Decentralization and delegation of authority in the implementation of National Target Programs in the reform context of local governance models

Keywords: Decentralization and devolution of authority; National Target Program; Ethnic minority and mountainous areas; Local governance; Sustainable development.

1. Introduction

Innovating national governance methods to ensure modernity, efficacy, and efficiency is a key requirement for the country's development. The 14^th National Party Congress has determined to vigorously continue reforming the national governance model and to foster local proactivity and creativity; it emphasizes ensuring clarity regarding personnel, tasks, responsibilities, authority, timelines and outcomes in order to generate new momentum for development. Decentralization and the delegation of authority will enhance proactivity, creativity, and management capacity, while better unlocking the potential of each locality and region as the country enters a new phase of development.

For ethnic minority and mountainous areas, the need to reform management mechanisms has become increasingly urgent. These regions are characterized by complex natural conditions, uneven levels of development and diverse support needs that vary significantly across different areas and ethnic groups. Continuing to maintain a centralized, uniform management approach based on a standardized model will struggle to meet practical demands. Therefore, enhancing the decentralization and delegation of authority to local levels for the implementation of national target programs is considered a crucial solution to foster local initiative, improving resource utilization efficiency and ensuring policies are better aligned with the specific conditions of each locality.

During the period of 2021-2025, the implementation of the National Target Program for socio-economic development in ethnic minority and mountainous areas (Program 1719) has closely adhered to the Party’s guidelines on the decentralization of authority to local governments and this mechanism has contributed to achieving positive results for the program 1719.

In implementation of Resolution No. 257/QH15 dated December 11^th, 2025, of the 15th National Assembly, which approved the investment policy for the National Target Programs on New Rural Development, Sustainable Poverty Reduction, and Socio-Economic Development in Ethnic Minority and Mountainous Areas for the period of 2026-2035, the Minister of Agriculture and Environment issued Decision No. 417/QĐ-BNNMT dated January 31^st, 2026. This decision approved the National Target Programs on New Rural Development, Sustainable Poverty Reduction, and Socio-Economic Development in Ethnic Minority and Mountainous Areas for the period of 2026-2035, specifically Phase I (2026-2030) (Program 417).

In implementing Program 417, the lessons learned regarding the decentralization and delegation of authority during the period of 2021-2025 continue to be applied based on the principle of “localities decide, localities execute and localities bear responsibility”, aiming to contribute to the successful achievement of the goals approved by the National Assembly for 2030.

2. The concepts of decentralization and devolution of authority

The delegation of powers and the decentralization of authority are closely related yet distinct concepts. Clearly distinguishing between these two mechanisms is essential for accurately determining the appropriate authority, responsibilities, and forms of official documents when implementing a two-tier local government model.

Decentralization is an organizational and managerial principle within a political system wherein power is not concentrated in a single individual or agency but is shared among various agencies, organizations or individuals. The aim of decentralization is to ensure balance, prevent the abuse of power and establish a system of mutual checks and oversight.

Decentralization of authority can also be understood as an administrative management system in which powers and resources are delegated to a collective or a self-governing administrative-territorial unit, possessing legal personality, subject to State oversight.

Article 12 of the 2025 Law on Organization of Local Government stipulates that the decentralization of powers to local governments at all levels must be prescribed by laws or resolutions of the National Assembly; such provisions must clearly define the implementing entities as well as the content and scope of tasks and powers, while ensuring adherence to principles regarding the demarcation of authority and alignment with the tasks and powers of local governments at all levels as prescribed in this Law. Local authorities are autonomous in making decisions and organizing their implementation, and bear responsibility within the scope of their devolved duties and powers; they may further delegate or authorize the performance of such devolved duties and powers in accordance with regulations, except where laws or National Assembly resolutions prohibit such further delegation or authorization. Superior state agencies are responsible, within the scope of their duties and powers, for inspecting, auditing, and supervising the constitutionality and legality of the performance of decentralized duties and powers by local authorities at all levels.

Decentralization is the process of dividing powers, responsibilities and tasks between levels in an organization, system or agency, helping to manage and operate work effectively. The purpose of decentralization is to create flexibility in management, reducing the workload for senior levels and increasing the initiative, responsibility and efficiency of lower levels.

Pursuant to Article 13 of the Law on Organization of Local Government 2025, the provincial-level People’s Council delegates powers to the People's Committee at the same level or to the commune-level People’s Council; The Provincial People's Committee and the Chairman of the Provincial People’s Committee delegate to specialized agencies and other administrative organizations under their People's Committee. The People’s Committee and the Chairman of the Commune People's Committee continuously and regularly perform one or several tasks and powers assigned to them in accordance with the provisions of law, except in cases where the law stipulates that decentralization is not allowed. The decentralization of authority must be stipulated in a legal document issued by the agency or individual delegating such authority. Decentralized agencies and individuals are responsible for ensuring the necessary conditions to perform decentralized tasks and powers, except in cases where decentralized agencies, organizations, units or individuals request and themselves ensure the conditions for performing decentralized tasks and powers.

