Quản lý khủng hoảng di cư thực tế hiện nay và kiến nghị chính sách đối với việt nam

Nghiin cuu Qudc tisS 4 (103), 12/2015: 69-83.

V QUAN LY KHUNG HOANG DI CU^:
THirC TE HIEN NAY VA KIEN NGHI
CHINH SACH D 6 I V d l VlfT NAM
Ly Qudc Tuan*

Tom tat

Di cu dang trd thdnh mdi quan tdm chung ddi vdi hdu het cdc qudc
gia tren the gidi. Viec di chuyen cua con ngudi trong mdt qudc gia hoac
xuyen bien gidi Men Id mdt vdn de chinh sdch quan trpng, dgc biet trong
khudn khd todn cdu hoa vd hpi nhgp. Khi di cu ra nude ngodi, ngudi di
cu thudng bi red vdo cdc hodn cdnh khd khdn han ve dieu kien sdng, sinh
hogt vd lam viec vd hp de bi tdn thuang khi ddi mgt v&i cdc su kien bdt
nga igi cdc nuac tiep can. Dong ngudi di cu bi dnh hudng lan bdi cdc su
kien ben ngodi biin gidi qudc gia vd ngodi tdm kiem sodt: vi du nhu bdt
dn kinh ti, thien tai, bdt dn chinh tri vd mdu thudn tiem dn tgi nu&c tiip
nhdn.
Khiing hodng di cu didn ra ngdy cang nhidu han, cd nhidu nguydn
do, tCr 1^ do khung hodng kinh td - tai chfnh, ddn nhung mdi hidm nguy
tii thidn tai, ddng ddt, sdng thdn, bien ddi khi hau v.v... Cac ly do do tac
ddng Idn tdi cugc sdng, sir an toan, dn dinh ciia m^t bg phan di cu hoac
ea cdng ddng ngudi di cu. Hi^n tugng khung hodng di cu, ndu khdng
* Pho Cue tnrdng. Cue Lanh s\f. Bo Ngoai giao.

12/2015

69

dugc xu ly thda ddng, se tidp tyc gay hau qua Idn han, rgng hon, vu^it
khdi pham vi mgt qudc gia, anh hudng ddn cd khu vyc hoac the gidi.
Bai vidt dudi day se gidi thieu vdi ban dgc mgt sd kinh nghiem cua
Viet Nam trong cdng tdc xu ly khiing hodng di cu trong thdi gian vita
qua, ddng thdi dd xudt phuang hudng xdy dung chfnh sdch cho thdi gian
tdi nhdm bdo ddm nhiem vy bdo hg cdng dan Viet Nam d nude ngoSi
dugc nhanh chdng vd hieu qua.
Di cu vd khung hoang di cir qu6c te
Dicuqudcte
Lich sii lodi ngudi da chiing kidn cdc qua trinh di cu lidn tyc ciia
con ngudi. Tii xa xua, di cu la bdn nang sinh tdn eiia con ngudi, ludn tim
noi tdt hon dd sinh sdng. Trong thdi dai ngay nay, di cu didn ra tren quy
md Idn, vdi hinh thiic da dang vd tinh chdt phiic tap nhu trong bdi canh
toan cdu hda vd hdi nh|ip quoc td. Trong thd gidi hien dai, di cu qudc t^
trd thdnh mdt vdn dd todn cdu dang thu but su quan tdm cua tdt ca cac
qudc gia vd khdng cd qudc gia nao diing ngodi van de di cu va khQng
qudc gia nao cd thd tu minh gidi quyet dugc vdn de di cu.
Theo bao cao ciia Td chiic Di cu qudc td (lOM), hidn cd khoang
tren 232 trieu ngudi dang sdng vd 1dm vide ngoai ddt nude md ngudi d6
mang qudc tich hoac thudng tru, chidm khodng 3,3% ddn sd thd gidi vi
du bdo den nam 2050 se ed khodng 405 tri^u ngudi di cu giiia cdc nuoc'
Tdc do tdng trudng cua di cu qudc td khodng 3%/nam, han ca tdc do tang
trudng kmh td thd gidi trong giai doan hidn nay.
Cd nhidu ydu td Idi keo vd thiic ddy ngudi dan di cu, nhung di cu
Vi myc dfch kinh td la xu thd ehii dao trong bdi cdnh hien nay. Di cu
To chiic Dl cu quoc te (lOM), Bao do di cu qu6c t£, 2014.
70

