Thayer Consultancy Background Brief

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The Vietnam People’s Army will celebrate its eightieth anniversary on 22 December.
We request your evaluation of the following questions:
Question 1: What is your overall assessment regarding the role of Vietnam People's
Army (VPA) in the country's cause of national construction and defense in the past and
present?
ANSWER: Since 1944, the Vietnam People’s Army (VPA) has played a monumental role
in national defence and national construction in all phases of Vietnam’s development.
During the Resistance War Against the French (1946–54) the VPA was required to
carry out two main missions: combat and economic production. The VPA experienced
a remarkable transformation from a guerilla force to a conventional army with heavy
combat divisions in just eight years. The VPA soldiers were simultaneously charged
with producing their own food and raising livestock.
After partition in 1954, disparate VPA main, regional, and local forces were converted
into a regular army and given the task of defending Vietnam against foreign
aggression. The VPA was also tasked with managing state farms that grew industrial
crops.
During the late 1950s and mid-1970s, VPA was involved in a sixteen-year armed
struggle to reunify Vietnam. Vietnam developed one of the world’s most sophisticated
anti-aircraft systems and an infantry army established heavy armour and artillery
divisions.
Following unification, the 4th National Congress of the Vietnam Communist Party in
December 1976 adopted a resolution that declared: “our armed forces have two tasks:
always to stand ready to fight and to defend the fatherland and to actively participate
in economic construction.” The 4th congress also called for the development of a
national defence industry and expanded the VPA’s role in training and education of
the nation’s youths.
A General Directorate for Economic Development was established to oversee the
efforts of VPA units in four main areas: agriculture, industry, communications and
transport, and capital construction. In the decade up to 1986, Army units of corps
(binh đoàn) size were assigned to new economic zones, state farms and forests,
hydroelectric and water conservancy projects, building roads, and oil and gas
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exploration. One unit, of roughly 12,000 men, was given responsibility for completing
the Hoa Binh hydroelectric project. Brigades and smaller sized units planted rubber,
tobacco, coffee and tea.
Conflict on Vietnam’s southwest and northern borders led to an expansion of the VPA
to an estimated 1.3 million in 1987 or the fifth largest standing army in the world.
In the mid-1980s, Vietnam experienced a major economic crisis that led to the
adoption of a wholesale reform program called đổi mới. In March 1989, the Council
of Ministers issued Directive 46 that put military-run enterprises and companies on
the same legal footing as state-owned enterprises under the profit and loss
accounting system. Military enterprises were authorized to open foreign currency
bank accounts, form legal associations, and enter into joint ventures with Vietnamese
or foreign partners.
Nine major VPA economic construction units were converted into legal entities –
corporations (công ty) and general corporations (công ty tổng cục). Four giant military-
run general corporations stood out as being especially successful in the new
marketplace: Truong Son Construction General Corporation (12th Corps), Tay Nguyen
Corporation (15th Corps), Thanh An Construction and Assembly Corporation (11th
Corps), and the Flight Service Corporation.
VPA units were withdrawn from Cambodia in September 1989, and over the next six
years Vietnam carried out a program of demobilization reducing the VPA main force
to less than half a million.
The rapid expansion in the number of military-owned enterprises and the diversity of
their activities led the Vietnam Communist Party to consolidate and reduce their
number to make them more efficient and competitive by divesting them of purely
commercial enterprises.
Four distinct “waves of reform” were launched. The first wave (1995–96) was aimed
at improving the competitiveness of military-owned enterprises by consolidating
them through mergers.
The second wave (1998–99) ushered in an expansion of the VPA’s roles. First, the VPA
developed special economic-defence zones in remote strategic areas. Second, the
VPA raised its professional standards through a more formal and institutionalized
system of education and training and promotion based on clearly defined criteria.
Third, the VPA underwent a concerted program of force modernization of the People’s
Navy and Air-Defence Air Force.
The third reform wave (2007) promoted the divestment of military enterprises that
were purely commercial.
The fourth wave (2018) was initiated by the National Assembly when it amended the
Law on National Defense to end the military’s ownership of purely commercial
enterprises and to level the playing field between military and civilian enterprises to
bring them under the same laws. The Ministry of National Defence restructured
military enterprises with dual defence and economic functions and reduced their
number.
