CHƯƠNG TRÌNH CẢI TẠO XÃ HỘI CỦA CHÍNH QUYỀN SÀI GÒN TIẾP CẬN TRƯỜNG HỢP LUÂT NGƯỜI CÀY CÓ RUỘNG

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VE CHl/Ol^G TRirai CAI TAO XA l l d l CUA
CHINH Q V Y ^ SAI G 6 N - T l ^ CAN TRlJdNG HOP
L U A T "NGUdi C A Y C 6 R C O N G " (26/3/1970)

PHAM THI H 6 N G H A '

V

flo dfiu nhQng nflm 70 t h ^ ky XX, d
mien Nam Vi$t Nam diln ra mpt sU
kign, rafi vl ban ehfi't cd the coi lfi mfit cufic
cai cfich rudng dfi't vdi sQ tfii trp cua Hoa
K^, thudng dupc gpi lfl chUdng trinh NgUdi
cdy cd rudng (NCCR). NhQng nghien cQu
hign nay thudng cho r&ng NCCR khfing
phai lfi mdt kl^ sach nhfi't qufin vfi dfii ban
eiia chfnh quyin Sai Gdn, mfl ehi lfl nhQng
bign phap nhfi't thdi d l phue vu cho mue
tigu cao nhfi't cua Hoa Ky la sQ dung tiln
dola My vfl dUdi ap lUc cua quan sU dl xda
di tinh thfin cua dfin tfic Vifit Nam (1).
Trong khi ung hp quan dilm trfin, chQng
tfii cung thfi'y mpt diem dang lUu f d
NCCR, dd lfl: so vdi nhilu cupc cai each
dien dja da dien ra trong khu vUc vfl trfin

thi' gifii (2), vfl thfim chf so sanh ngay vfii
mfit cuflc cai each diln dja dUde til'n hfinh d
miin Nam Vifit Nam cua chinh t h i Vifit
Nam Cpng hda trUdc dd hon 10 nfim, thi
NCCR ed t h i eoi la mfit cupc cai cfich rufing
dfi't dien ra tUdng dm nhanh gon vfi v l cd
ban khong Ifim nay sinh nhQng dfii dfiu va
mau thufin qua mQc sau sfic trong xfi hfii
khi no dupe t i l n hanh, du ehung tfii thQa
nh^n r^ng cufic cai efieh khfing thfinh cfing

'ThS. Vi^n Sii hpc

v l nhieu phUdng dien vfl hifiu qua eua nd
khfing dupc nhu d6 ra.
1, Tinh h i n h ruong d^t cl mien Nam
trade nam 1970
Vfi^n d l cai efieh rupng dfi't da dUde cae
chfnh quyin dudi thdi Vigt Nam Cfing hda
dfit ra tQ sdm. Dudi thdi Ngfi Dinh Difim
vfi'n de cai each rupng dfi't lfl rapt trong
nhQng nhigm vy hflng dfiu. Chfnh vi v^y,
ngay sau khi lfin cfim quyin, Ngo Dinh
Di^ra da ban hfinh Du sfi' 57 ngfly 22-101956 d l tfii phfin ph& rufing dfit. Cufii nfim
1962, ehinh quyin Ngo Dinh Difim tuyen
bfi' chUdng trinh Cai each diln dia dfi hofin
thfinh vfi khoang 250 nghin ha da dUdc
phfin cho 115.381 nong dfin (3). Tuy nhifin,
n l u so vdi t i n g sfi' 2,5-3 trifiu ha dfi't canh
tac vfi khoang 7 trieu nfing dfin d miin

Nam thdi dilm dd (4), thi ty lfi nfly ngay ea
khi lfl chfnh xfic, v^n lfi rfi't khidm tfi'n. Hdn
thl^ nQa, mflc dQ cai each dien dja eua
chfnh phii Ngfi Dinh Difira da phfi vd quyin
luc cua nhQng dgi dia chu d ddng bfing sfing
CQu Long nhUng viec trufl't hQu cae dgi
diln chu chua sau rfing, tinh trang thiiu
ru$ng ciia nfing dan vhi lfi hifin tUdng phfi'


Rghien eihi Ljeh sfl-. stf 12.2013
biln (5); vi^c cfi'p phfit rufing d£ft t i l n hfinh
chfim chgp (6); muc tifiu tu hQu hda nfing
dfin khfing dat du^c (7) vfi dflc bi$t lfi tgo ra
sU mfiu thufin vfi mfi't an ninh d vQng Tfiy
Nguygn. Nhu v§y, nhQng vfi'n d l ed ban lfi
nong dfin vfl nfing thfin miin Nam Vi§t
Nara thi cu^e cai cfich diln dja vfin ehUa
giai quyfi't dUpe.
Cho dfi'n trade nfim 1970, ngofii chfnh
saeh rupng dfi't do chfnh quyin Sfli Gdn
thUe hifin d vQng kiem soat, trong vQng giai
phdng, da cd mot di§n tfch khfing nhd
rufing dfl't dupc chfnh quyin cfich mang
chia cho nfing dan. Theo kl't qua dilu tra
ciia Vien Nghien cQu Stanford Hoa Kf
(Stanford Research Institute), 65% dja chu
vfing mfit dUdc phdng vfi'n ndi r^ng rapt
lUdng dang k l difin tich rufing cua hp do
Vifit Minh kiim soat vfio nflm 1954 vfi 80%

dia chu cho r^ng co mfit bfi phfin rufing dSft
cua hp bj Viet Minh chia lai (8). CQng theo
nhQng tai heu thu thfip dUdc cua chi'nh
quyen Sfii Gdn, nhQng ke" hoach cai each
rufing dfl't mfi chi'nh quyin Vifit Minh bfit
dau thi hfinh nam 1946, dUde Mflt trfin giai
phong tig'p tuc thue hien trong cac giai
dogn sau da xda bd quyin t h i cua dja ehu
trong nhQng vung do Mflt trfin kilra soat
(9). Tinh din nam cuoi nfim 1965, theo bao
cao eua cac dia phUdng, nfing dfin da du^c
chia cfip 1.382.776 ha trgn tofin miin Nam
(10).
Nhu vfiy, NCCR khfing phai lfi trudng
hpp dfiu tign chinh quyen can thiep vfio
vfi'n d l rufing dfi't d mien Nam Vifit Nara.
NhQng ehinh sach rupng dfi't trade dd eua
Mfit trfin giai phfing k i t hdp vdi vific trufi't
hQu rupng dfi't cua chinh quyen Ngfi Dinh
Diem vfl mot s^ chinh quyin Sfli Gdn sau
do da Iflm cho vung nfing thfin Nam Bp
nha't lfi dong b^ng sfing CQu Long da ed sU
thay dfi'i trong quan hg giQa dja chu va tfi

diln. Tuy nhien, m ^ quan hfi nfly thUc sU
chuyin hda sfiu sfic dUdi chUdng trinh
NCCR cua chfnh quyin Nguyin Vfin
Thi^u.
2. Myc tifiu va vai tro cua Lu^t
NgUdi cfiy c 6 rupng