12/2015

Nghiin cuu QuSc tiso 4 (103)
qudc td dugc thiia nhdn rdng rai la mgt nhan td quan trgng cho su phat
trien ciia cae qudc gia lien quan. Quan ly di cu qudc td nham tdi uu hda
mat tfch c\rc vd gidm thidu nhung tdc dgng tidu eye la mgt nhu edu biic
thidt khdng chi ddi vdi tung qu6c gia md Id nhu cdu ciia todn nhan loai.
Di cu quoc te da dem 1^ ca hdi ndng cao cudc sdng cho bdn thdn
ngudi di cu, gdp phdn ddng ke vao tang trudng kinh td, tao ddng lue cho
su phdt trien ben vung cua nhidu qudc gia tren todn thd gidi, nhung trong
qud trinh di cu, ngudi di eu ciing gdp khdng ft rui ro va thdch thiic nhu bi
bdc Idt, quyen va Igi fch khdng dugc tdn trgng vd bdo vd. Khi khung
hoang xdy ra d nude tidp nhdn hay nude qua canh, hg cdng trd ndn de bi
tdn thuang han do rdo edn ngdn ngG, thidu thdng tin vd hd trg vd thdm
chf cd nguy co khdng dugc trg giup nhdn dgo ndu hg Id nhiing ngudi di
cu trdi phep. Ddy cung Id mdt vdn dd mdi ndi thu hiit sy quan tdm cua
cdng ddng qudc te trong nd luc quan ly di eu vi muc tidu phat trien va
tang cudng bdo vd quydn vd Igi fch cua ngudi di cu.
Vide di chuydn ciia con ngudi trong mdt qudc gia ho?ic xuydn hidn
gidi hidn Id mdt van dd chfnh sdch quan trgng, ddc biet trong khudn khd
todn edu hda vd hdi nhdp. Ciing vdi xu hudng phdt tridn Idn manh ciia di
cu qudc td, ngdy cang nhidu cdng ddn cdc nude chgn di cu ra nude ngodi
vi myc dfch kinh doanh, hgc tap, lam vi?c hay cdc ly do khac. Tuy nhien,
nhin chung, ngudi di cu thudng bi rai vdo cdc didu kien khd khdn han
khidn hg trd ndn dd bi tdn thuang khi ddi mat vdi cdc su ki$n bdt ngd t^
nude tidp nh§tn. Ddng ngudi di cu bi anh hudng Idn bdi eac su ki|n ben
ngodi bien gidi qudc gia vd ngodi tdm kidm sodt: vf dy nhu su bdt dn
kinh td, thidn tai, bdt dn chfnh tri vd mdu thudn tiem dn tai nude tidp
nhdn.
Khiing hodng kinh td hidn nay dang la mdt thdch thiic ddi vdi cae

71


qudc gia vd cdng ddng qudc td. Khiing hoang dang t^o ra ngay cang
nhidu cdc ddng di cu vdi quy md Idn va phiic tap vd cdc hinh thiie di cu
bidn ddng khac nhau vd qua dd, quy md di cu bidn dgng cua con ngudi
ti-ong cdc cudc khiing hodng nhan dao dang ddn trd ndn rd rdng hem.
Nhdm di cu chiu anh hudng cua khiing hodng ed nhung bidu hidn vd tinh
dd hi tdn tiiuong vd ddng thdi, cac ddng di eu vdi quy md Idn vd phiic
tap ciing vdi cac hinh thiic di cu bidn dgng khdc nhau tao ra cae thach
thiic nghidm ttgng vd lau ddi ddi vdi cdng tdc quan ly hi?n tugng ndy.
Tuy vay, trong nhidu trudng hgp, quy md di cu ciia khung hodng thudng
bj xem nhe vd bd qua trong qua trinh iing phd vdi khung hodng.
Khung hoang di cuquSc tihipi nay
Khiing hodng di cu didn ra ngdy cdng nhidu han vd ngay cdng phiic
tgp ban vi nd khdng chi lien quan tdi su di chuydn chd sinh sdng cua con
ngudi ma di kem theo do cdn la sy di cu ve van hda, tdn giao, loi sdng,
phong tyc tap quan vd do v|iy, se xudt hi^n hi?n tugng tiep bidn van hoa
vd vi?c Igi dyng sy khdc bi?t vd van hda vd tdn gido se dan den cdc hign
tugng xa hdi ma nghiem trgng nh4t Id khung bd, xung dot sdc tdc, t6n
gido, gdy mdt dn dinh an ninh, chinh tri, kinh td vd xa hdi ciia nude tiep
n h ^ ddn di cu.
Cd nhidu nguydn nhdn ddn ddn di cu qudc td: tir ly do khiing hoang
kinh td - tdi chfnh, den nhiing mdi hidm nguy tii thidn tai, ddng ddt, song
thdn, bidn ddi khf hdu (khien nude bien xdm thuc ddt lidn lam mdt bo
phdn ddn cu qudc gia phai dich chuydn len vung ddt cao hon), ddn nhtog
nguyen nhan do con ngudi gay ra nhu xung ddt, chidn tranh, ndi ehien,
thay ddi the chd ehhih tri. Cac 1^ do dd ddn ddn nhfing bidn ddng Idn t6i
cudc sdng, su an toan, dn dinh cua mgt bd phdn ddn cu hoac mdt phan
hoac ca cdng ddng ngudi di cu vd khidn nhftng ngudi dd phdi dich

