Luận văn đổi mới quy trình lập kế hoạch phát triển kinh tế xã hội hàng năm cấp quốc gia ở việt nam
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TRUONG DAI HOC KINH TE QUOC DAN
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..................... BDS0OG8G8.......................
VU THI NAM BINH
DAI HOC KTQD
TT. THONG TIN THU VIEN ;
PHONG LUAN AN • TU LIEUI
DOI Men QUY TRING LAP KE HOACH
PHAT TRIEN KINH TE - XA HOI HANG NAM
CAP QUOC GIA () VIET NAM
Chuyen nganli: KINH TE PHAT TRIEN
LUAN
VAN THAC
SY KINH TE
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7M
Ngirdi hircmg din khoa hoc: PGS.TS NGO THANG LOl
HA NOI, NAM 2011
LOl CAM DOAN
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Luan van thac sy kinh te chuyen nganh kinh te phat trien voi de tai "Ddi moi
quy trinh lap ke hoach phat trien kinh te - xa hoi hang nam cap qudc gia o' Viet
Nam" dime tac gia viet duoi sn huong dan cua PGS.TS Ngd Thang Loi. Luan van
duoc viet tren co so lam ro them ly luan chung va phan tich thnc trang ve lap ke
hoach phat trien kinh te - xa hoi hang nam cap quoc gia o Viet Nam, de xuat huong
doi moi, dieu kien doi moi va cac kien nghi ve phia Chinh phu, phia cac bo, nganh
lien quan cung nhu ve phia doanh nghiep nham doi moi quy trinh lap ke hoach phat
trien kinh te - xa hoi hang nam cap quoc gia o Viet Nam hien nay.
Trong qua trinh viet luan van, tac gia co tham khao mot so noi dung tu cac
van ban quy pham phap luat, cac bao cao chuyen de, thong tin tu mot so cuon
sach chuyen nganh, tap chi,...lien quan den quy trinh lap ke hoach phat trien
kinh te - xa hoi hang nam cap quoc gia thgo danh muc tai lieu tham khao.
Tac gia cam doan day la cong trinh nghien cuu rieng va xin chiu hoan toan
trach nhiem ve cam doan cua minh./.
TAC GIA LUAN VAN
Vu Thi Nam Binh
MUC LUC
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•
LO’I CAM DOAN
DANH MUC CAC SO DO
TOM TAT LUAN VAN
LO’I MO DAU........................................................................................................... 1
CHVONG 1- KHUNG LY THUYET DOI MOI QUY TRINH LAP KE
HOACH PHAT TRIEN KINH TE - XA HOI HANG NAM CAP QUOC GIA
O VIET NAIM......................................................................................................... 5
1.1. Ke hoach phat trien kinh te - xa hoi hang nam cap quoc gia trong he thong ke
hoach phat trien kinh te - xa hoi............................................................................... 5
1.1.1. Ke hoach phat trien kinh te - xa hoi............................................................... 5
1.1.2. He thong ke hoach hoa phat trien kinh te - xa hoi cap quoc gia..................... 5
1.1.3. Ke hoach phat trien kinh te - xa hoi hang nam cap quoc gia trong he thong ke
hoach phat trien kinh te - xa hoi............................................................................... 8
1.2. Quu t rinn 1 ap k e h oach p hat trien k inn te - xa h hi hann g am cap q qUc gia ..... 13
1.2.1. Lap ke hoach va quy trinh lap ke hoach phat trien kinh te - xa hoi............... 13
1.2.2. Quy trinh hanh chinh trong lap ke hochh phat trien kinh te - xa hoi.............. 15
1.2.3. Quy trinh ky thuat trong lap ke hoach phat trien kinh te xa hoi..................... 17
1.3. Su ccn t hiee doi mci qqu trinh 1 ap kk hhach hhnn ndm ccp qquo gia r Viet Nam
hien nay.....................................................................................................................21
1.3.1. Nhung yeu cnu moi trong cong tac ke hoach hoa......................................... 21
1.3.2. Nhung xu huong doi moi trong cong tac lap ke hoach................................. 22
1.3.3. Su thay doi cau truc, noi dung cac bo phan cau thnnh ban ke hoach.............. 26
CHVONG 2 - DANH GIA THUC TRANG DOI MOI QUI TRINH LAP KE
HOACH PHAT TRIEN KINH TE - XA HOI HANG NAM CAP QUOC GIA
O VIET NAM TC NAM 1986 TOI NAY............................................................ 29
2.1. Khai quat doi moi quy ttinh lap kh ooah ht tr imm 1866 de n nay .....................29
2.1.1. Cac chu truong doi moi quy trinh lap ke hoach hang nam........................... 29
2.1.2. Qua trinh doi moi quy trinh lap ke hoadi...................................................... 33
2.2. Quu irinn i pa kk hoodi kpht trien Cmli t e g xa khi hann mm
ccp
qque ^a Chen
hanh.....................................................................................................................................35
2.2.1. Quy trinh hanh chinh........................................................................................... 35
2.2.2. Quy trinh ky thuat.......................................................................................... 40
2.3. Danh gia chungquy trinh hien hanh.................................................................. 49
2.3.1. Mat dupe........................................................................................................ 49
2.3.2. Mat han che....................................................................................................54
2.3.3. Nguyen nhan cua nhirng bat cap..................................................................... 58
2.3.4. Tac dong cua quy trinh hien hanh den chat luong va tac dung ban ke hoach 62
CHlTONG 3: DOI MCH QUY TRINH LAP KE HOACH PHAT TRIEN KINH
TE - XA HOI HANG NAM CAP QUOC GIA O VIET NAM............................. 64
3.1. Quan diem, muc tieu va dinh hudng doi moi quy trinh lap ke hoach phat trien
kinh te - xa hoi hang nam cap quoc gia....................................................................64
3.1.1. Quan diem doi mdi quy trinh lap ke hoach phat trien kinh te - xa hoi hang
nam......................................................................................................................... 64
3.1.2. Muc tieu doi moi quy trinh lap ke hoach phat trien kinh te - xa hoi hang nam ...64
3.1.3. Dinh hudng doi mdi quy trinh lap ke hoach phat trien kinh te - xa hoi mang
