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- TANG ClTonVG QUAN LY RUI RO THIEN TAI
CAN V6»I GIAM NGHEO 6 VIET NAM
Vu Thi Hoai Thu
Khoa Mdi tru&ng vd Dd thi, Trudng Dgi hoc Kinh te Qudc ddn
Email: thuvh@neu.edu.vn
Nguyen Hoang Linh
Td chiec Luang thuc vd Ndng nghiip cua Lien Hiip Qudc tgi Viet Nam
Email: Linh.Nguyen@fao.org
Ngay nhan: 28/4/2016
Ngay nhan ban sua: 4/10/2016
Ngay duyet dang: 25/10/2016
Tom tat.-
Mdi lien hi giita ngheo vd thiin tai da duac cdng nhgn tren todn cdu v&i cdc bdng chimg vi
tdn thdt vi ngu&i vd thiit hgi kinh te do thiin tai tap trung chit yeu & cdc nu&c cd thu nhgp thdp
vd trung binh. Qudn ly riii ro thiin tai cdn gdn v&i gidm ngheo, bdi vi gidm ngheo co the gidm
thiiu khd ndng de hi tdn thuang vd tdng cuong khd ndng phuc hdi tru&c thien tai vd thiin tai cd
thi mang lgi nhitng ca hpi cho gidm ngheo. Cf Viet Nam, cdc vdn de vi qudn ly riii ro thiin tai
vd gidm ngheo chua dugc gdn kit v&i nhau. Do do, qudn iy riii ro thiin tai vd gidm ngheo cdn
phdi gdn kit han nita thdng qua (i) thitc day cdc chinh sdch gidm ngheo hu&ng vdo tdng cu&ng
ndng luc img phd v&i thiin tai cho nguai ngheo; (ii) tdng cuirng cdc hogt dpng citu tra khan cdp
trong hoac sau thien tai; vd (iii) tgn dung cdc ca hpi phuc hdi sau thien tai de tdi thiet viing bi
thiin tai vd mang lgi ca hdi m&i cho gidm ngheo.
Tir khda: bien ddi kbi hau, giam ngheo, quan ly nii ro thien tai
Integrating Disaster Risk Management and Poverty Reduction in Vietnam
Abstract
The link between poverty and natural disasters has been globally recognized with the evidences
of human and economic losses concentrating mainly in low and middle income countries.
Disaster risk management should be linked to poverty reduction, because poverty reduction will
help minimize vulnerability and enhance resilience for affected people to the impacts of natural
disasters and natural disasters can bring opportunities for poverty reduction. In Vietnam, disaster
risk management and poverty reduction have been discussed separately. Therefore, disaster risk
management and poverty reduction should be further integrated through (i) promoting poverty
reduction policies to strengthen capacity to respond to natural disasters to help the poor protect
themselves; (ii) strengthening emergency relief activities during or after the disaster; and (iii)
making use of opportunities to recover from disaster to reconstruct the affected areas and bring
new opportunities for poverty reduction.
Key words: Climate change, disaster risk management, poverty reduction.
1. Gidi thieu tren toan cau van chua giam dang ke. Mac du da cd
Sau hai muoi lam nam ke ta khi cac nudc thanh nhftng tien bd dang ke trong cdng tac quan ly thien
vien Lien Hiep Qudc thdng qua Thap ky quic ti v i tai nhung thiet hai kinh te trung binh do thien tai
giam nhe thien tai (1990-1999), tinh hinh thien tai tinh tren loan ciu vln d muc 250-300 ty USD mdi
Sd 233 thdng 11/2016 79 Kinh t e A t til
- nam (UNISDR, 2015). Tren quan diim kinh te, thiet va thye tien ta cac du lieu thii eip de minh hpa eho
hai do thien tai la mdt chi phi eo hpi. Niu thien tai cae phan tich va danh gia.