Sau m$t thdi gian khao sfit, dilu tra
thUc dja v l tinh hinh rufing dfi^t d miin
Nam Vi^t Nam cua Vien Nghign cQu
Stanford (Hoa Kf) vfl trUdc thara vpng
"gifinh trai tim vfl khoi dc" eua ngUdi nfing
dfin trong cufic chi^n chfing lai lUe lU{?ng
cfich mang d m i i n Nam, chfnh quyin
Nguyin Vfin Thifiu da ban hfinh Lufit
NCCR (26-3-1970), trong dfi ed mflt s^dilm
dfing lUu y: (1) Giam djnh mQc sd hQu cua
dia ehu (goi lfi xutft lUu tru) tQ 100 ha
xuo'ng 15 ha d Nam Bp vfl 5 ha d Trung B6;
(2) Rupng dtft khflng bfin mfi cfi'p khflng cho
nflng dan; (3) Mpt so" loai rupng dfi't khfing
bj trufi't hQu nhU rufing dtft thufic tfin giao
vfi rupng dfi't danh rieng cho efie budn, fip
dong bfio ThUdng theo Sflc luflt 033/67 vfl
034/67 ngfly 29-8-1967 (11).
Luflt NCCR hudng vfio ba raye tifiu
chfnh: muc tifiu chinh trj n h i m gifinh sU
ling hp cua ngudi dfin d nong thfin dl dfii
dfiu vdi "cpng san", myc tifiu kinh te lfi
mufl'n hQu san hda ngUdi ndng dan va myc
tigu xa hfii lfi d l cai tgo xa hfii, lfi'p di
nhQng bfi't cflng trong xa hpi.
Lu§t NCCR cd vai trd quan trong do'i vdi
ca chfnh quyin Sfii Gdn cung n h a Hoa Ky.
Vai trd dd efi t h i thfi'y qua cac vfi'n d l sau:
ThU nhdt, cai cfich ruflng da't lfi mfit
trong nhQng vfl'n de trong y^u cua chfnh

sach kinh tl^- xa hpi ciia Hoa K;^ vfl chinh
quyin Sfli Gdn nhflm dat dfi'n mye tifiu cai
tgo xa hpi vfi chifi'n thfing lUc lUdng giai
phdng. Thang 8-1965, Dai sQ My Cabod
Lodge sang mien Nam Viet Nam nhfin
chQc lfin thQ hai da mang theo "ChUdng


Ve chirong trinh cAi tao xa hfti...
trinh cai each xa hpi trifit dg'", trong dd
NCCR lfi mpt trong nhQng nhifim vu trpng
tam (12). V l phfa chfnh quyin Sfii Gdn,
ngfly 18-1-1968 trong Dgi hdi Cdi cdch
rudng ddt todn qud'c, Nguyin Vfin Thi0u da
khflng djnh "trong nhi$m vy tfii thiit xa
hfli, cai each ruflng dfit lfl dUdng nhifin vfi
dupe dfit len hflng dfiu" (13). Tgi cufic Hfii
dfim vdi Ting thfi'ng Hoa Kf Nixon, Cfi" vfi'n
an ninh qud'c gia Kissinger ngfiy 30-7-1969,
Nguyin Vfin Thifiu eung cho rling "Vi§t
Nara Cpng hda vfi Hoa Kjf ngofli vi$c tfing
cudng trfin rafit trfin qufin sQ, phai md rfing
cfing cufic binh dinh dl tfing cUdng an ninh
thfing qua chUdng trinh cai cfich rupng dfit
vfl nhQng bifin phfip khfic n h i m thu phue
ngudi dan di theo Viet Nam Cfing hfia" (14).
Trong thflng difip dpc trade LUdng vifin
ngfiy 6-10-1969, Nguyen Vfln Thieu tfii cam
ket "Chfnh phu (Vifit Nam Cpng hda) se
tiep tyc mgnh me hdn nQa nhiing chUdng

trinh "hQu san hfia" mfi ta da bfit dau trong
tinh thfin ciia chinh sfich tu ban dgi chQng.
Cong cufic hQu san hfia se dUde thQc thi
dung mQc qua chUdng trinh cai each die'n
dja" (15). Nhu vfiy, ca Hoa K^ va Vi^t Nam
Cong hda diu nhfin thfi'y lufit NCCR se
khdi dfiu cho mfit "cupe each mang xa hpi"
tofin difin tgi nfing thfin miin Nam, cd "each
mang xa hpi" mfii giai quyit dUde nhQng
va'n de quan yeii cua qufi'c gia, trong dd vfi'n
d l kinh ti, tfli chfnh, lfl bUdc dfiu tifin cua
cfing "cufic efieh mgng" do chfnh phu Vifit
Nara Cpng hda thQc hien (16).
Thd hai, NCCR cd vai trd ldn trong
chil'n lupe qufin sU cua Vifit Nam Cfing hoa.
NhQng nhfi cfim quyen chfnh tri eua Vifit
Nam Cpng hda muon dQng chfnh sach
NCCR de logi lUe lUdng qufin giai phdng ra
khdi hg tfing cd sd nflng thon (17). Nhfin
thQc ro tfim quan trpng eua NCCR, Hoa K;^
rfi't hoan nghenh ehUdng trinh nfiy. Ha
nghj si Hoa Kf John E. Moss da chfio miftig