Decentralized agencies and individuals are responsible for monitoring, guiding and inspecting the implementation of decentralized tasks and powers, ensuring that decentralized contents are implemented effectively and efficiently; Take responsibility for the results of implementing the tasks and powers assigned by you in case the prescribed conditions are not met.

Since the 13^th  National Congress (2021), the Party has emphasized: “Vigorously reforming the decentralization and delegation of powers, and enhancing the effectiveness of coordination in leadership, direction, and administration” [2]. Looking ahead to the 14^th National Congress (2026), the Party continues to call for: “Promoting the decentralization of management and authority with a focus on enhancing the autonomy and accountability of local governments, guided by the principle: “localities decide, localities implement and localities bear responsibility” [3]. This concept reflects a shift from the traditional administrative management model to a development governance model, in which localities are granted greater autonomy to address issues arising from practical realities.

3. Decentralization and delegation of authority in the implementation of National Target Programs

In order to operationalize the Party’s policy on decentralization and the delegation of authority regarding the implementation of National Target Programs, the Government issued Decree No. 27/2022/NĐ-CP. This decree aims to enhance the management and implementation capacities of various administrative levels while fostering the self-implementation capabilities of local communities.

The policy of promoting decentralization and the delegation of authority aimed at enhancing the initiative of local authorities in the effective implementation of activities and investment projects under National Target Programs (including Program 1719) continues to be concretized in the Government’s Decree No. 38/2023/ND-CP dated June 24^th, 2023, which amends and supplements a number of articles of Decree No. 27/2022/ND-CP; Resolution No. 111/2024/QH15 dated January 18^th, 2024, of the National Assembly on a number of specific mechanisms and policies for the implementation of national target programs. A notable feature regarding the decentralization and delegation of authority in these documents is the provision of a special mechanism allowing provincial People’s Councils to authorize provincial People’s Committees to issue regulations on the sequences, procedures, criteria and application templates for project selection in production development activities; this establishes a legal basis and enabling localities to shorten the time required for administrative procedures and implementation processes for production support activities, thereby helping to resolve obstacles related to the disbursement of operational funds. Under the regulations requiring the program’s lead agency to announce adjustments and assign implementation targets and tasks covering both the period of 2021-2025 and annual plans for provinces and centrally-run cities, and supported by a special mechanism allowing localities to reallocate state budget estimates (specifically those from 2021-2023 carried over to 2024, as well as 2024 estimates) from component projects lacking eligible beneficiaries or disbursement capacity to other component projects within the same National Target Program, localities can proactively balance and allocate sufficient resources to focus on achieving targets and tasks in alignment with practical conditions.

Based on central-level regulations regarding the decentralization of authority, localities have amended, supplemented, or repealed certain principles, criteria and allocation norms for state budget funds dedicated to National Target Programs; decentralized decision-making and adjustments regarding lists of medium-term and annual public investment projects for these programs (period of 2021-2025); and revised regulations on support for production development. These actions have created a breakthrough in resolving obstacles, facilitating the acceleration of implementation and fund disbursement, particularly for recurrent expenditure funds and enabling localities to flexibly and effectively integrate funding sources and utilize investment support resources for the programs.

Pursuant to Resolution No. 190/2025/QH15 dated February 19^th, 2025, of the National Assembly regarding the handling of certain issues related to the reorganization of the state apparatus, the Ministry of Ethnic Affairs and Religious Affairs has: (i) Advised on the formulation and submission to the Government for promulgation of Decree No. 124/2025/NĐ-CP dated June 11^th, 2025, regarding the decentralization and delegation of powers, as well as the delineation of authority between two levels of local government in the fields of ethnic affairs, beliefs, and religion. The Decree clearly stipulates the Government’s regulations on the decentralization of state management authority regarding the implementation of framework policies linked to the execution of the Program for the period of 2021-2025: The approval, amendment, and supplementation of the lists of communes classified as Region III, II, and I, as well as the recognition of particularly disadvantaged villages in ethnic minority and mountainous areas for the period of 2021-2025, fall under the authority of provincial-level People’s Committees (previously, the approval, amendment and supplementation of the lists of Region III, II, and I communes in these areas were under the authority of the Prime Minister); the approval, amendment, or supplementation of the list of specially disadvantaged villages in ethnic minority and mountainous areas falls under the authority of the Minister-Chairman of the Committee for Ethnic Minority Affairs; The approval, amendment, and supplementation of the list of ethnic groups face numerous challenges including specific difficulties for the period of 2021-2025 and fall under the authority of the Minister of Ethnic Affairs and Religious Affairs (whereas this was previously under the authority of the Prime Minister); (ii) Complete the review and issue Circular No. 04/2025/TT-UBDT dated June 24^th, 2025, amending and supplementing a number of articles of Circular No. 01/2022/TT-UBDT dated May 26^th, 2022, of the Minister-Chairman of the Committee for Ethnic Minority Affairs, prescribing the process for monitoring and evaluating the implementation of Program 1719, Phase I: from 2021 to 2025; (iii) Completing the updating, review and issuance of Circular No. 05/2025/TT-BDTTG dated June 24^th, 2025, guiding the implementation of certain projects under Program 1719, Phase I (2021-2025).