khdng dupe giam, thiet hai do thien tai trong taong 2. Mot so van di ly luan vi mii quan he giua
lai se yd thanh mot ehi phi co bpi dang ke dii vdi ngheo va thien tai va quan ly riii ro thien tai gan
sy phat trien. voi giam ngheo
Mdi lien he giua ngheo va thien tai da dupe cdng 2.1. Mdi quan hi giira ngheo vd thiin tai
nhan tren toan eiu vdi eac bang chiing ve tdn that 2.1.1. Khdi niim ngheo
vi ngudi va thiet bai kinb te do thien tai hien dang
Hien tai, chua ed mpt khai niem ehuan mye ve
tap trung ehii yiu d cae nudc cd thu nhap thap va
ngheo dupe chip nhan la khai niem chung cd the ap
frung binh. Trung binh fren thi gidi cd 184 ngudi ta
dung tren toan the giai. Tuy nhien, ed mot sy ddng
vong mdi ngay do thien tai va hau het xay ra d cae
thuan vi khai niem ngheo, do la ngheo la mdt hien
quie gia cd thii hang thap ve chi sd phat trien con
tapng da chieu. Ngan bang The gidi (2012) cho rang
ngudi va cd khoang ban 3.000 ngudi khac trd nen
ngheo la sy thiiu thdn khdng the chap nhan dupe
bin eung do tai san ca nhan bj pha buy, thiet hai siie
trong ddi sing. Nhftng sy thieu thdn nay la nhftng
khde, ve sinh va nudc udng (UNDP, 2004). Trong
thiiu hyt mang tinh thiet yeu va cd toong quan Ian
giai doan 1975-2000, tinh tren fren toan eau, khoang
nhau, bao gim thiiu an hoac ddi; thieu thu nhap, hpc
94%o nhiing ngudi bj chet bdi thien tai la nhiing
banh, cham sdc siic khde, dieu kien ve sinh; khdng
ngudi sdng d miie hoac dudi muc trung binh thap,
ed CO bdi tham gia eac boat dpng kinh te, xa hdi,
frong dd 68%o la nhftng ngudi ngheo nhat (UNDP,
chinh fri; khdng dupe frao quyen,... O Viet Nam,
2012). Thiet hai dy kien hang nam to thien tai frong
ngheo da chieu duoc xay dyng theo budng ket hpp
taong lai cua cac qudc gia dao nhd dang phat trien
ea ehuan ngheo ve thu nhap va miie dp thieu hut tiep
ed the eao gap 20 Ian so vdi cac nudc d Chau Au
can eac djch vy xa hdi co ban nhu y te, giao due,
va Trung A (UNISDR, 2015). Do dd, quan ly nii ro
nha d, nude sach va ve sinh, thdng tin va duoc ap
thien tai gan vdi giam ngheo ddng vai trd quan frpng
dyng eho giai doan 2016-2020 theo quy dinh cua
nham bao ve cac qudc gia khdi eae rui ro ta thien tai
Thu todng Chinh phu (2015).
va phat frien ben -vftng nen kinh te.
Mac du Viet Nam da rat thanh edng frong cdng 2.1.2. Khdi niem thien tai
cudc tang trudng va giam ngheo nhung nhieu dac Thien tai la bien topng ty nhien bit thudng cd
trung ve ngheo van ehua thay ddi d Viet Nam, frong the gay thiet hai ve ngudi, tai san, mdi trudng, dieu
dd cd ngheo gan vdi tinhfrangde bj ton thuang trudc kien sdng va eae boat dpng kinh te-xa hdi (bao gdm:
thien tai (Ngan hang The gidi, 2012). Kha nang de bj bao, ap thap nhiet ddi, lie, set, mua ldn, lu, lu quet,
tdn thuong trudc thien tai dang la mdi quan tam dae ngap lyt, sat Id dat do mua lii hoac ddng chay, sut
biet cua Viet Nam, bdi vi Viet Nam dupe danh gia lun dat do mua lu hoac ddng chay, nudc dang, xam
la mdt frong nhung qudc gia fren toan eiu cd nguy nhap man, nang ndng, ban ban, ret hai, mua da,
CO gap phai nhieu loai thien tai va la mdt trong 30 suong mudi, ddng dit, sdng thin va eac loai thien tai
qudc gia eye ky rui ro trudc nhftng tac ddng cua biin khae (Quic hpi, 2013, Diiu 3, diim 1). Theo Vien
ddi khi hau (UNDP, 2012). Nhiing thach thiie dai Khoa hpe Khi topng thuy van va Biin dii khi hau
dang frong giam ngheo va phat friin bin -vung lam va Chuang trinh Phat friin Lien Hiep Qudc (2015),
cho viec giai quyet mdi quan be giua giam ngheo va thien tai la cac hiem hpa ty nhien taong tac vdi cac
quan ly rui ro thien tai ddng vai trd rit quan frpng dieu kien di bj tdn thuang cda xa bdi lam thay ddi
ddi vdi Viet Nam. nghiem frpng cb'-'c nang binh thudng cua mdt cdng
Bai viit nay frinh bay mdt si vin di ly luan vi ddng hay mpt xa bpi, gay ra cac anh budng bat lpi
mdi quan be gifta ngheo va thien tai va quan ly rui rdng Icbap ddi vdi con ngudi, nen kinh ti hay mdi
ro thien tai gin vdi giam ngheo, phan tieh thyc frang trudng, ddi hdi phai iing phd khan cap de dap ung
quan ly nii ro thien tai gin vdi giam ngheo d Viet eac nhu eau cap bach cua con ngudi va ed the phai
Nam, ta dd di xuit mdt si khuyin nghj nhim tang can den sy bd trp to ben ngoai de phyc hdi.