53
kl^ hogch cai each diln dja eua Vi§t Nara
Cfing hda vfl eoi dd lfl ddn nflng danh trdng
dfiu "Viet cpng". Dilu nfiy khfic vdi nhQng
nflm 1960-1965, dUdi thdi cua To'ng tho'ng
Kennedy vfl Johnson, hfiu nhU khdng cd sU
giQp dd vl mfit cfi^ vfi'n cQng nhU v l tfli

chfnh cho Vifit Nam Cfing hda thUe hien
chfnh sfich rufing dfi't (18).
TQ nflra 1966, 1967 Hoa KJ da cQ nhieu
dofin nghifin cQu sang mien Nam Vifit Nam
dl phyc vy qufi trinh thUe hifin chUdng
trinh nfiy. Tai Hfii nghj Midway (3-1970),
hai vj nguyfin thii qufi'c gia Vifit (Vifit Nam
Cfing hda) - My chfnh thQc nhin nhfin tfim
quan trpng cua cai each dien dja, cho rflng
sU kifin nfly dem lai an ninh nfing thfln,
dong thdi giup binh si My sdra hfii hUdng
(19). BQc di$n tQ Dai sQ qufin Hoa K^ d
miin Nam Viet Nam cho Bp Ngoai giao My
(ngfiy 8-1-1971) tifip tuc khflng djnh "chung
ta (Hoa K;^) nen ung hp raanh me trfin tfi't
ca mpi mat cua ehiln lUde Vifit Nam hfia vfi
efie chUdng trinh binh dinh nflng thfln mflt
each CO hieu qua de khuyen khfch day
mgnh hdn nQa viec thUe hien chUdng trinh
NCCR cua Viet Nam Cpng hda- dd chinh la
moi quan tam chi'nh eua Hoa Ky" (20).
Theo Udc tinh. d l hoan thflnh chUdng trinh
NCCR, chfnh phu cfin phai tifiu tfi'n khoang
400 trifiu dfila, thi Hoa K^ da cung cfi'p 40
trifiu dfi la vi0n trd trUc til'p (dfi'y lfl ehUa k l
nhQng khoan vifin trd gifin tilp cd t h i da
nfira trong cfic ehUdng trinh vifin trd thudng
nien eiia Hoa K^ nhUng khong dUdc lUu cy
thi) (21). Rieng eon so 40 trifiu dfila, tUdng
dUdng it nha't 10% ngan sach dflnh cho

Ngudi efly cd rupng da du eho thfl'y Hoa Ky
rfi't coi trpng chUdng trinh nfiy.
Thd ba, ngoai myc tieu "cai cfich" xa hpi
nhu da nfii, chinh sach NCCR cung chinh
lfi mfit trong nhQng con bfii van dflng tranh
cQ cua Nguyin Vfln Thifiu vfio nhifim ky
tie'p theo vdi ldi bQa "cai tie'n xa hfii" (22).


54
Theo eufic dilu tra eua Callison (1983) d 4
tinh Long An, Djnh Tudng, Phong Dinh,
Hda Binh Thanh di tra ldi cho efiu hdi tgi
sao chfnh phu til'n hfinh chUdng trinh
NCCR, chi cfi 11% cho r i n g chfnh phu Sfii
Gon mud'n phfit triin nfing nghifip d l tflng
san xufi't lUdng thUc, trong khi 40% cho
r i n g NCCR dupe thuc hifin chu yl'u do myc
dfch chfnh trj raufl^n tranh gifinh ldng dfin
vdi M^t tr^n giai phdng vfi trong cufic bfiu
cQ Tfi'ng thtfng vfio nfim tilp theo (23).
Nhu v$y, cd t h i thfl'y r i n g chUdng trinh
NCCR cd mfit vai trd quan trpng trong cufic
ehil^n dfi'u v l qufin sU vfi chfnh trj eua
chfnh phu Vifit Nara Cpng hda vdi M^t tr^n
giai phfing, Sfii Gdn thue hifin NCCR di
hudng din phfit triin xfi hfii vfi phyc vy eho
raye tifiu chiln tranh.
De cy t h i hda Lufit NCCR, chfnh phu
Vifit Nara Cflng hda dfi thuc hifin mfit sfl'

bifin phfip dfing chu f sau:
- Thd nhdt, dien chii cd rufing bj trufi't
hQu se dUdc boi thudng efin cQ theo bang kg
diln san trufi't hQu. Trj gia bli thudng b i n g
2,5 lfin hoa lpi hang nflm. Nflng sufit nfiy
tfnh theo nfing sufi't trung binh eua 5 nfim
gfin nhfi't. T h i thQc bli thudng theo quy tfic:
+ 20% tri gia rufing dfi't bj trufi't hQu tra
b i n g tiln mfit.
+ Sfi' tiln cdn lai tra trong 8 nfim b i n g
trfii phig'u cd qufi'c gia bao dam vfl hudng lai
hfing nfim 10%. Trai phi^u nfiy cd t h i dem
cfim, chuyin nhUdng, giai tda cfic mdn ncf
di trang trai t h u l dien thfi', hoflc mua c l
phfin xf nghifip hoflc qufi'c doanh (dilu 9,10
trong ChUdng HI cua lufit) (24).
ThU hai, doi vdi rupng dfi't d Tfiy
Nguyfin, chinh quyfi'n tig'n hfinh do dgc, xflc
nh§n quyin sd hQu tren dfi't djnh canh vfl'n
cd vfi cfi'p quyin sd hQu trfin dfi't lufin canh
mfi dong bfio ThUdng dang canh tae.