12/2015


Nghien cuu Qudc tisd 4 (103)
chuydn ddn noi an todn hon. Hien tugng khiing hoang di cu ndu khdng
dugc xii ly thda ddng se tidp tyc gay hgu qua Idn hon, rdng hon, vugt
khdi pham vi mgt qudc gia, ma dnh hudng den ca khu vuc bode thd gidi.
Bang chung rd nhdt Id cudc khiing hoang di cu hien nay tu chdu Phi va
Trung Ddng sang chau Au bat ngudn tii chidn tranh va xung dot d cdc
qudc gia gdc. Nhan thiie dugc tac dgng nghidm trgng do, eac qudc gia,
cdc nhdm nude vd trdn binh dien rdng Idn hon la cdc to chiic qudc td nhu
td chiic lOM da dua ra vd trien khai thuc hien cac quy chd, co chd dd han
chd tdc dgng tidu cue cua khiing hoang di cu, gidm thidu thidt hgi gdy ra
vdi nude tidp nhdn, nude gdc vd nude qua cdnh.
Cd the ndi, khiing hodng di cu tdc dgng ddn hdu hdt cdc qudc gia
lidn quan vd bdn thdn ngudi di cu, ddi hdi cdn ed ea chd gidi quydt hieu
qud khiing hodng di cu nham phat huy tdi da Igi ich cua di cu cung nhu
bdo vd quyen va Igi fch hgp phdp cua ngudi di cu. Dd gidi quydt vdn dd
ndy, nhidu qudc gia da phdi tim cac bi$n phdp iing phd khdn edp hoac
thiet lap nhiing ea chd xii ly khung hodng qudc gia nhdm du bdo, iing
phd vd Cliu trg kip thdi cdng dan nude minh ra khdi viing bi khiing
hodng hoac viing chiu dnh hudng ciia khiing hodng. Cac qudc gia cung
tim kidm su hgp tac khu vuc bode qudc td dd tang cudng cdng tac qudn
1^ di cu cung nhu xii ly khiing hodng vdi mgt myc dfch chung Id hoan
thidn thd chd de bdo v | quyen loi ngudi di cu. Khung hoat dgng xur ly
khung hodng di cu ciia Td chiic di cu qudc td (lOM) dugc thdng qua nam
2012 la mgt vf du diln hinh cho co che hgp tac qudc td vd xii \f khiing
hodng. Khung hoat ddng xii ly khiing hodng di cu dugc coi la mdt cdng
ey thuc tidn, mang tmh iing dung vd dugc dp dyng trong todn td chuc

nhdm muc dich cdi thi$n vd bd thdng hda phuang thiic hd tig cdc nude
thdnh vidn va ddi tac, qua do, giiip cdng tdc chuan bi va iing phd hieu
qud han ddi vdi khiing hoang di cu.


Khung hodng di cu cfia Vidt Nam thdi gian qua
Nhimg cudc khung hodng di cuma Viet Nam Ih quoc gia gdc
Vdi dudng Idi, chii truang hdi nh$p qudc te sdu rdng cua Vi^t
Nam, giao luu, di lai cua cdng ddn Vidt Nam ra nude ngoai va ngudi
nude ngoai ddn Viet Nam ngdy cang tdng sd lugng, da dang, phiic tgp vg
loai hinh giao luu; lao dgng, du hgc, kdt hdn, dinh eu v.v... Thdm vao dd,
cdng ddng ngudi Vidt Nara d khdp nai trdn thd gidi, trdn nam chau li^
ciing cd nhung boat ddng giao luu, di lai rdt da dgng va phiic tap. Vi v^y,
mdt thyc td khdch quan dat ra Id ngdy cdng cd nhidu vy vide tOc nho le
nhu ggp hogn nan, khd khan, tai nan, nii ro, td ngn xa hgi den nhung vSn
dd di cu ndy sinh. Trong thdi gian qua, nhdt la kd tir khi btmg nd su ki?n
miia xuan A Rap, Viet Nam Id nude hiing ehju nhidu cugc khung hoang
di cu vdi nhiing tdc ddng tieu cue ciia nhiing cudc khiing h o ^ g ndy v&
ciing phdi trien khai thuc hien nhung bien phap iing phd cdn thidt. D61^
cugc khiing hoang d Li-bi, U-erai-na, Nga.
Thf dy, khi nude ta md rdng quan h$ hgp tdc lao dgng vdi cdc nude
Trung Ddng - chdu Phi, lao ddng Vidt Nam dugc gui sang Li-bi va mOt
sd nude khdc cd nhu can c4p thidt ddi vdi mdt sd lugng lao ddng. Tiiy
nhidn, tinh hinh ndi bd Li-bi phiic tap, mau thudn ndi bO gay gat, ddn den
chuydn ddi the che, gdy ndn khiing hoang di cu, lam eho su an todn cda
hdng vgn lao dOng ciia Vi?t Nam va ede nude dang 1dm vide tai dSy
khdng dugc dam bdo. Tinh hinh dd tao ra thdch thiic cho Viet Nam. Nam
2011, d Li-bi, chd do cua Gaddafi hi Idt dd bdi luc lugng chdng doi trong
nude, lao ddng Viet Nam vd mgt sd nude phai so tan khdn edp. Chfiih
phu Viet Nam da nhanh chdng iing phd, thdnh Igp Ban chi dgo ciia CMnh

phu, lap cdc dodn cdng tdc ddn Li-bi vd nude lan can dd td chiic sa t ^
cdng ddn, van ddng sy giup dd qudc td eua lOM, Chu tiigp dd qudc te,