cudng quan ly nii ro thien tai gin vdi giam ngheo 2.1.3. Tdc ddng ciia thien tai din ngheo
d Viet Nam frong thdi gian tdi. Bai viit su dung Tae dpng cua thien tai din ngheo thudng dupe
phuong phap nghien cuu tai ban, ting quan Iy thuyit the hien thdng qua tac ddng cua thien tai den sinh
Sd 233 thdng 11/2016
- ke cua ngudi ngheo. Trude hit, thien tai (nhu bao, 2.2.1. Khdi niim vd npi dung ciia qudn ly rid ro
W lut, ban ban,...) gay anh hudng din eac nguin lye thien tai
sinh ke, dac biet la eae nguin lyc Ur nhien (nhu dat, Quan ly rui ro thien tai la qua trinh mang tinh he
nude, tai nguyen thuy san) va eac ngudn luc vat chat thdng nham ap dung eac quy djnh hien hanh, huy
(nhu dudng giao thdng, he thing thuy lpi, mang ludi ddng CO quan, td chuc, ea nhan va ky nang can thiet
dien). Kbi ngudn lyc sinh k i bj tin thuong, cae boat de thyc bien cae ehien lupe, ehinh sach nham nang
dpng sinh ke se bj anh hudng. Hoat ddng sinh ke bj cao kha nang iing phd, giam thieu tae dpng bat Ipi
anh hudng bdi thien tai se anh hudng den cac ket ciia thien tai (Chuong trinh Phat trien Lien Hiep
qua sinh ke dat dupe, dac biet la viee lam va thu Qudc va Bp Lao dpng Thuang binh Xa bdi, 2011).
nhap. Ngoai ra, thien tai cung anb budng den ngudi
Quan ly nii ro thien tai bao gdm 3 nhdm boat
ngheo ve dinb duang (khdng ed kha nang ehi fra eho
dpng chinh: (i) phdng ngua (giai doan trudc thien
cac nhu can ve thyc pham), y te (thieu nude sach
tai): trang bj nang lye va kien thuc eho td ehiic, ca
va dieu kien ve sinh an toan, khdng ed kha nang
nhan nham san sang ung phd, khae phuc hau qua va
ehi fra eho cham sdc sue khde) va giao dye (khdng
tai thiet sau thien tai; (ii) iing phd (giai doan frong
dupe tiep can thudng xuyen vdi he thdng giao dye).
thien tai): thye hien cae boat dpng khan cap hd trp
Nhin chung, thien tai tac ddng den ngheo tren ea
cdng ddng frong hoac ngay sau thien tai nham bao
hai phuang dien: ngheo thu nhap va ngheo da chiiu;
ve tinh mang, siic khde, tai san, an toan xa hdi ciia
to do lam tram trpng them tinh trang bat binh dang
nhiing ngudi bj anh hudng bdi thien tai; (iii) phyc
giua eac nhdm dan cu (UNDP, 2012).
bdi (giai doan sau thien tai): khdi phyc va nang cap
Ngudi ngheo bj anh hudng nhieu nhat bdi thien tai eae trang thiet bj, dieu kien sdng bj tae ddng bdi
vi hai ly do chinb. Thii nhat, phan Idn ngudi ngheo thien tai. Quan ly nii ro thien tai hudng den muc tieu
sdng tap trung d cac vung cd dieu kien khd khan ve nang cao nang lyc iing phd vdi thien tai, giam thieu
thdi tiet va dja hinb (-vung ven bien va nui cao), la tdn that to thien tai va day nhanh qua trinh phuc hdi
nhftng khu vyc de bj tdn thuang nhat do nam d vj fri sau thien tai, qua dd tang cudng an ninh cho con
hiing chju nhiing tac ddng tryc dien nhat to' thien tai. ngudi, nang cao chat lupng cudc sdng va phat trien
Thii bai, kha nang thich iing trudc thien tai va phyc ben viing.