Rghian eihi Ljeh sJr. sd 12.2012
Cfich thQc til'n hfinh d i n bQ vfi mua lgi
rufing dfi't dja chii ciia chfnh quyin Nguyin
Vfin Thifiu r5 rfing t h i hifin s^ khac biet vl
m$t tu duy trong vific giai quyit vfi'n d l xa
hfii 80 vdi chfnh quyin Ngfi Dinh Difim
trUdc dd.
3. Cfic vSn d l x a h ^ i t r o n g qufi t r i n h

thi^c hifin NCCR

* Vdn digiai

cdp

Lu^t NCCR cung gifi'ng nhU nhilu cai
cfich rufing dtft khfic, dUt^c til^n hfinh trUdc
hl^t lfi do chilh \^lgc chfnh t 4 cua ehinh
quyIn Vifit Nam Cfing hda muflh chong lgi
lUc lu^ng giai phdng. Tuy nhifin, v l phUdng
difin xa hfii, NCCR da tgo ra mpt cupc each
mang kinh t^, chfnh trj vfi xa hfii d miin
Nam mfi chu yl^u xoay quanh giai quyet
m ^ quan hfi dja chu - nfing dfin, dia chii vdi
chfnh quyin.
Giai cfi'p chju tfic dfing manh me dfiu
tifin vfi trUde h i t trong NCCR lfi gidi dia
ehii, tfing ldp vfin cdn ton tgi dong dao
trong xfi hdi nfing thfin m i i n Nara nhUng
da dfin bi suy giam cho den trUdc khi
NCCR dUdc ban hfinh. Chfnh quyin Ngo
Dinh Difim da khflng mgnh dgn thUc hifin
trifit d l chUdng trinh cai efieh diln dja,
khflng dfim hy sinh n h i l u quyin ldi ciia dgi
dja ehu, trong khi dd ban thfin chfnh quyfi'n
Sfli Gdn dudi thdi Ngfl Dinh Difim chfnh la
dja ehii ldn nhfi't trong ca nUdc (25). Kit
qua lfi d^n nflm 1967 mdi chi cd tren mpt
nQa so rufing dUde trufl't hQu vfi khoang

15% sfi'nong dan dUpc cfi'p rudng nhfin dUdc
b i n g khofin thfit (26).
Vdi con sS' gfin 2000 dja ehu d miin Nam
dg^n thdi diem tig'n hfinh cai cfich ruflng dfi't
(27), nhQng ngUdi lanh dgo Vifit Nam Cpng
hda dQng trade sU lua chpn giQa viee tilp
tuc duy tri dja vj eua gidi dja chu d miin
Nam, each mfi cfic chfnh quyin trUdc dd da
lfim, de t r a n h thu si^ ung hd eua ho, hofie


Ve chirong Wnh cAi Igo xa h^i..,
phai "l^y long" ngUdi dfin d nfing thfin,
tranh thu sU hfiu thufin ragnh me trong
dfin chung, hy sinh quyin \<}i cua gidi dja
chu. Dilu 2, ChUdng I ciia Lu&t NCCR qui
dinh "trufi't hQu cd bli thudng thda dfing
nhQng rufing dfi't khfing do diln ehu trQc
canh d l cfi'p phfit vfi thudng cho nflng dfin"
(28). Dfiy chfnh lfi dilra khfic bifit cfin bfin
vdi chUdng trinh cai cfich diln dja eiia Ngfi
Dinh Difim.

dia ehu giai cfi'p n i n tang ciia chtf dp Sfii
Gdn - luc lupng vflh cho'ng "Cfing" tri^t dl
(32). Tuy nhifin, ed mfit dilu lg lfi, d miin
Nam Vifit Nam, khi Vifit Nam Cfing hda
til'n hfinh ehUdng trinh NCCR, vl cd ban lfi
khfing vfi'p phai sU phfin dfli mgnh mfi cua
tfing ldp dja chu - giai cfl'p du^c cho lfi dfii

tUi;Ing chju sU tfic dfing to ldn nhtft cua cufic
cai cfich. Dilu nfiy cd t h i dupe 1^ giai bdi
nhQng 15^ do sau:

Xdt v l khfa canh phfit triin, chii trUdng
bai bd chl^dfi tfi canh vfi ngn trung gian bao
ta se giam di sU bfit binh dfing giQa nhQng
ngudi cd phUdng tifin san xufi't mfi khdng
true til'p san xufi't vfi nhQng ngUdi trye til'p
san xufit lai khfing cd phUdng tifin san
xufi't. d nfing thon se khflng edn giai cfi'p nfio
Uu thfi di fip ehe' mpt giai cfi'p khfic, moi
nflng dfin se trd thflnh mfit tilu diln chii.
Mfit khac, vdi difin tfch de lgi cho dja ehu
15 ha d Nam Bp va 5 ha d Trung Bfi dUdc
cho la khfi thich hdp vdi vific sQ dyng mfiy
mfic vfl kinh doanh eua tU san nfing thfin,
nfin da khuye'n khfch nhilu ngUdi chuyin
hudng sang phUdng thQc san xutft tU bdn
chu nghla, dieu nay da tao nen tfing ldp tU
san mdi trong nong thfin ed phfin tfch cUc vfi
til'n bp, cfi ldi cho sU phfit triin eua san xufi't
(29). Theo Nien gidm Thd'ng ke Viet Nam
Cdng hda, ki tQ ngfly tuyfin bo' ehUdng trinh
NCCR cho din nfim 1973 sS' difin tfch cfl'p
phat cho nfing dan lfi 1.142.658 ha (30). Ro
rflng, so vdi Du 57 cua Ngfi Dinh Difim, Lufit
NCCR thuc hifin dU(?c nhQng tiln bfl dang
ke vl phUdng difin xfi hfii vfl theo danh gifi
cua cac efi'vfi'n My, thi chtfdp tfl diln da dupc

xda bd d Vifit Nam (31).

TrQdc htft, cfic bifin phfip titfn hfinh
trong NCCR thQc chfit lfi tao cho gidi dja
chii miin Nam mfit sU lUa chpn. Hp khflng
bj tudc dogt khflng rufing dfi't mfi chfnh phii
ed boi thudng vfl md cho hp mfit hUdng sinh
k l khac thflng qua cfic khoan din bQ vfi h i
trp khae. Sfl* tien din bQ, lai sufi't vfi thdi
gian boi hofln eQng nhilu, nhanh hdn so vdi
quy dinh trong Dy 57 eua thdi Ngfl Dinh
Difim. Dudi thdi Ngfl Dinh Difim, 72% dia
chu vfing mat khong hfli ldng vdi chfnh
sach cai cfich difi'n dia cua chfnh quyin Ngfl
Dinh Difim do hp chi dUdc nhfin 10% tiln
mflt vfl 90% b i n g trfii phitfu eho phfin
rufing da't bj trufl't hQu, dilu nfiy lfi ehUa
thda dfing (33). Vific den bQ cho dja chu bj
trufi't hQu ruong dfi't vdi mQc 20% tien mfit
vfl 80% tra b i n g trai phieu dupc cho lfl hdp
ly hdn so vfii chinh sach din bQ cua Ngfi
Dinh Diem. Cd t h i thfl'y, chfnh quyin Viet
Nara Cpng hda da nflra dUde tam ly ciia gidi
dia chu luc dfi, do cd rapt bp phfln dja chu
(chii yeu lfl dia ehu ldn, smig d thflnh thj)
trong nhieu nflm khfing cd kha nflng thu
t h u l d nhQng vQng nfing thfln (cd t h i do
ehiln tranh, hofie do chUdng trinh cai each
rupng dfi't cua mfit trfin giai phdng) nfin hp
khfing quan tfim nhifi'u hoflc lfl ung hp

chUdng trinh NCCR (34). Doi vdi nhQng dia
chu d vQng nfing thfln trfin thyc tfi' quyin
lUc cua hp cung bi giam di nhilu do chfnh
sfich rufing dfit dUdi thdi Ngfi Dinh Difim vfl
eua vung giai phong.