74

12/2015


Nghien cuu Qudc tisd 4 (103)
cdc nude ximg quanh Li-bi. Vdi nd iuc va trdch nhiem cua Nhd nude,
10.500 lao dgng Vidt Nam dugc dua vd nude an todn.
Cau chuydn nay lap Igi nam 2014, khi phe phdi trong Li-bi Igi mdu
thuan gay gat vd xdy ra xung dgt. Chidn su d Li-bi de dga tfnh mgng vd
sv an todn cua 1.700 cdng ddn ta dang lao ddng tai day. Bg Ngoai giao
da phdi hgp chdt che vdi Dai su qudn Viet Nam tgi Li-bi, Ai-cap, Angid-ri, Phap, Diic, ^ v.v..., vdi BO Lao ddng, Thuang binh vd Xa hOi, kdt
hgp van ddng hd tig eua td chiic qudc td lOM eiia eac nude Tuy-ni-di,
Ai-cdp, Phap, Diic, Thd NhT K^ dd dua 1.700 lao ddng an todn vd nude.
Thuc tien trdn eho thdy, cUng vdi su phdt trien quan h§ qudc te sau,
rgng, cac quoc gia ciing dang phdi ddi mat vdi nhGng thdch thiic do thien
tai hoac do chfnh con ngudi gay ndn. Trong khi di cu ciia cdng dan Viet
Nam ra nude ngodi tdng mgnh md, thi didu dd ciing cung d^ng nghia vdi
khd nang phdi gidi quyet khung hodng di cu khi xudt hien tinh hudng edp
bdch, khdn edp nhu trong trudng hgp ddng ddt, sdng than tgi Nhat Ban
nam 2011, Vi?t Nam da tidn hdnh sa tdn vd nude 450 sinh vidn, thue tgp
sinh tai Fukushima vd viing dnh hudng quanh do; hay nhu ta xu ly
trudng hgp chii lao dgng bdc Igt 260 cdng nhan Viet Nam tai Li-bang
nam 2008, 69 nu cdng nhan tgi Ma-lai-xi-a nam 2012, 1000 cdng nhan
tgi Mdt-xca-va nam 2012.
Nhu v$y, cd thd thdy khi khiing hodng xdy ra, Chfnh phii Vi$t Nam
Igp ra mdt sd ca chi tidn ngdnh, lidn bd de gidi quydt nhiing vdn dd Udn

quan ddn di cu phdt sinh, nhung chua ed co che qudn ly thudng true,
theo huitog chuydn mdn, chuydn nghiep. Vi dy nhu: (i) ndm 2011, khi
Li-bi xdy ra chidn su, Thii tudng Chfnh phii da chi dgo, giao BO Ngogi
giao chii tri phdi hgp vdi BO Lao ddng, Thuang binh va Xa hOi, cdc
ngdnh ehiic nang lien quan td chiic so tdn cdng ddn Viet Nam va chdng

12/2015

75


ta da dua hon 10.500 cdng dan Vi^t Nam dang lao dpng t»i Li-bi vi
nuac; (ii) dSu nam 2014, khi xay ra xung dot t^ U-crai-na, Thil tudng
Chinh phu da chi dao Bo Ngoai giao chii tii, phdi hgrp c4c nginh chiic
nang Uen quan co kS hoach so t&i vi bao hd cong dan trong truang h(}
khin cip; (iii) thtog 7/2014, Thu tuang Chinh phii giao Bp Lao dpng,
Thuang binh va Xa hpi, Bp Ngoai giao ph6i hap sa tan 1.700 lao dpng
Vipt Nam tjii Li-bi, khi tji dSy xay ra xung dot dii dpi, de dpa an toin
tinh mgng c6ng dSn ta.
Dik do c6 nghia la thy tinh hinh vi cip dp "khung hoang" a nu6c
ngoM, khi cin thiSt Thil tucmg Chinh phu se co van ban chi dao vk giao
BO, nginh phh hpp chu tri ki hojich so tan cong dSn. Cac bp, nginh itujc
giao chu tri se xay dung ki hoach; de xuat thanh lap Ban chi d^; hpp
bin voi cac ca quan chuc nang lidn quan vi to chirc thuc hien ke ho^h
so t i l cSng dan va t6 chiic dua cong dto Viet Nam vi nuac.
Cupc khdng hodng di cu md Vift Nam lit qudc gia dip nhgn
Ciing vai tinh hinh nguoi Vi$t Nam or nuac ngoii c6 thj chjj
nhihig tic dOng cua npi tri cic nu6c mi tra thanh ngucri di cu khi khihg
hoang xiy ra tai cic nude niy, thi co mpt thuc ti a nuac ta cung di xiil
hien mOt vii lin c6 ddng nguoi nuoc ngoii di cu tir Viet Nam ve nude