hdi sinh ke sau thien tai cua ngudi ngheo thudng
2.2.2. Gdn kit qudn lyriiiro thien tai v&i gidm ngheo
kem hon eac nhdm khae do ban ehe hon ve tai san
(vi du nhu dat dai), tiep can cac ngudn lye va djch Mdi quan he giua giam ngheo va kha nang de bj
vy (vi du nhu tin dyng), bj ban che trong cac loai lya tdn thuong trudc thien tai, dupe the hien d Hinh 1,
ehpn hoac cd rat it sy lya chpn; do do hp thudng khd cd the dupe giai thich nhu sau:
cd dieu kien de thoat ngheo va nhdm can ngheo rat Thu nhat, tac ddng ciia giam ngheo den kha nang
di rai vao ngheo ddi (UNDp 1994; UNDP, 2012). de bj tdn thuong trude thien tai:
2.2. Qudn ly rui ro thiin tai gan v&i giam ngheo - Tdc dpng tich cue: gidm ngheo co the gidm thieu
Hinh 1: Mdi quan he giua giam ngheo va kha nang de bi tdn thuo-ng trudc thien tai
Gidm ngheo
Tiep can giam ngheo tiiiSu tim nhin Giam ngheo co the lam giiim thieu
CO the lam gia tang tinh dS bi t6n thirong tinh dl bi ton thu'ong tnrdc thien tai
Q
Tieu cite
Thien tai co the diy lui Thien tai co the mang lai
Tich cite
nhiing no luc giam ngheo nhung CO' hoi cho giam ngheo
Thien tai
Ngudn: UNDP (1994)
Sd 233 thdng 11/2016 81
Kinh teJ'hiit trien
- khd ndng di bi tdn thucmg tru&c thien tai. Giam Nhu vay, quan ly nii ro thien tai can gan vai giam
ngheo thdng qua eac bien phap hd trp cai thien thu ngheo, bdi vi xet dudi khia canh tich cyc, giam
nhap, vi du nhu cae ngudn thu nhap ngoai ndng ngheo cd the giam thiiu kha nang di bj tdn thuang
nghiep, se giiip ngudi dan cd nhftng khoan tiet kiem trudc thien tai va thien tai cd the mang lai nhung ca
sin cd nhim iing phd trudc eae tinh budng khan cap hpi mdi eho giam ngheo. Do do, de gan ket quan Iy
ta thien tai; hoac cai thien co sd ba tang, vi du nhu nii ro thien tai vdi giam ngheo, can tang eudng nang
dudng giao thdng, nha d,... se lam giam kha nang di lyc ling phd vdi thien tai cho ngudi ngheo thdng qua
bj tin thuong trudc thien tai. cac chinb sach giam ngheo hudng vao cai thien nang
lyc tu cudng cho ngudi dan; ddng thdi can tan dung
- Tdc dpng tiiu cue: gidm ngheo thiiu tdm nhin
cac ca hpi phyc hdi sau thien tai de tai thiet vung
cd thi ldm tdng khd ndng di bi tdn thieang tru&c
bj thien tai, qua do mang lai nhiing ca hpi mdi eho
thien tai Phat triin kinb ti thudng dupe coi la mdt
giam ngheo (UNDP, 2004).
cdng cy toyet vdi nham hd frp giam ngheo, song
cung cd thi dem lai nhftng rui ro thien tai. Vi du, md 3. Tdng quan vl ngheo va thien tai is Viet Nam
binh kinh ti phy thudc vao tai nguyen thien nhien 3.1. Tinh trgng ngheo & Viet Nam
se lam cho tai nguyen ngay cang can kiet va mdi Trude nam 2015, Viet Nam sii dyng hai he thdng
trudng bj suy thoai va cudi eung gay ra nhung tham chuin ngheo di danh gia tinh hinh ngheo la ehuan
hpa thien nhien eho con ngudi. Phat trien xa hdi ngheo eiia Bp Lao dpng Thuang binh Xa hpi va
cung cd thi Iam gia tang nii ro thien tai. Vi du, do ehuin ngheo cua Tdng eye Thdng ke - Ngan hang
thj hda ed tbi lam tang kha nang di bj tdn thuang Thi gidi. Du dupe danh gia theo he thdng chuan
cua con ngudi trudc thien tai; bdi vi be qua eua dd ngheo nao, ty le ngheo d Viet Nam eiing da giam
thj bda qua nhanh la sy thiet lap cae khu djnh eu phi dang ki frong bai thap ky qua. Theo chuan ngheo
chinb thuc mdi hoac cac khu d chudt ma cac khu nay cua Bp Lao ddng Thuang binh Xa hpi, ty le ngheo
thudng nam d nhiing vj tri dja ly de gap phai nii ro da giam to 19,2% vao nam 1996 xudng 5,97% vao
(nhu vung de bj sat Id, lu quet, an ninh thap...). nam 2014. Theo ehuan ngheo cua Tdng cue Thdng
Thu bai, tac ddng eua thien tai den giam ngheo: ke - Ngan bang The gidi, ty le ngheo da giam hr
Tdc dpng tich cue: thien tai cd the mang lgi 58,1% vao nam 1998 xuing 20,7% vao nam 2010
nhirng ca hdi cho gidm ngheo. Thiet bai do thien tai (Ngan hang The gidi, 2012).
ed the tao ra sy eai thien dang ke ve ta duy xa hdi Tinh tren toan qudc, ba vung ed ty le hd ngheo
va quan diem eua cac nha hoach djnh chinb sach cao nhat Viet Nam giai doan 2007-2014 theo chuan
frong viec iing phd vdi thien tai; bdi vi sau tham hpa, ngheo cua Bd Lao dpng Thuong binh Xa hdi Ian lupt
cac bd gia dinb, cdng ddng va nha quan ly se phai la mien nui phia Bae (Ddng Bae va Tay Bac); Bac
tim ra cac chien lupe eai thien kha nang chdng chju Trung Bd va duyen hai mien Tnmg va Tay Nguyen
va phuc hdi tdt hon dya tren nhftng bai hpc, kinh (Bang 1).