TVon-^ mdi quan hi gida dia chu vdi thi
chi chinh quyin Sdi Gdn, cd f kifi'n eho
ring NCCR se anh hudng tdi bfi dd chfnh
trj cua chinh quyin, bdi vific tfii phfin ruflng
dfi't hy sinh qua nhilu quyin tU hQu ciia


56

Rghien cQu lijch sd-. atf 12.2012

D l thi hfinh Lufit NCCR, chfnh quyin
Sfli Gon dy trQ kinh phf lfi 181.933.623.000
ding tiln Sfii Gdn. ThUc tfi', trong 3 nfim
dfiu thuc thi luflt, chfnh quyin Sfii Gdn da
sQ dyng hdn 30 ti de bdi thUdng cho diln
ehu vfi edng vific dilu hfinh chung (36).
Ngfin sfich nifin khda 1970 cho ehUdng
trinh NgUdi efly cd rufing lfl 189,120 trifiu,
nfim 1971 lfi 10,363 ti vfi nfira 1972 lfi
20,311 ti (37), lfin lUdt chi^m 0,13%, 5,74%
vfl 10,07% ngfin sach quoc gia (38). Vific
mpt sfl' lupng tie'n ldn dUde bung ra cho
chUdng trinh NCCR nhU thtf d l dfin dfi'n

nguy ed lara phfit cho n i n kinh te. Tuy
nhifin, chfnh quyin Viet Nam Cfing hda da
thfio gd vfin d l tren bang bifin phap sQ
dyng so' tiln vien trd tQ chUdng trinh Vien
trd thUdng raai cua Hoa K>^. Trong nfim
dfiu tifin thi hfinh Luflt NCCR, USAID (39)
da cam k i t vifin trd 10 trifiu ddla nfim 1970
vfl 25 trifiu dfila nam 1971 trong quy nhfip
khfiu ciia chUdng trinh Vifin trd thUdng mai
(40). Sfl' tiln vien trd trgn dam bao cho hogt
dfing boi thadng trong NCCR ft gfiy ra hay
ft lfim tflng them tinh trang lam phfit ciia
n i n kinh tc' Sfii Gdn.

eua nd, mfi lfi do quy trinh vfi thdi gian
triin khai cua chUdng trinh. Theo lufit,
chfnh quyin Sfii Gdn cam k^t se bli thudng
20% tiln m$t gifi trj cho nhQng rufing dtft
bj trutft hQu, nhUng tinh trang tham
nhung lfi nguyen nhfin khifi^n cho sfl' tiln
bli thudng nfiy khdng dfin dUpc tfin tay dja
chu dQng IQc vfi nhanh gpn. Tham nhQng
diln ra trong qufi trinh phfin loai rupng dtft
(logi rupng cd hifiu qua san xufi't hay
khfing), lfim gifi'y td vfl nhQng thu tyc din
bQ rufing dfi't. Theo Dilu tra cua Callison,
chi mfit sfi" lupng khdng dang k l dja chu
thudng t n i (resident landlords) dUde nhfin
tiln h6i thudng. Trong a^ 133 dja chii dUde
phdng vfi'n d Long Binh Dien, chi ed 18

ngudi lfi da nhfin dupc tiln bli thudng eho
dtfn thdi dilm thfing 3 nflm 1972 (41). Theo
td trinh ciia "Nam Vi$t ndng gia nghiep
dofin" tdi Thu tudng Chfnh phu vl vific boi
thadng rudng bj trufl't hQu thi efle thu tuc
boi thudng phien phQc vfl tgo nhilu bfi't
edng xa hoi (42). Cac quan chQc vfi nhfin
vifin cua USAID - cd quan chju trfich nhiem
tfii trd cho chUdng trinh NCCR cung dUpc
cho lfi cd hfinh vi tham nhQng trong qua
trinh phfin cfi'p rudng dfi't vfi quy trinh nop
ho sd xin cfi'p quyen sd hQu cua nfing dan.
Khfing nhQng thtf, vific tham nhung, thUc
hifin hflnh vi nhfln dut 16t, raua chupc edn
dupe diln ra d nhQng cfi'p cao hdn trong qua
trinh d i n bQ dfi't dja chu. Theo bfio eao cua
phfa chfnh quyen Vifit Nam Cong hda, vific
tham nhQng da Ign tdi 20-40% gifl trj tien
den bQ (43).

Trong khi chinh quyin Sfli Gdn da cd
nhQng chu trUdng tUdng doi phQ hpp khi
tig'n hflnh NCCR, dflc bifit lfi trong Qng xii
vdi giai cfi'p dia chu, thi qua trinh thUc thi
trfin thue te" lai co nhilu dilu dfing d l bfin.
NhQng phan Qng vfi bfi't binh cua giai cfl'p
dia chu d m i i n Nam Vigt Nam chu ylu
khflng phai do chu trUdng vfi chfnh sach

Mpt vfi'n d l nQa lfi ehinh quyin Vifit

Nara Cpng hda eung khflng tinh den kha
nflng dong t i l n bj mfi't gia do thdi cufic
ehien tranh vfi sQ yeu kdm ciia n i n kinh ttf
(44). Vdi stf t i l n dUdc nhfin trfin mdi hecta
rupng dfi't vfio nflm 1970 thi nhilu dia chu
chfi'p nhfin, tuy nhifin, cflng v l sau do mQc
dp Igm phfit cfing cao, d i n g tifi'n bj mfi't gia

Vdi cfich thQc giai quylt vfi'n d l rufing
dfi't ciia dja chii nhU trfin khfing nhQng
chfnh quyin Sfii Gdn khfing bj phan Qng
quylt Ufit tQ phfa dia chu mfl ngUpc lgi cdn
tgo ra ducho ehl^ dfi thUe dfin mdi eiia My, bao gom
tu san mgi ban, tu san kinh doanh trong
nfing nghifip, vfi mfit bfi phfin trung nflng
ldp trfin (35).


