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### Viewing cable 03HANOI1362, Cadre Rotation - Grooming the next generation of

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
03HANOI1362 | 2003-06-03 10:05 | 2011-08-25 00:00 | UNCLASSIFIED | Embassy Hanoi

`

    This record is a partial extract of the original cable. The full text of the original cable is not available.

` `

    UNCLAS SECTION 01 OF 04 HANOI 001362

    SIPDIS

    STATE FOR EAP/BCLTV AND DRL

    E.O. 12958:  NA
    TAGS: PGOV SOCI VM DPOL
    SUBJECT:  Cadre Rotation - Grooming the next generation of
    leaders

    ¶1.  (U)  Summary:  Vietnam is attempting to breathe new life
    into "cadre rotation" in order to train the next generation
    of leaders as well as to improve the quality of government
    service and to fight systemic local corruption.  Cadre
    rotation was common during wartime and in the years
    immediately after unification, but had declined in more
    recent decades.  Following renewed attention by the
    Communist Party of Vietnam (CPV), new rotations take place
    at two levels:  between national ministerial-level positions
    and provincial leadership jobs, and between provincial
    department-level positions and district leadership jobs.
    The CPV's personnel apparatus controls the entire process.
    Almost all rotated individuals are CPV members because "a
    high sense of political awareness" is required for
    leadership positions in Vietnam.  Provincial-level
    implementation varies throughout the country and individual
    participation is sometimes unenthusiastic.  Rotation is in
    the final analysis a tool by central authorities to enhance
    control and diminish the strength of local, potentially
    competing sources of power. End Summary.

    -----------------------
    Party Resolution Eleven
    -----------------------

    ¶2.  (U)  CPV Politburo Resolution Eleven of January 25,
    2002, renewed emphasis on cadre rotation for party,
    government, Vietnam Fatherland Front, and State-owned
    enterprise officials.  Although the practice had never
    completely died out, according to several CPV and GVN
    officials it had become less and less systematic after the
    mid- to late-1970's.  Party leaders have pointed out that,
    after the next CPV Congress in 2006, all or almost all
    senior officials will have had no pre-1975 experience.  CPV
    personnel officials reportedly designed the new rotation
    system to build the experience of capable younger officials
    to ready them for more senior positions.  As such, the focus
    of rotation is not on filling jobs, but on developing
    leadership expertise and ensuring that the next generation
    of leaders has a broad range of experience, including at
    grassroots levels.

    ¶3.  (U)  Reviving rotation has been a rather slow,
    deliberate process.  When poloffs first asked central and
    provincial authorities about implementing cadre rotation in
    mid-2002, the answer was that they had done little and could
    not say much about it yet, apart from a few test cases.
    Officials were hazy about practical details, such as
    available housing for incoming officials (especially
    officials sent to Hanoi) and arrangements for family members
    (do they stay behind?  do they come along?  what about jobs
    for spouses and schooling for children?)  However, in March
    and April 2003, the CPV Central Organization and Personnel
    Commission, headed by fourteenth-ranked Politburo member,
    Tran Dinh Hoan (also a member of the CPV Secretariat and
    head of the main Party school, the Ho Chi Minh Political
    Academy),A organized meetings -- one in Phu Tho province for
    northern officials and one in Ho Chi Minh City for southern
    officials -- for provincial-level officials to discuss
    implementation of the program.  According to an article by
    Hoan in the April 15 edition of the CPV mouthpiece, Nhan
    Dan, since the beginning of 2002, only 28 cadres rotated
    between national/province posts along with over 1,200
    between provincial/district posts.  In addition, over 200
    cadres rotated between different national-level positions.

    ----------------------------------------
    Rotation of Provincial Cadres -- Phu Tho
    ----------------------------------------

    ¶4.  (U)  Poloffs recently met with Phu Tho provincial
    officials to discuss cadre rotation.  Tran Dinh Hoan had
    singled out several provinces for their work on cadre
    rotation, naming Phu Tho first.  This province is about 40
    km northwest of Hanoi astride the Red River, comprising the
    upper reaches of the Red River Delta and a large proportion
    of hilly land.  The population is about 1,300,000, 90%
    ethnic majority Kinh.  The poverty rate is about 12%.