tinh chien luge........................................................................................................ 65
3.2. De xuat noi dung doi mdi quy trinh lap ke hoach............................................. 67
3.2.1. De xuat doi mdi quy trinh hanh chinh.......................................................... 67
3.2.2. De xuat doi mdi quy trinh ky thuat............................................................... 72
3.3. Dieu kien de thuc hien doi mdi quy trinh lap ke hoach.................................. 79
3.3.1. He thdng van ban nha nude ve cong tac ke hoach....................................... 79
3.3.2. Bo may to chtrc trong lap ke hoach.............................................................. 81
3.3.3. He thdng thong tin phuc vu cong tac lap ke hoach......................................... 82
3.4. Mot so kien nghi doi mdi quy trinh lap ke hoach phat trien kinh te - xa hoi hang
nam...........................................................................................................................82
3.4.1. Doi vdi Chinh phu......................................................................................... 82
3.4.2. Doi vdi cac bo nganh co lien quan................................................................. 85
3.4.3. Doi vdi cac dia phuong................................................................................. 86
KET LUAN...................................................................................................................... 88
TAI LIEU THAM KHAO............................................................................................. 90
PHU LUC:........................................................................................................................ 92
DANH MUC CAC SO DO
So do 1: Moi quan he tac dong lan nhau trong cac loai hinh va cac cap ke hoach ..10
So do 2: Moi quan he giua ke hoach cap Quoc gia; nganh, linh vuc, tinh, thanh pho ..11
So do 3: Sir tham gia cua cac ben co lien quan trong quy trinh hanh chinh........... 16
So do 4: Cac co quan tham gia qua trinh lap ke hoach phat trien kinh te - xa hoi... 36
So do 5: Quy trinh lap ke hoach phat trien kinh te - xa hoi hang nam cap quoc gia o
Viet Nam................................................................................................................. 41
So do 6: De xuat doi moi quy trinh lap ke hoach phat trien kinh te - xa hoi hang
nam cap quoc gia o Viet Nam
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u
n;
TRUONG DAI
HOC
KINH TE QUOC DAN
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.......... BQdOcSC..........
VU THI NAM BINH
DOI MOI QUY TRING LAP KE HOACH
PHAT TRIEN KINH TE - XA HOI HANG NAM
CAP QUOC GIA O VIET NAM
Chuyen nganh: KINH TE PHAT TRIEN
TOM TAT LUAN VAN THAC SY
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HA NOI, NAM 2011
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TOM TAT LUAN VAN
0 Viet Nam, viec lap ke hoach phat trien kinh te - xa hoi cap quoc gia duoc
thuc hien hang nam va nam nam. Tuy nhien, hien nay cac van ban phap quy chua
dong bo; quy trinh, noi dung va phuong phap lap ke hoach, giao ke hoach chua
thong nhat; cac chi tieu ke hoach chua bam sat voi nhu cau va kha nang cua nen
kinh te, ... lam giam hieu luc va hieu qua quan ly cua ke hoach doi voi phat trien
cua cac nganh, cac dia phuong. Do do, de dap ung yeu cau doi moi va nang cao
hieu qua nen kinh te, viec doi moi cong tac lap ke hoach phat trien kinh te - xa hoi
cap quoc gia tu he thong van phap quy, quy trinh, noi dung va phuong phap la het
suc can thiet.
Voi quy trinh xay dung hien tai, ke hoach chi thuc su duoc thuc hien trong
vong hon mot thang thi chat luong ke hoach kho co the bao dam. Ngoai ra, trong
vong hon i thang thi viec trien khai ke hoach tu cap duoi len cap tren la het suc kho
khan, dac biet d dia phuong, cac tinh, thanh pho kho co the co du thoi gian de tong
hop ke hoach cua cap huyen, cap xa. Neu lam dung quy trinh nay Bo Ke hoach va
Dau tu se khong the tong hop ke hoach cap dia phuong trinh Chinh phu trong thang
8. JDieu nay se khong phu hop voi nguyen tac ke hoach phai duoc tong hop th nhu
cau tu duoi len tren.
De gop phan tham gia y kien cho nghi dinh lap ke hoach, nhat la dong gop y
kien cho viec hoan thien quy trinh lap ke hoach, tac gia xin lua chon mot khia canh
cua doi moi cong tac lap ke hoach lam de tai luan van thac sy la: Doi moi quy trinh
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lap ke hoach phat trien kinh te - xa hoi hang nam cap qudc gia & Viet Nam.
De dat duoc muc tieu va noi dung nghien cuu neu tren, ngoai phuong phap
luan duy vat bien chung, duy vat lich su, tren co sd duong loi, quan diem cua Dang,
chinh sach cua Nha nuoc, Luan van se su dung cac phuong phap nghien cuu chuyen
nganh nhu phan tich, tong hop, so sanh, ket hop nghien cuu ly luan voi thuc tien,
bao gom: Tong hop, phan tich so sanh tren co sd thuc te qui trinh lap ke hoach phat
trien kinh te - xa hoi hang nam cap quoc gia cua Viet Nam trong thoi gian vua qua;
Phan tich, so sanh van de rut ra cac dac diem, tong ket cac ket qua dat dupc, nhung
ton tai han che va dua ra dinh huong phat huy nhung ket qua, khac phuc nhung ton
tai, yeu kem; Y kien, nghien cuu cua cac chuyen gia lien quan den cong tac lap ke
hoach phat trien kinh te - xa hoi hang nam cap quoc gia d Viet Nam.
Luan van da co nhung dong gop co ban sau:
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Thu nhat, Luan van da gop phan lam ro them vi tri, vai tro cua Ke hoach
phat trien kinh te - xa hoi hang nam cap quoc gia trong he thong ke hoach phat trien
kinh te - xa hoi.
Ke hoach phat trien kinh te - xa hoi quoc gia la cong cu Nha nuoc de dinh
huong phat trien kinh te-xa hoi cua quoc gia, dia phuong trong mot thoi gian nhat
dinh. Ke hoach phat trien kinh te - xa hoi de ra nhung muc tieu phat trien cua quoc
gia trong mot khoang thoi gian nhat dinh (hang nam, 5 nam, 10 nam,...) va de ra
cac giai phap, chinh sach trong khuon kho nguon luc san co hoac co the huy dong
de dat dupe cac muc tieu de ra.