Ve ehuong trinh cAl lao xa hfli...
thi sfl' tiln din bu mfi dja chu nhfin dUpe
theo quy djnh cua nhfi nude da khfing cdn
hdp If (45). Ntfu tfnh gifi tri dfi't quy ra tiln
din bQ trong nfim 1970 lfl tUdng dfii cfing
bing, thi sang dtfn nflm 1972 nfi lgi trd nfin
qua tha'p vi tiln dfi'n bQ dUpc tinh b i n g 2,5
lfin hoa lpi trung binh/ha nhUng ding tiln
Sfii Gdn (piasters) nfim 1970 lfi 480
$VN/gig IQa (46) thi vflo nfim 1972 bj giam
rapt nda gia trj cdn 1000$VN/gia lua (47).

Ngoai ra, 80% gifl trj rudng dfi't ciia dja
chii cho phfin cdn lgi theo quy trinh sfi dupe
din bQ bing trfii phitfu. Chfnh quyin Vifit
Nam Cfing hda hy vpng ngUdi dUde nhfln
trai phieu nfiy sfi dfiu tU mua c l phfin tgi
efic xf nghifip qutfc doanh vfi tu - nhU mdt
hinh thQc dfiu tu lgi giup tang vtfn eho efie
xi nghifip vfl thQc dfiy san xufl't phat triin,
gdp phfin thUe hifin mfit trong nhQng raye
tifiu cua NCCR lfl hUdng dja chu chuyin
sang hudng kinh doanh mdi, thuc dfiy n i n
kinh ttf tu ban chii nghia. Tuy nhifin, trong
boi canh mien Nam Vifit Nara thdi diem dfi,
ca Hoa Ky vfi chinh quyen Sfii Gdn diu
khflng tinh den nhQng ytfu to" tac dflng nhU
chiln tranh hay bfi mfiy hflnh chinh quan
lifiu da khiln cho hifiu qua eua raue tieu
tren hi hgn chtf rtft nhilu.
Lufit NCCR eung chi quy dinh mfit each
tong quat "Cac trai phieu cfi t h i dem mua
efi phfin cac xf nghifip tU hoflc qutfc doanh".

ngofii ra khfing cd mfit vfin ban hUdng dfin
diln ehii dfiu tU vfio linh vUe cfing nghifip,
nfin nhilu diln ehu linh tiln bdi thudng v l
tifiu dQng (tuy ed mfit stf ft chuyin hUdng
sang hogt ddng tai efic ngan hflng ndng
thon) vfl ft quan tfim dtfn boat dpng edng
nghifip. Mfit phfin dUpc 1^ giai do boi canh
chitfn tranh Iflm gia tfing tinh riii ro trong

qufi trinh dfiu tU vtfn vfio xf nghifip, khitfn
nhQng diln chii khfing dfim dQng trfii phitfu
vfio hogt dfing kinh doanh. Mflt khac nhQng
xf nghifip qutfc doanh Ifim fin thua Id khong
mufi'n nhfln cfic trfii phitfu vi se dpng lgi
rapt sfi' vtfn lfiu nfim khong hogt dflng dUpe
(48). Theo cupc dilu tra cua Callison thi ehi
ed 9/40 dja ehu nghi r i n g hp co the sQ dyng
trai phieu dUde din bQ nfiy vflo raue dieh
vay vtfn d ngfin hflng. Tuy nhien sau khi
nhQng ngudi nfiy hdi efic thflng tin lifin
quan thi khflng ngfin hflng nao chfl'p nhfln
cae trai phitfu den bQ ruflng dfi't ca (49).
Vific sQ dung tiln din bQ vflo hogt dpng
kinh doanh cung chiem ti le nhd. Trong 21
hfi dQdc nhfin tien den bu, ehi ed 6 dja ehu
lfi dQng tien den bQ dfiu tU vao boat dpng
kinh doanh thUdng mai, so edn lai lfi chi
tieu cho tieu dQng, tra nd vfl eac l l hfii tfin
gifio (50). Dilu nfiy khiln cho ehinh phu rfi't
kho huy dfing dUpe vtfn tU nhan vflo viec
thyc hien cac ehUdng trinh san xutft dgi
quy mo. Hign tUpng nfiy eung gifi'ng nhQ

Bang 1: Su( d u n g t i l n den bu t r o n g chi^fAig t r i n h NCCR

Biu tli v^o san xua't
Dau t\l v^o nha cila
TiS'lkiSm
Chi tieu cho muc dich tieu dung

Da sijf dung quy
So lifting
6
30
3
16
8
40
U
56

%

Ke hoach sijf dung
So li^cfng
14
37
4
11
9
24
16
39

%

Nguon: Callison, C, LoTid to the tiller in the Mekong DeUa. Center for South and Southeast Asia Studies
University of California, Berkely, 1983, tr. 258.

Rghien cihi Lieh sit, sg 12.2012
ktft qua thyc hifin Dy 57 cua Tfi'ng thtfng
Ngfi Dinh Difim. Theo Dy 57 efie dgi diln
ehu, nhQng ngudi lfi dfli tUiJng cua cfii cfich
diln dja cd t h i dQng trfii phitfu bli thudng
dfiu tu vfio cfic cfing ty qutfc doanh hay hpp
doanh nhung myc tifiu dd dfi thtft bgi.
Trong 1.972 dgi dja chu ed rufing trufi't hQu
thi chi ed 18 ngUdi dfiu tu vflo cfing ty bfing
vai vdi stf vtfn khoang 7 trifiu (ty lfi 6%)
(51).

