Promoting inclusive parliaments: The representation of minorities and indigenous peoples in parliament CASE STUDY / PARLIAMENT / VIET NAM Representation from the top: Ethnic minorities in the National Assembly of Viet Nam Sonia Palmieri Promoting inclusive parliaments: The representation of minorities and indigenous peoples in parliament CASE STUDY / PARLIAMENT / VIET NAM Representation from the Top: Ethnic Minorities in the National Assembly of Viet Nam Sonia Palmieri Copyright © IPU and UNDP 2010 All rights reserved Printed in Mexico ISBN: 978-92-9142-486-3 Applications for the right to reproduce this work or parts thereof are welcomed and should be sent to the IPU or UNDP. Parliaments, Member States and their governmental institutions may reproduce this work without permission, but are requested to acknowledge the IPU and UNDP in such reproduction and to inform the IPU and/or UNDP thereof. Published by IPU and UNDP Inter-Parliamentary Union United Nations Development Programme 5 chemin du Pommier Democratic Governance Group Case postale 330 Bureau for Development Policy CH-1218 Le Grand-Saconnex 304 East 45th Street, 10th Floor Geneva, Switzerland New York, NY 10017, USA Telephone: +41 22 919 41 50 Telephone: +1 (212) 906-5000 Fax: +41 22 919 41 60 Fax: +1 (212) 906-5001 E-mail: [email protected] www.undp.org/governance www.ipu.org Design and layout: Julian Knott (www.julianknott.com) Rick Jones ([email protected]) Disclaimer The views expressed in this publication are those of the author and do not necessarily represent those of the IPU or the United Nations, including UNDP, or its Member States. REPRESENTATION FROM THE TOP: ETHNIC MINORITIES IN THE NATIONAL ASSEMBLY OF VIET NAM Executive summary ince its reunification in 1975, the Socialist Republic of Viet the Council’s functions. Despite a strong mandate Nam has sought to address the needs of its ethnic minor- for oversight laid out in the Law on the Organisa- ity population. With dedicated machinery of government, tion of the National Assembly, the Council is not including in the National Assembly, the 54 ethnic minori- always able to critically assess all of the Govern- ties of Viet Nam are a widely-recognised, key indicator of ment’s activities relating to minority issues. Sthe country’s demographics. While disparities exist between the Kinh (the majority Vietnamese group), and most other minorities, These issues predominantly relate to high levels of attempts to reduce these continue to be made. Indeed, in May 2010, poverty. In addition, ethnic minorities in Viet Nam the first Nationwide Representative Congress of Ethnic Minorities in are disadvantaged by low levels of education and Vietnam brought together representatives of each of the country’s income, harsh living conditions (being situated minority groups to consider a unifying approach to national devel- in rural and remote areas)—coupled with less opment. It was also an opportunity for senior leaders, including the productive lands and an associated difficulty in Communist Party General Secretary, Nong Duc Manh and Chairman moving away from these areas—restricted access of the National Assembly, Nguyen Phu Trong, to listen to minority to health care, micro-credit and legal services, and voices and to hear their aspirations for the future. In July 2010, the poor transportation infrastructure. Vietnamese press widely reported the visit of the UN Independent Expert on minority issues, which aimed to examine the human rights situation of the country’s numerous minority groups. The National Assembly is increasingly regarded as playing The National Assembly of Viet Nam is easily described as the country’s most representative a more active and independent body with its 493 deputies, elected by a majority role in Vietnam’s political life. system, for five-year terms. The Assembly leader- ship sets targets to achieve a certain measure of representativeness, particularly for ethnic minori- ties and women. Of the 54 ethnic minority groups 33 living in Viet Nam, 33 are represented in the current Of the 54 ethnic legislature. Kinh deputies constitute 82.5% of the A number of studies have identified an important minority groups National Assembly, while the remaining 17.5% of key to the reduction of poverty in ethnic minority living in Viet Nam, deputies are representatives of 32 diverse ethnic areas to be greater consultation with the people 33 are represented minorities. More than 30% of all women deputies of those communities, and improved governance in the current legislature are representatives of an ethnic minority group structures. Yet those representing ethnic minorities (other than the Kinh). in parliament face serious challenges in their work. A stereotype of backwardness and passivity is The main channel through which ethnic minority associated with ethnic minorities, including those issues are addressed in the Assembly is its Council in positions of political power. Ethnic