Neu phan chia theo noi dung, he thong ke hoach hoa quoc gia bao gom;
chien lupc phat trien kinh te - xa hoi, quy hoach phat trien kinh te - xa hoi, ke hoach
phat trien kinh te - xa hoi, cac chuong trinh, du an phat trien kinh te - xa hoi.
Neu phan chia theo thoi gian, ke hoach hoa cap quoc gia bao gom: Ke
hoach phat trien kinh te - xa hoi 5 nam va ke hoach phat trien kinh te - xa hoi hang
nam. Va phan loai theo quy trinh, ke hoach hoa phat trien kinh te - xa hoi dupc
chia ra lam cac khau: lap ke hoach, thuc hien ke hoach, theo doi va danh gia ke
hoach.
Ke hoach hang nam la buoc cu the hoa cua Ke hoach 5 nam. KHPT KTXH
hang nam la van ban mang tinh phap ly cao; hoach dinh mang tinh dieu hanh cao
nham thuc hien muc tieu cua ke hoach hang nam mot cach co he thong moi mat
hoat dong cua dat nuoc, cua tung nganh kinh te, xa hoi, tung vung lanh tho, trong
nam ke hoach.
Luan van chi di sau vao nghien cuu doi moi quy trinh lap ke hoach phat trien
kinh te - xa hoi hang nam cap quoc gia.
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Luan van cung da neu ra duoc cac khai niem lap ke hoach, quy trinh lap ke
hoach (quy trinh hanh chinh va quy trinh ky thuat), cac xu hudng lap ke hoach hien
nay va sir can thiet phai doi mdi quy trinh lap ke hoach phat trien kinh te - xa hoi
hang nam hien nay.
Lap ke hoach phat trien kinh te - xa hoi la qua trinh hinh thanh boi canh, xay
dung va lira chon cac muc tieu uu tien trong tirng thdi ky, de ra cac giai phap co
hieu qua de dat dupe cac muc tieu trong khuon kho nguon lire san co hoac cd kha
nang huy dong.
Quy trinh lap ke hoach la trinh tir cac budc trong qua trinh to chuc thuc hien
viec soan lap ke hoach, tir khi chuan bi cho den khi ban ke hoach dupe giao cho cac
cap to chuc thuc hien. Cac budc to chuc soan lap dupe xet tren cac goc do khac
nhau: goc do hanh chinh (quy trinh hanh chinh) va goc do ky thuat (quy trinh ky
thuat).
Quy trinh hanh chinh trong lap ke hoach phat trien kinh te - xa hoi la quy
trinh noi den vc mat to chirc. thdi gian. phan cong cac don vi tham gia vao qua trinh
lap ke hoach va nhirng san pham bat buoc cua tirng khau trong quy trinh nay.
Quy trinh ky thuat xac dinh cac budc tien hanh de xac dinh cac noi dung cua
ban ke hoach phat trien kinh te xa hoi. Noi dung cua tirng budc nay phai bao gom
muc tieu, each tien hanh, thdi gian tien hanh, don vi tien hanh va san pham cua tirng
budc.
Nhirng yeu cau trong qua trinh phat trien hien nay la: Hoan thien the che
kinh te thi trudng dinh hudng xa hoi chu nghTa; Qua trinh hoi nhap kinh te quoc te;
Qua trinh cai each hanh chinh theo hudng day manh phan cap dat ra yeu cau doi
mdi quy trinh, noi dung va phuong phap xay dung ke hoach..
Nhung xu hudng doi mdi trong cong tac lap ke hoach hien nay la: Lap ke
hoach mang tinh chien lirpc; Lap ke hoach dua tren ket qua; Lap ke hoach cd sir
tham gia.
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Thu' hai, Luan van da co nhtrng tong ket, danh gia nhtrng mat duoc, mat ton
tai va cac nguyen nhan yeu kern ve quy trinh lap ke hoach phat trien kinh te - xa hoi
hang nam cap quoc gia hien nay d Viet Nam.
Nam 1986, Dai hoi Dang toan quoc lan thu VI da de ra duong loi doi mdi
toan dien va sau sac co che quan ly kinh te d nude ta, doi hoi phai co sir thay doi
can ban ca noi dung, phuong phap va pham vi ke hoach hoa. Viec doi mdi nay da
dan dan thay doi ve phuong phap luan nghien cuu xay dung ke hoach; lay viec
nghien cuu xay dung ke hoach dai han co budc di tirng nam la chinh, ke hoach hang
nam chi la budc cu the hoa cua ke hoach 5 nam. Viec xay dung ke hoach bay gid
khdng chi la viec cua nha nude, cua mot don vi cu the nao ma la cong viec cua tat
ca cac nganh, cac cap de bao dam khi ban hanh co the huy dong tot cac nguon luc
thuc hien cac nhiem vu va dat cac muc tieu da de ra trong ban ke hoach.
Trong cu che ke hoach hoa tap trung, quy trinh lap ke hoach duuc tien hanh
theo phuong thuc: "Hai len, ba xudng". Qua trinh xay dung nhu vay thudng bi chi
phoi bdi ca nhung y kien chu quan cua cac cap lanh dao va nhung ngudi xay dung
ke hoach. Quy trinh xay dung ke hoach hien nay duuc doi mdi dira tren nen tang: ke
hoach cua cac cap. cac nganh hay ke hoach cua dia phuong la ke hoach mang tinh
doc lap tuung doi, khdng phai la cac chi tieu true tiep do trung uung giao ma la cu
the hoa cac chi tieu, dinh hudng cua trung uung vao dieu kien cu the cua cac nganh,
cac cap va do nganh, dia phuong xay dung thuc hien tai nganh, dia phuong.
Danh gid quy trinh hanh chinh:
Mat duuc:_da dat ra cac moc thoi gian cu the trong Chi thi cung nhu Khung
hudng dan xay dung ke hoach cho cac don vi cac cap trien khai xay dung ke hoach;
da huy dong duuc cac bo, nganh va dia phuong tham gia xay dung, tong hup ke
hoach. Budc dau, da co sir tham van ke hoach doi vdi cong dong va cac nha khoa
hoc; khoang thoi gian cung nhu phan cong nhiem vu cua cac don vi trong cac budc
cung da duuc neu rd rang de cac don vi chu dong va phoi hop trong qua trinh trien
khai xay dung ke hoach.