nghiem va mat mat da trai qua. 3.2. Tinh hinh thiin tai & Viet Nam
- Tdc dpng tieu cue: thien tai co thi ddy lid nhimg Viet Nam la mdt frong nhung qudc gia chju anh
nd luc gidm ngheo. Thien tai cd the gay ra eae tac hudng nang ne nhat cua thien tai frong khu -vuc
ddng kinh te tryc tiep (tdn thit tai san, co sd ha ting, Chau A Thai Binh Duong do vi tri dja ly va dja
san pham ndng nghiep) va gian tiep (sy gian doan hinh. Trong cac loai thien tai, bao va Ifl lut la thudng
ddng chay bang hda va djch vu); tu dd tae ddng vao xuyen va nguy hiem nhat. Trung binh mdi nam Viet
eac bien sd vT md nhu tang trudng, ngan saeh, np Nam phai chju to 6-7 eon bao; trong giai doan 1990-
edng va lam phat. Ngudi ngheo thudng chju tac 2010 da xay ra 74 fran lii; ban ban, xam nhap man,
ddng nang ne tu thien tai, bdi vi ngheo ddi lam eho sat Id dat va cac thien tai mang tinh cyc doan da xay
hp di bj eac thiet hai kinb ti tryc tiip, gian tiip va ra nhieu hon (Vien Khoa hpe Khi topng thuy van va
cac hieu irng phu. Vi khia canh xa bdi, ngheo cung Bien ddi khi bau va Chuang trinh Phat trien Lien
cyc d tit ca cae chiiu cd thi la kit qua cua tham hpa Hiep Qudc, 2015). Sy gia tang ngay cang nhanh ca
tu nhien, bdi vi nhftng ngudi di cu tj nan sau tham ve quy md va ehu ky lap lai cua thien tai da lam mat
hpa thudng thiiu hut tit ca cac dich vu xa hdi co ban di nhieu thanh qua ciia quafrinhphatfrienkinh te-xa
nhu y te, giao due va tiep can nguon nude udng an bdi. Thiet hai kinb ti binh quan hang nam do thien
toan. tai chiim khoang 1,3-1,5% GDP mac du thiet hai
Sd 233 thdng 11/2016 82
- Bang 1: Ty le hd ngheo giai doan 2007-2014
Dan vi:
Viing 2007 2008 2009 2010 2011 2012 2013 2014
Ca nu&c 14,5 12,1 11,3 14,20 11,76 9,60 7,80 5,97
Ddng Bic 23,44 19,41 16,52 24,62 21,01 17,39 14,81 11,96
Tay Bic 32,36 31,76 25,46 39,16 33,02 28,55 25,86 22,76
Ddng bang sdng Hdng 9,59 1,61 6,88
8,30 6,50 4,89 3,63 2,57
Bac Trung Bd 23,44 19,81 15,33
22,68 18,28 15,01 12,22 9,26
Duyen bai Mien Trung 16,18 14,28 12,88 17,26 14,49 12,20 10,15 8,00
Tay Nguyen 21,34 15,79 12,45
22,48 18,47 15,00 12,56 10,22
Ddng Nam Bd 5,12 3,62 4,84
2,11 1,70 1,27 0,95 0,66
12,85 9,77 8,91
Ddng bang sdng Ciiu Long 13,48 11,39 9,24 7,41 5,48 1
Nguon: Bd Lao ddng Thuang binh Xa hoi (khong ndm xudt bdn)
thye te cd the cao hon dang ke. Hiu hit dan si Viet vdi cae hd khdng ngheo d mpi loai hinh thien tai.
Nam sinh sdng d cae luu vyc sdng, vung dat thap va Cac bd d ndng thdn chju thien tai nhieu ban so vdi
khu vyc ven bien nen ban 70% dan sd cd nguy eo cae hd d thanh thj. Ba vung cd ty le hd chiu thien
gap phai thien tai (UNDP, 2012). tai nhieu nhat la mien niii phia Bae, duyen hai mien
Theo Ngan hang The gidi (2012), tinh fren toan Trung va Tay Nguyen (Bang 2).
