vµo duy nhÊt thu nhËp)

o Ph©n tÝch tiÒm n¨ng t¨ng trëng kinh tÕ

o Sö dông çc nguån th«ng tin ®a d¹ngvÝ dô: Ph©n tÝch nghÌo cã sù tham gia(PPA), §iÒu tra møc sèng d©n c(VLSS) vµ çc ®iÒu tra bæ trî vµ bæsung kh¸c.

B¶ng 1: X©y dùng kÕ ho¹ch cÊp tØnh trong qu¸ tr×nh chuyÓn ®æi5



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kh«ng tÝnh ®Õn sù ph©n tÝch kinh tÕmang tÝnh phï hîp (vÝ dô: lîi thÕ c¹nhtranh)

o T¨ng trëng vµ nghÌo ®ãi kh«ng ®îcliªn kÕt víi nhau.

o Cã sù liªn kÕt gi÷a t¨ng trëng vµ xo¸®ãi gi¶m nghÌo víi sù ph©n tÝch kinh tÕtheo híng thÞ trêng.

ThiÕt lËp môc tiªu vµ thøtù u tiªn

o Kh«ng cô thÓ vµ liªn kÕt chÆt víi çcnghiªn cøu, çc vÊn ®Ò - ph¬ng ¸nlùa chän ®îc cËp nhËt hµng n¨mthêng lµ sù ch¾p nhÆt cña çc vÊn ®Ò.

o Môc tiªu ®îc x¸c ®Þnh th«ng qua qu¸tr×nh tham gia, dùa vµo sù ph©n tÝchvÊn ®Ò vµ lùa chän

o ThiÕt lËp thø tù u tiªn ®Ó x¸c ®Þnh çcho¹t ®éng/®Çu t ®Ó ®¹t ®îc môc tiªu®Ò ra

X¸c ®Þnh chØ tiªu vµ thêigian

o ChØ tiªu thêng qu¸ tham väng vµkh«ng g¾n kÕt víi nguån lùc thùc hiÖn

o TËp trung chñ yÕu vµo kÕt qu¶ ®Çu ranhng kh«ng ph¶i lµ môc tiªu ph¸ttriÓn (vÝ dô: hiÖu qu¶ vµ t¸c ®éng)

o ChØ tiªu/môc tiªu ®îc x¸c ®Þnh thùc tÕh¬n b»ng viÖc tÝnh ®Õn nguån lùc (tµichÝnh vµ con ngêi)

o ChØ tiªu ®îc x¸c lËp ®Ó ®¶m b¶o ch¾cch¾n viÖc ®¹t ®îc cña çc kÕt qu¶®Çu ra, nh÷ng t¸c ®éng vµ çc môc tiªu(nh trong môc tiªu ph¸t triÓn ViÖt Nam- VDGs)

Ph©n tÝch nguån lùc o Cßn h¹n chÕ hoÆc kh«ng cã sù g¾n kÕtgi÷a kÕ ho¹ch vµ ng©n s¸ch

o Cßn h¹n chÕ hoÆc kh«ng cã sù g¾n kÕtkÕ ho¹ch vµ kh¶ n¨ng ®¸nh gi¸ nhucÇu

o Çc quy ®Þnh hiÖn hµnh h¹n chÕ tÝnhn¨ng ®éng cña çc cÊp chÝnh quyÒn®Þa ph¬ng trong ph©n bæ nguån lùccho çc ho¹t ®éng u tiªn

o Cã sù g¾n kÕt gi÷a ng©n s¸ch vµ kÕho¹ch (cã thÓ sÏ ®îc cñng cè h¬n khikÕ ho¹ch chi tiªu ng©n s¸ch trung h¹n®îc ¸p dông)

§¸nh gi¸ vµ gi¸m s¸t o Dùa vµo çc chØ sè ®Çu ra vµ ®Çu vµotrong çc b¸o ço hµnh chÝnh ®Ó ph©nbæ nguån lùc cho çc ho¹t ®éng utiªn

o Sö dông çc ®iÒu tra ®èi tîng vµ çc®iÒu tra kh¸c cã sù tham gia cña çcbªn liªn quan

o ThÝ ®iÓm g¾n kÕt víi çc môc tiªu ®·®îc x¸c ®Þnh vµ çc ®Æc tÝnh trongquy tr×nh lËp kÕ ho¹ch.

Sù tham gia cña çc bªnliªn quan

o Sù tham gia cña ngêi d©n vµ cña çctæ chøc quÇn chóng cßn h¹n chÕ

o Sù tham gia cña çc bªn lµ yÕu tè thenchèt trong tÊt c¶ çc giai ®o¹n cña qu¸tr×nh ®æi míi kÕ ho¹ch.

Víi môc ®Ých nµy, nhiÖm vô chÝnh trong viÖc triÓn khai CPRGS ®Õn nay bao gåm: (i) giíi thiÖu CPRGS vµ çc vµ çcnéi dung cña chiÕn lîc ®Ó lång ghÐp vµo çc kÕ ho¹ch kinh tÕ x· héi ®Þa ph¬ng; (ii) x©y dùng môc tiªu ®· ®îc ®Þa ph¬ngho¸; (iii) ®a qui tr×nh lËp kÕ ho¹ch vµ ng©n s¸ch phï hîp víi môc tiªu ph¸t triÓn cña ®Þa ph¬ng, (iv) t¨ng cêng hÖ thènggi¸m s¸t. Çc nhiÖm vô nµy ®îc thùc hiÖn th«ng qua viÖc tæ chøc çc cuéc héi th¶o, chuyªn ®Ò, vµ qua çc kho¸ ®µo t¹o(tËp huÊn cho gi¶ng viªn/ngêi lËp kÕ ho¹ch ë cÊp cao h¬n, tËp huÊn cho çc çn bé kÕ ho¹ch, ®µo t¹o qua c«ng viÖc thùctÕ cho çc çn bé lµm kÕ ho¹ch), çc bµi tËp thùc ®Þa, qua çc buæi häp tham vÊn, qua çc cuéc häp tæng kÕt v.v). Qu¸tr×nh triÓn khai CPRGS ®· lÊy híng tiÕp cËn lµ x©y dùng n¨ng lùc theo nhu cÇu cña ®Þa ph¬ng.



9

2. Mét sè kinh nghiÖm t¹i vïng T©y Nguyªn:Qu¸ tr×nh thay ®æi ®· ®îc ®îc thùc hiÖn theo h×nh thøc thÝ ®iÓm th«ng qua c«ng t¸c t¨ng cêng n¨ng lùc: bao gåm

chuyÓn giao kiÕn thøc, hç trî thùc hiÖn thùc tÕ trùc tiÕp vµ x©y dùng kü n¨ng. TØnh §¾c L¾c, §¾c N«ng, Gia Lai, Kon Tum®· tham gia trùc tiÕp vµ tÝch cùc vµo qu¸ tr×nh thay ®æi nµy. Tuy nhiªn, ®Ó ®¹t ®îc môc tiªu chung lµ t¨ng cêng chÊt lîngkÕ ho¹ch, çc çch tiÕp cËn kh¸c nhau ®· ®îc p dông trªn thùc tÕ tuú thuéc theo bèi c¶nh vµ nhu cÇu cña mçi ®Þa ph¬ng.

Mét sè çc tiÕn hµnh ®iÓn h×nh ®îc tr×nh bµy díi ®©y ®îc xem nh lµ çc vÝ dô:

a) §iÓn h×nh 1: TØnh §¸c N«ng, sau mét lo¹t çc hîp phÇn ®µo t¹o vÒ quy tr×nh lËp kÕ ho¹ch cho çcçn bé lËp kÕ ho¹ch ®Þa ph¬ng, ®· x©y dùng kÕ ho¹ch ph¸t triÓn kinh tÕ - x· héi 5 n¨m víi sù tham giaréng r·i cña céng ®ång vµ çc cÊp. Çc b¶n kÕ ho¹ch mÉu cña b¶n, x· vµ huyÖn ®· ®îc x©y dùng vµtæng hîp vµo kÕ ho¹ch ph¸t triÓn cña tØnh. TØnh ®· cã thÓ x¸c ®Þnh ®îc môc tiªu ph¸t triÓn u tiªn (tËptrung h¬n vµo gi¶m nghÌo vµ ph¸t triÓn x· héi) vµ trong ®ã ¸p dông nh÷ng nguyªn t¾c cña CPRGS vµdùa vµo çc ph©n tÝch ®Þnh tÝnh vµ ®Þnh lîng tõ §¸nh gi¸ nghÌo cã sù tham gia, ®iÒu tra møc sèng hégia ®×nh t¹i ViÖt Nam. M« h×nh ®îc thiÕt lËp díi d¹ng “kÕt hîp híng tiÕp cËn tõ díi lªn vµ tõ trªnxuèng”, vµ ®· nhËn ®îc sù chØ ®¹o cña chÝnh quyÒn vµ cam kÕt tõ çc ban, ngµnh chøc n¨ng cña ®Þaph¬ng.

(1) §µo t¹o tËp huÊn ®îc thiÕt kÕ vµ thùc hiÖn cã hÖ thèng.

v Hîp phÇn 1. KÕ ho¹ch chiÕn lîc cho çc çn bé ra quyÕt ®Þnh vµ çc nhµ lËp kÕ ho¹ch cÊp cao ®Ó cã çch tduy mang tÝnh chiÕn lîc vÒ kÕ ho¹ch.

v Hîp phÇn 2. KÕ ho¹ch cã sù tham gia (ph¬ng ph¸p vµ c«ng cô) díi d¹ng ®µo t¹o cho çc gi¶ng viªn/híngdÉn viªn vµ cho çc çn bé chñ chèt cña cÊp huyÖn, x· vµ çc ban, ngµnh chøc n¨ng cña tØnh.

v Hîp phÇn 3. Çc bµi tËp thùc ®Þa x©y dùng kü n¨ng ®Ó ¸p dông çc c«ng cô vµ ph¬ng ph¸p.

v Hîp phÇn 4. Ph©n tÝch vµ tæng hîp kÕ ho¹ch t¹i cÊp tØnh vµ cÊp huyÖn.

o Tæng hîp çc kÕ ho¹ch th«n bu«n - x· - huyÖn

o Ph©n tÝch §iÓm m¹nh - §iÓm yÕu - C¬ héi - Th¸ch thøc (SWOT) cho tØnh (bao gåm c¶ çc c«ng cô kÕ ho¹ch,chiÕn lîc kh¸c)

o Ph©n tÝch vÊn ®Ò vµ lùa chän chiÕn lîc

o Ph©n bæ nguån lùc ch¬ng tr×nh KH PT KT-XH

o KÕ ho¹ch hµnh ®éng.

(2) Sö dông çch tiÕp cËn cã sù tham gia tõ díi lªn lµ phï hîp vµ cã tÝnh kh¶ thi cho c«ng t¸c x©y dùng kÕ ho¹ch (baogåm çc c«ng cô vµ h×nh ¶nh)

- T¹i cÊp th«n bu«n: 3 nhãm (phô n÷, ngêi giµ vµ nh÷ng ngêi ®øng ®Çu) th¶o luËn, ph©n tÝch vµ nhÊt trÝ thøtù u tiªn cho th«n, b¶n cña m×nh, sau ®ã cuéc häp th«n/bu«n ®îc tæ chøc ®Ó lÊy ý kiÕn nhÊt trÝ cho b¶n kÕho¹ch ®ã.

- T¹i cÊp x·: 3 nhãm (kinh tÕ/tµi chÝnh, x· héi/ çc tæ chøc quÇn chóng vµ nhãm çc çn bé) th¶o luËn, sau ®ãc¶ ba nhãm häp víi l·nh ®¹o cña th«n/bu«n ®Ó thèng nhÊt vÒ ®¸nh gi¸ hiÖn tr¹ng, xu híng, kÕ ho¹ch bao gåmc¶ çc vÊn ®Ò - gi¶i ph¸p, §iÓm m¹nh - §iÓm yÕu - C¬ héi - Th¸ch thøc, thø tù u tiªn cña çc x·.

- T¹i cÊp huyÖn: çc çn bé cÊp huyÖn ®îc ph©n thµnh hai nhãm chÝnh: nhãm x· héi vµ nhãm kinh tÕ vµ mçinhãm th¶o luËn vÒ kÕt qu¶ ho¹t ®éng trong lÜnh vùc cña m×nh vµ ®a ra çc kiÕn nghÞ, sau ®ã çc l·nh ®¹o cñaçc nhãm häp víi çc l·nh ®¹o cña huyÖn ®Ó rµ so¸t l¹i b¶n kÕ ho¹ch vµ thùc hiÖn cña huyÖn còng nh lµ vÊn®Ò - gi¶i ph¸p, §iÓm m¹nh - §iÓm yÕu - C¬ héi - Th¸ch thøc, thø tù u tiªn cña huyÖn; çc chÝnh s¸ch cho kÕho¹ch tíi.

- T¹i cÊp tØnh: héi th¶o lËp kÕ ho¹ch chiÕn lîc ®îc tæ chøc cho çc l·nh ®¹o tØnh vµ çc l·nh ®¹o ban ngµnhchñ chèt, l·nh ®¹o huyÖn, trong ®ã çc b¶n kÕ ho¹ch cña huyÖn ®îc tr×nh bµy. Sau ®ã çc thµnh viªn cïng®¸nh gi¸ hiÖn tr¹ng cña tØnh, SWOT, xem xÐt thø tù u tiªn, çc chÝnh s¸ch vµ kh¶ n¨ng huy ®éng vµ ph©n bænguån lùc.

(3) Çc quan chøc tØnh §¾c N«ng ®· ñng hé qu¸ tr×nh lång ghÐp th«ng qua viÖc ban hµnh çc chØ thÞ cña tØnh theo tinhthÇn ChØ thÞ 33/2004/CT-TTg ®Ó triÓn khai vµ ¸p dông quy tr×nh lËp kÕ ho¹ch míi vµo x©y dùng KH PT KT-XH.



10

(4) KÕ ho¹ch tæng hîp tõ díi lªn (qui tr×nh lËp kÕ ho¹ch cã sù tham gia vµ t vÊn) t¹i çc cÊp ®îc thÓ hiÖn ë b¶ngdíi ®©y.