g6c. Thi du gin day nhit Ii viec Trung Quoc ySu cau dua ve nude nguoi
lao dpng Trung Quoc tir khu kinh te Viing Ang, tai Hi Tinh. D\r an khu
kinh te Viing Ang do Dai Loan dau hi voi tri gia hon 10 ty USD de xay
dung mpt khu c6ng nghidp t6ng hpp vdi trpng tam Ii nhi miy san xuat
th6p vi cdng nghiep, dich vy ph\i trp. Dyr an duac tien hanh 60% khfii
lupng cdng viec, nhung trong dpt biSu tinh chdng Trung Qudc ha d|it dJui
khoan HD 981 trai phep tren viing biSn Vipt Nam thing 5/2014 di lim
day len lan sdng phan doi Trung Qudc cua nhan d§n ta. Tai khu cdng

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12/2015


Nghiin cuu Qudc tisd 4 (103)
nghiep Viing Ang, bien tinh bi bien tudng bdi mgt sd phan tu xau xui
giuc, chii muu kich dgng, khidn ngudi bidu tinh dap phd tai sdn, nhd
xudng cua nhd ddu tu, noi ed cdng nhan Trung Qudc lam thud, mOt sd vy
xd xdt dan den nam cdng nhdn Trung Qudc hi thuang, bi chdt. Vy viec
trd nen nghidm trgng ban khi Trung Qudc cd tinh thdi phong su vide,
dua dodn cdng tde vdo Ha Tinh, Binh Duong khdo sdt, ndm tinh hinh,
xem xdt thidt hai, yen can gdp, thudng xuydn, lidn tyc dd dua may bay vd
tdu chd ngudi vdo cdng Viing Ang dua 4.000 cdng nhdn Trung Qudc vd
nude. BO Ngogi giao va Cyc Ldnh su da cii doan cdng tdc vdo Vung
Ang, Hd ITnh, true tidp tham gia gidi quydt nhung vdn dd dodn Bd Ngoai
giao Trung Qudc yen edu vd phdi hgp chat che vdi dia phuang, bO,
ngdnh dua 4.000 ngudi Trung Qudc Idn may bay, tdu bidn an toan vd
nude. Vy vide dua ngudi vd nude ndy dien ra d miic dg nhd, qui md d
trong mgt dia phuang, nhimg vdi y do thidu thidn chf cua Tnmg Qudc
khi cd tinh thdi phdng su vide, dua phuong tien vao Viet Nam, bd trf

thdng tin dgi chiing lay tin, lam riim beng ve "Idi" eiia Vi^t Nam bdi Hoa,
"ddnh chdt" ngudi Trung Qudc dang lam vide tgi khu kinh td cua Viet
Nam; chfnh quydn Viet Nam khdng "can thidp" kip thdi v.v... Dieu nay
cung da gdy su chu y nhat dinh ciia cdc nude tren the gidi, nhat la trong
bdi cdnh cae doanh nghiep eua Dai Loan, Nhat Ban, Xinh-ga-po, Hdng
Kdng, Han Qudc vd cua mdt sd nude khdc cung bi dap phd, ddt chay, hdi
eua V.V.... Vi vdy, vide Trung Qudc dua ngudi vd nude da idm mgt sd
nude va cd nhan khdng hieu, cho Id Viet Nam gay ndn bgo logn trong
dan chung dd bai ngudi nude ngoai, ngudi Trung Qudc, khidn Trung
Qudc phdi dua phuang tidn vdo chd cdng ddn vd.
Trudc nhirng y dd khdng thidn cbi, md thuc chdt Id Trung Qudc
che gidu di su that rat rd rdng trong muu do dgc chiera Bidn Ddng, dua
ddn khoan HD 981 vdo viing dac quydn kinh td vd thdm lye dia cua Vidt

12/2015


Nam dd 1dm sy da rdi, tii do ngang nhidn xdm pham chu quydn, quyen
chii quydn va quydn tdi phan ciia ViOt Nam tai qudn ddo Hodng Sa, quan
ddo Trudng Sa trdn Bidn Ddng. Cdch 1dm "lap Id trdng den" eiia Tnmg
Qudc dugc Viet Nam bidt trudc, hidu ro. Chfnh phu Vi?t Nam da nhanh
chdng ban hanh nhiing giai phdp ddng bg, quydt liet, giai quyet cd tuih,
cd 1^, khdng chi vdi Trung Qudc, md cd vdi cdc ddi tac lidn quan nhu
Ddi Loan (Trung Qudc), Nhgt Bdn, Xinh-ga-po v.v... Do v^y, da 1dm cho
chfnh quydn cac nude, cdc nhd ddu tu nude ngoai, cae bdn lidn quan h i ^
rd thyc tdm cua Chfnh phu Viet Nam, nguydn nhan sau xa cua cdc cupc
bidu tinh Id bdt ngudn tir vide 1dm sai tidi ciia Trung Qudc.
O gdc do di cu vd khiing hodng di cu, cd thd ddnh gid ddy Id cuoc
di ddn Trung Qudc vd nude do Trung Qudc ehii dOng thyc hiOn, c6 linh
gdy chuydn, khdng phdi do khiing hodng xa hdi hogc khung hodng kinh