qudc, cae hp ngheo phai chiu thien tai nhieu ban so 3.3. Mdi quan hi giiea ngheo vd thiin tui & Viet Nam
Bang 2: Ty le hg chiu thien tai is Viet Nam giai doan 2003-2008
Dan vi: %
Han han Lut, bao Lddat Cac loai thdi
tilt khac
nghiet Idiac
Toan qudc 6,7 12,9 0,7 15,2
Phan theo khu vttc
Ndng thdn 8,6 15,5 0,9 19,4
Thanh tbi 1,8 6,3 0,1 4,3
Phan theo viing
Ddng bang sdng Hdng 2,6 10,3 0,4 28,6
Miin nui phia Ddng Bac 9,4 7,0 1,7 23,0
Miin mii phia Tay Bac 8,1 14,3 1,3 22,6
Duyen hai Bac Trung Bd 15,8 29,3 1,1 30,3
Duyen hai Nam Trung Bd 7,3 25,9 0,4 7,4
Tay Nguyen 19,2 10,9 0,4 4,9
Ddng Nam Bd 2,9 5,1 0,3 1,3
Ddng bang sdng Cuu Long 3,5 10,2 0,5 1,4
Phan theo hp
Hd ngheo 14,2 17,9 1,2 22,9
Ho khdng ngheo 5,6 12,2 0,6 14,1
Ngudn: Ngdn hdng The gi&i, 2012.
Sd 233 thdng 11/2016 83
- Mac du ehua cd nhiiu bing chirng ve mdi quan 4.2. Chinh sdch
he gifta ngheo va thien tai d Viet Nam nhung cae Chiin lupc quie gia vi Phdng chdng va giam nhe
khu vyc cd diiu kien tu- nhien khic nghiet va hang thien tai din 2020 do Bp Ndng nghiep va Phat hiin
nam phai ganh ebju thien tai nhieu bon (bao. Id Ndng thdn ehu tri dupe hiin khai thdng qua cac du
lut, lu quet, lie xoay) thi cung la nhung khu vye an, chuong trinh cy the vdi hai nhdm giai phap ehinh
cd ty le ngheo cao han. Si lieu d Bang 1 va Bang la giai phap cdngfr-inb(xay dyng va hoan thien ca
2 da thi hien mdt phin diiu nay: ba viing cd ty le sd ha ting nhu hi chiia, khu neo dau tni bao, nang
hp ngheo cao nhit Viet Nam la mien nui phia Bac, eip he thing de sdng, de bien) va giai phap phi cdng
Tay Nguyen va duyen hai mien Trung cflng la ba trinh (hoan thien he thing van ban phap luat va cc
vung chju nhiiu thien tai nhat d Viet Nam; trong do chi ehinh sach; kien toan bp may phdng, chdng lut
miin nui phia Bac de gap phai lu quet, lu lut va sat bao va tim kiim cim nan; nang cao nang lyc dy bao,
Id dit; duyen hai mien Trung cd dudng bd bien dai canb bao; frong va bao ve rimg; tang eudng nang luc
va thudng xuyen chju tae dpng cua lu, bao; va Tay quan ly thien tai; lap va ra soat quy hoaeh; chuyen
Nguyen di bi lu lut, ban ban, lu quet va lde td. Tinh dii mua vy, gidng cay trdng, vat nudi frong ndng
tren toan qudc, neu ty le rui ro gap thien tai tang len nghiep di thich iing trudc thien tai,...).
1% tbi ty le ngheo tang len 0,35% (UNDP, 2012). Chuong trinh myc tieu qude gia vi giam ngheo do
4. Thue trang quan ly riii ro thien tai gan vdi Bd Lao dpng - Thuong binh va Xa hpi ehu hi gdm
giam ngheo d Viet Nam cae giai phap hd trp xay dyng ea sd ha tang tai cac
4.1. Thi che huyen va xa ngheo tap trung vao ha tang phuc vu
Thu todng Chinb phu (2007) nhan manh viee nhu ciu CO ban nhu giao thdng, y te, giao dye; hi frp
tang cudng the che quan ly nii ro thien tai tai cac bd, phat trien san xuat cho ddi topng ngheo, can ngheo
nganh va dja phuong. Uy ban qudc gia ve tim kiem va mdi thoat ngheo; nang cao nang lyc can bp giam
ciiu nan cac Bd, nganh trung uong va dja phuong ngheo eac cap va cac chinh saeh bd trp giam ngheo
(thanh lap nam 2009) va Ban ehi dao Phdng chdng khac (nhu tin dung, cho vay xay nha, bd frp tien mat,
lut bao Trung uong. Ban chi buy phdng chdng lut bao trp gia).