(5) Th«ng tin tõ çc cÊp díi ®· rÊt h÷u Ých cho viÖc ra quyÕt ®Þnh theo çch nghÜ chiÕn lîc cho çc nhµ lËp kÕ ho¹cht¹i cÊp cao. C«ng t¸c lËp kÕ ho¹ch ®· ®îc thùc hiÖn thÝ ®iÓm t¹i hai x· cña mçi huyÖn trong tÊt c¶ 6 huyÖn cña tØnh §¾cN«ng

Th¶o luËn nhãm t¹i th«n/b¶n S¾p xÕp thø tù u tiªn t¹i th«n/b¶n

Nhãm phô n÷ ®ang xem l¹i viÖc tiÕp cËn dÞch vô c«ng §¸nh gi¸ dÞch vô x· héi, rµ xo¸t

Qui tr×nh lËp kÕho¹ch t¹i th«n/b¶n

Qui tr×nh lËp kÕho¹ch t¹i x·

Qui tr×nh lËp kÕ ho¹cht¹i huyÖn

Qui tr×nh lËp kÕho¹ch t¹i tØnh

§ Nhãm phô n÷ th¶o luËnçc vÊn ®Ò nh sù ñnghé cña thÓ chÕ, søckhoÎ, giíi§ Nhãm nghÌo (bao gåm

c¶ phô n÷ vµ nam giíi)§ Nhãm çc l·nh ®¹o

th«n/b¶n bµn vÒ: xuhíng nghÌo, m«itrêng, di d©n.v.v§ B¶n th¶o kÕ ho¹ch

th«n/b¶n tËp trung vµoçc vÊn ®Ò vµ thø tù utiªn

§ Rµ so¸t l¹i quitr×nh/nh÷ng ®iÒu ®¹t®îc vµ bµi häc§ Tr×nh bµy b¶n kÕ ho¹ch

th«n/b¶n§ Tr×nh bµy b¶n kÕ ho¹ch

x· theo çch SWOT§ Tæng hîp kÕ ho¹ch vµ

ng©n s¸ch

§ Rµ so¸t l¹i qui tr×nh§ Tr×nh bµy b¶n kÕ ho¹ch

x·§ Tr×nh bµy çc b¸o ço vµ

kÕ ho¹ch çc ban/ngµnh§ Çc c«ng cô kÕ ho¹ch

chiÕn lîc (SWOT, çcvÊn ®Ò lùa chän, vµ s¾pxÕp thø tù u tiªn) chotoµn huyÖn§ G¾n kÕt vµo kÕ ho¹ch

tæng thÓ.§ NhËn xÐt vµ thèng nhÊt

§ Héi th¶o kÕ ho¹ch chiÕnlîc cho l·nh ®¹o çchuyÖn vµ çc phßng ban§ Tr×nh bµy hiÖn tr¹ng vµ

xu híng chung, nh÷ng®iÓm ®¹t ®îc vµ çc bµihäc cña tØnh§ S¾p xÕp thø tù u tiªn§ Tr×nh bµy kÕ ho¹ch cña

huyÖn vµ vïng§ G¾n kÕt kÕ ho¹ch víi

môc tiªu§ Thèng nhÊt çc tiªu chÝ

ph©n bæ nguån lùc

B¶ng 2: Quy tr×nh lËp kÕ ho¹ch t¹i çc cÊp ë §¾c N«ng



11

b) §iÓn h×nh 2: Daklak còng ®· thö nghiÖm çch tiÕp cËn “kÕt hîp tõ díi lªn vµ trªn xuèng”. Dù ¸nph¸t triÓn cña GTZ t¹i ®Þa bµn ®· hç trî cho viÖc lËp KÕ ho¹ch ph¸t triÓn x· vµ th«n/b¶n (VDP, CDP). KÕtqu¶ lµ ngêi d©n ®· nhËn thÊy râ vai trß tr¸ch nhiÖm cña hä vµ sù tham gia còng nh tiÕng nãi cña hävÒ çc vÊn ®Ò ph¸t triÓn kinh tÕ - x· héi vµ xo¸ ®ãi gi¶m nghÌo vµ qu¶n lý ®Þa ph¬ng. Bªn c¹nh ®ã, çcçn bé cña tØnh ®· cã thÓ ngåi l¹i víi nhau ®Ó th¶o luËn çc vÊn ®Ò vµ ph©n tÝch, thiÕt lËp vµ lùa chänmôc tiªu u tiªn cho KH PT KT-XH cña tØnh.

(1) Çch tiÕp cËn chiÕn lîc ®îc thùc hiÖn t¹i çc ban ngµnh cña tØnh theo çc bíc sau. Çc çn bé ®Þa ph¬ng ®·cã kü n¨ng vµ çch nh×n nhËn logic trong c«ng t¸c lËp kÕ ho¹ch.

(2) VDP tõ çc dù ¸n hiÖn t¹i ®· gióp ®ì xóc tiÕn sù tham gia cña d©n chóng vµ liªn hÖ víi nh©n d©n vµ quan chøc ®Þaph¬ng trong viÖc x¸c nhu cÇu vµ çc vÊn ®Ò x¶y ra trong kÕ ho¹ch vµ ng©n s¸ch cña çc dù ¸n ®Çu t. Qu¸ tr×nh ®îctiÕn hµnh theo 4 bíc.

§ Bíc 1: Th«n/b¶n häp lÇn 1 ®Ó giíi thiÖu môc tiªu vµ çc ho¹t ®éng cho viÖc thùc hiÖn kÕ ho¹ch th«n/b¶n.

§ Bíc 2: Sö dông c«ng ®¸nh gi¸ nghÌo/ n«ng th«n cã sù tham gia, (PRA, PPA) cho c«ng t¸c ®¸nh gi¸ vµ lËp kÕho¹ch, vµ ®îc thùc hiÖn bëi çc l·nh ®¹o th«n/b¶n vµ nhãm c«ng t¸c VDP.

§ Bíc 3: Häp nhãm c«ng t¸c

§ Bíc 4: Häp th«n/b¶n lÇn 2 ®Ó thèng nhÊt b¶n kÕ ho¹ch vµ çc ho¹t ®éng dù tÝnh.

Ai tham ra çch thøc ®Çu ra

cÊptØnh

Héi ®ång nh©n d©nñy ban nh©n d©nÇc l·nh ®¹o phßngban cña huyÖn

Héi th¶o lËp kÕho¹ch cho çcphßng ban çccÊp

§¸nh gi¸ çc môc tiªu ®¹t®îc§¸nh gi¸ hiÖn tr¹ngThiÕt lËp çc môc tiªu utiªnTæng hîp KH PT KT-XH

cÊphuyÖn

Çc quan chøc ë çcphßng ban phô tr¸chvÒ vÊn ®Ò lËp kÕho¹ch

Héi th¶o choçc phßng bancña huyÖn vµ x·

§¸nh gi¸ nh÷ng thµnh c«ngcña kÕ ho¹ch vµ chÝnh s¸chMôc tiªu ph¸t triÓn t¬ng laivµ ®Þnh híngKÕ ho¹ch huyÖn vµ ng©ns¸ch (dù kiÕn) theo n¨m

cÊp x·

Çc quan chøc cñax·, héi ®ång nh©nd©n, çc l·nh ®¹oth«n/b¶n

Çc cuéc häpgi÷a çc quanchøc x·

§¸nh gi¸ nh÷ng ®iÒu ®¹t®îc cña kÕ ho¹ch vµ chÝnhs¸chKÕ ho¹ch x· vµ ng©n s¸ch(dù to¸n) theo n¨m

cÊpth«n/b¶n

Ngêi d©n ®îc ph©ntheo nhãm: nhãm phôn÷ nghÌo, çc l·nh®¹o cña th«n/b¶nÇc nhµ lËp kÕ ho¹ch

Häp th«n/b¶nMét vµi phángvÊn ç nh©n

Danh s¸ch thø tù u tiªntheo n¨m§¸nh gi¸ hiÖu qu¶ vµ t¸c®éng cña dù ¸n hoÆc cñachÝnh s¸ch

H×nh 1: Tæ chøc lËp kÕ ho¹ch çc cÊp ë §¾c N«ng



12

(3). Çc quan chøc tØnh th¶o luËn lµm thÕ nµo ®Ó duy tr× vµ tiÕp tôc tiÕn hµnh lång ghÐp CPRGS vµo kÕ ho¹ch hµnh®éng6. §iÒu nµy chØ ra r»ng sù phèi hîp t¸c ®ang cè g¾ng ®Ó ®¹t ®îc môc tiªu ph¸t triÓn th«ng qua thÓ chÕ ho¸ vµ trî giópkü thuËt.

(4) TØnh cã thÓ x©y dùng môc tiªu ph¸t triÓn, môc tiªu u tiªn vµ ®a vµo trong khung kÕt qu¶ víi çc chØ tiªu râ rµngcho kÕ ho¹ch 5 n¨m tíi. §iÒu nµy lµ mét kÕt qu¶ tèt ®èi víi chÊt lîng cña kÕ ho¹ch KH PT KT-XH cña tØnh theo híng tiÕpcËn cã sù tham gia .

Nh÷ng môc tiªu u tiªn nµo trong KH 2001 – 2005 cÇn ®îc bæ xung vµo danh s¸chnh÷ng u tiªn míi?

So s¸nh víi danh s¸ch çc u tiªn cña KH 2001 – 2005, çc u tiªn míi nµo cÇn®îc chØnh söa lµm râ kh«ng?

Lµm thÕ nµo ®Ó nhãm danh s¸ch çc môc tiªu u tiªn míi ®· ®îc chØnh söa nµythµnh mét hÖ thèng hoµn chØnh h¬n (môc tiªu lín, môc tiªu nhá)?

Ph¬ng ¸n lùa chän nµo lµ thÝch hîp ®Ó ®¹t ®îc nh÷ng môc tiªu u tiªn?

Tham kh¶o çch gi¶i quyÕt vÊn ®Ò ®îc liÖt kª theo çc chñ ®Ò trong CPRGS.

X¸c ®Þnh mét chØ tiªu cho ph¬ng ¸n lùa chän. Dùa vµo ph¬ng ¸n lùa chän xem xÐt:®iÒu g× cÇn ®îc thay ®æi, møc ®é thay ®æi? Vµ khi nµo th× ®¹t ®îc thay ®æi ®ã?

§a ra mét vµi chØ sè ®Ó gióp gi¸m s¸t/theo dâi nh÷ng tiÕn bé ®èi víi mçi ph¬ng ¸n®· ®îc lùa chän

Çc ®¹i biÓu viÕt lªn thÎ çc chØ sè vµ c¾m vµo ph¬ng ¸n ®· ®îc chän

Lµm viÖc theo nhãm, dïng çc chØ sè ®· ®îc ®a ra ®Ó cïng th¶o luËn, chØnh söabá di hay thªm vµo

Ph¬ng ¸n/gi¶i ph¸p nµo ®èi víi mét môc tiªu ®îc xem lµ hç trî hay m©u thuÉn víinh÷ng ph¬ng ¸n/gi¶i ph¸p cho mét môc tiªu kh¸c?

TËp hîp çc ph¬ng ¸n/gi¶i ph¸p cã thÓ ®îc xem lµ mét chiÕn lîc tiÒm n¨ng chosù ph¸t triÓn cña tØnh Daklak?

ChiÕn lîc nµo ®îc xem lµ phï hîp nhÊt ®Ó ®¹t ®îc nh÷ng tiÒm n¨ng ng¾n h¹n,trung h¹n vµ dµi h¹n?

B

íc

1B

í

c 2

B

íc

3B

í

c 4

B

íc

5

6 TrÝch b¸o ço GTZ, 2004



13

Ho¹t ®éng Tæ chøc thùc hiÖn Tæ chøc hç trî Thêi gian Nguån lùc

Thµnh lËp tæ c«ng t¸ctriÓn khai CPRGS cÊptØnh

Uû ban Nh©n d©n Bé, ngµnh

Çc nhµ tµi trî

X¸c ®Þnh çc môc tiªulín vµ môc tiªu cô thÓ

Uû ban Nh©n d©n vµçc Së, Ban, ngµnh

Huy ®éngngêi d©n

X¸c ®Þnh çc chØ sè Së KH &§T Çc së ban ngµnh Th¸ng10/2004

Ng©n s¸chNhµ níc

X©y dùng çc kÕho¹ch cô thÓ

HuyÖn vµ çc tæ chøckh¸c

2005 (cho KH2006-2010)

Hç trî kü thuËt(ADB,GTZ)

H×nh 2: KÕ ho¹ch hµnh ®éng vµ çc bíc tiÕn hµnh ®Ó tiÕp tôc triÓn khai CPRGStrong lËp kÕ ho¹ch ®Þa ph¬ng

c) §iÓn h×nh 3: TØnh Gia Lai cã cam kÕt m¹nh trong viÖc tiÕn hµnh qu¸ tr×nh tham vÊn ®Î cã çc kÕho¹ch tèt h¬n. Çc nhµ lµm kÕ ho¹ch tõ çc ban ngµnh chøc n¨ng kh¸c nhau vµ çc l·nh ®¹o, phßngban cÊp huyÖn ngåi l¹i víi nhau ®Ó th¶o luËn ®¸nh gi¸ kÕt qu¶ cña kÕ ho¹ch tríc khi x©y dùng kÕ ho¹chph¸t triÓn chung cña huyÖn, tØnh. ChÊt lîng cña çc b¶n kÕ ho¹ch ®îc n©ng lªn th«ng qua n©ng caon¨ng lùc cho çc nhµ lµm kÕ ho¹ch ®Ó ph©n tÝch nguån lùc vµ sö dông th«ng tin vµo c«ng t¸c lËp kÕho¹ch tèt h¬n, ®iÒu hµnh vµ gi¸m s¸t.

(1) Çc cuéc héi th¶o giíi thiÖu vÒ CPRGS ®îc tæ chøc cho çc nhãm l·nh ®¹o vµ nhãm chuyªn viªn t¨ng cêng. Çcchuyªn viªn cña tØnh th¶o luËn çc kÕ ho¹ch hµnh ®éng, vµ sau ®ã çc lÜnh vùc then chèt cÇn ®îc cñng cè bao gåm: (i)n©ng cao n¨ng lùc trong çc lÜnh vùc cßn kÐm vµ (ii) sù hîp t¸c gi÷a çc phßng, ban vµ çc huyÖn trong çc kÕ ho¹ch ph¸ttriÓn. §Ó gi¶i quyÕt çc vÊn ®Ò nµy, TØnh ®· cã nh÷ng nç lùc ®Ó thùc hiÖn thö nghiÖm trao ®æi vµ tham vÊn trong kÕ ho¹ch2005 díi h×nh thøc tæ chøc çc cuéc häp cña huyÖn. TØnh muèn ph¸t triÓn mét qu¸ tr×nh kÕ ho¹ch cã sù tham gia hiÖu qu¶.Çch lµm nµy ®· ®îc ®¸nh gi¸ cao bëi v× ®©y lµ lÇn ®Çu tiªn mét tØnh ®· chñ ®éng tham vÊn çc bªn liªn quan tõ çcphßng ban vµ huyÖn trong c«ng t¸c chuÈn bÞ lËp kÕ ho¹ch.

(2) Ph©n tÝch thÓ chÕ vµ n¨ng lùc, tËp trung vµo c¬ cÊu tæ chøc cña Së KÕ ho¹ch & §Çu t vµ UBND tØnh, gióp cho viÖct×m ra nhu cÇu vµ ®iÓm cßn thiÕu vÒ n¨ng lùc. Sù trî gióp kü thuËt ®îc thiÕt kÕ theo nhu cÇu, (ngoµi giíi thiÖu vÒ CPRGSvµ mét sè ph¬ng ph¸p) cô thÓ lµ: ®¸nh gi¸ vµ thu hót nguån lùc vµ gi¸m s¸t vµ ®¸nh gi¸ çc kÕ ho¹ch. Sù ph©n tÝch chothÊy r»ng chÊt lîng cña kÕ ho¹ch phô thuéc vµo viÖc c¶i tiÕn thÓ chÕ, ®iÒu hµnh qu¶n lý vµ n¨ng lùc.

d) §iÓn h×nh 4: TØnh Kon Tum ®· tiÕn hµnh ®¸nh gi¸ chung vµ ph©n tÝch t×nh h×nh cña tØnh theo vÊn ®Òcña tõng nhãm d©n kÐm lîi thÕ, vµ s¾p xÕp thø tù u tiªn tËp trung vµo çc vÊn ®Ò giíi vµ x· héi trongth¶o luËn chÝnh s¸ch nh lµ ®Çu vµo cho KH PT KT-XH 5 n¨m cña tØnh.