* Vdn diddt dai 6 T&y Nguyin
Lufit NCCR qui dinh khfing dyng vfio
rufing dfi't cua Tfiy Nguyfin (52). Dilu nfly
khac hfin vdi chinh sfich rufing dfi't dUdi
thdi Ngd Dinh Difim. Dudi chfnh quyin Ngfi
Dinh Difim, gfin lie'n vdi qufi trinh trutft
hQu da't dai chu ytfu thufic cae don diln ldn
do ngUdi Phfip vfl difi'n chu ngUdi Vifit than
Phap sd hQu d Tfiy Nguyen, rufing dfi't cua
cac tpc ngudi thiiu so Tay Nguyen dU(?c xtfp
vfio khdi "Cong san Qutfc gia," theo dfi dong
bfio thiiu stf Tay Nguyen khfing ed quyin
sd hQu mfl chi cd quyin hudng dung, ddng
thdi chinh quyfi'n khflng cho phfip sU
chuyen nhUdng, ddi chac dfl't dai (53).
Chfnh sach dfi't dai mfi chi'nh quyen Ngo
Dinh Difim ap dung d Tay Nguyfin, trong

khi ctf gflng han chtf sU bQng nfl' cua sd hQu
tu nhan, lai di ngUdc lai vdi truyin thong
sd hQu dfi't dai Tay Nguygn d 2 dilm: ThU
nhdt, chi'nh quye'n Ngfl Dinh Difim da ap
dat mfi hinh sd hQu nhfi nUdc len dfl't dai
trong khu vUc, qua dd phu nhfln quyin
quan ly cua cae cpng dong bufin lfing dfli vdi
da't dai. Thd hai, trong qufi trinh thyc hifin
cac chinh sach kinh te vfi chfnh trj (ching
han nhu chfnh sach Dinh difi'n), chfnh
quyfi'n Ngfl Dinh Difim da khong t h i quan
ly noi ddng ngudi di dan tQ miin xuoi (chu
ytfu lfi ngadi IGnh) len ehitfm dyng dfi't dai
cua cfic cu dan ban dja, dflc bifit lfl cfic lanh
tho budn lfing bj bd hoang do tfic dfing

cUdng bQc cua cfic cufic dinh diln (54).
Chfnh quyin Ngfl Dinh Difim da khfing
h i l u dupc r i n g , dfli vdi ngUdi ThUdng, dtft
dai da khai phfi, dQ lfl hifin canh hay bo
hoang d i u lfi quyin sd hQu cua flng bfi t^
tign hp d l lai vfi hp dudng nhien cd quyin
sd hQu (55). Su ytfu kfim trong quan 1^ eua
chfnh quyin Sfii Gdn da dfiy nljQng mfiu
thufin giQa dong bfio t h i i u so ban dja vdi di
dfln ngUdi Kinh, cQng nhu giQa ehinh
quyin eua ngUdi t h i i u stf d dja phUdng vdi
chfnh phu Sfii Gdn ngfiy cfing gay git, lfim
nay sinh n h i l u phong trflo dfi'u tranh ddi
quyin sd hQu dfi't dai nhu Bajaraka (19571958) vfl Fuh-o (1964-1969).

Rut kinh nghifim tQ nhQng chfnh quyin
di trUde, dflc bifit lfl chinh quyin Ngfl Dinh
Difim, trong Luflt NCCR, chfnh quyIn
Nguyin Vfin Thifiu da sii dyng sfich lUpc
mem deo hdn trong vific Qng xQ dfii vdi
vQng dfi't Tfiy Nguygn, thUe ehfi't chfnh lfl
sU titfp nfii chfnh saeh rufing dfl't doi vdi cfic
tpe ngUdi t h i i u so Tfiy Nguyen dgdc thUc
hifin tQ nfim 1967 (56). V l cd ban, trong
qufi trinh titfn hfinh NCCR, chinh quyin
Nguyen Vfln Thieu mdt mfit khflng ap dung
md hinh "hQu san hda" va phan ctfp dfl't dai
theo nguyen tflc thQa nhfin sd hQu tu nhan
d vQng xudi doi vdi Tay Nguygn, mflt khac
chfnh thQc thQa nhfin trd lai quyfi'n sd hQu
dfi't dai cfl' truyfi'n theo cfing dong bufin lang
eua efic tflc ngUdi t h i i u stf.
Nhu vfiy, cfich thQc Qng xQ eua chinh
quyin Nguyen Vfin Thifiu dfli vdi dfi't dai d
Tfiy Nguyfin trong qua trinh thye thi
NCCR chu ytfu la n h i m trfinh Iflp lai
nhQng btft cfip trong chfnh sach dfi't dai eua
cfic chinh quyfi'n t i l n nhifim. Quyet djnh
khfing dflng chgm dtfn dfi't dai cua Tfiy
Nguyen, lfi mfit quytft djnh kha khfin ngoan
ciia chfnh quyin Sai Gdn n h i m tranh tao
ra nhQng bfi't fin xa hpi mfl mfl hinh sd hQu


V^ chuong Wnh c&i tao xa hfii..

tu nhfin cd t h i gay ra d khu vUc nfiy, dfic
bifit lfl kha nflng mfl h!nh nfly bj efle cU dfin
ngUdi Kinh l0i dyng d l chitfra doat dfi't dai
trong khu vQc.
Song song vdi dd, chfnh quyin Thifiu cdn
thQc thi mfit sfi' chu trUdng quan trpng
nhim khfic phyc nhQng bfi't cfip trong
chfnh sfich eua chfnh quyin NgQ Dinh
Di$m doi vdi Tfiy Nguyfin. Cy t h i , trong
khi chfnh quyin Difim fip d$t sd hQu ttfi cao
ciia nhfl nudc vfi phu nhfin quyin quan 1^
cua bufin lfing, thi chfnh quyen Thifiu lai
chfnh thQc thQa nhfln dja vj hpp phfip cua
cfic quyen cua dong bfio thiiu stf Tfiy
Nguyfin dfli vdi rupng dfl't eong, dfic bifit lfi
quyin sd hQu eiia bufln lfing ddi vdi dfi't dai.
Vific thQa nhfln quyen sd hQu hdp phfip cua
buon lfing, ktft hdp vdi chu trUdng khfing fip
dflt sd hQu tu nhfin, trUdc btft lfi cfich chfnh
quyen Sfii Gdn mutfn chQng td rflng hp cd
thai dp tfin trpng doi vdi quyin quan ly
truye'n thtfng ciia cac bufin Iflng ban dja.
Mfit khac, vific thQa nhfin sd hQu tflp t h i
eiia budn lfing la each thQc chfnh quyin Sfii
Gon gian titfp trao quyen cho bufin lfing
trong vific bao ve dfl't dai Tfiy Nguygn khdi
tinh trang bj ehifi'^m dung bdi cfic difi'n chu,
quan chQc cung nhu di dfin ngudi Kinh mpt
each tran lan vfi khfing kiim soat nfl'i trong
giai dogn trUdc.

