Integrating three National Target Programs: New expectations for the sustainable development of ethnic minority and mountainous areas

Keywords: National Target Program; Ethnic minority and mountainous areas; New rural area; Sustainable poverty reduction; Socio-economic development; Integration.

1. Some key results in the implementation of the three national target programs

In implementation of the National Assembly's resolution, the Prime Minister issued Decision No. 1719/QĐ-TTg dated October 14^th, 2021, approving the National Target Program for socio-economic development in ethnic minority and mountainous areas for the period of 2021-2030, Phase I: 2021-2025 (Program 1719); Decision No. 90/QĐ-TTg dated January 18^th, 2022, approving the National Target Program on Sustainable Poverty Reduction (Poverty Reduction Program) and Decision No. 263/QĐ-TTg dated February 22^th, 2022, approving the National Target Program on New Rural Development (New Rural Development Program) for the period of 2021-2025.

The three National Target Programs have different beneficiaries. The subjects of the Sustainable Poverty Reduction Program are poor households, near-poor households and households that have just escaped poverty within 36 months from the time they are recognized by competent authorities as escaping poverty. Prioritize support for poor ethnic minority households and poor households whose members have contributed to the revolution; Children, people with disabilities, women from poor households, near-poor households and households just escaping poverty.

The beneficiaries of the New Rural Program are rural residents, communities, cooperatives, enterprises, and socio-economic organizations.

The beneficiaries of Program 1719 include: communes and villages in ethnic minority and mountainous areas; ethnic minority households and individuals; Kinh households and individuals classified as poor or near-poor living in communes and villages facing extreme hardship; and enterprises, cooperatives, unions of cooperatives and economic organizations operating in communes and villages facing extreme hardship.

Following the issuance of the Prime Minister's decisions, ministries, sectors, and localities have actively organized implementation and achieved many important results. By the end of the period of 2021-2025, the New Rural Program had completed 5 out of 8 main indicators, exceeding the set targets. 13 provinces have been recognized by the Prime Minister for completing the task of building new rural areas, including a number of provinces and cities in ethnic minority areas: Hanoi, Quang Ninh, Ninh Binh, Dong Nai, Ba Ria - Vung Tau (formerly, now Ho Chi Minh City), Tra Vinh (formerly, now Vinh Long province). The average income of rural residents in 2025 is projected to reach approximately 58 million VND per person per year (a 1.4-fold increase compared to 2020, essentially meeting the assigned target for the period of 2021-2025). The Sustainable Poverty Reduction Program has met and exceeded the annual targets for reducing the poverty rate set by the National Assembly and the Government. By the end of 2024, the poverty rate in impoverished districts stood at 24.86%, reflecting an average annual reduction of 6.7% surpassing the target of 4-5% per year. Meanwhile, the poverty rate among ethnic minority households was 12.55%, with an average annual reduction of 4.45%, thereby meeting the target of a 3% annual reduction.

Regarding Program 1719, out of the nine specific target groups assigned by the National Assembly, six have essentially met or exceeded their set targets; notably, the average poverty reduction rate reached 3.4%, with a projected rate of 3.2% for the entire period (surpassing the planned target of over 3%); The average income of ethnic minority people is projected to reach 45.9 million VND by the end of the period, a 3.3-fold increase compared to 2020 (surpassing the target of a more than twofold increase); targets regarding education; vocational training for the working-age population; Preserving and developing the fine traditional cultural values ​​and identities of ethnic groups; strengthening healthcare services to ensure ethnic minority communities have access to modern healthcare and continue to control and ultimately eliminate diseases in ethnic minority and mountainous areas.