td d Vidt Nam khidn ngudi dan Tmng Qudc phai di chuydn ve nude. Tuy
v^y, y mudn chu quan cua qudc gia lidn quan thd hidn ydu td "keo" trong
quan niem ve di cu va khiing hodng di cu. Dudi gdc do do, vifc B§
Ngogi giao va Cue Lanh sy tham gia giai quydt vdn dd dua cdng nhSn
Trung Qudc vd nude Id mdt hoat dgng cdn xem xet tiong cdng tde di cu,
xii ly di cu khi ed khiing hodng cua Vidt Nam. Didu nay cd nghTa lil
khdng chi can ed ca chd, chfnh sdch, bidn phap xu ly khung hoang di cu
ciia Viet Nam theo chidu dua cdng dan Vidt Nam vd nude, md cin ed co
che, chfnh sdch, bien phdp cua co quan chuc nang Viet Nam gidi quySt
ngudi nude ngoai di cu tii Viet Nam vd nude hg.
Thdnh l|ip Trung tam xu ly khung hosng: Gidi phap cho Vi^t
Nam
Vdi suy nghi phdi chd dOng, tfch cue iing phd vdi van dd khiing
hoang di cu trong dgc diem vd xu thd trdn thd gidi hidn nay: khdng m^t

78

12/2015


Nghiin cuu QuSc ti sS 4 (103)
qudc gia nao cd thd dan phuang phdt tiidn md khdng cd quan he vdi bdn
ngodi, ciing khdng qudc gia nao dan le giai quydt dugc vdn dd di eu qudc
td, bdi cdc qudc gia ngdy cdng cd Igi fch rang budc, dan xen vd phu thuOc
Idn nhau. ViOt Nam dang ngdy cang hOi nhgp qudc te sau, rgng. Qud
tiinh hOi nhdp md ra nhidu ITnh vuc hgp tde, nhidu quan he giao luu,
cdng ddn Vi^t Nam ra nude ngodi ngdy cdng nhidu vd tii nude ngoai tid
vd Viet Nam vdi sd lugng ddng; trong khi ngudi nude ngodi ddn Viet
Nam ciing ngdy cdng ddng. Di cu tien tiid gidi ludn tidm dn nhung khd
ndng cd thd xdy ra khung hoang, Viet Nam ciing chiu nhiing tdc ddng,

dnh hudng nhat dinh vd khung hoang di eu vdi cdng dan Viet Nam dd vd
se didn ra.
Tuy Viet Nam dang d giai doan tap trung gidi quydt khiing hoang
di eu lidn quan true tiep, nhung vd lau ddi cdn thiet phdi xdy dyng mOt ca
chd xu ly khiing hodng di cu dd umg phd chii ddng vd ndng tdm xii ly d
pham vi rdng ban, hidu qua ban va tidn tdi qudn ly dugc khiing hodng,
giai quydt sdm nhiing mam mdng cua khiing hodng, tii do ddng gdp
nhidu hon, phu hgp vdi vai trd ciia qudc gia rich cyc hOi nhgp qudc te.
Vdi sy phdt tridn cua ddt nude, mgt co chd hoan ehinh dd qudn I^ di cu,
cung nhu qudn ly, xu 1^ khung hodng di eu can dugc nghien ciiu xdy
dyng dd kip thdi, nhanh chdng xii ly, giai quydt cdc cudc khiing hoang di
cu tuang ty cd thd xdy ra trong tuong lai. Tnrdc mat, vide nghidn cdu
xdy dyng mgt co quan, tgm ggi 'Trung tdm xu ly khung hodng" nhdm
kip thdi ling phd vdi cdc tinh hudng khan cap va tridn khai hoat ddng bdo
hd cdng ddn Viet Nam d nude ngoai va ngudi nude ngoai tai Viet Nam
quy md Idn la rat cdn thidt.
Vide thdnh Igp Trung tam xii ly khiing hodng la do nhiing nguydn
nhdn sau: (i) Viet Nam ed nhu cdu thyc tidn cua quoc gia vira Id nude
g6c, viia Id nude tidp nhgn, vua Id nude qud cdnh eiia van dd di cu; (ii)
79


Cd ca sd phdp ly vd vdn dd xem xdt ca chd "Trung tdm": Nghi quydt s^
36 cua Bd Chfnh tri ngdy 26/3/2004 vd cdng tae ngudi Vidt Nam d nu6t
ngoai, gdn ddy nhdt, Chi thj sd 1737/CT-TTg ngdy 17/10/2010 ciia Thii
tudng Chinh phu tidp tyc khdng dinh dudng Idi, chfnh sdch eua Dang,
Chfnh phu vd bdo hO cdng ddn Vidt Nam d nude ngodi. Mat khdc, nguoi
nude ngodi d Viet Nam dugc ddi xir cdng bang vdi cdng dan Viet Nam
tiong vdn dd di Igi, lao ddng, hgc tdp, 1dm vide. Dieu ndy dugc the hi8n
trong Hidn phdp ndm 2013 ciia nude Cdng hda Xa hOi Chii nghTa Viet