Dudi su thuc giuc cua Hoa K^ v l sU cfin
thiit phai titfn hflnh nhQng cai cfich xa hfii
d nfing thfin mifi'n Nam Viet Nam, trong dd
d^c bi^t bao gom ca tham vpng titfn hflnh
chUdng trinh NCCR, chfnh quyin Sfii Gdn
da thyc thi nhQng bifin phfip vfi budc di
dupc cho lfl cd sy tham khao tQ nhQng cupc
cai each rupng dfi't d mfit stf nUdc (Dai Loan,
Nhat Ban) nhung lgi khfic vdi cac bifin
phap da titfn hanh cua nhQng chfnh quyin
tiln nhi^ra nham giam thieu mfiu thufin

trong xa hfii vfi Ifi'y ldng ngUdi dfin d nflng
thfln.
Trong khi, rafit stf hpc gia nghieng vl xu
hudng ca ngpi chUdng trinh nfly nhU
"NCCR da thflnh cfing rQc rd khi xda bd chtf
dfi thufi mUdn dfl't d nam Vi$t Nam, chfl't
lupng eupe song eua ngUdi nfing dfin tflng
30-50%" (57), thi eung cd nhQng ngUdi thfin
trpng hdn trong cfich dfinh gifi. Vf dy nhU
Callision cho r i n g NCCR eua Vifit Nam
Cfing hda rafic dQ khfing t h i giai quyet tfi't
ca nhQng vfi'n d l v l fi'n djnh xfi hfli, tuy
nhign, trong mfit chQng mUc nfio dd, ft nhfi't
lfi d khu vQc chfiu t h i sflng Mekong, khfing
cd nhGng b i n g chQng ve nhQng ytfu ttf bfi't
tfn djnh dfing k l nfio d day. Vfl sU on djnh
tUdng dSi vfio nhQng nflm 1970 eho phfip

chfnh phu Viet Nam Cpng hda thuc hifin
mpt stf du an phat triin nflng thfin (58).
Trong sufi't thdi gian thUe hifin cudc
"efieh mgng xa hpi", cfic chUdng trinh, dfic
bifit lfi chUdng trinh rupng dfi't cfin phai
dam t a o sU lien tue va phai cd mfit thdi
gian rieng dl hofin thflnh, trong khi dd
NCCR chi diln ra dUpc gfin 5 nflm k l tQ
ngfly ban hfinh Lufit (26/3/1970) cho dtfn
ngfly mifi'n Nam giai phdng. Do dd, kho ed
t h i danh gia dUpc mpt cfich tofin dien vl
hieu qua cua NCCR. NhUng mfit nhfln djnh
tUdng dfli ro nfit cd the rQt ra tQ chUdng
trinh nfiy, dfi lfi lfi khoang each giQa ly
thuytft vfl thuc tiln. Vdi ba muc tieu kinh
ttf, chfnh trj va xfi hfii dUpc dfit ra cho cupc
cai each dUde chd lfl khfi If tudng, nhUng
trong qua trinh thUc hifin, vdi nhQng yeu tfi'
phfit sinh tQ ben ngofii nhU chitfn tranh,
Igm phfit, tham nhung, thu tyc gitfy td da
anh hudng khflng nhd tdi hifiu qua cua
ehUdng trinh. Hdn thtf nQa, trong khi thUe
bi^n Ngudi cfiy ed rufing, Hoa K^ vfl chfnh
quyin Sfli Gdn dfiy raanh qutfc sfich "binh
djnh" vfi "tim difit", chUdng trinh tQng dUde


Rghi6n clhi Ljch sJr. stf 12.2012

60

coi lfi t r u n g tfim eua nhQng chfnh

sfich

r u o n g vfi d i dtfn thfi't b g i . C h i ' n h d i l u nfiy

Dinh diln vfi fi'p chitfn lU^c dUdi thdi Ngfi

khitfn cho NCCR chUa tao r a mflt lfin sdng

Dinh Difim vtfn da khfing thu phyc dUtjc

p h a n dtfi m a n h me ngay lfip tQc nhUng nfi

long dfin, gfiy xfio trfin ddi stfng nflng thfin.

sfi tao ra sdng d trong Idng xa hfii miin

Sy phan Qng cua dfin chQng vfi cufic chitfn

Nam Vifit Nam, nhQng cfing phfin ngtfm

da khitfn eho vific qufin If vfi d i l u hfinh

ngfim, lfi mfim mtfng cho nhQng btft on

ehUdng trinh binh djnh

chfnh trj v l sau.

CHU

ngfiy cfing mye

THfCH

(1). Xem Cao Van Lu^ng, "Chfnh sfich ru^ng
dfi't ciia My - Ngvy", T^p chf Nghiin

cihi Lich sd,

(6). ChUdng trinh cai cfich d i l n dja chi dift^
thyc hifin thvtc sy trong khoang thdi gian tQ nam

stf 171, nam 1976; Trfin Thj Bfch Ng(?c, "Chu nghia

1958-1962 (ti Ifi hofin thflnh lfl 54%) vfi ngUng tr^

thi^c dfln mfli vfi vtfn d l ad hflu rufing dtft cl D5ng

hdn tQ nam 1963-1968 (ti 1$ Ifi 1%) {Theo Dinh

b i n g S6ng Ciiu Long tQ 1954-1975", T^p chf

Cfing Dfic, Vdn di cdi cdch diin dia ud nip song tgi

Nghiin

ndng thdn, Hoc vi^n Hflnh Chfinh quSc gia 1966-

Clhi Lich sd, stf 2 n&m 1986; NguySn Thj

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x l \h rufing dfl't eg anh hudng d i n Itfi san xufi't lfin
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1958 cua P h u T^ng thtfng, Vfin thU so 981/BTC/DC
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d i l u 2 vfi 24 Hitfp phfip Vi^t Nam Cfing hfia.
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