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Mat han che: thoi gian khoi dong, tong hop ke hoach con ngan, chua co van
ban phap luat quy dinh cu the thoi gian de cac don vi xay dung va gui bao cao ke
hoach len cap tren nen chua co che tai ap dung cu the doi voi nhung don vi khong
thuc hien dung va day du; hien nay cong tac xay dung ke hoach phat trien kinh te xa hoi moi chi chu yeu tap trung o cac co quan thuoc nganh ke hoach, dau tu. Viec
tham van cac don vi lien quan, cong dong dan cu va cac nha khoa hoc van con han
che, chua di sau vao cac noi dung cu the; khoang thoi gian trong tung buoc de cac
don vi thuc hien cung con rat ngan, kho co the bao dam tong hop ke hoach day du
theo chieu doc va theo chieu ngang.
Danh gid quy trinh ky thuat:
Mat duoc: quy trinh lap ke hoach phat trien kinh te - xa hoi da the hien duoc
quan diem tong hop tu duoi len va co su chi dao, dieu hanh tu tren xuong; da co su
tham gia cua nhieu ben vao qua trinh xay dung ke hoach, the hien tinh dan chu.
Mat han che: cac don vi tham gia vao qua trinh lap ke hoach con chua thuc
su coi ban ke hoach phat trien kinh te xa hoi co y nghia thiet thuc va la kim chi nam
hanh dong cua don vi nen muc do tham gia va dong gop vao qua trinh xay dung ke
hoach con han che. Hon the nua, thoi gian trong tung buoc de cac don vi xay dung
ke hoach con qua ngan, khong du thoi gian de cac don vi cap duoi va cung cap
chuan bi gui den co quan tong hop ke hoach, cung nhu khong du thoi gian de don vi
tong hop ke hoach co the tap hop day du cac thong tin, noi dung tu ban ke hoach
cua cac nganh cung cap lien quan va cua cac don vi cap duoi. Them vao do, trong
cac buoc cua quy trinh lap ke hoach phat trien kinh te - xa hoi hien nay chua the
hien buoc danh cho cong tac theo doi va danh gia ke hoach.
rtf
Cdc nguyen nhan ton tai: trong qua trinh lap ke hoach phat trien kinh te - xa
A
hoi hang nam cua ca nuoc trong thoi gian qua chua co mot van ban quy pham phap
luat nao chinh thuc, rieng biet. Hang nam, van ban duoc dung lam can cu xay dung
ke hoach la Chi thi cua Thu tuong va Khung huong dan xay dung ke hoach cua Bo
Ke hoach va Dau tu. Nang luc va so luong can bo lap ke hoach chua dap ung duoc
yeu cau; he thong co so du lieu lap ke hoach d cac cap con thieu va yeu; he thong
bieu mau. chi tieu hudng dan chua dong bo va con mang tinh ap dat.
Thu- ba, Luan van da de xuat cac dinh hudng, muc tieu va dieu kien doi mdi
quy trinh lap ke hoach phat trien kinh te - xa hoi hang nam cap quoc gia Viet Nam
hien nay. Dong thdi, Luan van cung neu len cac kien nghi ve phia Chinh phu, phia
cac bo, nganh lien quan va ve phia dia phuong de thuc hien doi mdi quy trinh lap ke
hoach phat trien kinh te - xa hoi hang nam cap quoc gia mot each dong bo.
Doi mdi quy trinh lap ke hoach phat trien kinh te - xa hoi hang nam cap quoc
gia phai; tao ra mot quy trinh thdng nhat va ldng ghep vdi quy trinh lap ke hoach
phat trien kinh te - xa hoi d cac cap dia phuong va gan vdi quy trinh lap ke hoach d
bo, nganh; nang cao dupe chat lupng cua ban ke hoach; gop phan tao dieu kien
thuan lpi cho cong tac chi dao, dieu hanh va theo doi, danh gia thuc hien ban ke
hoach phat trien kinh te - xa hoi hang nam cap qudc gia; nang cao duoc vai tro cua
cac co quan tong hop ke hoach, nhu Bo Ke hoach va Dau tu, So Ke hoach va Dau
tu d cac dia phuong...
Dinh hudng doi mdi quy trinh hanh chinh: Viec xac dinh mot quy trinh lap
ke hoach cho cac cap, dam bao cho cac cap cd du thdi gian can thiet de hinh thanh
ke hoach.
Dinh hudng doi mdi quy trinh ky thuat: Ke hoach phat trien kinh te xa hoi
hang nam phai dua tren ke hoach phat trien kinh te - xa hoi 5 nam va quy hoach
phat trien hoac nhirng dinh hudng phat trien trung han. Can tham khao nhieu
phuong phap trong qua trinh lap ke hoach nhu phuong phap ”cuon chieu”, phuong
phap lap ke hoach cd su tham gia, lap ke hoach chien lupc, lap ke hoach dua tren
ket qua.
De xuat doi mdi ve quy trinh hanh chinh: Thdi gian khdi dong xay dung ke
hoach nen bat dau tir cuoi thang 3. Thdi gian khdi dong sdm se tao dieu kien cho
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cac cap, cac nganh cd nhieu thdi gian hon de trien khai xay dung, tong hop va bao
cao ke hoach cua don vi minh. So vdi quy trinh cu thi de xuat quy trinh mdi nay da
co nhirng uu diem hon, do la: md rong doi tuong tham gia vao qua trinh lap ke
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hoach va tham gia mot each thuc chat, cu the hon; thoi gian lap ke hoach dupe day
len sum hon nen co thoi gian dai hon cho cac don vi cac cap lap ke hoach cho dun
vi minh. Do do, chat lupng cua ban ke hoach se duoc nang cao va quy trinh lap ke
hoach duoc thuc su tong hop theo nguyen tac tu duoi len. Ben canh do, qua trinh
giao ke hoach cung dupe sdm hon, tao dieu kien cho viec trien khai ke hoach dupe
thuan lpi. Trong quy trinh da thay de cap den viec theo doi, danh gia ke hoach nhu
la mot can cu, cong cu cho qua trinh xay dung ban ke hoach phat trien kinh te - xa
hoi.