Nam. Cac van bdn phdp ludt khac, nhu Ludt xudt cdnh, nhgp canh, qud
cdnh, di lai cua ngudi nude ngodi tgi Viet Nam nam 2014 vd cdc van ban
khac khang dinh ngudi nude ngodi dugc Nha nude Viet Nam bdo hg cdc
quyen ca ban cua con ngudi tgi Viet Nam, vdi dieu kien tudn thu phap
luat Viet Nam. Tren ca sd do, viOc giiip dd, ho trg ngudi nude ngoM
dugc cdc ea quan Viet Nam thyc thi, cd trong trudng hgp giup do di
chuydn khdi Viet Nam nhu tnrdng hgp ngudi Trung Qudc rut khdi Vi^t
Nam hdi thdng 5/2014; (iii) Thuc tidn trong thdi gian vua qua, nhu ciu
xu 1^ khung hodng di cu ciia Viet Nam cho thdy cdn thidt phai gidi quygt
cd cdng dan ta di chuydn vd nude vd cdng ddn nude ngodi rdi Viet Nam;
(iv) Kinh nghidm ciia qudc gia khdc ciing da xu l^ tuong ty. 6-xtiay-li-a,
Phi-lfp-pin, In-dd-nd-xi-a, Hoa Kj/, Phdp, Anh v.v.... Nhin chung la cac
nude phat tridn, hodc cac nude dang phat tridn hon Viet Nam ddu nhin
nhdn trong xii ly khiing hodng di cu rdt edn thidt phai ed mOt ca quan
chuydntideh,chuydn nghidp, bai bdn nhu y tudng "Trung tam ndu tidn.
Han niia, viec kidn nghi lap "Trung tam xii Vy khiing hodng" cdn vi
nhung 1^ do khac. Dd la: (i) vide thdnh lap "Trung tam" dh cdng viec xii
ly van dd di eu ngdy cang dugc hodn thidn, chuyen nghidp han. Vdi cdng
tac bdo hg cdng dan ngay cang trd thdnh mOt nhiem vy trgng tara ciia Bg
Ngoai giao tiong tinh hinh hidn nay thi nhidu khi, mdt ca quan chuySn

80

12/2015


Nghien cim QuSc tisS 4 (103)
giai quydt vdn dd bdo hO cdng dan ciia BO khdng the giai quydt dugc vdn
dd trdn todn lanh thd, ddi hdi phdi ed phdi hgp da ngdnh, da ITnh vyc giua
Bg Cdng an, BO Qudc phdng vdi Bd Ngoai giao vd cdc dia phuang. Do

dd, mOt Trung tdm xu 1^ khung hoang se gdm ca che da nganh, da ITnh
vuc, tii nhdp, xudt cdnh, ldnh su, den y td v.v... mdi du ndng lye va khd
nang huy ddng ngudn lye vd thuc thi nhiem vy, dudi su chi dgo cua
Chfnh phii; (ii) vide thdnh lap 'Trung tdm" khdng chi gidi quydt vdn dd
khiing hodng di cu tiong pham vi qudc gia, ma Trung tdm se Id ddi tac
tuang xiing, ngang bang thii bdc hdnh chfnhti-ongquan h? qudc td dh tao
dieu kien hgp tdc thudn Igi vdi cdc bdn nude ngodi Udn quan khi xii ly
khiing hodng; (iii) Bdn thdn Trung tdm khi dugc Chfnh phu quydt dinh
thdnh lap se mang chiie ndng, nhiOm vy dugc giao, nhung didu dang
nhan mgnh han Id Trung tdm khi do mdi cd dil quydn hgn dd buy dOng,
chi dao, hudng ddn ede ea quan chiic nang lidn quan ciia cdc bd, ngdnh,
dia phuang, co quan dai dien Viet Nam d nude ngodi thdng nhat tudn
theo mOt trung tam. MOt trung tdm nhu vay mdi cd khd nang ehi huy, tgp
tmng cao nhdt ngudn luc dd gidi quydt khung hoang di eu, md rdt thdng
thudng Id Udn quan ddn cac bdn nude ngodi vd cd vi thd de chi dao cac
CO quan chiic nang trong nude. Ld co quan ciia Chfnh phu, Trung tdm
ndy se dugc h5 trg ve ky thuat nhu thdng tin lien lac vdi cac nude trdn
thd gidi thudng xuydn vd lidn tuc, thdm quydn tidp can cac ngudn thdng
tin, cd khd ndng Udn lac, trao ddi vdi khap nai trdn thd gidi dd sdn sdng
hd trg cdng ddn; cdn cd dii phuang tidn vd ndng lye vd huy dOng phuang
tidn dd xu 1^ khung hoang.
Dd lam viec nay, rat can thidt kien nghi vdi Chinh phii vd mOt bO
ludt di cu vd nhgp eu dd cd chidn luge, chfnh sdch rd rdng, gia tii cao vd
phdp ly. Viet Nam mdi ban hanh Lu^t xudt cdnh, nhdp canh, qud cdnh vd
di Igi ciia ngudi nude ngodi nam 2014, nhung chua didu chinh tdng the