2. Strategic orientation and policies of the Party and the State

Our Party and State have set the goal of becoming a developing nation with modern industry and upper-middle income by 2030 and a developed, high-income nation by 2045. To achieve these objectives, the Socio-Economic Development Strategy for the period of 2021-2030 mandates the “synchronous implementation of solutions for multidimensional, sustainable, and inclusive poverty reduction, particularly in ethnic minority areas”. Resolution No. 19-NQ/TW dated June 16^th, 2022, of the 13^th Party Central Committee regarding agriculture, farmers, and rural areas clearly states: “increase investment from the state budget, prioritizing disadvantaged, mountainous, border and island regions and strive to avoid significant regional disparities”. Resolution No. 42-NQ/TW dated November 24^th, 2023 of the Party Central Committee on continuing to innovate and improve the quality of social policies, meeting the requirements of national construction and defense in the new period, emphasizing the goal by 2030: “Continue to synchronously implement sustainable poverty reduction solutions that are multidimensional and inclusive, ensuring minimum living standards and access to basic social services; support production development and livelihood diversification to gradually raise incomes and ensure long-term livelihood stability for poor and near-poor households, as well as residents in remote, isolated and ethnic minority and mountainous areas”. Of particular note is Conclusion No. 65-KL/TW, dated October 30^th, 2019, of the Politburo regarding the continued implementation of Resolution No. 24-NQ/TW of the 9^th Party Central Committee on ethnic affairs in the new situation, which mandates: “Focusing on effectively addressing pressing issues” and “Striving to eliminate disadvantaged areas by 2030”.

Based on the major guidelines and policies of the Party and the State, the implementation of the three National Target Programs for the period of 2021-2025 holds great significance; these programs serve as a driving force for agricultural and rural development, sustainable poverty reduction, and comprehensive socio-economic development in ethnic minority and mountainous areas, linked to ensuring national defense and security. However, as each program has distinct objectives, funding sources, and implementation mechanisms, it is difficult for localities to integrate them; this leads to overlapping, the fragmentation of resources, duplication of tasks and policy fragmentation.

In light of this situation, the Prime Minister and the Chairman of the National Assembly have agreed in principle to merge the three National Target Programs into a single National Target Program. On December 11^th, 2025, the 10^th Session of the 15^th National Assembly voted to approve the Resolution on 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, aiming to address the limitations of the previous phase and move towards more unified, effective, substantive and sustainable management. Leveraging complementarity and interconnectivity to ensure close alignment among the goals of building new rural areas, achieving sustainable poverty reduction, and developing ethnic minority and mountainous regions, while upholding region-specific policies, cultural identities and the natural characteristics of each area.

The structure of the post-integration National Target Program comprises two components: the first component covers New Rural Development and Sustainable Poverty Reduction; the second component is: Regarding socio-economic development in ethnic minority and mountainous areas, the goal is for 70% of communes in these regions to meet “new rural area” standards by 2030; efforts will focus on infrastructure investment and livelihood creation to contribute to sustainable poverty reduction and the achievement of new rural standards in these communes and villages in ethnic minority and mountainous areas; Preserving and promoting the fine cultural identities of ethnic groups while eliminating backward customs and practices; consolidate and strengthen the great unity of ethnic groups, and enhance the trust of ethnic communities in the Party and the State.

The second component of the Program steadfastly adheres to the guidelines set forth in Conclusion No. 65-KL/TW dated October 30^th, 2019, of the Politburo; consistently pursues the objectives of National Assembly Resolutions No. 88/2019/QH14 and No. 120/2020/QH14-which approved the master plan and investment policy for the National Target Program on socio-economic development in ethnic minority and mountainous areas for the period of 2021-2030 and taking resolute, innovative action to comprehensively and effectively address the set of “five most issues” which remain highly relevant in ethnic minority and mountainous areas, namely: (1) Most challenging infrastructure conditions; (2) Lowest quality of human resources; (3) Least developed socio-economic status; (4) Greatest difficulty in accessing services; (5) Highest poverty rate.

3. New development opportunities for ethnic minority and mountainous areas

Firstly, the integration of the three National Target Programs demonstrates the strong political determination of the Party and the State within the context of a streamlined administrative apparatus to enhance the effectiveness and efficiency of state management, ensure the integration of multi-sectoral objectives and strengthen inter-regional and cross-level coordination.