De xuat doi moi quy trinh ky thuat gom 14 buoc sau:
Buoc 1: Xay dung khung du thao Ke hoach phat trien kinh te - xa hoi vao
cuoi thang 3, sau khi co bao cao bo sung tinh hinh kinh te xa hoi cua nam truoc, bao
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cao tinh hinh thuc hien ke hoach phat trien kinh te - xa hoi Quy I va du bao tinh
hinh thuc hien ke hoach phat trien kinh te xa hoi trong nam hien tai.
Buoc 2: Thu thap tinh hinh KTXH va du thao chi thi cua Thu tubng Chinh
phu ve xay dung Ke hoach phat trien kinh te - xa hoi.
Buoc 3: Trinh va duyet Chi thi xay dung Ke hoach phat trien kinh te - xa hoi
nam tiep theo.
Buoc 4: Ban hanh Khung hoac Thong tu huong dan xay dung Ke hoach phat
trien kinh te - xa hoi.
Buoc 5: Dau thang 8, Bp Ke hoach va Dau tu se tien hanh lam viec, trao doi
va dong gop y kien true tiep vao cac ban Du thao Ke hoach phat trien cua cac don
vi de cac don vi tiep tuc hoan thien trinh cac cap tren true tiep phe duyet trong thoi
gian tiep theo.
Buoc 6: Tdng hop va cap nhat du thao Ke hoach phat trien kinh te - xa hoi
hang nam cua ca nuoc sau khi lam viec va trao doi y kien ve Ke hoach voi cac bo,
nganh va dia phuong. Sau do, se tien hanh tham van ca ban ke hoach hoac mot noi
dung chu yeu cua ban ke hoach voi cac nha khoa hoc, mot so bo, nganh, dia phuong,
nhan dan hoac mot so nha tai trp.
viii
Budc 7: Trinh va xin y kien chi dao cua Chinh phu vao ban du thao KHPT
KTXH. Qua trinh nay dien ra trong vong nua thang, tir gitra thang 9 den cuoi thang 9.
Budc 8: Cap nhat va hoan thien du thao. Sau khi tiep thu y kien cua Chinh
phu va ban du thao Ke hoach phat trien kinh te - xa hoi nam tiep theo cua ca nude,
Bo Ke hoach va Dau tu se cap nhat so lieu mdi nhat trudc khi thtra uy quyen cua
Chinh phu trinh Uy ban thudng vu Quoc Hoi va Quoc Hoi cho y kien trong thang
10 nam hien tai..
Budc 9: Hoan thien du thao trudc khi phe duyet, thdi gian tien hanh cuoi
thang 10.
Budc 10: Phe duyet ke hoach phat trien kinh te - xa hoi cua ca nude nam tiep
theo.
Budc 11: Du thao Quyet dinh cua Thu tudng Chinh phu va Quyet dinh cua
Bo trudng Bo Ke hoach va Dau tu ve giao chi tieu KTXH va chi tieu dau tu tren co
sd Nghi quyet cua Quoc hoi va ban Ke hoach phat trien kinh te - xa hoi cuoi cung
duoc Quoc hoi phe duyet.
Budc 12 va 13: Gitra thang 11, Thu tudng Chinh phu se ra Quyet dinh giao
chi tieu KTXH va NSNN cho cac Bo, nganh va dia phuong. Ngay sau do, Bo
trudng Bo Ke hoach va Dau tu se ra Quyet dinh giao chi tieu KTXH va chi dau tu
cho cac don vi va Bo trudng Bo Tai Chinh se ra Quyet dinh giao chi tieu chi thu va
chi thudng xuyen cho cac don vi.
Budc 14: Tir cuoi thang 11 va trong thang 12, cac bo, nganh va dia phuong
se tien hanh phe duyet va ban hanh cac Quyet dinh giao chi tieu KTXH va NSNN
cho cac don vi cap dudi cua minh.
So vdi quy trinh cu thi cac budc trong quy trinh ky thuat de xuat cd the: gan
vdi quy trinh lap ke hoach phat trien cua cac nganh, cac cap; cong tac lap ke hoach
da de cao vai trd chu dong cua cac nganh, cac cap; muc do tham gia, dong gop y
kien cua cac ben da di vao thuc chat, hay noi each khac la thuc hien theo phuong
phap lap ke hoach cd su tham gia; quy trinh nay doi hoi phai cd su phoi hop chat
che, thudng xuyen, lien tuc gitra cac co quan tham gia vao qua trinh lap ke hoach
phat trien kinh te - xa hoi hang nam cap quoc gia; noi dung cua ban ke hoach phat
trien kinh te - xa hoi duoc quan tam, cong khai hon, gan vdi ban ke hoach phat trien,
muc tieu, nhiem vu cua cac bo, nganh va dia phuong; quy trinh lap ke hoach phat
trien kinh te - xa hoi nay da the hien duoc nguyen tac tong hop ke hoach tu dudi len,
tranh su chong cheo, rudm ra va doi hoi phai co su tham gia, gan ket cua qua trinh
theo doi va danh gia ke hoach; quy trinh lap ke hoach phat trien kinh te - xa hoi nay
cung dat ra yeu cau va gop phan nang cao nang luc can bo ke hoach, he thong thong
tin co so du lieu phai theo doi, cap nhat thudng xuyen, he thong bieu mau, chi tieu
phai dong bo, linh hoat va phu hop vdi dieu kien thuc hien va thu thap; quy trinh
nay cung da nang cao vai trO va vi tri cua co quan tong hop ke hoach, cu the la Bo
Ke hoach va Dau tu.
Dieu kien de thuc hien doi mdi quy trinh lap ke hoach phat trien kinh te - xa
hoi hang nam cap quoc gia: the che hoa bang van ban quy pham phap luat lien quan
den cong tac ke hoach; nang cao chat luong cua viec xay dung KHPT KTXH 5 nam
cap quoc gia de lam can cu, dinh hudng trong dai han cho KHPT KTXH hang nam
trien khai; cung co nang cao nang luc va so luong can bo trong cong tac lap ke
hoach; can co he thong thong tin, co so du lieu day du va thong suot de bao dam
cho cong tac lap ke hoach; va can phai quy dinh kinh phi cho cong tac lap ke hoach
de thuc hien cac phuong phap lien quan nhu tham van cong dong.