    ¶5.  (U)  According to Bui Hung, head of the provincial CPV
    Personnel Committee, an individual's "talent" more than any
    other factor determines participation in the program.  The
    CPV exercises the "leading role" over all personnel matters,
    including governmental rotations, he admitted.  The program
    is part of the overall provincial personnel development
    plan, Hung added.  Its particular purpose is to improve the
    quality of leaders and managers who have already received
    considerable training; the rotation is also integrated with
    other educational and training opportunities.  Further
    selection criteria include political, "conduct," and health
    considerations.  Hung noted that the province had to pay
    special attention to providing "good conditions" for
    officials rotated to remote areas.  These include free
    housing and financial support.  Phu Tho had applied the new
    rotation policy to management officials first, especially to
    those familiar with economics, and moved them into positions
    where they could apply their training and experience.  He
    added that Phu Tho had already rotated about 100 officials
    under the program.  Also, one Phu Tho official (whom he
    declined to name) had already rotated to a national-level
    CPV post.

    ¶6.  (U)  Hung claimed that the system of selecting cadre for
    the current program was different than in past cadre
    rotation cycles (although he declined to specify how).  The
    province's rotation plan is being carried out in several
    phases and is based on available staff, he noted.  A primary
    consideration is an evaluation of who is most suitable for a
    new post.  Participating officials all have considerable
    work experience and have risen to at least the level of vice
    chairman of a district, or deputy director of a provincial-
    level department.  Generally, they will remain responsible
    for areas in which they already have expertise, serving
    instead in a different location.  Officials can be rotated
    not just from government post to government post, but also
    to or from Party or mass organization positions.  Except for
    some individuals responsible for specific economic matters,
    for instance at state-owned enterprises, all rotated persons
    are CPV members, he admitted.  Hung explained that, from the
    district level up, political considerations are "very
    important," hence the need for CPV membership as a
    prerequisite.

    ------------------------------------
    Bac Ninh:  Focus on Junior Officials
    ------------------------------------

    ¶8.  (U)  Bac Ninh is the smallest province in Vietnam, but
    is densely populated with a population of almost one
    million.  Located just north of Hanoi, it has a long history
    of providing state officials.  According to one Bac Ninh
    leader, two thirds of Vietnam's Confucian doctorate-level
    scholars came from Bac Ninh in the imperial days.  He also
    noted the province's long history as a center of Buddhism in
    Vietnam.  However, it has only existed as a separate
    province since 1997.

    ¶9.  (U)  Bac Ninh officials admitted that there had as yet
    been very little cadre rotation in the province in the wake
    of Resolution Eleven.  Officials framed cadre rotation as
    part of overall personnel training and development
    activities.  Bac Ninh has been concentrating its personnel
    development efforts on commune-level officials (who are
    still too junior to be rotated under the current program)
    since "they actually implement policies."  It was important
    to make sure that they had a good foundation of knowledge so
    that they could implement "grassroots democracy," another
    major CPV theme over the past several years.  Training
    provided by the provincial CPV academy was key to this.  The
    school's curriculum follows a national model, but officials
    emphasized that they took pains to make courses more focused
    and interesting by illustrating issues with local subjects.
    Over time, the academy's courses lead to a bachelor's degree
    in "Theory and Philosophy."  Officials claimed that 90% (or
    391) of provincial and district officials had received such
    a degree already and that the remaining 10% were currently
    working on it.

    ¶10.  Director Tien of the CPV Personnel Committee for Bac
    Ninh echoed the goals of cadre rotation:  to build
    experience and to provide a better grasp of issues.
    Rotation creates an opportunity for senior personnel to
    excel in a new environment.  Those rotated are to be capable
    of significant additional advancement, so the program is
    primarily for officials under 45; those over the age of 50
    are not considered at all, he claimed.  However, he also
    emphasized rotation's importance in fighting "regionalism,
    localism, and branchism."  Preventing officials from
    becoming too entrenched and connected to particular
    interests is a major goal, like the supposed practice of
    rotating customs officials every six months.

    ¶11.  (U)  In order to participate in cadre rotation,
    officials must have a professional and a theoretical
    (political) bachelor's degree, Bac Ninh officials explained.
    The province is currently reviewing existing personnel plans
    and determining what must be done to implement Resolution
    Eleven more fully.  They explained their slow implementation
    by claiming that Resolution Eleven's guidelines require
    pilot projects first and that the Phu Tho conference had
    been to review the lessons learned.  Now Bac Ninh was also
    ready to move forward, provincial officials claimed.