1) Héi th¶o vÒ CPRGS lµ ®iÓm khëi ®Çu rÊt quan träng cho viÖc giíi thiÖu CPRGS tíi çc nhµ l·nh ®¹o ®Þa ph¬ng tõuû ban nh©n d©n vµ çc nhµ l·nh ®¹o çc ban ngµnh kh¸c nhau cÊp tØnh vµ huyÖn. Héi th¶o ®îc tæ chøc cho çc



14

quan chøc nh»m t¨ng sù hiÓu biÕt h¬n vÒ môc ®Ých, môc tiªu, néi dung, qu¸ tr×nh vµ ph¬ng ph¸p luËn cho kÕ ho¹chph¸t triÓn kinh tÕ - x· héi. Trong ®ã nhÊn m¹nh vµo viÖc lång ghÐp t¨ng trëng vµ xo¸ ®ãi gi¶m nghÌo víi kÕ ho¹chKT-XH 5 n¨m vµ hµng n¨m, v× vËy çc vÊn ®Ò ®ã ®îc gi¶i quyÕt thùc tÕ vµ cã thÓ ®¹t ®îc. Th¶o luËn ®îc tæchøc ®Ó t¨ng cêng n¨ng lùc ®Þa ph¬ng trong viÖc hiÓu vÒ ph¬ng ph¸p luËn vÒ c«ng t¸c kÕ ho¹ch míi. Héi th¶otËp huÊn ®îc tiÕn hµnh víi çc th¶o luËn bao gåm: çc kh¸i niÖm c¬ b¶n vÒ CPRGS (vÝ dô, nã lµ çi g×, lµm thÕnµo ®Ó ¸p dông); thu thËp vµ sö lý sè liÖu (bao gåm c¶ viÖc x¸c ®Þnh çc sè liÖu ®· mÊt vµ lµm thÕ nµo ®Ó cã ®îcchóng); qu¸ tr×nh kÕ ho¹ch (bao gåm sù tham gia, h¹n chÕ nghÌo, kÕ ho¹ch th©n thiÖn trÎ em vµ líp trÎ, çc th¸chthøc kÕ ho¹ch then chèt vµ çc lÜnh vùc cÇn ®îc c¶i thiÖn); x¸c ®Þnh thø tù u tiªn kinh tÕ vµ x· héi; vµ x¸c ®Þnhçc bíc tiÕp theo. NhÊn m¹nh vµo: ph¸t triÓn kÕ ho¹ch ph¸t triÓn kinh tÕ - x· héi híng vÒ trÎ em, x©y dùng kÕho¹ch ph¸t triÓn kinh tÕ x· héi dùa vµo kÕt qu¶ vµ ph©n tÝch tèt, ®¹t ®îc c©n b»ng tèt h¬n gi÷a ®Çu t x· héi vµkinh tÕ, vµ sö dông tèt h¬n vµ chuÈn x¸c h¬n çc chØ tiªu CPRGS ®Ó ®o lêng sù t¸c ®éng cña ®Çu t x· héi (vÝ dô,tû lÖ chÕt cña trÎ s¬ sinh, tû lÖ toµn diÖn gi¸o dôc, ®o lêng chÊt lîng cho trÎ cÇn ®îc b¶o vÖ, çc d÷ liÖu theotuæi, giíi t×nh, vµ çc nhãm thiÓu sè)

2) Çc çn bé vµ l·nh ®¹o ®Þa ph¬ng trong çc ngµnh kh¸c nhau cã thÓ hiÓu ®îc râ h¬n sù cÇn thiÕt vµ quan trängcña çc vÊn ®Ò ph¸t triÓn x· héi, theo nghÜa sù cÇn thiÕt cho sù quan t©m ngµy mét t¨ng vµo trÎ em nghÌo, phô n÷,çc nhãm d©n téc thiÓu sè vµ nh÷ng ngêi sèng ë vïng s©u vïng xa. §iÒu ®ã cho thÊy r»ng çc ph©n tÝch tèt vµosù bÊt c©n b»ng gi÷a çc nhãm bÊt lîi cÇn ®îc quan t©m vµ ph¶n ¸nh vµo KH PT KT-XH.

Thø nhÊt, trong khi b¶n th¶o cuèi cïng cña KH PT KT-XH míi (2006-2010) cña çc tØnh cha ®îc hoµn thiÖn, th× néidung cña kÕ ho¹ch KT-XH kiÓu tríc ®©y kh«ng thÓ hiÖn khung kÕt qu¶ râ rµng, ®iÒu ®ã cã nghi· r»ng hÇu hÕt çc chØtiªu lµ çc chØ tiÓu ®Çu ra h¬n lµ çc chØ tiªu kÕt qu¶. Sù thay ®æi c¶ vÒ néi dung b¶n kÕ ho¹ch vµ c¬ chÕ cho viÖc thuthËp th«ng tin cho viÖc ®¸nh gi¸ vµ x©y dùng kÕt qu¶ ®ßi hái ph¶i cÇn nhiÒu nç lùc h¬n n÷a trong viÖc c¶i tiÕn c«ng t¸clËp kÕ ho¹ch dùa trªn kÕt qu¶ vµ hÖ thèng gi¸m s¸t ®¸nh gi¸ kÕ ho¹ch.

Thø hai, thiÕu th«ng tin vµ ph©n tÝch nghÌo. VÝ dô, vÉn cha cã sù thèng nhÊt trong chuÈn nghÌo vµ çn bé cßn chaquen vµ thùc hiÖn ®îc ®¸nh gi¸ nghÌo cã sù tham gia. Thªm vµo ®ã, hÖ thèng x©y dùng môc tiªu ®Çu vµo vµ ®Çu ravµ çc ®¸nh gi¸ theo kiÓu truyÒn thèng lµ kh«ng phï hîp vµ kh«ng ®îc bæ sung b»ng çc ®¸nh gi¸ vÒ ®Þnh tÝnh vµkh«ng ®o lêng ®îc çc kÕt qu¶ ®¹t ®îc. §iÒu nµy lµ kÕt qu¶ cña sù thiÕu hîp t¸c vµ ñng hé cña çc tæ chøc ph¸ttriÓn hay lµ çc dù ¸n ph¸t triÓn ho¹t ®éng trªn ®Þa bµn, ®ãng vai trß kho kiÕn thøc vµ cung cÊp çc ph©n tÝch cho kÕho¹ch cÊp tØnh. Cã thÓ lÊy th«ng tin tõ, vÝ dô, çc nghiªn cøu ngµnh, PPAs, VDP, vµ kÕ ho¹ch tæng thÓ ngµnh, çc chiÕnlîc ngµnh, vµ çc ®iÒu tra. Nhng trong çc cuéc héi th¶o kÕ ho¹ch chiÕn lîc, çc thµnh viªn tham gia ®· kh«ng ®ara çc sè liÖu thèng kª ®Çy ®ñ ®Ó, ®Ó hç trî cho çc quan ®iÓm chñ quan cña hä.

Thø ba, thiÕu sù ®ång bé vÒ lång ghÐp CPRGS vµo KH PT KT-XH gi÷a çc tØnh. Quy tr×nh ®îc thùc hiÖn tèt t¹i cÊp®Þa ph¬ng, nhng sù trao ®æi vµ chia sÎ nh÷ng ®iÒu tèt ®ã kh«ng ®îc tiÕn hµnh, dÉn ®Õn viÖc ghi nh©n vµ x©y dùngm« h×nh hiÖu qu¶ cho viÖc lång ghÐp CPRGS cßn khã kh¨n.

Thø t, qu¸ tr×nh thö nghiÖm kh«ng ph¶i lµ hoµn toµn tõ díi lªn. HiÖn t¹i, cã sù h¹n chÕ ®èi víi sù tiÕp cËn kÕ ho¹chtõ díi lªn trong viÖc tham vÊn víi çc huyÖn vµ ban ngµnh. Çc h¹n chÕ nh lµ con ngêi vµ nguån lùc, çc kü n¨ng®îc x¸c nhËn. Çch tiÕp cËn nµy chØ cã thÓ ®îc duy tr× nÕu nh ®îc çc nhµ lµm kÕ ho¹ch ®Þa ph¬ng (tõ cÊp x·tíi cÊp huyÖn) thùc hiÖn tiÕp tôc vµ ph¶i ®îc lÆp l¹i trong mét vµi chu kú kÕ ho¹ch tíi.

Cuèi cïng, cã sù h¹n chÕ vÒ thÓ chÕ trong c«ng t¸c lËp kÕ ho¹ch. MÆc dï cã çc qui ®Þnh cho: (i) ph©n cÊp m¹nh h¬ntíi çc cÊp díi (huyÖn vµ x·); (ii) t¨ng tr¸ch nhiÖm cña uû ban nh©n d©n vµ héi ®ång nh©n d©n trong c«ng t¸c lËp kÕho¹ch vµ phª duyÖt kÕ ho¹ch; (iii) t¨ng quyÒn lùc cho uû ban nh©n d©n tØnh trong viÖc gi¸m s¸t vµ ®iÒu hµnh kÕ ho¹chvµ nguån lùc; (iv) phßng kÕ ho¹ch vµ ®Çu t ph¸t triÓn vµ ®iÒu phèi çc kÕ ho¹ch cÊp tØnh, cã mét vµi h¹n chÕ trongviÖc ®¸p øng nh÷ng yªu cÇu nµy. Çc çn bé cÊp huyÖn vµ x· cã khã kh¨n trong viÖc x©y dùng vµ hµi hoµ kÕ ho¹chvµ nguån lùc/ng©n s¸ch; héi ®ång nh©n d©n cã Ýt c¬ héi ®Ó th¶o luËn kÕ ho¹ch; cã sù trïng l¾p gi÷a çc bé trong viÖcchuyÓn ®æi vµ qu¶n lý nguån lùc gi÷a çc ch¬ng tr×nh cÊp tØnh vµ çc ch¬ng tr×nh môc tiªu quèc gia; vµ cã sù thiÕuhîp t¸c gi÷a Së KH-§T vµ çc phßng ban kh¸c trong viÖc lËp kÕ ho¹ch.

Nh×n chung, c¶ bèn tØnh ®· tham gia vµo qu¸ tr×nh ®æi míi c«ng t¸c lËp kÕ ho¹ch, vµ cã nh÷ng ph¶n håi cã gi¸ trÞ t¹icuéc héi th¶o tæng kÕt vµo cuèi n¨m 2004.

C. Nh÷ng ®iÒu g× cßn h¹n chÕ ?

D. th«ng tin ph¶n håi tõ çc nhµ lµm kÕ ho¹ch trung ¬ng vµ ®Þa ph¬ngvµ çc bªn tham gia



15

Gia Lai 7: CPRGS ®· mang l¹i nh÷ng thay ®æi ®¸ng kÓ cho c«ng t¸c lËp kÕ ho¹ch t¹i ®Þa ph¬ng. Thø nhÊt, viÖc långghÐp CPRGS vµo KH PT KT-XH 5 n¨m th«ng qua çc buæi th¶o luËn vµ n©ng cao n¨ng lùc ®· mang ®Õn quan ®iÓm toµndiÖn vÒ ph¸t triÓn; ®ã lµ: quan t©m h¬n ®Õn çc vÊn ®Ò x· héi vµ xo¸ ®ãi gi¶m nghÌo vµ ®a çc vÊn ®Ò x· héi vµo môctiªu ph¸t triÓn. Thø hai, çc nhµ lµm kÕ ho¹ch ®Þa ph¬ng cã thÓ ®a çc chÝnh s¸ch x· héi vµ xo¸ ®ãi gi¶m nghÌo vµoçc ch¬ng tr×nh dù ¸n cña hä. Cuèi cïng, ®iÒu quan träng nhÊt lµ viÖc lång ghÐp ®· lµm t¨ng sù phèi hép vµ hîp t¸c c¶vÒ chiÒu däc vµ chiÒu ngang gi÷a çc ban ngµnh vµ çc cÊp th«ng qua chia sÎ kinh nghiÖm vµ kü n¨ng.

§¾c L¾c vµ §¾c N«ng 8: Hai tØnh kÕt hîp thùc hiÖn qu¸ tr×nh kÕ ho¹ch cã sù tham gia cña céng ®ång. Qu¸ tr×nh cãsù tham gia nµy gióp cho tØnh thu thËp ®îc çc b»ng chøng vµ nhu cÇu cña ®Þa ph¬ng vµo çc kÕ ho¹ch ph¸t triÓn cñax·. Tham vÊn ngêi d©n dùa vµo vÊn ®Ò lµ rÊt cã ý nghÜa trong viÖc kiÓm tra çc b¶n ®¸nh gi¸ cña çc nghµnh vµ phßngban. Qu¸ tr×nh tham vÊn ®ång thêi cung cÊp th«ng tin cho çc nhµ ho¹ch ®Þnh chÝnh s¸ch. Qu¸ tr×nh cã sù tham gia cÇn®îc n©ng cao sù chñ së h÷u vµ cam kÕt cña ngêi d©n vµ çc quan chøc ®Þa ph¬ng trong ph¸t triÓn. Tuy nhiªn, çc bµitËp cÇn ®îc më réng vµ lµm tèt h¬n ë cÊp c¬ së.

7 B¸o ço tãm t¾t cña tØnh Gia Lai vµ ph¶n håi tõ l·nh ®¹o TØnh t¹i Héi th¶o ®¸nh gi¸ do ADB tµi trî, th¸ng 1/20058 B¸o ço tãm t¾t cña tØnh §¾c L¨k vµ ph¶n håi tõ l·nh ®¹o TØnh t¹i Héi th¶o ®¸nh gi¸ do ADB tµi trî, th¸ng 1/2005

Pháng vÊn «ng Ph¹m H¶i - Vô trëng vô Kinh tÕ §Þa ph¬ng vµ L·nh thæ, Bé KH&§T.

1. Theo «ng, «ng ®¸nh gi¸ thÕ nµo vÒ c«ng t¸c XDKH cã lång ghÐp CPRGS t¹i çc tØnh T©y Nguyªntrong n¨m 2004?

- Theo t«i trong n¨m 2004 viÖc x©y dùng kÕ ho¹ch n¨m 2005 vµ 2006 – 2010 cã lång ghÐp CPRGS lµ mét thµnhc«ng cã tÝnh bíc ngoÆt trong c«ng t¸c kÕ ho¹ch ho¸ ®èi víi çc tØnh T©y Nguyªn v× :

+ ViÖc lång ghÐp, n©ng cao n¨ng lùc ®· giíi thiÖu çch t duy míi ®èi víi c«ng t¸c KH ho¸ so víi tríc ®©y(a) KÕ ho¹ch ph¶i ®îc x©y dùng tõ c¬ së trë lªn, tríc hÕt ph¶i sö dông hiÖu qu¶ nguån lùc cña ®Þa ph¬ng(b) N©ng cao n¨ng lùc lËp kÕ ho¹ch cña çc cÊp chÝnh quyÒn ®Þa ph¬ng: Th«ng qua çc kho¸ ®µo t¹o çnbé çc së ban ngµnh, çc huyÖn vµ mét sè x· ®· phÇn nµo n¾m b¾t ®îc çc ph¬ng ph¸p tiÕp cËn, çcc«ng cô ¸p dông trong ph©n tÝch ®¸nh gi¸ lùa chän çc môc tiªu vµ chØ tiªu kÕ ho¹ch (c) §· t¹o ®îc sù tù tin cña çn bé kÕ ho¹ch ®Þa ph¬ng.

+ ViÖc lång ghÐp ®· gióp cho çc c¬ quan hiÓu râ CPRGS vµ kÕ ho¹ch cña ®Þa ph¬ng liªn quan mËt thiÕt víi nhau,môc tiªu cña CPRGS lµ mét trong nh÷ng néi dung c¬ b¶n cña kÕ ho¹ch, kh«ng ph¶i t ch rêi nh tríc ®©y.

+ Çc tØnh ®· nhËn thÊy sù tham gia, tÝnh c«ng khai vµ minh b¹ch lµ nh÷ng yªu cÇu kh«ng thÓ thiÕu ®îc cñamçi b¶n kÕ ho¹ch.

2. Nh÷ng ®¸nh gi¸ cña «ng vÒ ph¬ng ph¸p tiÕp cËn vµ kÕt qu¶ ®¹t ®îc t¹i çc tØnh T©y Nguyªn?

- Nh÷ng kÕt qu¶ ®¹t nh ®· nªu chØ lµ bíc ®Çu vµ cã thÓ cha ®îc nhiÒu ®Þa ph¬ng kh¸c vµ çn bé ban ngµnhquan t©m, cÇn ph¶i ®îc cñng cè rót kinh nghiÖm vµ më réng h¬n n÷a. VÒ ph¬ng ph¸p tiÕp cËn chóng ta ®· qu¸ quenvíi lèi cò lµ cÊp trªn lËp kÕ ho¹ch, cÊp trªn yªu cÇu cÊp díi lµm, thËm chÝ cßn lµm thay, lµm cho cÊp díi thô ®éng,mÊt quyÒn së h÷u trong c«ng viÖc vµ nh vËy cÊp díi vµ ngêi d©n cã tÝnh û l¹i tr«ng chê vµo nhµ níc.