Following the completion of the reorganization, as of July 1^st, 2025, the country will have 3,321 commune-level administrative units. Preliminary reviews indicate there are approximately 1,516 communes located in ethnic minority and mountainous areas, categorized into three zones based on development levels: 700 communes in Zone III (areas facing extreme hardship), 288 communes in Zone II (areas facing hardship), and 528 communes in Zone I (developing areas), along with approximately 13,496 villages facing extreme hardship. Additionally, there are communes and villages situated in border areas and “safe zones” (historical revolutionary bases).

The new program not only further concretizes the Party's direction but also serves as a tool for implementing national strategies and plans issued by the Government; it is a crucial solution for directly realizing various Sustainable Development Goals (SDGs) within the UN’s 2030 Agenda, particularly those concerning poverty eradication, hunger elimination, quality education, clean water and sanitation, employment, inequality reduction, sustainable community development and climate change response. The spirit of “leaving no one behind” is deeply embedded in the entire structure and content of the Program, demonstrating the strong socio-political commitment of the Party and the State to ensuring access to basic services and the comprehensive development of all citizens, particularly those in ethnic minority and mountainous areas.

Secondly, program integration enables the formation of a continuous development chain. Practical experience shows that numerous unresolved, fundamental issues are hindering sustainable development goals, necessitating more comprehensive, long-term and decisive policies. For example, while many localities in the delta have achieved a high level of new rural construction, the midlands, northern mountainous areas, Central Highlands, Mekong Delta, and border areas still have many “white” communes with high poverty rates and lack of basic development conditions. The “poverty core” is concentrated in remote areas, so it is difficult to implement sustainable solutions to escape poverty. Ethnic minorities account for more than two-thirds of the total number of poor households nationwide, showing that poverty reduction and ensuring social security still have many difficulties and challenges. The shortage of essential infrastructure and basic services in especially difficult areas is still very serious. Many poor communes, highland communes and border communes do not have stable roads, clean water, schools and medical stations that meet standards...

Regarding ethnic minority and mountainous areas, three out of the nine specific targets assigned by the National Assembly in Resolution No. 120/2020/QH14 have not yet been met; among these, two are projected to face significant difficulties and challenges, namely: Targets regarding the improvement of technical and social infrastructure in communes and villages facing extreme hardship; targets regarding settled farming and settlement, and fundamentally addressing the shortage of residential and production land for ethnic minority communities. These target groups require a greater level of focus and a longer implementation timeframe compared to many other tasks, owing to specific local challenges such as rugged terrain, difficult transportation, and the tendency of certain communities to inhabit areas prone to flash floods and landslides. Consequently, it is essential to restructure policies and investments to prioritize disadvantaged and extremely disadvantaged areas, adopting a targeted approach that aligns with the specific characteristics of each region.

Thirdly, the implementation of a two-tier local government structure starting in 2025 places significant pressure on the program’s organizational framework, necessitating the redesign of management, oversight, and inter-agency coordination mechanisms to ensure they are flexible, streamlined and effective. Given the constraints on public resources, integration is no longer merely a technical option but has become an imperative requirement. Maintaining three separate programs, each with its own set of guidelines, lead agency and management procedures requires a robust coordination mechanism upon integration to overcome the deeply ingrained “program-based management” mindset within the administrative apparatus.