van de ngudi nude ngodi. Thf dy nhu vide lao dOng tgi Viet Nam, Lu|t
ndi tren chua dd cap cu thd, ciing nhu chua dd edp ddn vide xin nhdp cu,
1dm vide Idu ddi. Vdn dd qudc tich dugc qui dinh tiong Lu$t qudc tjch

sua ddi nam 2013; Vdn dd lao dOng chua dugc dua vao Ludt xudt cdnh,
nhgp cdnh, qud canh vd di lai ciia ngudi nude ngodi ma dugc didu chinh
bdng Nghi djnh sd 102/2010/ND-CP cua Chfnh phii. Nhu v^y, Vidt Nam
chua xdy dyng mdt van bdn Ludt thdng nhdt cac nOi dung can didu chinh
lidn quan ddn nhap cu, di cu. ViOc nghidn ciiu ban bdnh Ludt nhdp cu, di
cu cd thd kdt hgp vdi vide qui dinh vd 'Trung tam xii ly khung hodng" dS
chuyen tidch xu 1^ khiing hoang di cu.
Ndi tdm Igi, hda binh, hgp tde va phdt tridn Id xu thd chu dgo tiong
quan he qudc td hien nay. Tuy nhidn, tinh hinh thd gidi van tiem an nhieu
ydu td phiic tgp, khd ludng; nhidu khu vuc trdn thd gidi vdn tidp tyc bdng
phdt xung dgt vii tiang hoac bat dn chfnh tri. Bien ddi khf hdu toan cau
gia tdng ddn ddn nguy ca xdy ra nhidu tham hga thidn nhidn bit ngd ntar
dgng ddt, sdng thdn, lu lyt v.v.... Cd thd ggi day Id mOt sd hien tugng din
ddn khung hodng di cu. Khung hodng di cu ngay nay dang Id mOt thach
thiic ddi vdi cdc qudc gia va eOng ddng qudc td. Khung hodng dang t^o
ra ngdy cdng nhieu ddng di eu quy md vd phiic tap, cae binh thiic di cu
bien dOng khdc nhau vd qua dd, quy md di cu bidn dOng ciia con ngudi
trong cac cuOc khiing hodng nhdn dgo dang ddn trd ndn rd rdng hon.
Nhdm ngudi di cu chiu dnh hudng cua khiing hodng cd nhflng bidu hi?ii
v^ tfnh dd hi tdn thuang vd ddng thdi, ede ddng di cu vdi quy md Idn,
phiic tap vd ede hinh thiic di eu bidn ddng khdc nhau tao ra cdc thdch
thiic nghidm tigng vd Idu ddi ddi v6i cdng tdc qudn ly. Tuy vdy, trong
nhidu trudng hgp, quy md di cu ciia khung hodng thudng bi xem nhe va
bd qua trong ling phd vdi khung hoMig.
Vi vgy, trong bdi cdnh ndy, viOc nghien ciiu hudng tdi xdy dpg
82

l2/2m

Nghiin cim QuSc tisS4(103)
chfnh sdch nham quan ly khdng hodng trong ITnh vyc di cu Id didu cdn
thidt dd ling phd vdi nhiing khiing hodng cd thd xay ra trong tuong lai,
thdng qua dd, gdp phan qudn ly di eu hidu qud, toan dien nhdm bdo vd
quyen vd Igi fch ciia ngudi di cu cung nhu tdi da hda Igi ich ciia di cu
qudc td ddi vdi su tang trudng kinh t^ vd phdt tridn bdn viing ciia ddt
nude./.

TAI UEU THAM KHAO
1. Cue Lanh sy - Bd Ngoai giao, Bdo cao tdng quan vi tinh hinh di
cuciia cdng ddn Viet Nam ra nude ngodi. Ha NOi, 2011.
2. Dd tai nghidn ciiu ca sd Bd Ngoai giao, Bdo hd ldnh sif ddi v&i
ngudi lao ddng Viet Nam & nu&c ngodi, 2011.
3. Td ehiic Di eu Qudc td, Gidi thich thuat ngic ve di cu, Hd NOi,
2011.

4. Myron Weiner, The Global Migration Crisis - The Challenge to
State and to Human Rights, Harper CoUins College, 1995.
5. International Organisation for Migration, Migration Development
and Poverty Reduction in Asia, Switzerland, 2005.
6. Uitemational Organisation for Migration, Return Migration:
Policies and Practices in Europe, Switzerland, 2004.
7. International Federation of Red Cross and Red Crescent
Societies, World Disasters Report 2012, Switzerland, 2012.

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