Mot so kien nghi vdi Chinh phu, bo, nganh va dia phwang:
Doi vdi Chinh phu: can sdm ban hanh he thong van ban quy pham phap luat
ve cong tac ke hoach hoa noi chung va lap ke hoach phat trien kinh te - xa hoi noi
rieng de cac bo, nganh va dia phuong tren ca nudc thuc hien mot cach dong bo.
Trudc mat, Chinh phu sdm ban hanh mot Nghi dinh ve lap ke hoach phat trien kinh
te - xa hoi de cac bo, nganh va dia phuong ap dung thong nhat tren ca nudc. Doi
mdi, nang cao chat luong xay dung Chien luoc, Quy hoach, Ke hoach phat trien
kinh te - xa hoi 5 nam. Doi mdi quy trinh can thuc hien ddng bo vdi doi mdi
phuong phap va noi dung lap KHPT KTXH cap quoc gia.
Doi voi cac bo, nganh lien quan: doi moi viec thu thap, xu ly va su dung
thong tin phai day du. kip thoi, chinh xac. Cung co bo may to chuc, nang cao trinh
do can bo ke hoach. Ke hoach nganh phai bao dam quy hoach chung va phu hop vdi
quy hoach vung lanh tho, quy hoach va ke hoach phat trien cua dia phuong..
Doi vdi cac dia phuong: can coi cong tac ke hoach la mot van de quan trong
de tao ra nguon luc va su dung toi uu hoa cac nguon luc. Lanh dao dia phuong phai
nhan thuc rang ke hoach phat trien kinh te - xa hoi la mot cong cu quan ly, nham
giup nha quan ly co the dieu hanh cac hoat dong d dia phuong. Do do, ke hoach
phat trien kinh te - xa hoi d cap nao phai gan vdi thuc chat cua cap do, chu khong
phai nham phuc vu muc dich bao cao cap tren, kiem diem khen thudng khi can.
Tang cudng chia se thong tin va kinh nghiem gitra cac tinh dang thi diem doi mdi
cong tac lap ke hoach phat trien kinh te - xa hoi thong qua cac dien dan trao doi va
lien ket vung.
Qua noi dung tom tat cua Luan van neu tren, cac ket qua nghien cuu cua
Luan van cd gia tri thuc tien, tham muu cho Chinh phu xay dung hoan thien he
thong van ban phap luat ve ke hoach hoa trong thoi gian toi. Dong thoi cung neu ra
vung va tren nguyen tac tong hop tir cac cap./.
n
TRUONG DAI HOC KINH TE QUOC DAN
■
■
............ 9D£oQg8G3............
VU THI NAM BINH
DOI mQ'i quy tring lap ke hoach
PHAT TRIEN KINH TE - XA HOI HANG NAM
CAP QUOC GIA O VIET NAM
X
X
*?
Chuyen nganh: KINH TE PHAT TRIEN
LUAN
VAN THAC
SY KINH TE
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Ngudi hudng dan khoa hoc: PGS.TS NGO THANG LOI
HA NOI, NAM 2011
J
1
LO'I MO DAU
Trong qua trinh doi moi nen kinh te nude ta trong 25 nam qua, cong tac ke
hoach phat trien kinh te - xa hoi co nhung doi mdi quan trong tu ke hoach tap trung
sang ke hoach dinh hudng theo co che kinh te thi trudng dinh hudng xa hoi chu
nghia, gop phan tich cuc vao viec phat trien nhanh va ben vung cua dat nudc.
Hien nay, viec lap ke hoach phat trien kinh te - xa hoi duoc thuc hien hang
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nam va nam nam. Tren thuc te, ke hoach phat trien kinh te xa hoi vua xac dinh muc
tieu, vua la cong cu quan trong trong viec dinh hudng phat trien va dieu hanh thuc
hien cac muc tieu vdi hieu qua cao nhat, da va dang thuc hien d tat ca cac cap, cac
nganh tu trung uong den dia phuong.
Tuy nhien, hien nay cac van ban phap quy chua dong bo, qui trinh, noi dung
va phuong phap lap ke hoach, giao ke hoach chua thong nhat, cac chi tieu ke hoach
chua bam sat vdi nhu cau va kha nang cua nen kinh te, ... lam giam hieu luc va hieu
qua quan ly cua ke hoach doi vdi phat trien cua cac nganh, cac dia phuong
Tu tinh hinh tren, de dap ung yeu cau doi mdi va nang cao hieu qua nen
kinh te, viec doi mdi cong tac lap ke hoach phat trien kinh te - xa hoi cap quoc gia
tu he thong van phap quy, quy trinh, noi dung va phuong phap la het suc can thiet.
Hien nay, Bo Ke hoach va Dau tu dang trong qua trinh xay dung Nghi dinh
ve lap, theo doi va danh gia ke hoach phat trien kinh te - xa hoi. Tuy nhien, Nghi
dinh nay van chua duoc ban hanh va con dang co nhieu y kien khac nhau ve mot
so noi dung trong ban du thao Nghi dinh. Day duoc coi nhu la mot nen tang dau
tien ve he thong van ban qui pham phap luat de cong viec lap ke hoach thuc su co
hieu qua.
Vdi quy trinh xay dung hien nay, ke hoach chi thuc su duoc thuc hien trong
vong hon mot thang thi chat luong ke hoach kho co the bao dam. Ngoai ra, trong
vong hon 1 thang thi viec trien khai ke hoach tu cap dudi len cap tren la het suc kho
khan, dac biet d dia phuong, cac tinh, thanh pho kho co the co du thdi gian de tong
2
hop ke hoach cua cap huyen, cap xa. Neu lam dung quy trinh nay Bo Ke hoach va
Dau tu se khong the tong hop ke hoach cap dia phuong trinh Chinh phu trong thang
8. Dieu nay se khong phu hop voi nguyen tac ke hoach phai duoc tong hop tu nhu
cau tu duoi len tren.
De gop phan tham gia y kien cho nghi dinh lap ke hoach, nhat la dong gop y
kien cho viec hoan thien quy trinh lap ke hoach, tac gia xin lua chon mot khia canh
cua doi mdi cong tac lap ke hoach lam de tai luan van thac sy la: Doi moi qui trinh
lap ke hoach phat trien kinh te - xa hoi hang nam cap qudc gia a Viet Nam.