Designing the program over a 10-year cycle (2026-2035) is necessary to ensure policy continuity, create conditions for localities to build medium- and long-term plans, improving the efficiency of public investment and attract social resources. As our country enters a phase of robust, civilized, and prosperous development, it is all the more essential to remain steadfast and determined in successfully achieving the goals of building “ecological agriculture, modern rural areas and civilized farmers”, as well as ensuring “multidimensional poverty reduction and inclusive development”. Regarding ethnic minority and mountainous areas characterized by specific target groups, unique geographical conditions, and numerous specialized policy measures, the development and implementation of the second component will grant maximum autonomy to local authorities. This approach adheres to the principle of strong, thorough decentralization, ensuring that localities decide, execute and bear responsibility for the work”. Central agencies are responsible only for managing objectives and targets, as well as refining institutions, mechanisms, and policies to create a favorable framework for local implementation. Localities are responsible for thoroughly reviewing and assessing the current situation, needs, and specific local characteristics in order to propose key tasks, focusing on several core pillars, including: (1) Investing in the construction and completion of infrastructure in ethnic minority and mountainous areas; (2) Supporting production development, creating livelihoods, and increasing the income of ethnic minority people; (3) Developing human resources in ethnic minority and mountainous areas; (4) Supporting and fostering the development of ethnic minority groups facing significant hardships or specific challenges; (5) Communication and dissemination; inspection and supervision; information and reporting regimes.

Fourthly, regarding resources, the total capital projected for the implementation of the Program during the period of 2026-2030 is approximately VND 1.044 quadrillion. In the immediate term, direct support from the central budget amounts to VND 100 trillion. During implementation, the Government will continue to balance the central budget to prioritize additional support for the Program aligned with actual conditions and proposed needs, thereby ensuring sufficient resources to achieve the assigned goals and tasks. One of the principles of capital allocation is to prioritize the highest level of central budget allocation for communes and villages facing extreme hardship, ethnic minority and mountainous areas, "safe zones" (historical revolutionary bases) and border and island regions, with the aim of achieving significant progress in socio-economic development, new rural area construction and sustainable poverty reduction.

Fourthly, program integration creates opportunities to enhance the role of local residents as active participants. Instead of receiving multiple fragmented programs, residents and communities can engage in a comprehensive local development plan, thereby fostering greater initiative, a sense of responsibility, and social cohesion. This is particularly significant for ethnic minority and mountainous areas, where the community plays a central role in sustaining livelihoods, culture, and social order.

4. Conclusion

Integrating the three National Target Programs is essential for the program to effectively serve as a key instrument in implementing the Resolution of the 14^th Party Congress. For ethnic minority and mountainous areas, the Program will directly contribute to concretizing Conclusion No. 65-KL/TW dated October 30^th, 2019, of the Politburo regarding the continued implementation of Resolution No. 24-NQ/TW dated March 12^th, 2003, of the 7^th Plenum of the 9th Party Central Committee on ethnic affairs in the new situation as well as Party resolutions on agricultural, rural and farmer development, sustainable poverty reduction, and social welfare assurance, striving to ensure that no one is left behind in this new phase of development.

References

1. Government (2025). Report proposing 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.

2. Communist Party of Vietnam (2019). Conclusion No. 65-KL/TW dated October 30^th, 2019, of the Politburo on the continued implementation of Resolution No. 24-NQ/TW of the 9^th Party Central Committee regarding ethnic affairs in the new situation.

3. Communist Party of Vietnam (2021). Socio-economic development strategy for the period of 2021-2030.

4. Communist Party of Vietnam (2022). Resolution No. 19-NQ/TW dated June 16^th, 2022, of the 13^th Party Central Committee on agriculture, farmers, and rural areas.

5. Communist Party of Vietnam (2023). Resolution No. 42-NQ/TW dated November 24^th, 2023, of the Party Central Committee on continuing to innovate and improve the quality of social policies to meet the requirements of the cause of national construction and defense in the new era.

6. National Assembly (2019). Resolution No. 88/2019/QH14 approving the master scheme for socio-economic development in ethnic minority and mountainous areas.

7. National Assembly (2020). Resolution No. 120/2020/QH14 approving the investment policy for the National Target Program on socio-economic development in ethnic minority and mountainous areas.

8. National Assembly (2025). Resolution No. 257/2025/QH15 approving 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.