va tim kiem cuu nan cac Bd, nganh va dja phuong Nhu vay, cd the thay rd sy dpc lap va tach biet cua
(thanh lap nam 2010) thuc bien chiic nang quan ly hai chien lupc, chuong ttinh phuc -vu bai muc tieu
thien tai d Viet Nam. Nam 2015, Ban chi dao Trung khac nhau tai Viet Nam ve quan ly rui ro thien tai
uong ve Phdng chdng thien tai dupe thanh lap nham va giam ngheo va sy gan ket chi dupe the hien d cac
chi dao, dieu hanh edng tac phdng ngua, ung phd va giai phap phi cdng trinh cua hai chuong frinh cung
khac phuc hau qua thien tai fren pham vi ca nudc. nhu sy long ghep ea hai chuong trinh vao ke hoach
Bd Ndng nghiep va Phat trien ndng thdn la co quan phat trien kinh te-xa hdi. Nhin chung, eae ehinh sach
thudng fryc cua Ban Chi dao thyc hien nhiem vu quan ly nii ro thien tai va giam ngheo ehua dupe gan
quan ly nha nudc ve phdng chdng thien tai. Ngoai ket nhau. Cac chinh sach da khdng phan anh mpt
ra. Ban chi dao phdng chdng thien tai va tim kiim thyc te la frong cudc sdng cua ngudi dan Viet Nam,
ciru can cac bp/nganh, cap tinh, cap huyen va cap xa ngheo ddi va thien tai cd mdi lien he mat thiit vdi
cung da dupe thanli lap. nhau va hdfr-plan nhau.
Hanh ddng ciia Chinh phii ve quan ly nii ro thien 4.3. Cdc hogt dpng thu-c tiin
tai va giam ngheo dupe de cap trong cac chinh Viet Nam da cd nhirng budc tien dang ke frong
sach va chuong frinh eu thi theo nganh, trong dd viee ung phd vdi thien tai, dac biet la frong phdng
Bd Ndng nghiep va Phat triin Ndng thdn chju trach chdng va cito frp ngay lap toe sau thien tai (HFA,
nhiem ve quan ly rui ro thien tai va Bd Lao ddng - 2015), ed the ke den nhu: (i) ddi mdi tt'ong hanh
Thuong binh va Xa hdi chju trach nhiem vi giam dpng td bj dpng ung phd sang ehu ddng phdng ngua
ngheo. Theo bao cao cua HFA (2015) vi danh gia thien tai thdng qua eae boat ddng nhu: ra soat cac
ket qua cdng tac quan ly rai ro thien tai d Viet Nam, quy hoach bien cd de bd sung, long ghep yeu eau
CO che phdi hpp lien nganh trong cdng tac lap ki phdng franh thien tai vao cac quy hoaeh mdi va ke
hoach chua chat che; mdi bd, nganh hoac tinh ty lap hoach phat friin kinh ti - xa hdi; td chuc quy hoach
ke hoach ma khdng tham vin va phii hpp, chia se lai dan cu hoac di ddi dan tai nhirng vung thudng
thdng tin vdi cac bd, nganh/tiiih khac. xuyen bj thien tai din nai d mdi an toan ban; tan
Sd 233 titang 11/2016 84 Kinh teJIiilt trien
- suat, mue dp, quy md tac ddng eua thien tai da dupe ton da dang sinh bpc vung xung yeu de trd thanh la
dua vao thiit ki xay dyng ca sd ha ting; (ii) thye chin hi trp tang cudng kha nang chdng chju cua
hien song song ca hai nhdm boat ddng cdng frinh cdng ding; (iv) long ghep chinh sach bao trp xa hdi
va phi cdng trinh, va (iii) diy manh hpp tac qudc te vdi ehinh sach phdng chdng giam nhe thien tai nham
ve phdng ching thien tai. Tuy nhien, cae boat ddng giam thieu thiet hai, thuc day kha nang phye bdi,
quan ly nii ro thien tai d Viet Nam vin tap trang vao bao ve sinh ke va cupc sdng eua ngudi ngheo; va (v)
ITnh -vyc ndng nghiep va phdng chdng lyt bao va bj tang cudng eo che chia se rui ro thdng qua bao hiem
ban ehe ve nguin nhan lyc va tai chinb de trien khai ndng nghiep, bao hiem bien ddi khi hau.
cac boat dpng phdng ching giam nhe thien tai.
Thie hai, tang cudng eac boat dpng cito trp khan
Ve ITnh vyc giam ngheo, theo bao eao eua Bp Lao cap trong hoac ngay sau thien tai nham bao ve tinh
dpng Thuong binh Xa hdi (2016), cae boat ddng mang, sue khde, tai san va dap ung eac nhu eau ca
thue hien muc tieu giam ngheo ben vftng cua qudc ban cua nhung ngudi bj anh budng tai thdi diem bj
gia thudng tap trung vao xay dyng co sd ha tang thien tai. Tuy nhien, each tiep can ciiu trp can dupe
CO ban nhu dudng giao thdng, y te, giao dye, nha can nhac ky luang dya tren nhu cau, bdi eanh thyc
d tai eae huyen va xa ngheo; hd fro phat trien san te va quan trpng hem la khdng lam giam tinh ty lyc,
xuat tang thu nhap cho ddi tapng ngheo, can ngheo ty eudng eua ngudi dan -vung bj thiet bai va khdng
va mdi thoat ngheo thdng qua tin dung uu dai; dao la tien de eho tham nhung.