4. Decentralization and devolution of authority in the implementation of Program 1719

Implementing the Party and State’s policy on decentralization and decentralization, localities in ethnic minority and mountainous areas have proactively developed and promulgated regulations within their authority related to capital allocation, adjusting the list of public investment projects, supporting production development and organizing the implementation of the Program’s contents in accordance with the practical conditions of each locality. One of the notable outcomes of decentralization and the delegation of authority is the expanded autonomy in managing and utilizing resources. Allowing localities to reallocate funds among component projects within the same program provided they comply with regulations, has helped address the issue of idle capital, improve budget utilization efficiency and accelerate disbursement progress. This mechanism also enables localities to flexibly handle practical situations, significantly reducing reliance on adjustment decisions from the central government.

By the end of 2024, 34 localities had issued administrative documents regarding budget allocation and adjustment, as well as the implementation of projects and production development activities; this demonstrates that the process of decentralization and delegation of authority is becoming substantive, laying the foundation for enhanced local governance capacity while generating positive impacts on the development of ethnic minority and mountainous areas. Despite being a massive National Target Program, the first of its kind dedicated specifically to ethnic minority and mountainous areas and proceeding without prior implementation experience, Program 1719 has seen two-thirds of its key target indicators meet or exceed the established goals. The poverty reduction rate in ethnic minority areas has surpassed the national average; per capita income has increased 3.3-fold compared to 2020; and access to education, healthcare, and basic social services has significantly improved. These achievements have contributed to a breakthrough in development, powerfully driving socio-economic progress and enhancing the material and spiritual well-being of the people. These results reflect the positive impact of proactively decentralizing and delegating authority to local authorities, enabling them to select solutions tailored to the specific conditions of each locality.

5. Policy implications for the period of 2026-2030

In oredr to implement the two-tier local government model and development goals for 2030, mechanisms for the decentralization and delegation of authority must continue to be identified as a breakthrough solution for enhancing the effectiveness of the Program’s implementation. However, it is necessary to continue to improve in the direction of the Central Government focusing on building strategies, policies, standards, inspection and supervision; Localities are given more initiative in choosing implementation methods suitable to practical conditions. This approach is consistent with the spirit of national governance innovation that the 14^th Party Congress identified.

The decentralization process must be substantive rather than merely perfunctory. The delegation of management authority must align with the capabilities and qualifications of local officials; furthermore, a specific roadmap for decentralization must be established, and specialized personnel should be assigned to provide support in areas where the officials receiving such authority lack the capacity to fully handle implementation.

Decentralizing authority to local authorities, granting them full autonomy in planning, mobilizing and allocating resources and organizing implementation according to the roadmap to achieve annual and period-specific goals and targets, based on the principle of “localities decide, localities execute and localities bear responsibility”, while ensuring that empowerment is coupled with accountability and performance outcomes. The assessment of the Program’s effectiveness needs to shift decisively from process-based management to management focused on outcomes and actual impact on people’s lives.

Enhance the capacity of grassroots-level officials, particularly in remote, isolated and extremely disadvantaged areas. Intensify training, professional development and support including digital transformation in management to improve the quality of local governance.

6. Conclusion

The decentralization of authority and responsibilities is essential and aligns with current requirements for reforming national governance. Practical experience demonstrates that granting localities greater autonomy in implementing National Target Programs has contributed to enhancing the efficiency of resource management and utilization, while also fostering socio-economic development. However, to meet development requirements for the period of 2026-2030, it is necessary to continue refining institutional frameworks, enhancing implementation capacity and establishing appropriate inspection and oversight mechanisms. Only through the effective implementation of the principles of decentralization and the delegation of authority, coupled with accountability can the process of empowerment truly become a driving force for the sustainable development of the country as a whole, and of ethnic minority and mountainous areas in particular, within this new period of development.

References

1. Government (2025), Report summarizing the National Target Program on socio-economic development in ethnic minority and mountainous areas for the 2021-2030 period, Phase I (2021-2025) (Report No. 901/BC-CP dated October 10^th, 2025).

2. Communist Party of Vietnam (2021), Report on the assessment of the implementation of socio-economic development tasks for the 2016-2020 five-year period and directions and tasks for socio-economic development for the 2021-2025 five-year period, https://tulieuvankien.dangcongsan.vn/ban-chap-hanh-trung-uong-dang/dai-hoi-dang/lan-thu-xiii/bao-cao-danh-gia-ket-qua-thuc-hien-nhiem-vu-phat-trien-kinh-te-xa-hoi-5-nam-2016-2020-va-phuong-huong-3737?categoryId=104000017

3. Đảng Cộng sản Việt Nam (2026), Communist Party of Vietnam (2026), Documents of the 14^th National Party Congress, National Political Publishing House Su That, Vol. I, pp. 127-128.