Cho nªn chóng ta cÇn ph¶i ¸p dông çch tiÕp cËn míi “Ph¬ng ph¸p tiÕp cËn tõ díi lªn’’. CÇn gióp ngêi d©n vµchÝnh quyÒn c¬ së tù th©n hä ph¶i gi¶i quyÕt çc vÊn ®Ò cÊp b¸ch cña b¶n th©n hä vµ quª h¬ng hä, lóc ®ã viÖc ph¸ttriÓn kinh tÕ míi v÷ng ch¾c vµ xo¸ ®ãi, gi¶m nghÌo míi bÒn v÷ng. ChÝnh phñ cÇn tiÕp tôc hç trî tµi chÝnh vµ chuyªn giacho c«ng t¸c ®µo t¹o vµ ®µo t¹o n÷a… 3. ¤ng cã gîi ý g× vÒ vai trß cña çc bªn liªn quan: Bé, l·nh ®¹o tØnh vµ chÝnh quyÒn ®Þa ph¬ng, çc

ban ngµnh, çc tæ chøc tµi trî ?

ViÖc níc th× cã rÊt nhiÒu vµ trªn mäi lÜnh vùc ®êi sèng chÝnh trÞ, kinh tÕ, x· héi, ®èi néi vµ ®èi ngo¹i, nh÷ng suy nghÜvµ gîi ý cña t«i ch¾c cha ®ñ tÇm cì. T«i chØ m¹nh d¹n cã mét suy nghÜ lµ çc çn bé çc ngµnh vµ çc ®Þa ph¬ngnªn tin vµo n¨ng lùc cña nh÷ng ngêi nghÌo çn bé cña çc x· nghÌo, m¹nh d¹n ph©n cÊp vµ trao quyÒn cho hä, ®ångthêi cö çc chuyªn gia cã t©m huyÕt cã sù c¶m th«ng víi nghÌo khã cña hä ®Ó híng dÉn hä cã sù hiÓu biÕt cÇn thiÕt®Ó nh»m vît qua nghÌo khã. Kh«ng nªn lÊy lý do “D©n trÝ” kÐm, tr×nh ®é thÊp mµ kh«ng gi¸m trao quyÒn.4. Theo «ng cÇn lµm g× ®Ó kinh nghiÖm ®¹t ®îc trong n¨m ®Çu tiªn thÝ ®iÓm ë T©y Nguyªn ®îc chia

sÎ vµ ¸p dông tiÕp tôc?

Nh÷ng ph¸t hiÖn vµ kÕt qu¶ ®¹t ®îc ë T©y Nguyªn th«ng qua sù hç trî cña ADB, GTZ vµ UNICEF lµ nh÷ng kinhnghiÖm bíc ®Çu diÔn ra trªn ph¹m vi hÑp (chØ ë mét sè huyÖn vµ x·). Theo t«i cÇn cã sù hç trî lín h¬n tõ phÝa ChÝnhphñ vµ çc nhµ tµi trî; ®ång thêi nªn më réng c«ng t¸c truyÒn th«ng díi nhiÒu h×nh thøc nh»m giíi thiÖu nh÷ng kÕt qu¶vµ kinh nghiÖm ®· cã. Mét khi nhiÒu ngêi nh©n thøc ®îc çc kinh nghiÖm cña chóng ta, kinh nghiÖm sÏ biÕn thµnhchÊt lîng vµ hiÖu qu¶ ®Ó cã thÓ xo¸ ®ãi gi¶m nghÌo tèt h¬n.



16

Çc vÊn ®Ò vÒ thÓ chÕ

Bµi häc1: Sù phèi hîp gi÷a trung ¬ng vµ ®Þa ph¬ng,vµ sù cïng hîp t¸c nguån lùc vµ kiÕn thøc cña çc tæ chøcquèc tÕ víi çc c¬ quan ban ngµnh cña chÝnh phñ lµ yÕutè quan träng cho viÖc lång ghÐp çc nguyªn t¾c CPRGSvµ KH PT KT-XH t¹i cÊp tØnh. Sù phèi hîp nµy lµ quanträng cho viÖc thùc hiÖn KH PT KT-XH sau nµy.

KhuyÕn nghÞ 1: Bé KH&§T cÇn thÓ hiÖn vai trß tÝch cùch¬n trong mèi quan hÖ ®èi t¸c víi çc nhµ tµi trî; kÕt hîp víisù ñng hé cña nhµ tµi trî theo híng hiÖu qu¶ h¬n trongviÖc lång ghÐp çc môc tiªu cña CPRGS vµo KH PT KT-XHt¹i ®Þa ph¬ng. §ång thêi, Bé KH&§T ®ãng vai trß then chèttrong ®iÒu phèi gi÷a cÊp T¦ vµ ®Þa ph¬ng trong c«ng t¸ckÕ ho¹ch ho¸ X· Héi, lµ cÇu nèi gi÷a çc nhµ tµi tr¬, çc tæchøc quèc tÕ víi çc c¬ quan lµm kÕ ho¹ch ®Þa ph¬ng.

Bµi häc 2: Cßn h¹n chÕ trong viÖc phèi hîp gi÷a çc cÊpchÝnh quyÒn tõ ®ã lµm c¶n trë qu¸ tr×nh lång ghÐp CPRGSvµo KH PT KT-XH: sù phèi hîp kh«ng ®Çy ®ñ gi÷a çcngµnh t¹i trung ¬ng vµ tØnh do ®Æc tÝnh kh¸c nhau cñaçc bé ngµnh, th«ng tin kh«ng ®Çy ®ñ gi÷a trung ¬ng vµçc tØnh, cô thÓ nh lµ çc th«ng tin vÒ çc ch¬ng tr×nhvµ chØ thÞ cho viÖc lång ghÐp t¹i cÊp tØnh.

KhuyÕn nghÞ 2: §¶m b¶o sù phèi hîp tèt h¬n c¶ vÒchiÒu däc vµ chiÒu ngang gi÷a ban ngµnh vµ chÝnh quyÒntrong qu¸ tr×nh lµm kÕ ho¹ch cÊp trung ¬ng vµ trong bèic¶nh ph©n cÊp: (i) t¨ng cêng çch tiÕp cËn ®a ngµnhtrong c«ng t¸c lËp kÕ ho¹ch ë cÊp ®Þa ph¬ng (ii) ®Èym¹nh vai trß ®iÓu phèi cña Bé/Së KH&§T ®Ó x©y dng kÕho¹ch liªn ngµnh t¹i çc ®Þa ph¬ng; (iii) t¨ng cêng sùhîp t¸c vµ trao ®æi gi÷a Bé KH&§T vµ Së KH&§T ®Ó ®¶mb¶o sù hîp t¸c vµ th«ng tin vµ híng dÉn vÒ çc ch¬ngtr×nh quèc gia mét çch hiÖu qu¶.

Bµi häc 3: Khung ph¸p lý (çc v¨n b¶n híng dÉn, çcNghÞ ®Þnh vµ ChØ thÞ) vÒ lËp kÕ ho¹ch cã g¾n víi môc tiªut¨ng trëng gi¶m nghÌo cßn thiÕu vµ cha cô thÓ. Çc ®Þaph¬ng thêng cha n¾m ®îc çc v¨n b¶n híng dÉn vµc¬ chÕ cho viÖc triÓn khai thùc hiÖn KH PT KT-XH, ®Æc biÖtlµ çc v¨n b¶n ph¸p lý cã liªn quan ®Õn viÖc lång ghÐp çcmôc tiªu cña CPRGS vµo KÕ ho¹ch

KiÕn nghÞ 3. ViÖc lång ghÐp CPRGS vµ sù ®æi míi trongc«ng t¸c lËp kÕ ho¹ch chØ cã thÓ ®îc duy tr× vµ thùc hiÖnt¹i çc cÊp c¬ së khi mµ cã çc v¨n b¶n híng dÉn cô thÓrâ rµng vÒ lËp kÕ ho¹ch vµ ®Çu t c«ng céng. Bé KH&§Tnªn x©y dùng mét khung ph¸p lý lång ghÐp vµ xuyªn suèth¬n (çc v¨n b¶n híng dÉn, NghÞ ®Þnh) cho viÖc giíi thiÖuCPRGS vµ KH PT KT- XH cho çc çn bé kÕ ho¹ch t¹i ®Þaph¬ng, cô thÓ nh sæ tay híng dÉn lËp kÕ ho¹ch hoÆc lµv¨n b¶n chØ dÉn cô thÓ vÒ viÖc lËp kÕ ho¹ch nh thÕ nµo,thùc hiÖn ra lµm sao vµ gi¸m s¸t kÕ ho¹ch nh thÕ nµo.

Bµi häc 4: HiÖn nay, díi sù hç trî ®Ó ®æi míi c«ng t¸clËp kÕ ho¹ch KT-XH trung h¹n vµ hµng n¨m, vÉn cha cãsù tiÕp cËn thèng nhÊt, cã hÖ thèng. V× vËy, çc nç lùc vµnguån lùc ®Ó ®æi míi c«ng t¸c kÕ ho¹ch ho¸ vÉn cßn cãrñi ro vµ dµn tr¶i, thiÕu sù phèi hîp chÆt chÏ, vµ cha bÒnv÷ng. §Æc biÖt, cha cã mèi liªn hÖ hÖ thèng gi÷a nç lùclËp kÕ ho¹ch cña n¨m nay víi n¨m sau.

KiÕn nghÞ 4: Çc ®Þa ph¬ng cÇn ®ång ý mét chiÕn lîctæng thÓ nhiÒu n¨m ®Ó ®æi míi tõng phÇn c«ng t¸c kÕho¹ch ho¸ (vÝ dô: ph©n tÝch vÊn ®Ò - gi¶i ph¸p, thiÕt lËpmôc tiªu u tiªn, ph©n tÝch nguån lùc nh trong B¶ng 1)ChiÕn lîc cÇn ®îc thùc hiÖn qua viÖc cñng cè dÇn çchîp phÇn trong quy tr×nh x©y dùng kÕ ho¹ch còng nhlång trong quy tr×nh cña kÕ ho¹ch hµng n¨m. NÕu kh«ngthùc hiÖn hÖ thèng vµ dµi h¹n nh vËy, viÖc ®æi míi quytr×nh lËp kÕ ho¹ch vµ çc s¸ng kiÕn sÏ r¶i r¸c vµ kÐm hiÖuqu¶.

Bµi häc 5: Çc yÕu tè nh lµ khung thêi gian vµ nguånlùc cã thÓ cã cÇn ph¶i ®îc xem xÐt khi tæ chøc çc kho¸®µo t¹o t¹i çc tØnh. §iÒu ®ã quan träng ®Ó ®¶m b¶o r»ngçc khãa ®µo t¹o t¹i cÊp tØnh ®îc thùc hiÖn theo ®óngthêi gian ®Ó ®Þa ph¬ng cã thÓ lËp ®îc KH PT KT-XHhµng n¨m theo çch cã sù tham gia vµ nép kÕ ho¹ch lªnBé KÕ ho¹ch vµ §Çu t vµ tr×nh Quèc héi ®Ó th«ng qua.

KhuyÕn nghÞ 5. §¶m b¶o ch¾c ch¾n r»ng tËp huÊn t¹icÊp tØnh ®îc tiÕn hµnh tríc kú h¹n ph¶i nép kÕ ho¹chlªn trªn. X¸c ®Þnh sím çc c¬ héi thu hót nguån lùc tµichÝnh vµ hç trî kü thuËt tõ Bé KH&§T, tõ çc tæ chøc tµitrî vµ çc dù ¸n ph¸t triÓn kh¸c.

E. Çc bµi häc kinh nghiÖm vµ khuyÕn nghÞ chÝnh s¸ch



17

Sù tham gia vµ tÝnh së h÷u

Bµi häc 6: Cam kÕt vµ tÝnh së h÷u cña çc çn bé ®Þaph¬ng ®èi víi c«ng t¸c KH PT KT-XH lµ vÊn ®Ò then chètcho viÖc duy tr× çc ho¹t ®éng giíi thiÖu CPRGS, cô thÓ,t¹i hai cÊp: (i) cam kÕt vÒ chÝnh trÞ vµ kh¶ n¨ng l·nh ®¹ocña çc l·nh ®¹o trung ¬ng vµ ®Þa ph¬ng (vÝ dô: BéKH&§T, UBND, Së KH&§T); (ii) tÝnh tù chñ vµ sù tham giatrong qui tr×nh x©y dùng kÕ ho¹ch cña çc çn bé t¹i cÊptØnh, huyÖn vµ x·, còng nh lµ nh÷ng çn bé thùc hiÖn KHPT KT-XH trong t¬ng lai.

KhuyÕn nghÞ 6: G¾n kÕt çc l·nh ®¹o trung ¬ng vµ ®Þaph¬ng (Bé KH&§T, UBND, Së KH&§T) ®Ó cã ®îc camkÕt vÒ mÆt chÝnh trÞ trong c«ng t¸c lËp kÕ ho¹ch KH PT KT-XH vµ ®Ó thiÕt lËp mét hÖ thèng cã sù tham gia tham vÊnvíi çc çn bé cao cÊp t¹i çc ban ngµnh. Sù cam kÕt tõtrung ¬ng tíi ®Þa ph¬ng cã thÓ ®îc ®Èy m¹nh h¬n n÷ath«ng qua çc Nhãm ®iÒu phèi, çc chØ thÞ cña tØnh, hoÆclµ mét dßng ng©n s¸ch cho c«ng t¸c x©y dùng kÕ ho¹ch.§iÒu sau cïng nµy sÏ gióp cho x·, huyÖn vµ tØnh cãph¬ng tiÖn ®Ó thùc hiÖn lËp kÕ ho¹ch hµng n¨m. ChÝnhquyÒn trung ¬ng vµ ®Þa ph¬ng nªn thÓ chÕ ho¸ çc thönghiÖm ban ®Çu vµ t¨ng cêng ®Èy m¹nh c¬ chÕ vµ n¨nglùc cho viÖc lång ghÐp CPRGS vµo c«ng t¸c lËp kÕ ho¹ch.

X©y dùng n¨ng lùc

Bµi häc 7: ViÖc ®¸nh gi¸ n¨ng lùc hiÖn cã cña çc çnbé ®Þa ph¬ng lµ cÇn thiÕt ®Ó x¸c ®Þnh nhu cÇu vµ t×m ra®iÓm cÇn t¨ng cêng, vÝ dô nh kü n¨ng ph©n tÝch vµ thuthËp th«ng tin, lËp kÕ ho¹ch cã sù tham gia, sù liªn kÕtgi÷a ng©n s¸ch víi kÕ ho¹ch, gi¸m s¸t ®¸nh gi¸, x©y dùngkÕ ho¹ch mang tÝnh chiÕn lîc, ph©n tÝch chÝnh s¸ch vµçc vÊn ®Ò ph¸t triÓn. Sù hç trî ®èi víi c«ng t¸c lËp KH PTKT-XH cÇn tÝnh ®Õn kh¶ n¨ng tiÕp thu cña çc quan chøc®Þa ph¬ng vµ nªn ®îc x©y dùng dÇn theo cÊp ®é, cã tæchøc vµ cã thÓ ®o lêng ®îc.

KhuyÕn nghÞ 7: CÇn thiÕt ph¶i tiÕn hµnh ®¸nh gi¸ kh¶n¨ng cña ®Þa ph¬ng tríc khi tiÕn hµnh çc kho¸ ®µo t¹o.Çc kho¸ ®µo t¹o tíi vÒ KH PT KT-XH nªn dùa trªn çc®¸nh gi¸ nµy ®Ó ®¸p øng ®îc nhu cÇu cô thÓ ®· ®îc x¸c®Þnh.

Bµi häc 8: X©y dùng n¨ng lùc cã môc tiªu lµ ®iÒu cÇnthiÕt cho sù thµnh c«ng trong qu¸ tr×nh ®æi míi c«ng t¸c kÕho¹ch vµ lång ghÐp CPRGS, cô thÓ lµ ph©n cÊp m¹nh h¬ncho ®Þa ph¬ng. Çc ho¹t ®éng ®Ó t¨ng cêng n¨ng lùc,lµ ®iÒu tiªn quyÕt cho viÖc lËp vµ thùc hiÖn sù lång ghÐpCPRGS víi KH PT KT-XH hiÖu qu¶.