1. Muc dich nghien cun
Tren co sd phan tich, danh gia qui trinh lap ke hoach phat trien kinh te - xa
hoi hang nam cap qudc gia trong thoi gian qua cua Viet Nam, luan van de xuat mot
so hudng doi mdi, kien nghi vdi mong muon ban ke hoach phat trien kinh te -xa hoi
hang nam thuc su di vao cuoc song, dap ung dupe yeu cau phat trien kinh te-xa hoi
trong thoi ky hoi nhap sau vao nen kinh te the gidi.
2. Doi tu’O’ng, pham vi va noi dung nghien ctru
Luan van tap trung nghien cuu qui trinh lap ke hoach phat trien kinh te - xa
hoi hang nam d cap qudc gia (trong mdi quan he vdi ke hoach 5 nam).
Thuc hien nghien cuu: danh gia qua trinh doi mdi cong tac lap ke hoach hang
nam trong thoi gian qua, tim ra nhtrng diem bat hop ly trong quy trinh hien trang,
nhtrng he luy cua nhtrng bat cap nay den chat lupng va hieu qua cua ban ke hoach;
de xuat dinh hudng va cac kien nghi giai phap doi mdi qui trinh lap ke hoach phat
trien kinh te - xa hoi hang nam d cap qudc gia.
Trong qua trinh nghien ctru doi mdi qui trinh lap ke hoach: luan van nghien
cuu tren hai goc do xem xet ve quy trinh la quy trinh ky thuat va quy trinh hanh
chinh (thoi gian cu the cua tung budc trong quy trinh ky thuat).
3. Phiro’ng phap nghien ciru
De dat dupe muc tieu va noi dung nghien cuu neu tren, ngoai phuong phap
luan duy vat bien chung, duy vat lich sir, tren co sd dudng loi, quan diem cua Dang,
3
chinh sach cua Nha nude, Luan van se su dung cac phuong phap nghien cuu chuyen
nganh nhu phan tich, tong hop, so sanh, ket hop nghien cuu ly luan vdi thuc tien,
bao gom:
Tong hop, phan tich so sanh tren co sd thuc te qui trinh lap ke hoach
phat trien kinh te - xa hoi hang nam cap quoc gia cua Viet Nam trong thdi gian vua
qua.
Phan tich, so sanh van de rut ra cac dac diem, tong ket cac ket qua dat
duoc, nhung ton tai han che va dua ra dinh hudng phat huy nhung ket qua, khac
phuc nhung ton tai, yeu kem.
Y kien, nghien cuu cua cac chuyen gia lien quan den cong tac lap ke
hoach phat trien kinh te - xa hoi hang nam cap quoc gia d Viet Nam.
4. Cac dong gop cua luan van
- He thong hoa cac van de co ban ve qui trinh lap ke hoach phat trien kinh
te - xa hoi hang nam d Viet Nam trong thdi gian qua.
- Phan tich, danh gia nhung ket qua dat duoc, nhung thieu sot ve qui trinh
lap ke hoach phat trien kinh te - xa hoi hang nam d cap quoc gia cua Viet Nam.
- Nghien cuu nhung thay doi can thiet doi vdi qui trinh lap ke hoach phat
trien kinh te - xa hoi hang nam d cap quoc gia cua Viet Nam.
- Can cu vao viec phan tich, danh gia qui trinh lap ke hoach phat trien kinh
te - xa hoi cap quoc gia d Viet Nam, luan van de xuat mot sd kien nghi va giai phap
nham hoan thien cong tac nay.
- Nhung phat hien, ket luan va kien nghi cua luan van se la nhung gui y, de
xuat doi vdi cac co quan chuc nang trong qua trinh xay dung, hoan thien Nghi dinh
lap. theo doi va danh gia ke hoach phat trien kinh te - xa hoi va xay dung cac van
ban hudng dan trong tuong lai.
5. Ket cau cua luan van:
Ngoai phan muc luc, chu viet tat, ldi md dau, ket luan, danh muc tai lieu
tham khao va phu luc, noi dung cua luan van duoc trinh bay trong ba chuong sau:
4
Chuang 1: KHUNG LY THUYET DOI MdI QUY TRINH LAP KE
HOACH PHAI' TRIEN KINH TE - XA HOI HANG NAM CAP QUOC GIA 6
VIET NAM
Chuang 2: DANH GIA THUC TRANG DOI MdI QUY TRINH LAP KE
HOACH PHAT TRIEN KINH TE - XA HOI HANG NAM CAP QUOC GIA d
VIET NAM TU NAM 1986 TdI NAY
Chuang 3: DOI MdI QUY TRINH LAP KE HOACH PHAT TRIEN KINH
TE - XA HOI HANG NAM CAP QUOC GIA d VIET NAM
5
CHUONG 1- KHUNG LY THUYET DOI MO»I QUY TRINH
LAP
KE HOACH
PHAT TRIEN KINH TE - XA HOI
HANG
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NAM CAP QUOC GIA 6 VIET NAM
1.1. Ke hoach phat trien kinh te - xa hoi hang nam cap quoc gia
trong he thong ke hoach phat trien kinh te - xa hoi
1.1.1. Ke hoach phat trien kinh te - xa hoi
Ke hoach phat trien duoc hieu la su the hien y do cua chu the ve su phat trien
trong tuong lai cua doi tuong quan ly va de ra cac giai phap de thuc thi dat duoc y
do dat ra. Ke hoach dua ra mot qua trinh: (1) mong muon dat duoc gi trong tuong
lai hoac muc tieu trong tuong lai la gi; (2) phai lam gi de dat duoc mong muon hoac
muc tieu do trong nguon luc san co hoac co kha nang huy dong; (3) lam nhu the nao
de dat duoc muc tieu do mot cach hieu qua nhat; (4) khi nao lam; (5) va ai se lam?
Cac loai hinh ke hoach phat trien: ke hoach phat trien kinh te - xa hoi quoc
gia, ke hoach phat trien kinh te - xa hoi cua vung, lanh tho, ke hoach phat trien kinh
te - xa hoi cua dia phuong, ke hoach phat trien nganh, ke hoach phat trien cua don
vi, to chuc, doanh nghiep.