    ¶12.  (U)  Provincial officials added that some of the
    greatest difficulties lie in administering the details, such
    as how to deal with benefits and pensions, particularly when
    one moves from one sector to another (e.g. from government
    to mass organization to Party).  Tien noted that cadre
    rotation should actually be relatively easy to implement
    within Bac Ninh due to its small size.  One could feasibly
    rotate between district and provincial levels without
    changing residences -- something often not possible in
    larger provinces such as Phu Tho.

    --------------------------
    National Level Perspective
    --------------------------

    ¶13.  (U)  Director General of the Personnel Management
    Department of the Ministry of Home Affairs (MOHA) Tran Anh
    Tuan, responsible for the management of all civil servants
    throughout Vietnam, also reviewed cadre rotation with
    poloffs.  He spoke primarily about the national/provincial-
    level, but some of his remarks apply to the
    provincial/district-level as well.  "High-level" personnel
    make decisions about rotation, he admitted.  Variations in
    living standards complicate implementation of these
    decisions, however.  Officials are often reluctant to move
    to remote and mountainous areas with limited educational and
    cultural opportunities.  It is also difficult to find vacant
    positions in "very popular places" such as Ho Chi Minh City.
    Identifying personnel in remote provinces sufficiently
    qualified for rotation is another challenge, he added.  Even
    so, part of the reason for the program is to help narrow
    gaps between different parts of the country by bringing
    qualified people to serve in and be exposed to the problems
    of difficult and remote areas, he explained.

    ----------------------
    National/Local Tension
    ----------------------

    ¶14.  (U)  Director General Tuan said that before the CPV had
    reemphasized cadre rotation with Resolution Eleven,
    provincial personnel decisions were left to individual
    provinces.  He alleged that this often resulted in entire
    provinces being "limited" by the sometimes-low capability of
    the provincial chairman.  The usually close professional and
    personal relationships between successive chairmen also
    limited creativity, he said, a cycle that perpetuated
    endemic weaknesses.  This also led to sentiments against
    outsiders coming into a province -- another manifestation of
    what Bac Ninh's Tien called "localism."

    ¶15.  (U)  DG Tuan explained that the rotation system was
    intended, in part, to break up this cycle and thus narrow
    gaps between provinces.  He noted that while preparing
    Resolution Eleven, Vietnam had studied personnel rotation
    systems in non-Communist countries for the first time,
    especially those in Japan and Singapore.  Vietnam did not
    have the economic capability to follow those examples, with
    rotations every two years, but was trying to use other
    elements of their systems, he added.

    ¶16.  (U)  The rotation program has only been genuinely
    underway for six months at the national level, so only a few
    rotations have taken place and there has been no review yet,
    according to DG Tuan.  Some provinces have not shown much
    "adaptive capacity," he commented, so implementation has
    been spotty.  Rotated officials need to be supported, for
    instance in the provision of housing in the new location.
    While this is less difficult at the national level, it is a
    serious financial burden for many provinces, he pointed out.
    Moreover, it is difficult for officials rotated to distant
    provinces to stay far away from their families.  They tend
    to return home every weekend, making it difficult for
    officials to get to know their assigned provinces as well as
    they should.  Furthermore, DG Tuan noted, this limits their
    participation in the important informal relationship-
    building and after-hours discussions of issues that
    characterize GVN and CPV governance.  It was relatively easy
    to rotate cadre during wartime, but officials are not so
    willing during peace, he lamented.

    ¶17.  (U)  Comment:  Cadre rotation serves functions
    including grooming a new generation of leaders, improving
    leadership in backwater provinces, and perhaps hindering
    corruption by breaking up local "mafias."  In order to be
    effective in their new positions, rotated officials must be
    sufficiently dynamic and collegial to overcome their
    outsider status, however.  Presumably, this is not an
    ineffective way to determine whether promising leaders are
    fit for higher positions.  It is also a way for the CPV,
    particularly its higher levels, to assert its control over
    the outlook and composition of leadership, not only at the
    national-level, but in the provinces too.  The tension
    between local and central authority in Vietnam has a long
    history;  rotation -- whether of Confucian mandarins or of
    Communist cadres -- has been and is likely to remain an
    important tool used by central authorities to break up real
    and potentially competing local power structures.
    PORTER

`