KiÕn nghÞ 8: Mét ch¬ng tr×nh tËp huÊn/gi¸o tr×nh phïhîp nªn ®îc thiÕt kÕ dùa vµo nhu cÇu vµ t×nh h×nh cô thÓcña tõng ®Þa ph¬ng vµ viÖc ®¸nh gi¸ nhu cÇu ®îc nãi ëtrªn. N©ng cao n¨ng lùc cho çc çn bé chñ chèt trongc«ng t¸c lËp kÕ ho¹ch lµ cÇn thiÕt. Çc c¬ quan ChÝnh phñ,çc ViÖn vµ trêng, çc tæ chøc phi chÝnh phñ ë ®Þaph¬ng còng cÇn tham gia nhiÒu h¬n vµo viÖc truyÒn ®¹tçc kiÕn thøc vµ kü n¨ng th«ng qua h×nh thøc ®µo t¹o choçc nhµ ®µo t¹o (TOTs) t¹i çc cÊp kh¸c nhau.

Bµi häc 9: Bé, ngµnh trung ¬ng nh Bé KH&§T vµ çcbé kh¸c cïng çc nhµ tµi tr¬ ®· hîp t¸c tÝch cùc trong triÓnkhai lång ghÐp CPRGS. Sù hîp t¸c víi çc tæ chøc phichÝnh phñ còng rÊt h÷u Ých. Nh÷ng phu¬ng ph¸p PRA,PPA, VDP cã thÓ ®îc tæ chøc ®iÒu phèi tèt h¬n víi sù hçtrî cña çc tæ chøc phi chÝnh phñ, hoÆc çc tæ chøc quÇnchóng ®Þa ph¬ng. Tæ chøc phi chÝnh phñ còng cã thÓ hçtrî ®µo t¹o n¨ng lùc cho çc çn bé kÕ ho¹ch ®Þ¹ ph¬ng

KhuyÕn nghÞ 9: Tæ chøc phi chÝnh phñ cã thÓ hîp t¸c ®ÓchuyÓn giao kiÕn thøc vµ kü n¨ng qua phu¬ng thøc TËphuÊn cho TËp huÊn viªn t¹i çc cÊp cho çc tæ chøc quÇnchóng hoÆc cho çn bé lËp kÕ ho¹ch t¹i c¬ së. Çc ®Þaph¬ng cã thÓ huy ®éng nguån lùc hç trî nµy (c¶ vÒ küthuËt vµ tµi chÝnh), ®Ó çc kÕ ho¹ch ®Þa ph¬ng cã thÓ södông çc kÕt qu¶ cña VDP/CDP.

Bµi häc 10: KÕ ho¹ch KH PT KT-XH 5 n¨m vµ hµng n¨msÏ cã chÊt lîng h¬n nÕu nh nã ®îc dùa vµo viÖc ph©ntÝch vµ ®¸nh gi¸ tèt t×nh h×nh; kÕt hîp çc híng dÉn cñatrung ¬ng vµ th«ng tin ®Çu vµo tõ ®Þa ph¬ng. N¨ng lùc®¸nh gi¸ t×nh h×nh vÉn cßn yÕu. §iÒu cèt lâi lµ th«ng tin d÷liÖu phôc vô kÕ ho¹ch thêng kh«ng ®Çy ®ñ, thiÕu ph©ntÝch t×nh tr¹ng nghÌp ®ãi; thiÕu sù tham gia s©u cña çcViÖn nghiªn cøu cßn Ýt tham gia hç trî cho ®Þa ph¬ng.ViÖc tham gia hç trî nµy v« cïng gi¸ trÞ cho viÖc ph¸t triÓnçc kÕ ho¹ch mang tÝnh chiÕn lîc.

KhuyÕn nghÞ 10: N¨ng lùc ph©n tÝch vµ ®¸nh gi¸ cÇn®îc cñng cè dÇn dÇn cho çc çn bé kÕ ho¹ch ®Þaph¬ng. Trong thêi gian hiÖn t¹i vµ c¶ t¬ng lai, cÇn cã sùphèi hîp tèt h¬n gi÷a çc bé, ngµnh, Côc thèng kª, chÝnhquyÒn vµ tæ chøc nghiªn cøu ®µo t¹o (vÝ dô: ViÖn nghiªncøu, çc trêng ®¹i häc, çc tæ chøc phi chÝnh phñ) ®Ócung cÊp ®Çu vµo c¶ vÒ chÊt lîng vµ sè lîng. Sù thamgia vµ tham vÊn tõ ngêi d©n sÏ gióp cho viÖc x¸c nhËn l¹içc ®¸nh gi¸ cña ®Þa ph¬ng vµ ngµnh.



18

Quy Tr×nh vµ Néi dung cña KH PT KT-XH

Bµi häc 11: ChiÕn lîc CPRGS lµ ®· x¸c ®Þnh ®îcnh÷ng môc tiªu, chØ sè kÕt qu¶ bao gåm Môc tiªu Ph¸ttriÓn cña ViÖt Nam. Tuy nhiªn, çc KH PT KT-XH t¹i ®Þaph¬ng cßn cha thÓ hiÖn ®Çy ®ñ çc môc tiªu vµ chathÓ hiÖn ®îc mèi liªn hÖ t¸c ®éng.

KhuyÕn nghÞ 11: ViÖc x©y dùng KH PT KT-XH t¹i ®Þaph¬ng cÇn ®îc dùa trªn sù ph©n tÝch tèt vµ mét ph¬ngph¸p lËp kÕ ho¹ch chiÕn lîc: vÝ dô nh sö dông ph©n tÝch§iÓm m¹nh - §iÓm yÕu – C¬ héi – Th¸ch thøc, ph©n tÝchlîi thÕ so s¸nh, vµ çc nghiªn cøu ngµnh. LËp kÕ ho¹chchiÕn lîc cã thÓ gióp x¸c ®Þnh çc môc tiªu tèt cho KH PTKT-XH trong khu«n khæ cña Môc tiªu Ph¸t TriÓn cña ViÖtNam.

Bµi häc 12: CPRGS lµ mét v¨n b¶n tèt cã çc yÕu tèhíng vÒ ngêi nghÌo víi çc chÝnh s¸ch x· héi. Qu¸ tr×nhlËp KH PT KT-XH t¹i ®Þa ph¬ng cßn tËp trung vµo çc chØtiªu ph¸t triÓn kinh tÕ h¬n lµ çc chØ tiªu ph¸t triÓn x· héi,xo¸ ®ãi gi¶m nghÌo; c¶i thiÖn møc sèng d©n c cho ngêinghÌo.

KhuyÕn nghÞ 12: KÕ ho¹ch cÇn tËp trung h¬n n÷a vµoçc vÊn ®Ò x· héi vµ xo¸ ®ãi gi¶m nghÌo ®Ó ®¶m b¶o ch¾cch¾n r»ng ph¸t triÓn kinh tÕ dÉn tíi ph¸t triÓn x· héi chotÊt c¶ çc thµnh phÇn kinh tÕ ë ®Þa ph¬ng. KH PT KT-XHcÊp tØnh vµ c¬ së cÇn híng tíi môc tiªu gióp ®ì ngêinghÌo h¬n n÷a vµ gi¶i quyÕt çc kho¶ng çch x· héi ngµymét t¨ng. D÷ liÖu vÒ kinh tÕ, v¨n ho¸, x· héi vµ nh©n khÈuhäc hay lµ ph©n tÝch nghÌo lµ c©n thiÕt ®Ó cã thÓ cã KH PTKT-XH híng tíi ngêi nghÌo.

Bµi häc 13: Ph©n tÝch sù bÊt b×nh ®¼ng, chªnh lÖch vÒtr×nh ®é ph¸t triÓn gi÷a çc nhãm d©n c, d©n téc vµ gi÷açc vïng, miÒn lµ cÇn thiÕt. Sù mÊt c©n b»ng gi÷a çcnhãm d©n c bÞ thiÖt thßi, cô thÓ trÎ em, phô n÷ vµ d©n técthiÓu sè nãi chung cha ®îc ph©n tÝch vµ ®Ò cËp ®Õntrong KH PT KT-XH.

KiÕn nghÞ 13: KH PT KT-XH cÇn ®¶m b¶o r»ng nhu cÇucña trÎ em, phô n÷, çc nhãm d©n téc thiÓu sè ®îc quant©m mét çch thÝch ®¸ng. Çc sè liÖu cÇn ®îc thu thËptheo ®é tuæi, giíi tÝnh, t«n gi¸o, møc ®é nghÌo vµ sau ®ãph©n tÝch ®Ó hiÓu nguyªn nh©n dÉn ®Õn sù bÊt lîi; çcchÝnh s¸ch vµ çc ho¹t ®éng cÇn ®îc ®a vµo KH PT KT-XH ®Ó gi¶i quyÕt nh÷ng kho¶ng çch nµy; nh÷ng ngêi ®¹idiÖn çc nhãm nµy nªn ®îc tham gia vµo viÖc x©y dùngKH PT KT-XH. Çc môc tiªu cña KH PT KT-XH t¹i ®Þaph¬ng nªn ®îc liªn kÕt víi CPRGS/VDG, cïng víi kÕho¹ch hµnh ®éng quèc gia cho trÎ em vµ kÕ ho¹ch hµnh®éng quèc gia vÒ sù tiÕn bé cña phô n÷.

Bµi häc 14: Qui tr×nh lËp kÕ ho¹ch cã sù tham gia ë tÊtc¶ çc cÊp, sö dông çch tiÕp cËn tõ díi lªn víi sù thamgia m¹nh mÏ cña çc tæ chøc vµ ngêi d©n ®¹i diÖn choçc nhãm d©n c bÊt lîi thÕ lµ cÇn thiÕt.

KhuyÕn nghÞ 14: Çc ho¹t ®éng n©ng cao n¨ng lùc cÇnbao gåm c¶ viÖc giíi thiÖu çc ph¬ng ph¸p nh ®¸nh gi¸sù tham gia vµ lËp kÕ ho¹ch cã sù tham gia. Trong khi quytr×nh vµ ph¬ng ph¸p vÉn ®îc coi lµ kh¸ míi ®èi víi hÇuhÕt çc çn bé ®Þa ph¬ng, th× cÇn thiÕt ph¶i cã mét sù hçtrî m¹nh mÏ, vÝ dô cho viÖc lËp kÕ ho¹ch cã sù tham gianªn ®îc lÆp l¹i trong mét vµi chu kú lµm kÕ ho¹ch hµngn¨m ®Ó cã thÓ ®îc thùc hiÖn tèt ë cÊp c¬ së, víi sù thamgia cña ®¹i diÖn cña nhãm d©n bao gåm c¶ ngêi nghÌo,phô n÷, trÎ em, vµ çc d©n téc thiÓu sè kh¸c nhau, vµ çcnhãm kÐm lîi thÕ kh¸c.

Bµi häc 15: Çc qui tr×nh kÕ ho¹ch kh¸c nhau ®îc tiÕnhµnh t¹i çc cÊp ®Þa ph¬ng (vÝ dô; huyÖn, x·) mµ kÕt qu¶kh«ng ®îc liªn kÕt l¹i víi nhau vµ Ýt ®îc thÓ hiÖn trongkÕ ho¹ch cÊp tØnh. Çc kÕ ho¹ch nµy nªn ®îc liªn kÕt l¹ivµ lång ghÐp vµo KH PT KT-XH cÊp tØnh. Ngoµi ra, cßnthiÕu sù g¾n kÕt gi÷a c«ng t¸c lËp kÕ ho¹ch KH PT KT-XHvµ kÕ ho¹ch cña çc dù ¸n t¹i cÊp tØnh.

KhuyÕn nghÞ 15: C¶ kÕ ho¹ch vµ kinh nghiÖm t¹i çccÊp kh¸c nhau (tØnh, huyÖn, x·) vµ tõ çc dù ¸n trong tØnhnªn ®îc chia sÎ vµ hîp t¸c ®Ó c«ng t¸c lËp KH PT KT-XHcã chÊt lîng tèt h¬n.



19

Gi¸m s¸t vµ ®¸nh gi¸

Bµi häc 16: HÖ thèng vµ c¬ chÕ lu tr÷, tiÕp cËn vµ cËpnhËt sè liÖu vµ th«ng tin lµ cÇn thiÕt.

KhuyÕn nghÞ 16: Mét hÖ thèng th«ng tin vµ dù liÖu tin cËyvµ ®îc cËp nhËt thêng xuyªn lµ cÇn thiÕt cho viÖc ®¸nhgi¸ vµ ph©n tÝch hiÖn tr¹ng tèt gióp cho viÖc lËp kÕ ho¹ch vµra chÝnh s¸ch trong KH PT KT-XH ®îc chÝnh x¸c. Nªn södông phÇn mÒm VietInfo (UNICEF cã thÓ hç trî) nh lµ métc¬ së d÷ liÖu cho viÖc lu tr÷, cËp nhËt vµ theo dâi tiÕn tr×nhçc chØ sè çc chØ tiªu kinh tÕ x· héi cña çc tØnh.

Bµi häc 17: Mét hÖ thèng gi¸m s¸t ®¸nh gi¸ minh b¹chrâ rµng ®îc tËp trung vµo viÖc x©y dng vµ thùc hiÖn kÕho¹ch KH PT KT-XH cã ý nghÜa lín cho sù thµnh c«ng cñaçc kÕ ho¹ch KH PT KT-XH, çc ch¬ng tr×nh vµ dù ¸ncòng nh lµ viÖc ph©n bæ nguån lùc mét çch hiÖu qu¶.

KhuyÕn nghÞ 17: HÖ thèng minh b¹ch râ rµng cho KHPT KT-XH vµ sñ dông nguån lùc t¹i çc cÊp chÝnh quyÒn®Þa ph¬ng lµ cÇn thiÕt ®Ó ®¶m b¶o çc kÕ ho¹ch KH PTKT-XH, çc môc tiªu lµ hiÖn thùc vµ cã sù u tiªn theo t×nhh×nh thùc tÕ cña ®Þa ph¬ng ®ã. Do ®ã cÇn ph¸t triÓn hÖthèng gi¸m s¸t ®¸nh gi¸ minh b¹ch râ rµng. C¬ chÕ thamgia tham vÊn nªn ®îc thiÕt lËp ®Ó thu thËp th«ng tin ph¶nhåi, çc nhËn xÐt ®¸nh gi¸ vµ nh÷ng mong ®îi cña ngêid©n vÒ çc dÞch vô c«ng vµ çc ch¬ng tr×nh ph¸t triÓn. CôthÓ lµ ngêi nghÌo, phô n÷, trÎ em vµ çc d©n téc thiÓu sècòng nh lµ çc nhãm d©n c kÐm lîi thÕ kh¸c nªn ®îctham vÊn.

Bµi häc 18: KH PT KT-XH vµ qui tr×nh x©y dùng kÕ ho¹chnªn dùa vµo kÕt qu¶ vµ cÇn tËp trung h¬n vµo çc kÕt qu¶ph¸t triÓn cuèi cïng vµ çc t¸c ®éng (vÝ du: chÊt lîng t¨ngtrëng, xo¸ ®ãi gi¶m nghÌo). Çc kÕ ho¹ch ph¸t triÓn kinhtÕ - x· héi tríc ®©y chñ yÕu dùa vµo çc môc tiªu ®Çu vµovµ ®Çu ra.

KhuyÕn nghÞ 18: Çc môc tiªu, chØ tiªu cña KH PT KT-XH nªn ®îc thiÕt lËp dùa vµo çc kÕt qu¶ vµ t¸c ®éng lµmc¬ së ®Ó gi¸m s¸t ®¸nh gi¸. Theo môc tiªu ph¸t triÓn ViÖtNam, mçi tØnh nªn ph¸t triÓn cho riªng m×nh mét khungmôc tiªu chØ tiªu cô thÓ. Çc chØ sè nªn ®îc lîng ho¸ vµgi¸m s¸t ®îc.