minority on Ethnic Minorities. This is a body consisting of 40 deputies have difficulty engaging with their con- deputies, charged with the responsibility to con- stituencies and earning their trust and respect. They tribute to, investigate and oversee legal documents also face challenges in being able to address ethnic and legal procedures relating to ethnic minorities. minority concerns within the National Assembly. To This forum is said to allow deputies, regardless of date, for example, no law on ethnic minorities has ethnicity, to work together with a shared voice. The been passed by the Assembly. Council, however, does face some challenges. Most ethnic minority deputies have no legal background, and are therefore limited in their ability to carry out 3 Case Study / Parliament / Viet Nam REPRESENTATION FROM THE TOP: ETHNIC MINORITIES IN THE NATIONAL ASSEMBLY OF VIET NAM Introduction n 2010 Viet Nam achieved middle-income status. This remark- To a large extent, deputies in the National Assembly able achievement is indicative of the great strides the country mirror the composition of ethnicities in the popula- has made towards economic prosperity since it opened its tion: Kinh deputies constitute 82.5% of the National doors to international markets in 1986 under the Doi Moi Assembly, while the remaining 17.5% of deputies reforms. Its governance structures are similarly, if much more belong to one of 32 ethnic minorities. Moreover, Islowly, becoming more open. The National Assembly of Viet Nam is the distribution of minorities across Viet Nam’s a body of 493 deputies, elected by a majority system, for five-year provinces means that minority policy concerns are terms. The latest elections were held in 2007, and elections will be often relevant. A 1999 survey found that 11 of the held again in 2011. While most deputies are part-time, the 2001 Law 61 provinces in Viet Nam were composed primarily on the Organisation of the National Assembly mandates a minimum of non-Kinh peoples, while a further 28 provinces percentage of full-time MPs.1 had at least one district where non-Kinh people were in the majority.2 Today, according to one of the The National Assembly is increasingly regarded Assembly’s most senior ethnic minority deputies, as playing a more active and independent role in it is estimated that 49 provinces have at least 30% Vietnam’s political life. The 1992 Constitution ethnic minority populations. established the Standing Committee of the Assembly as an independent body from the The 53 non-Kinh groups are commonly, but mistak- executive. Over time, the Assembly’s mandate enly, considered homogenous. While many are long has expanded to include budget and audit standing and pre-date Vietnamese settlement, some oversight powers, including the power to monitor are more recent migrants to the country. The largest anticorruption, and to cast votes of confidence. of the non-Kinh group is the Tay minority, with Although most legislation originates from the almost 1.5 million people. The smallest minority is Government, draft laws and ordinances are now the O Du group, with only 300 people. Minorities more debated and considered in the Assembly. also vary in terms of their assimilation and levels Its committees have begun to conduct public of economic success, with some groups having consultations to ascertain the effect of both draft achieved commensurate levels with Kinh, while 49 and enacted laws on the population. Importantly, others struggle to educate their children.3 It is estimated the Assembly’s activities are frequently reported that 49 provinces more in the State-owned media, including analysis have at least 30% of each session. Recently, the electorate has been “I am Muong, from Hoa Binh province in the North ethnic minority populations. allowed to ask questions of their elected officials East of Viet Nam. The Muong are one of 53 ethnic through online media sites. minorities in Viet Nam, and one of five groups with over one million people. The Muong belong to The National Assembly can also be considered Vietnamese and Muong language groups, so those a representative body. Of the 54 ethnic minority who do not live in our province can also understand groups living in Viet Nam, 33 are represented in this our language. The Kinh and Muong have lived congress. The Kinh (Viet) people account for 87% of together for a long time. We have 90% in common, the population and mainly inhabit the three major and only a few differences.” delta areas (around the Red River, the central coast, Bui Thi Binh, Vice President and the Mekong River) and the major cities. The Council on Ethnic Minorities other 53 ethnic minority groups, totalling 12 million people or 14% of the population, are dispersed over mountain areas (covering two-thirds of the While each group has its own cultural, social, and country’s territory) spreading from the north to religious mores, there has been a tendency to dis- the south.