Ke hoach phat trien kinh te - xa hoi quoc gia (sau day goi tat la KHPT
KTXH) la cong cu Nha nudc de dinh hudng phat trien kinh te-xa hoi cua quoc gia
trong mot thoi gian nhat dinh. KHPT KTXH de ra nhung muc tieu phat trien cua
quoc gia trong mot khoang thoi gian nhat dinh (hang nam, 5 nam, 10 nam,...); vdi
cac muc tieu dat ra cho quoc gia va cac dia phuong trong quoc gia do phai xay dung
va de ra cac giai phap, chinh sach trong khuon kho nguon luc san co hoac co the
huy dong de dat duoc cac muc tieu de ra.
1.1.2. He thong ke hoach hoa phat trien kinh te - xa hoi cap quoc gia
Ke hoach hoa phat trien kinh te - xa hoi cap quoc gia co nhieu bo phan khac
nhau, tuy thuoc vao hinh thuc phan chia ve noi dung, thoi gian va quy trinh.
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1.1.2.1. Theo noi dung, he thong ke hoach hoa quoc gia bao gom: chien
luoc phat trien kinh te - xa hoi, quy hoach phat trien kinh te - xa hoi, ke hoach phat
trien kinh te - xa hoi, cac chuong trinh, du an phat trien kinh te - xa hoi. Trong do:
Chien luoc phat trien kinh te - xa hoi la he thong cac phan tich, danh gia va
lua chon ve quan diem, muc tieu tong quat dinh huong phat trien cac linh vuc chu
yeu cua doi song xa hoi va cac giai phap co ban trong do bao gom cac chinh sach ve
co cau, co che van hanh he thong kinh te - xa hoi nham thuc hien muc tieu de ra
trong mot khoang thoi gian dai (it nhat la 10 nam).
Quy hoach phat trien kinh te - xa hoi la su phan bo va sap xep cac hoat dong
va cac yeu to san xuat, dich vu va doi song kinh te - xa hoi tren dia ban quoc gia cho
mot thoi ky trung han, dai han (co chia cac giai doan de cu the hoa Chien luoc phat
trien kinh te - xa hoi tren lanh tho theo thoi gian) va la co so de lap cac ke hoach
phat trien.
Ke hoach phat trien kinh te - xa hoi la mot cong cu quan ly va dieu hanh vi
mo nen kinh te quoc dan, no la su cu the hoa cac muc tieu dinh huong cua Chien
luoc phat trien theo tung thoi ky bang he thong cac chi tieu, muc tieu va bien phap
7
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dinh huong phat trien va he thong cac chinh sach, co che ap dung trong thoi ky ke
hoach. KHPT KTXH la tong hop nhung muc tieu va dinh huong, chinh sach, bien
phap phat trien nen kinh te quoc dan, duoc bieu hien trong mot he thong chi tieu ke
hoach ve so luong va chat luong, va mot he thong cac bang can doi tren co so nhan
a
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thuc va thoa man cac yeu cau cua cac quy luat kinh te cua nen kinh te quoc dan.
Chuong trinh, du an phat trien la cong cu trien khai thuc hien chien luoc va
ke hoach phat trien. No cu the hoa ke hoach thanh cac Chuong trinh, du an trong do
the hien ro muc tieu, nguon luc, tien do thuc hien...
Luan van chi di vao nghien cuu mot bo phan trong he thong ke hoach cap
quoc gia, do la Ke hoach phat trien kinh te - xa hoi
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1.1.2.2, Theo thdi gian, KHPT KTXH cap quoc gia bao gom: Ke hoach
phat trien kinh te - xa hoi 5 nam va ke hoach phat trien kinh te - xa hoi hang nam.
Ke hoach phat trien kinh te - xa hoi 5 nam la tong hop nhung muc tieu va
dinh huong, chinh sach phat trien kinh te - xa hoi trong thdi ky 5 nam, la cu the hoa
noi dung cua Chien luoc va Quy hoach. Dong thdi, Ke hoach phat trien kinh te - xa
hoi 5 nam duoc cu the hoa, thuc hien bang Ke hoach phat trien kinh te - xa hoi hang
nam.
Ke hoach phat trien kinh te - xa hoi hang nam la ke hoach hanh dong, cu the
hoa cac muc tieu, dinh huong cua ke hoach phat trien kinh te - xa hoi 5 nam bang
cac muc tieu, nhiem vu cu the trong thdi ky mot nam. Ke hoach phat trien kinh te xa hoi hang nam duoc xay dung va huong toi muc tieu dat duoc ke hoach phat trien
kinh te - xa hoi 5 nam. Ke hoach phat trien kinh te - xa hoi hang nam duoc xay
dung dua tren cac muc tieu, chi tieu, dinh huong va giai phap trong ke hoach phat
trien kinh te - xa hoi 5 nam. Dong thdi, Ke hoach phat trien kinh te - xa hoi hang
nam cung se duoc xay dung tren dieu kien cu the dien bien kinh te - xa hoi hang
nam. Tu do, se co nhung danh gia, dieu chinh ke hoach phat trien kinh te - xa hoi 5
nam cho phu hop voi dieu kien thuc te trong qua trinh thuc hien.
Luan van di vao Ke hoach hang nam de tim hieu va de xuat su doi moi trong
cong tac lap ke hoach hang nam
1.1.2.3. Theo quy trinh, ke hoach hoa phat trien kinh te - xa hoi duoc chia
ra lam cac khau: lap ke hoach, thuc hien ke hoach, theo doi va danh gia ke hoach.
Trong do, lap ke hoach la khau dau tien de xac dinh cac muc tieu, dinh huong va
giai phap thuc hien trong thdi ky ke hoach. Thuc hien ke hoach la qua trinh dua ban
ke hoach vao thuc tien. Theo doi va danh gia ke hoach duoc thuc hien tu khi ke
hoach duoc trien khai den khi ket thuc thdi ky ke hoach. Cac ket qua cua qua trinh
theo doi va danh gia ke hoach la co so can thiet qua trinh lap ke hoach.
Luan van chi di vao nghien cuu mot noi dung cua quy trinh ke hoach hoa, do
la khau lap ke hoach - khau dau tien, khau quan trong nhat cua toan bo quy trinh ke
hoach hoa