20

Giíi thiÖu CPRGS Kho¸ cho l·nh ®¹o Kho¸ cho chuyªn viªn TËp huÊn cho TH viªn LËp KH chiÕn lîc §µo t¹o theo yªu cÇu Th«ng tin Héi th¶o tæng kÕt Tæng sè

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KÕt qu¶ ban ®Çu: TËp huÊn x©y dùng n¨ng lùc lång ghÐp CPRGS trong lËp kÕ ho¹ch PT KT-XH t¹i T©y NguyªnDanh s¸ch ngêi tham dù vµ çc kho¸ ®µo t¹o

FIN/S Tµi chÝnh/Thèng kª* Chñ tÞch/Phã chñ tÞchPCP Çn bé §¶ng


CPRGS Steering Committee in collaboration with Asian Development Bank, German Agency of Technical Cooperation, United Nations Children's Fund Provincial Department of Planning and Investmentof Central Highlands

A joint review report by

Hanoi, April 2005

Comprehensive Poverty Reduction and Growth Strategy Integrationinto Socio Economic Development Planning

Lessons from Central Highlands, Viet Nam


22

Acknowledgement

This review report on Comprehensive Poverty Reduction and Growth Strategy (CPRGS)Integration into Socio Economic Development Planning - Lessons from Central Highlands, VietNam, provides an overview of experiences and lessons learnt from the Government efforts to integratethe (CPRGS elements into local level socio-economic development plans (SEDPs) preparation inDaklak, Daknong, Gialai and Kontum. With the technical assistance of the Asian Development Bank(ADB), German Agency of Technical Cooperation (GTZ), United Nations Children's Fund (UNICEF) andthe Ministry of Planning and Investment (MPI)) during 2004, these provinces have undertaken a seriesof on-the-job training and technical guidance in local level development planning. The report also pres-ents key recommendations to help inform future work on improving socioeconomic planning process inViet Nam..

The report was prepared by a team of experts led by Ms. Ngo Huong, Poverty Reduction Specialist (ADBTA-4252), with assistance from Ms. Vu Mai (National Economic University, Planning Faculty) and valu-able comments from Ramesh Adhikari(ADB), Ian Green (Consultant, ADB TA-4163), Ms. Vu Xuan Dao(ADB- TA4163). The report also benefited from the generous intellectual contribution from DanSeymour, Ms. Lisa Ng Bow and Nguyen Trong Quang (UNICEF). Special thanks go to Dr. Cao VietSinh, and Mr. Pham Hai (MPI) and Ms. Nguyen Thi Thu Ha, Mr. Tran Quoc Phuong (CPRGS Secretariat)for their active support and encouragement not only in preparing the report, but also in CPRGS roll-outimplementation. Special thanks for the cooperation of local authorities of the Central Highland through-out the process.


23

Preface

Growth and Poverty Reduction are the throughout objectives in socio-economic planning of the government, ministriesand localities. Directive No. 33/2004/CT-TTg of the Prime Minister on development of 5 year socio-economic plans 2006-2010 has clearly stated the requirement for planning renovation to cope with the current situation, and which put forwardsthe quality of development, enhancement of poverty reduction, improvement of people's quality of life.

The development and integration of Comprehensive Poverty Reduction and Growth Strategy (CPRGS) in ministries,agencies and localities have drawn many invaluable experiences to incrementally improve the quality of socio-econom-ic plans. The document "Comprehensive Poverty Reduction and Growth Strategy (CPRGS) Integration into SocioEconomic Development Planning - Lessons from Central Highlands, Viet Nam" produced by the AsianDevelopment Bank (ADB), German Agency for Technical Cooperation (GTZ), United Nations Children's Fund (UNICEF)in collaboration with CPRGS Committee and Secretariat, Ministry of Planning and Investment and local authorities ofCentral Highlands, in order to share to other provinces to improve the quality of planning. The achievements, the lessonslearnt and key recommendations will provide other provinces with future important approach and good practices in thedevelopment of 5 year socio-economic plans 2006-2010 as well as their annual plans.

On this occasion, CPRGS Steering Committee sincerely thanks the international agencies, donors for their support inimplementation of Comprehensive Poverty Reduction and Growth Strategy at provincial levels.

We hope you enjoy this document.

Dr. Cao Viet Sinh,

Director

Head, CPRGS Steering Committee


Comprehensive Poverty Reduction and Growth Strategy Integration into Socio Economic Development Planning

24

TABLE OF CONTENTS

A. Background and summary 25

B. CPRGS Integration 26

1. Overview 26

2. Experiences in the Central Highlands 27

a) Daknong 27

b) Daklak 31

c) Gialai 33

d) Kontum 33

C. What are the remaining constraints? 34

D. Feedback from central and local planners and stakeholders 34

E. Lessons learnt and policy implications 36

Appendix 1: Capacity building training on CPRGS integration into SEDP 40in the Central Highlands



25

BackgroundThe Comprehensive Poverty Reduction and Growth Strategy (CPRGS) was approved by the Government of Viet Namin May 2002. The government has stated its intention to strengthen the quality of socio-economic development plans(SEDPs) at all levels through planning reforms. In order to do this, there are some fundamental requirements: (i) to find anappropriate "fit" between the CPRGS and five-year socio-economic development plan; (ii) to improve the coordination andcollaboration of central and local level government; (iii) to institutionalize planning reform and improvements into local sys-tems and mechanisms for greater ownership by local government; (iv) to strengthen local capacities of policy makers andplanners to ensure that the principles of CPRGS and planning directive are translated into practice; and (v) to strengthenthe systems and process of planning and monitoring of plans at local levels.

Incorporating the CPRGS into provincial plans and budgets is still seen to be a difficult task, and a challenge to the top-downapproach, which has prevailed for many years. Needs for the next five-year SEDP are generally recognized1. Traditionalplanning systems will need to change in order to ensure that socio-economic plans are prepared such that national devel-opment aims can be achieved. It is also generally recognized that the understanding of the CPRGS approach at provinciallevel is very tenuous and that the absorptive capacity of provincial governments for changes to the planning process is verylimited. Reforms to the planning process need to be introduced in a systematic and consistent way, and at a pace, which ismanageable to provincial governments (although some are more ready than others). Capacity to manage different stagesof change in the planning process needs to be built-up incrementally, year-by-year, in a structured and measurable way.

Summary of ExperiencesCPRGS integration into the five-year Socio-economic Development Plan was found to be critical at both central andlocal levels. CPRGS integration was strongly supported by the national commitment to poverty reduction, social equity andimprovements in local governance, as well as new legislation towards greater decentralization (eg, the Prime Minister'sInstruction (No 33/2004/CT-TTg, 23 September 2004), Circular 2215 / MPI, the newly amended Budget Law, the Grass-rootsDemocracy Decree). These have paved the way for reforms in the planning process.

At local levels, CPRGS implementation received strong support from the central government and international organiza-tions/donors. However, a key challenge to reforming the planning process has been the legacy of the old planning processwhich tended to set quantitative output targets, objectives and priorities, based on unclear criteria and unrealistic estimatesof resources. Among the weaknesses are the lack of horizontal and vertical coordination and collaboration among lineagencies, as well as between central and local government, regarding investment, priority setting and selection of programsin accordance with available resources. Other constraints are weak institutions, and capacity at local levels2. Weak insti-tutions and capacity at commune level in particular inhibit the strengthening of a more bottom-up and participatory planningand budgeting approach.

However, there was general enthusiasm to enhance participatory planning and include a wide range of government andnon-government stakeholders in the planning process. The role of NGOs working in many provinces would help to reducethe difficulties. In addition, information for pro-poor planning is inadequate - including information about available financialresources, and both qualitative and quantitative information about poverty. It was recognized that poverty analysis needs tobe broad enough to deal with the multiple deprivations of poverty, and go beyond the identification of population below aspecified income poverty line. Some of the gaps found in the planning process and in plans and policies, included the lackof qualitative socio-economic analysis of poverty and the lack of a conceptual framework for poverty, growth and social equi-ty3. In the SEDP planning and policy making process, there was inadequate consultation and participation by people andother stakeholders.

There have been some achievements during CPRGS integration in the SEDP planning process in the CentralHighlands. There is improved collaboration at all levels from central government to local government to the grassroots level.Local SEDPs give greater consideration to social issues and poverty reduction. More participatory planning has been sig-nificantly acknowledged and piloted using a "bottom-up" approach or "mixed-top down" approach, and with the participationof ordinary people who contributed ideas, and helped to prioritize and make decisions on community issues. The technicalsupport to provinces have enhanced capacity in strategic planning for the province's staff and leaders to improve the qual-ity of annual and five-year SEDPs. However, the central government and local government have found that the new plan-ning process can help to address the core regional development issues of the Central Highlands. These problems includechronic poverty, land allocation vs. in-migrant issues, unskilled labor force, ethnic minority issues, increased disparities

1 Results of discussion in PTF meeting 14 Oct 20042 Report of ADB's TA-4163- VIE3 Referring to Background Paper " Finding a Fit between CPRGS and SEDP", DFID, Oct 2004

A. BACKGROUND AND SUMMARY



26

among regions, lack of participation4. Institutional reform as well as planning reform will help address some of the region'sdevelopment issues.

Summary of Lessons Learnt and Policy ImplicationsThe lessons learnt and recommendations for CPRGS integration in the SEDP process contained in this document can becategorized into five broad areas: 1) institutional issues; 2) capacity building; 3) SEDP content; 4) the SEDP developmentprocess; and 5) monitoring and evaluation.

Ø Among the institutional issues were: i) the need for improved structures for Government-donor collaboration; ii)the lack of good mechanisms for intra-governmental collaboration (ie, horizontal inter-sectoral collaboration at cen-tral and local levels, and vertical coordination of CPRGS roll out process); iii) the lack of a clear legal framework andpragmatic tools for integrating the principles of a centrally-developed CPRGS into local socio-economic develop-ment plans; and iv) the need that each provincial government agree on an overall multi-year strategy for reform foreach component of the reform process and v) the need to match local SEDP planning schedules to central approvalschedules, as well as the need to secure adequate resources for SEDP planning.

Ø With regard to participation and ownership it was found that there is ultimate need to build political commitmentand a sense of local ownership during the SEDP planning process

Ø Capacity building measures were viewed as being central to the CPRGS roll-out process, as local levels authori-ties need to be able to carry out new decentralized responsibilities effectively. Recommendations outlined in thispaper included: i) conducting a participatory needs assessment of local absorptive capacities; ii) ensuring targetedcapacity strengthening for local official in implementing various stages of the planning process (eg, data collectionand analysis, participatory planning, linking budgets to plans, strategic planning, policy analysis); and iii) the needto build capacity for undertaking situation assessments and analyses and involve local research institutes in thisprocess.

Ø With regard to SEDP process and content: the SEDP development process could be improved by increasing thelevel of participation in the planning process, particularly by poor and vulnerable groups, and grassroots level peo-ple and organizations. In addition, greater coordination with other development plans in the province (eg, district,commune, village, project) is needed. The need to balance economic growth with poverty reduction and social equi-ty issues was apparent. Strategic planning can help to identify good objectives to SEDP that are aligned with VDGs.Notably absent from the planning process were good analyses of social issues, poverty and underlying problemsrelated to disadvantaged population subgroups such as children, women, ethnic minorities, and those living inremote areas. It became clear that SEDPs needed to be more pro-poor and responsive to challenges faced byunderprivileged groups.

Ø Participatory and transparent monitoring and evaluation systems also were viewed as greatly needed for theimplementation of a well-targeted pro-poor SEDP and for effective resource use. Finally, given the traditional use ofoutput and input targets characteristic of central planning, there is a need to focus SEDP plans on developmentresults, defined in terms of development outcomes and impact on all people, particularly the poor and disadvan-taged.

In short, the question is not "whether" the Government should undertake CPRGS integration into SEDP planning, but "how".The Taking Stock document records how central government (MPI), local governments (provinces in the Central Highlands),and international development organizations have worked together towards CPRGS integration for better quality Socio-Economic Development Plans.

1. OverviewThe overall objective of supporting CPRGS integration into socio-economic development plans (SEDPs) in the provinceswas to strengthen the local government's planning process to develop pro-poor plans and policies, and hence to promoterapid and sustainable economic growth while ensuring social progress and equity. In that context, CPRGS integration in thesocio-economic development planning process has also supported Government efforts to introduce new planning directionsand implement revised planning requirements so that SEDPs reflect better development results. Support to CPRGS inte-gration also facilitated a process of changing local officials' mindsets and habits from a tradition of central planning to moredecentralized planning.

4 ADB-TA4263 final report

B. CPRGS Integration



27

To get a sense of the Vietnamese planning process, a profile of the planning system is provided in the box below. This pres-ents planners and readers with an overview of the Vietnamese planning system, with particular reference to CPRGS activ-ities in the Central Highlands.

There was an emerging consensus5 that provincial development planning is undergoing a profound transition. Table 2.1below shows the new form of planning ( ie, a mix of "top down" and "bottom-up" approaches) that has been utilized to over-come the constraints of the previous system of centralized planning (ie, moving from a rigid planning system to a more flex-ible policy making process in planning).

For these purposes, key tasks undertaken in the roll-out to date include: (i) introduction of CPRGS and its principles for inte-gration into local socio-economic plans; (ii) development of localized goals and objective setting; (iii) alignment of planningand budgeting processes to localized development targets; and (iv) strengthening monitoring and evaluation systems. Theform of support was delivered through workshops, seminars, trainings (eg. classroom training for trainers and planners, on-the-job training for planners), field work exercises, consultation meetings, review workshops, etc. The CPRGS roll-outprocess adopted a capacity building approach based on local needs and demand.

Viet Nam's Planning Process Viet Nam's macroeconomic planning process is a comprehensive system that includes the development of sector mas-ter plans, regional strategies, the ten-year socio-economic development strategy, five-year socio-economic developmentplans, annual socio-economic development plans and their implementation, plus the monitoring and evaluation of plans.

Currently there are four basic types of plans:

1)Economic Plans

2)Socio-Economic Development Plans

3)Public Investment Plans/Programs

4)Sector Plans

Key characteristics of the planning system: - The five-year SEDP is developed based on regional zoning strategies and sector plans and strategies

- SEDP objectives are normally aligned with the directions of the Government and Party

- Five-year SEDPs are not research and consultation based

- Provincial SEDPs are part of a more decentralized system of planning, implementation and monitoring

- SEDP development process involves a wider range of stakeholders, and has become increasingly more par-ticipatory and consultative

5 Extracted from training materials by Dr. Cao Viet Sinh to new planning government staff, 2004.6 Ref. as an example, the proceedings of the Poverty Task Force of October 2004 on progress with CPRGS roll-out, including reports from provinces participating in the roll-out.

There was an emerging6 consensus that provincial development planning is undergoing a profound transition. Table 2.1below shows the new form of planning ( ie, a mix of "top down" and "bottom-up" approaches) that has been utilized to over-come the constraints of the previous system of centralized planning (ie, moving from a rigid planning system to a more flex-ible policy making process in planning).

For these purposes, key tasks undertaken in the roll-out to date include: (i) introduction of CPRGS and its principles for inte-gration into local socio-economic plans; (ii) development of localized goals and objective setting; (iii) alignment of planningand budgeting processes to localized development targets; and (iv) strengthening monitoring and evaluation systems. Theform of support was delivered through workshops, seminars, trainings (eg. classroom training for trainers and planners, on-the-job training for planners), field work exercises, consultation meetings, review workshops, etc. The CPRGS roll-outprocess adopted a capacity building approach based on local needs and demand.

2. Experiences in the Central HighlandsThe change process for planning was first implemented on a pilot basis, which combined knowledge transfer, direct supportto implementation, and skills building. The provinces of Daklak, Daknong, Gialai, and Kontum directly and actively partici-pated in the change process. While the common goal was to improve the quality of the planning process, it was necessaryto apply different approaches to planning, based on the local situation and local demands.

Some of these experiences and good practices are presented below.


Basic provincialdevelopment plan-

ning process

Transition from - To -

o Top-down process with little or no influence on planning and investmentdecisions by lower government levels(communes and villages) and very limited participation by civil society

o Mixed process with top-down guidanceand bottom-up planning based on participatory processes for problemanalysis and plan preparation.