tao nghe, tao viee lam, xuat khau lao ddng d cac
thj tradng nhu Nhat Ban, Dai Loan, Trang Ddng, Thit ba, tan dyng eae co hdi phye hdi sau thien tai
Malaysia,... de tai thiet -vung bj thien tai, qua dd mang lai nhftng
CO hdi mdi eho giam ngheo nhu (i) ebinh saeh xay
Nhu vay, cac boat ddng thyc tien ve quan Iy nii
dyng lai co sd ha tang sau thien tai; (ii) chinh sach
ro thien tai va giam ngheo dang dupe thyc hien mpt
phuc hdi sinh ke sau thien tai thdng qua phat trien
each dpc lap d Viet Nam.
sinh ke bd trp va sinh ke mdi; va (iii) thye hien eac
5. Mot sd ggi y chinh sach ve quan ly riii ro dy an phat trien dya vao edng ddng ve xda ddi giam
thien tai gan vdi giam ngheo is Viet Nam ngheo, quan ly tai nguyen thien nhien va bao tdn da
O Viet Nam, quan ly nii ro thien tai va giam ngheo dang sinh hpc.
chua dupe gan ket vdi nhau. Quan ly nii ro thien tai
6. Ket luan
va giam ngheo can phai gan ket vdi nhau hon nua
de giam thieu kha nang de bj tdn thuong va tang La mpt qudc gia thu nhap trang binh mdi, Viet
kha nang chdng chju cua ngudi ngheo trade thien Nam dang thay ddi nhanh chdng va trai qua nhiing
tai, giam thieu thiet bai tai thdi diem bj thien tai va thach thuc mdi cua sy phat trien, dac biet la nhirng
thue day kha nang phyc hdi sau thien tai; ta dd bao binh thiie mdi cua ngheo ddi, bat binh dang, thien
ve ngudi ngheo frong sudt chu ky cudc sdng, qua dd tai va bien ddi khi bau. Do dd, lap ke hoach va thue
lam giam bat binh dang va bat lpi ve kinb te - xa bdi hien mdt each tich hop va bieu qua giua quan ly nii
cua ngudi ngheo so vdi cac nhdm khac trong xa hdi. ro thien tai, giam ngheo va phat trien kinh te-xa hdi
Cac chinb sach giam ngheo can dupe gan ket trong se giup bao ve ngudi dan trudc bat ky cu sdc nao
ca ba giai doan cua qua trinh quan ly nii ro thien ve thien tai. Ve co ban, can giup eae vung de bj tdn
tai, bao gdm: phdng ngua (giai doan trade thien tai), thuong trade thien tai thoat khdi sy kem phat trien
img phd (giai doan trong thien tai) va phuc bii (giai va ban che tdi da phan iing thu ddng ciia hp trade
doan sau thien tai), cu thi la: thien tai thdng qua day manh tdc dp giam ngheo,
dac biet d cac viing mien nui va ehu ddng trong cdng
Thu nhdt, thuc diy cac chinb sach giam ngheo
hudng vao tang cudng nang lyc ung phd vdi thien tac phdng chdng thien tai. Long ghep quan ly nii ro
tai cho ngudi ngheo de hpto-bao ve minh, bao gim: thien tai vao cac chinb sach va chuong trinh phat
(i) xay dyng ddng bd ca sd ha tang ciing d cae vung trien cap qudc gia va dja phuong cd the mang lai lpi
di bj tin thuong di kem vdi tang cudng he thing ich d tat ca cac cap; qua dd giai quyet hieu qua cae
dy bao canli bao sdm thien tai, (ii) cai thien tiip can van de ve giam ngheo, an sinh xa bdi, chat lupng
cac dich vu co ban cho ngudi ngheo (y ti, giao due, cudc sdng, tao lap nang lyc iing phd vdi thien tai
thdng tin) nhim giam thiiu tac ddng ta thien tai; trong ngan ban va thich img vdi bien ddi khi hau
(iii) quan ly hieu qua tai nguyen thien nhien va bao trong dai han.
Sd 233 thdng 11/2016 85
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HFA [Hyogo Framework Action] (2015), Vietnam: National Progress Report on the Implementation of the Hyogo
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Ngan hang Thi gidi (2012), Kh&i ddu tot, nhung chua phdi da hodn thdnh: Thdnh tuu dn tuang cita Viet Nam trong
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UNDP (1994), Disasters and Development, Disaster Management Training Program, New York.
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tdm tdt phuc vu cdc nhd hogch dinh chinh sdch, Trong Bdo cdo dgc biet cua Viet Nam ve Qudn ly rui ro thien tai
vd hien tugng cite doan nhdm thitc ddy thich img v&i Men ddi khi hdu, Nha xuat ban Tai Nguyen Mdi trudng va
Ban do. Ha Noi.
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