Problem and OptionsAnalysis - understandingcurrent situation especially in terms ofpoverty characteris-ticsand economic growthdevelopment potential

o Administrative reports of lower levelsare a main source of information

o Limited concept of poverty (i.e. incomeonly) often applied;

o Economic growth potential analysis notunderpinned by appropriate economicanalysis (i.e. comparative advantage)

o Poverty and growth are not linked

o Uses various information sources i.e.Participatory Poverty Analysis (PPA),Vietnam Living Standards Survey(VLSS) and supplementary/ complementary surveys

o Looks at links between growth andpoverty reduction with market-orientated economic analysis

Table 1 Provincial Development Planning in Transition7

Overall process -


28

Objectives and PrioritySetting

o Typically not well specified and notlinked to a well researched and annu-ally updated problem and optionsanalysis. It is often no more than "a bitof everything"

o Objectives identified through a partici-patory process, based on problem andoptions analysis

o Priorities determined by identifyingactivities/investments required toachieve identified objectives

Identify targets and timing o Targets are often too ambitious and notlinked to implementing resources

o Focuses mainly on output goals but notdevelopment goals (i.e. outcomes andimpacts)

Resource Analysis o Links between budget preparation andplanning established (and will be muchenhanced by introduction of MediumTerm Expenditure Frameworks)

Monitoring andEvaluation

o Typically based on output and input figures in administrative reports anddoes not lead to identification of outcomes and impacts / links to VDGs

o Uses consumers surveys / other surveys and participation of beneficiar-ies / stakeholders

o Is demonstrably linked to identifiedobjectives and is a fully integrated fea-ture of the planning process

Stakeholder participation o Participation of people outside government is limited

o Popular participation of stakeholders isa key feature of all stages of thereformed planning process

7 ADB, TA4163 & TA 4252, 2004

o Weak or no links between planningand budgeting

o Weak or no links between planning andcapacity building needs assessment

o Existing regulations restrict flexibility ofprovincial authorities to allocateresources to prioritized activities

o Targets are more realistic through integrat-ed resource analysis (financial and human)

o Targets are designed to ensureachievement of identified outcomesand impacts and Vietnam developmentgoals (VDGs)



29

a) Good Practice 1: Daknong province, after series of training modules on planning to local planners,has developed its five-year SEDP with the wide participation of communities at local levels. Samples ofvillage, commune and district SEDPs were developed and then consolidated into the provincial develop-ment plan. The province was able to prioritize its development goals and objectives (putting moreemphasis on poverty reduction and social development objectives), integrating CPRGS principles andincorporating better quantitative and qualitative analysis from PPAs and the Viet Nam Household Survey.The model was designed in the form of a mixed "bottom-up - top-down" approach, and received a highlevel of commitment and ownership from the provincial authority.

(1) Training was designed so that capacity building activities were systematically delivered

v Module 1 - Strategic planning to provide high level policy makers and planners with strategic thinking skills

v Module 2 - Participatory planning (eg, methodology, tools) provided in the form of training of trainers (TOTs) for keyprovincial and district officials

v Module 3 - Field exercises to apply tools and methodologies to develop skills

v Module 4 - Analysis and consolidation of plans at district and provincial levels

o Consolidation of village, commune and district plans

o SWOT analysis training for the province (including other strategic planning tools)

o Issues analysis and options selection

o Objectives and priorities for the province

o Allocating SEDP programme resources

o Action planning

(2) Using a "bottom-up" participatory approach was relevant and applicable for planning (including the use of tools and pictures)

o At village level: three groups (women, poor and leaders) discussed, analyzed and agreed on priorities for thevillage; then village meetings were held to confirm overall agreement on the plan

o At commune level: three groups (economic/finance, social/ mass organizations, and commune leaders) dis-cussed the situation assessment, trends, and plans, including issues, options, SWOT, and priorities of the com-mune, and then all groups met with village leaders to establish agreement in these areas.

Village meeting to discuss priorities including women's issues Ranking of priorities made by villagers

A women's group reviewing the status of access to public serv-ices and making recommendations

Social services access, reviewed by district officials



30

o At district level: District officials were divided into two main groups: a social sector group and an economic sec-tor group and each discussed sector performance and recommendations,. Then departmental leaders from allgroups met with district leaders to review overall district plans and performance, as well as planning on options,priorities and policies recommended for the next plan.

o At provincial level: A strategic planning workshop was held among key department leaders, district leaders andprovincial authorities, in which sector and district plans were presented. Participants then discussed the overallprovincial assessment of the situation, SWOT, harmonization of priorities, policies on resources and programs, etc.

Who wasinvolved? How? What were the

outputs?

Provinciallevel

People's CommitteePeople's CouncilHeads of line depts District level

Planning work-shops at the inter-departments andlevels

Assessment of achievingobjectives Analysis of situation Setting realistic objectivesMaster SEDP

Districtlevel

Line departments offi-cials in chargeDistrict PCCommune heads

Inter-communeworkshops anddistricts depart-ments

Assessment of achieve-ments of plan and policyFuture objectives / directions District plan and budget(estimated) by year

Communelevel

Key commune officialsPeople's CouncilVillage heads

Inter-villagemeeting andcommune offi-cials

Assessment of achieve-ments of plan and policyCommune plan and budget(estimated) by year

Villagelevel

Groups of people inthe village including:poor women & villageleadersPeople making devel-op-ment plans and priorities

Village meetings Some individualinterviews

List of priorities by yearAssessment of effective-ness and impact of projector policies

Figure 1: Organizing planning at local levels in Daknong province

(3) Daknong provincial authorities strongly supported the process of "CPRGS integration" by promulgating a directive onplanning which captures the key elements of Directive 33 and gave instructions for lower levels to apply the new planningprocess in developing their SEDP.

(4) The mixed "top-down - bottom-up" planning process (ie, more participatory and consultative planning) at different levelsis shown in summary in the below.

(5) Information from lower administrative levels was very useful to support the strategic thinking in the decision makingprocess for high level planners. The planning work developed by each level was actually implemented in two communes ofeach district, for all six districts of Daknong.



31

b) Good Practice 2: Daklak also tried out the mixed "bottom-up - top down" approach. Village andCommune Development Plans (VDP, CDP) were strongly supported by an existing development project.As the result, people recognized better their responsibility, increased participation, and voiced theirunderstanding of socio-economic issues, reducing poverty and changing local governance. In addition,provincial officials could sit together to discuss issues and option analysis, and objective setting intotheir SEDP.

(1) The strategic approach was conducted for provincial departments following the steps outlined below. Local officialsgained skills in logical thinking for developing plans (See Figure 2).

(2) VDPs from existing projects helped promote the participation of community and communication among people and localofficials on development needs and problems that have occurred with regard to the plans and budgets of village investmentprojects. The process was conducted, following the four key steps:

§ Step 1: Village meeting 1 to introduce the objective and activities to be done regarding village planning

§ Step 2: Using Participatory Rural Appraisal (PRA) tools for assessment and planning, conducted by village leadersand facilitators (VDP team)

§ Step 3: Consolidation meeting held among VDP team

§ Step 4: Village meeting 2 to seek common agreement on plans and proposed activities

(3) Provincial officials discussed how to sustain and continue CPRGS integration into an Action Plan8. This showed that themulti-stakeholder partnership is trying to achieve a common goal in development through the institutional set-up and tech-nical assistance (See Figure 3) .

(4) The province can develop their development goals, objectives and priorities and place these into a results-based frame-work with clear indicators for the next five years. This is a very good output developed in a participatory way, which can thenfeed into the five-year SEDP at provincial level.

(5) The province can develop their development goals, objectives and priorities and place these into a results-based frame-work with clear indicators for the next five years. This is a very good output developed in a participatory way, which can thenfeed into the five-year SEDP at provincial level.

Village planningprocess

Commune planningmeeting

District planning work-shop

Strategic planningwork-shops at provincial level

§ The women's group dis-cussed issues like institutional support,health, and gender§ The group of poor vil-

lagers (including womenand men) convened§ The group of village

leaders discussed:poverty trends, environment and, migration issues, etc§ Village's draft plans focus

on issues and priorities

§ Reviewed the progress/achievements and lessons learnt§ Village plan presented § Commune SWOT

presented§ Consolidation of plan and

budget

§ Reviewed progress § Presentation of

commune plans § Presentation of district

line- departments'reports and plans

"§Strategic planning tools(SWOT, issues-option,ranking of priorities) fordistrict as a whole§ Matching with master

plan§ Comments and

agreement

§ Strategic planning work-shop for all district anddepartment heads § Presentation of provincial

situation and trends,overall achievements,lessons learnt§ Setting objectives togeth-

er§ Presentation of districts'

plans and sector plans§ Matching plans with

objectives§ Agreement on criteria for

resource allocation

Table 2: The planning process at many levels in Daknong province

8 Extract from GTZ technical report on Daklak CPRGS roll-out, 2004



32

Which of the (old) priority objectives (from the 2001- 2005 SEDP) need to be addedto the list of the new priorities?

Compare to the priorities list of the 2001 - 2005 plan, do any of the new priorities needto be revised/reformulated?

How can we group and better structure the revised list of the new priority objectives?(goals & sub-goals)

What alternative policy options are needed to achieve the priority objectives?

Look at ways to solve the problems for each area suggested and listed in the respec-tive parts of the CPRGS.

Define one target for each policy option/solution. Based on the approach chosen con-sider: what will be changed? How much will change? By what time will it be achieved?

Please write down the indicators that are related to and help to monitor the progressin each policy option. Place them in the option when appropriate.

Taking the suggestions for indicators as an input, refine, revise, add, or delete in orderto come up to 2 - 3 good indicators for each option

Lµm viÖc theo nhãm, dïng c¸c chØ sè ®· ®îc ®a ra ®Ó cïng th¶o luËn, chØnh söabá di hay thªm vµo

Which solutions/options for one objective are synergistic or contradictory tooptions/solutions for other objective (and to what degree)?

Which combination of options/solutions could provide a potential strategy for Dak Lakdevelopment?

Which strategies would most likely help you achieve your objectives in the short-,medium- and long-term?

Ste

p 1

Ste

p 2

Ste

p 3

Ste

p 4

Ste

p 5



33

c) Good Practice 3: Gialai province has very much committed to carrying out a consultation processfor better plans. The provincial planners from different departments and district planners sit together todiscuss contents of plans before they consolidated these in the overall provincial development plan. Thequality of plans were improved through capacity building for planners to carry out better resource analy-sis and better usage of information for planning, monitoring and evaluation.

(1) CPRGS workshops were held for leaders' groups and officials' groups separately, and introduced most of the keyprinciples of the CPRGS. Province officials discussed the action plans, and then key areas for improvement wereidentified including: (i) capacity building in weak areas; and (ii) collaboration of departments and districts in devel-oping plans. In order to address the issues, the province has made efforts to conduct pilot consultations and dia-logues on the 2005 plans in the form of district planning meetings. The province wanted to develop an effective par-ticipatory planning process. This practice was highly appreciated because for the first time, the province actively con-sulted the stakeholders from departments and district in the formulation of the SEDP.

(2) The institutional and capacity analysis, which focused on the structure of DPI and the Provincial People's Committee,helped to draw out the gaps and needs for capacity building. Technical assistance was designed according to whatwas needed, in particular on resource review and mobilization, and the monitoring and evaluation of plans. The analy-sis suggested that the quality of plans depends also on the improvement of institutions, governance and capacity.

d) Good Practice 4: Kon Tum province included a general assessment and analysis of the province'ssituation according to disadvantaged population subgroups, putting priority emphasis on social andgender issues in the policy discussion as inputs to the provincial five-year SEDP.

(1) The CPRGS workshop was an important starting point for introducing the CPRGS to local leaders from the People'sCommittee and provincial and district leaders from different sectors. The workshop provided officials with a greaterunderstanding of the purpose, objectives, content, process and methodologies for socio-economic developmentplanning. Emphasis was placed on integrating growth and poverty reduction considerations into the five-year SEDP

Activities Executive Agencies Supportive bodies Timeline Resources

Establishing a CPRGSSteering Committee(Working team)

Provincial People’sCommitee

Ministries and Sectors

Donors

Specifying goals intosub-goals

Provincial People’sCommitee plus

Budget mobi-lizing frompopulation

Indentifying Deft. of Planning &Investment

Provincial Departments October2004

GovernmentBudget

Elaborating specificplans

Districs and institutions

2005 ( 2006-2010

plan)

TechnicalAssistance(ADB,GTZ)

Figure 3: Action plan and steps for the further integration of the CPRGS into theprovivincial development planning



34

planning process. The workshop also helped to strengthen local capacities in understanding new planning method-ologies and in carrying out SEDP planning work. Training carried out during this workshop included sessions on:basic concepts on the CPRGS (eg, what it is, how it can be applied); data collection and analysis (including identi-fication of missing data and how to obtain it); the planning process (including that it be evidence-based, participato-ry, pro-poor, and child and youth friendly, key planning challenges and areas for improvement); identifying social andeconomic priorities; and identifying next steps. Emphasis was placed on: developing a local child-friendly socio-eco-nomic development plan, undertaking evidence-based socio-economic development planning, achieving a betterbalance between social and economic investments, and using better, more precise CPRGS indicators to measurethe impact of social investments (eg, infant mortality rates, education completion rates, qualitative measurementsfor children in need of special protection, data disaggregated according to age, sex and ethnic group). Participatoryapproaches were employed in the training, including group work. Training was provided by trainers from MPI,UNICEF, the World Bank and the local DPI.

(2) Local leaders and officials in the different sectors now understand clearly the need and the importance of focusingon the social development issues, in terms of the need for increased attention on poor children, women, ethnicminority groups and those living in remote isolated areas. It was recognized that good analysis on inequalitiesamong vulnerable and disadvantaged population subgroups need to be considered, and responded to in SEDPs.

First, while the final draft of the new five-year SEDPs (2006-2010) from Central Highland provinces has not yet beenfinalized, the content of previous SEDPs did not have a clear results framework, meaning that most of the target indi-cators are simply output indicators rather than outcome indicators. The change in both the content of the SEDP and themechanisms for collecting information for development outcomes requires further efforts in improving results-basedplanning and SEDP monitoring systems.

Second, there is a lack of information and good poverty analysis. For example, there isn't even agreement over differ-ent poverty lines and a lack of familiarity with participatory poverty assessment. In addition, traditional input and outputtargets systems used for performance evaluations are not complemented by qualitative assessments and do not meas-ure achievements by outcomes. This is in part a result of poor cooperation and the lack of mutual support by develop-ment agencies or development projects operating in these areas, to act as think tanks and provide analysis into provin-cial SEDPs. This can be done through, for example, sector studies, PPAs, VDP, sector master plan, regional strategies,surveys. Even in the strategic planning workshops, participants could not present sufficient quantitative data to back uptheir subjective views.

Third, there is still the lack of a common process for CPRGS integration into local SEDPs among provinces. Theprocess is good at local level, but if good exchanges and sharing of best practices does not take place, it may be diffi-cult to capture and develop effective models for CPRGS integration.

Fourth, the pilot process has not been fully bottom-up. Currently, there is a limited approach to bottom-up planning inconsultations with districts and sector departments. Constraints, such as limited human and resources, and skills, wereidentified among stakeholders. The approach can only sustained if it is facilitated by strong local planners (from villageto district levels) and to be repeated for several cycles.

Finally, there are limitations regarding institutional arrangements for planning. Although there are regulations for (i)stronger decentralization to lower levels (districts and communes); (ii) increasing the range of People's Council's respon-sibilities in planning; (iii) increasing authority of the Provincial People's Committee in supervising and coordinating theplans and resources; and (iv) a separate department of planning and investment to develop and coordinate provincialplans, there are many constraints in implementing these theoretical arrangements. District and commune level officialshave difficulties in making and reconciling plans and resources/budgets; People's Council have very little opportunity todiscuss plans; there is still overlap among line ministries in transfering and managing resources between the provincialprogrammes and the national target programmes; and there is weak collaboration between DPI and other departmentsin making plans.

In general, all four provinces which participated in the process gave valuable feedback during a review workshop in late2004.

C. WHAT ARE THE REMAINING CONSTRAINTS?

D. FEEDBACK FROM CENTRAL AND LOCAL PLANNERS, AND STAKEHOLDERS



35

9 Summary of Gialai Provincial reports and provincial leaders' feedback during the review workshop supported by ADB, Jan 2005.10 Summary of Daknong and Daklak Provincial reports and provincial leaders' feedback during the review workshop supported by ADB, Jan 2005.

Interview Mr. Pham Hai - Director of Local and Regional Economics Department,MPI (March 2005)

1. What do you think about the integration of CPRGS and SEDP in the Central Highlands in 2004?

I think that the integration of CPRGS and SEDP (2006-2010) has achieved great success and this marks a mile-stone for reforming the planning system as follows.

+ First, the new way of thinking has been introduced in planning compared to the previous one in the followingaspects: (a) the planning approach can be bottom up and mobilized effectively the local resources; (b)strengthening the planning capacity of local planners through trainings have enabled officials at differentdepartments in provinces, districts and communes to understand the new approach and apply it to prioritizeobjectives, and (c) building up trust with local planners.

+ Local governments have understood the linkage between CPRGS and SEDP in which objectives of CPRGSare integrated into the SEDP

+ Provinces recognized that transparency is an essential factor in planning.

2. How do you assess the approach and achievements in the Central Highland?

- The above achievements are just the beginning and it has yet received the attention of the wide range of stakehold-ers. Such experiences should be drawn upon and spread widely. There is now an innovative approach that changed fromwhat we have been using in the traditional planning system in which high level government makes plans and requiresthe lower levels to implement plans. Lower level authorities are passive and dependent on higher levels.

So now, we should apply the new approach: "the bottom-up approach". This will help the people and local govern-ments to solve their own problems to achieve sustainable economic development and poverty reduction. The govern-ment should continually support these trainings at local levels.

3. What are your comments about the roles of stakeholders such as the Ministry, provincial leaders,local governments, other organizations and donors?

There are many national issues in every aspect: social, economics and politics, so perhaps my comments would notsufficiently cover this. However, I think that local officials should trust the people's and commune officials' capacity andshould delegate authorities to them without worrying about their education level. Besides, the government should pro-vide support with good experts to guide them and to transfer knowledge to help them overcome the poverty.

4. According to you, what can we do to share experiences of the pilot programs in the CentralHighlands to be replicated in other provinces in the future?

The achievements in the Central Highlands through the support of ADB, GTZ and UNICEF are the initial good expe-riences but still applied on a small scale (piloted in some districts and communes). I think the experiences should beshared and introduced to others by different types of communication. Other people need to know about these experi-ences as a way to transfer knowledge.

Gialai 9: The CPRGS has brought immense changes to the local planning process. First, the integration of CPRGS into thefive-year SEDP process through awareness raising seminars and capacity building has brought in a more comprehensiveview of development; that is, greater concern for and integration of poverty reduction and social inclusion issues into devel-opment goals. Second, the local planners were able to include social and poverty reduction policies in their programs andprojects. Finally, more importantly, the 'integration' process has helped to improved collaboration and cooperation horizon-tally and vertically among departments and different levels by sharing experiences and skills.

Daklak and Daknong 10: These two provinces incorporated the participatory approach and community participation intothe planning process. The participatory process allowed the provinces to capture concrete evidence and local needs intocommune development plans. The issues-based consultations with peoples were also very useful in verifying assessmentreports by departments and sectors. The consultation process also provided good information for policy makers. The par-ticipatory process can improve ownership and the commitment of grassroots people and local officials in development.However, the exercise needs to be implemented on a larger scale and strengthened at lower levels.



36

INSTITUTIONAL ISSUES

Lesson 1: Collaboration between central agencies andlocal governments, and pairing international organizations'knowledge and resources with Government partners, areimportant factors for integrating CPRGS principles intoSEDPs at provincial level. Such collaboration is alsoimportant for future SEDP implementation.

Policy implication 1: MPI should more actively partnerwith donors and coordinate donor support towards moreeffective CPRGS roll out and SEDP development in theprovinces. MPI also plays a critical role in coordinating central and local government work in SEDP development.

Lesson 2: There are organizational constraints to inter-governmental collaboration which hinder smoothintegration of the CPRGS into the SEDP planning process:insufficient cooperation across sectors at central andprovincial level due to the vertical nature of different ministries/sectors; and inadequate information flowsbetween central and provincial levels, particularly practicalinformation on national programmes and directives forintegration at provincial level.

Policy implication 2: Ensure better coordinationbetween horizontal and vertical lines of authority in thenational planning process in context of decentralization: (i)strengthen the multi-sectoral approach used at the sub-national levels for planning; (ii) enhance the coordinating role of MPI/DPI to lead a multi-sectoral development planning process for the SEDP at local levels; and (iii) strengthen cooperation and communication between MPI and DPI to ensure effectivedelivery of information and tools on national programmes.

Lesson 3: The legal framework (guidelines, directives,circulars) for, and practical linkages between CPRGS rollout and SEDP development are often unclear. Local officials lack clear, hands-on guidelines and mechanismsfor carrying out SEDP development.

Policy implication 3: CPRGS integration and improvements to planning can only be sustained andimplemented at lower levels if there are clear public investment plan guidelines and planning guidelines. MPIshould develop a more streamlined legal framework(guidelines, directives, instructions) for CPRGS roll out andSEDP development for local level authorities, as well as apractical, common Planning Handbook or guidelines forplanners at all levels on how to plan, implement plans andmonitor plans on the ground.

Lesson 4: At present, under the current support forreforming the annual and medium term socio-economicdevelopment planning processes, there is no systematized and long-term approach to reforming thesocio-economic development planning process, and thusefforts and resources used towards planning reform are atrisk of being scattered, uncoordinated, and unsustainable.In particular, there is no significant systematized linkagebetween one year's planning reform efforts to the next.

Policy implication 4: Each provincial governmentshould agree on an overall multi-year strategy for reformfor each component of the reform process (eg.problems/options analysis, objectives/priority setting,resource analysis, etc. as highlighted in Table 1). Thestrategy would, thus, be implemented through year-by-year refinements of each component of the planningprocess as part of each annual planning cycle. Withoutsuch a systematic and long-term approach to planningreform, initiatives may be ad hoc and less effective.

Lesson 5: Factors like timing and available resourcesneed to be considered when organizing a provincial training workshop. It is important to ensure that provincialtraining is delivered in time for the province to develop itsannual SEDP in a participatory manner, and submit this toMPI and the National Assembly for approval.

Policy implication 5: Ensure that provincial trainingtakes place well in advance of national planning deadlinesfor submission and approval. Identification of technical andfinancial resources from MPI, donors, and other development projects needs to be mobilized well inadvance.

E. lessons learnt and policy implications



37

PARTICIPATION AND OWNERSHIP

Lesson 6: Building commitment and a sense of ownership by local authorities to the SEDP planningprocess is critical to sustaining pilot CPRGS roll out activities, in particular, at two levels: (i) political commitment and leadership of central and local leaders(eg, MPI, PPCom, DPI), and (ii) ownership of and participation in the planning process by provincial, districtand commune officials, as future implementers of theSEDP.

Policy implication 6: From the outset, engage centraland local leaders (namely MPI, PPCom, DPI) to securepolitical commitment to SEDP planning process, andestablish a system for participatory consultation with different senior departmental level officials. Commitmentfrom both central and local government can be enhancedthrough a local steering committee, provincial directive, ora budget line/allocation for the planning process. The latter establishes a regular means for communes, districtsand provinces to undertake an annual planning process.Central and local governments are then better able to institutionalize pilot initiatives and strengthen mechanismsand capacities for CPRGS integration in planning.

CAPACITY BUILDING

Lesson 7: A participatory capacity needs assessment oflocal officials is necessary to identify specific local capacity needs and gaps, such as in data collection andanalysis, participatory planning, linking budgets to plans,monitoring and evaluation, strategic planning, policyanalysis and development. Support to SEPD planningneeds to take into account the absorptive capacity of localgovernment officials and should be built up incrementallyin a structured, measurable way,

Policy implication 7: As it is crucial to conduct a partic-ipatory needs assessment of local capacities before theSEDP training workshop, future training on SEDP planningshould be based on this assessment to meet the specificcapacity needs identified.

Lesson 8: Targeted capacity building is essential for successful reforms in the planning and CPRGS roll outprocess, particularly as greater authorities are beingdecentralized to local levels. Capacity building activities in,for example, the areas mentioned above, are critical foreffective planning and implementation of CPRGS/SEDP.

Policy implication 8: Design an appropriate curriculumfor capacity building based on the local context and localneeds, and the needs assessment mentioned above.Building capacity of senior officials in strategic planninghas been essential.

Lesson 9: Central agencies like MPI, other ministriesand donors worked actively and collaboratively in CPRSGroll-out into development of SEDP. Collaboration withNGOs was very useful. Practices of good planningmethodologies like PPA, PRA, VDP can be coordinatedand organized better with support from NGOs, or localmass organizations. They can also provide good capacitybuilding training to local planners.

Policy implication 9: NGOs could be called upon totransfer knowledge and skills through Training for trainers(TOTs) at different administrative levels to local massorganizations or to local planners. Provinces can mobilizeNGO's support both in technical and financial, so localplanners can make use of VDP or CDP and the results intolocal SEDPs.

Lesson 10: The 5-year and annual SEDP can be greatlyimproved if it is based on a good situation analysis, in combination with central level guidance and substantiveinputs from the local level. The capacity for situation analysis remains quite weak. Key gaps are found in insufficient data/information, poor analysis, and limitedinvolvement of local think tanks/ research institutes in theplanning process. The latter is extremely valuable fordeveloping more strategic plans.

Policy implication 10: Enhance capacity for situationanalysis substantially and incrementally at the local levels.In the meantime and for the future, greater collaborationamong ministries, statistics offices, government authorities, sector departments and think tanks (eg, institutes, academic university, NGOs) should also be promoted to provide quantitative and qualitative inputs.Participation and consultation from people at the grassroots level help to verify the provincial and sectoranalyses.



38

SEDP DEVELOPMENT PROCESS AND CONTENT

Lesson 11: The CPRGS document identifies clear targets and result indicators including VietnamDevelopment Goals (VDGs). However, often they are notexplicitly integrated into local SEDP documents whichundermines the link with development impacts of SEDP.

Policy implication 11: The development of SEDP atlocal levels should be based on good analysis and strategic planning methodology: such as use of Strengths-Weaknesses- Opportunities- Threats (SWOT) or analysisof comparative advantages and sector studies as crucialinputs into SEDP. Strategic planning can also help to identify good objectives to SEDP that are aligned withVDGs.

Lesson 12: CPRGS is good document including pro-poor policies. However, the SEDP planning process atlocal level tends to focus on economic rather than onsocial development issues, poverty reduction and improv-ing the living conditions of the poor.

Policy implication 12: There is a need place greateremphasis on social issues and poverty reduction in theSEDP planning process at local level and to ensure thateconomic development leads to social development for allsegments of the local population. Provincial and localSEDPs also need to target assistance to the poor betterand address increasing social disparities. A specific social,economic, cultural, and demographic profile of theprovince, or analysis of poverty is recommended.

Lesson 13: Analysis of increasing inequalities for population sub-groups is essential in the local SEDP document as the rising disparities among disadvantagedgroups - particularly, children, women, and ethnic minorities.

Policy implication 13: SEDPs need to ensure that thespecific needs of children, adolescents, women, ethnicminority groups and the poor are adequately addressed.Data needs to be collected/disaggregated according toage, sex, ethnicity, poverty level, and then analyzed tounderstand the underlying causes of disadvantage; policies and activities outlined in the SEDP need toaddress these inequalities; and people representing thesegroups should participate in developing such measures inthe SEDP. Local SEDPs targets/goals should also belinked to those of CPRGS/VDGS, the National Plan ofAction (POA) for Children and National POA for theAdvancement of Women.

Lesson 14: There is a need to strengthen a participatoryplanning process at all levels, using more of a bottom-upapproach with greater participation by grass roots organizations and people representing vulnerable and disadvantaged segments of the population.

Policy implication 14: Capacity building activitiesshould include the introduction of methodologies like participatory assessments and participatory planning.Since the process and methodology is considered as newto most local officials, it is important to provide strong support and resources towards this. A participatory planning process should be repeated during several annual planning cycles to sustain this capacity.Participants consulted also should be representative of thelocal population, and include the poor, women, children,different ethnic minorities, and other vulnerable or disadvantaged groups.

Lesson 15: Various planning processes are taking placeat local administrative levels (eg, district, commune) whichare not coordinated with or feeding into provincial levelplans. These plans need to be better coordinated and inte-grated for the overall provincial SEDP planning process.The lack of linkages between SEDP planning and projectplanning at provincial level is also common.

Policy implication 15: Both development plans andexperiences at different levels (eg, provincial, district, commune) and from projects within provinces should beshared and incorporated into the SEDPs, in order toimprove the quality of plans.



39

MONITORING & EVALUATION

Lesson 16: A mechanism for storing, accessing andupdating data and information is necessary.

Policy implication 16: A reliable and regularly updateddata and information system is critical for a good situationassessment and analysis, and ultimately, for targeted andstrategic planning and policymaking under the SEDP. Theconsistent use of VietInfo as a database tool for storing,updating, and tracking progress of social and economic indicators across all provinces, is recommended.

Lesson 17: A transparent monitoring and evaluation system focused on the development and implementationof SEDP plans can greatly contribute to successful, well-targeted SEDP plans, programs and projects, as well assupport effective resource allocation.

Policy implication 17: Transparent systems for SEDPplanning and resource use at local levels are needed toensure that SEDP plans, objectives and goals are validand prioritized according to actual local needs. Thus it isnecessary to develop such transparent monitoring andevaluation systems. A participatory consultation mechanism should be created to collect feedback, assessments and expectations of people at the grassrootslevel about public services and development programs. Inparticular, the poor, women, children, ethnic minorities andother disadvantaged groups should be consulted.

Lesson 18: SEDPs and planning processes should beresults-based and need to focus more on ultimate development outcomes and impact (ie. the quality ofgrowth and poverty reduction). The emphasis of previoussocio-economic development plans has mainly been oninput and output targets.

Policy implication 18: SEDP goals, objectives, andindicators should be formulated with a focus on development impact results for better monitoring and evaluation. Under the framework of the VietnamDevelopment Goals, each province should develop theirown specific framework. Indicators should be measurableand monitorable.


40

CPRGS Roll-out Leader Course Expert Course TOT trainings Strategic Planning Demand Training Communication Wrap-up Worksh TOTAL

ADB, GTZ,UNICE ADB ADB Field practices ADB GTZ ADB-monitoring

GTZ-SEDP

GTZ1 GTZ2 TA Evaluation

May 2004 June/July 2004 June/July 2004 Aug/2004 Daknong Daklak Dec 2004 Feb-05 Oct 04

Total 42 2 7 4 4 8 67

MPIMONREMOLISACEMAADBWBSDCGTZUNICEFDANIDAKon Tum Province (DPI)Lam Dong Province (DPI)Tra Vinh Province (DPI)Lao Cai Province (DPI)

TotalGia Lai Province

PPCDPICEMAICDDOLISADoFDOHADARDGSODOETPopulation CtteeWomens Union

Gia Lai DistrictsChu ProngK'BangIapaDak DoaAyun PaIa GraiKong ChroMang YangPleiku CityAn Khe TownDak PoChu SeChu PahDak CoKrong Pa

TotalDak Lak Province

PPCDPIDOFDOLISADOCommerce & touristDARDDOHACEMADONREDo Science & TechDOJDOIDOTDOHFamers UnionFather FrontGSODOETWomens UnionPopulation Cttee

Dak Lak DistrictsCu M'GaKrong PongKrong NangEa SupKrong AnaEa H'LeoKrong BukKrong PakBuon DonLak ListEa KahBan Me Thuot CityTotal

Dak Nong ProvincePPCDPIDOLISADARDDOH DOETDONREDO TransportDO financePopulation CtteeEthnic Min CtteeYouth UnionGSOFarmers UnionWomens Union

Dak Nong DistrictsChu JutDak R'LapDak songDakmilKrong NoDak Nong

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Capacity building trainings: CPRGS integration into SEDP in the Central HighlandsParticipant analysis - workshop / trainning delivery

FIN/S Finance/Statistics* Chairman or Vice ChairmanPCP Provincial Communist party



GiÊy phÐp xuÊt b¶n sè: 86/QDCXB, Côc XuÊt b¶n cÊp ngµy 01/04/2005.ThiÕt kÕ t¹i C«ng ty in Hoµng Minh, sè lîng 1000 cuèn, kÝch thíc 20,5x29,7


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