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In sum, throughout the period 1975–2024, the VPA saw its roles in national defence
and building socialism steadily expand. The VPA became a more standardized,
professional and modern military force. Military-owned companies were streamlined
and given niche roles in the economy, including dual-use technologies. Viettel is the
exemplar.
Question 2: As a veteran Vietnam expert, what impressions have Vietnamese soldiers
made on you?
ANSWER: In 1999, I was granted “leave in the national interest” to take up a three-
year posting as Deputy Head of Regional Studies at the Asia-Pacific Center for Security
Studies (APCSS), U.S. Pacific Command, in Hawaii. The APCSS conducted three
Executive Courses each lasting thirteen weeks each year. This was the first time I met
and worked with military officers from Vietnam.
On return to Australia in 2002, I was assigned the role of academic coordinator for
Australia’s senior defence course at the Centre for Defence and Strategic Studies at
the Australian Defence College. In this capacity I worked with Senior Colonels from
Vietnam as course members. Later I served as an academic advisor to senior
Vietnamese officers who prepared two 10,000-word research essays.
In 2005, I returned to my position at the Australian Defence Force Academy and
simultaneously served as the Director for Regional Studies at the Australian Command
and Staff College (2006-07 and 2010). There I worked with middle ranking VPA
officers, including a hydrographer who served in the Spratly Islands.
In addition, I have also met regularly with Vietnam’s Defence Attaches in Canberra
participated in the annual 1.5 Track Australia-Vietnam defence dialogue and met with
staff at the Institute for Defence and International Relations in Hanoi.
On the basis of a decade working with VPA officers and their regional counterparts I
can unequivocally state that they embody the finest character of Vietnam’s culture
and identity. They worked hard to become fluent in English. They have an incredible
work ethic and always excelled in academic activities.
Question 3: In your opinion, why is the VPA often referred to as "Uncle Ho's soldiers"
in Vietnam?
ANSWER: Ho Chi Minh founded what is now the Vietnam Communist Party in 1930.
He declared Vietnam’s independence in 1945 and led the successful resistance to
French colonial rule and the American War until his death in 1969.
Ho Chi Minh lived a frugal life and served as a role model for the Vietnamese people
and combatants. He was called Uncle because of respect for his wisdom, age and
determination. The term “Uncle Ho’s soldiers” means walking in his footsteps to
sacrifice for the defence of Vietnam.
Question 4: According to the 2019 National Defense White Paper, the VPA is "an army
ready for combat, an army ready for work and an army ready for production" (page
78). What do you think about those fundamental functions of the VPA?
ANSWER: These three functions reflect the development of the VPA since it was
established in 1944. These functions are not static, they evolve over time to reflect
the actual situation that Vietnam faces.
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Question 5: Could you share your own thoughts about the VPA's contributions to the
liberation of Cambodia from genocide and Laos from foreign invasion in the past?
ANSWER: I personally visited Cambodia for the first time in August 1981 and returned
subsequently. In 1993, I was an official observer for the United Nations elections in
Cambodia.
From the moment the Khmer Rouge took power in Phnom Penh, Vietnam was the
victim of attacks on its offshore islands and its border villages. Vietnam’s retaliated in
1977 but the Khmer Rouge persisted in their aggression. In May 1978 a major revolt
took place in Cambodia’s Eastern Zone. It did not succeed and former Khmer Rouge
fled to Vietnam.
It was in these circumstances that Vietnam intervened in self-defence and to end the
genocidal rule of the Khmer Rouge. I have no doubt that if Vietnam had not intervened
many more Cambodians would have died either through execution or by the harsh
living conditions imposed by the Khmer Rouge. Vietnam would have been subject to
constant Khmer Rouge raids across its long western border.
Vietnam was also wise enough to create the conditions for the withdrawal of it troops
and to leave in place a government that could stand on its own in the face of Khmer
Rouge remnants inside the country.
During the so-called Second Indo-China War, American forces and CIA operatives were
based in Laos. The CIA built up a resistance force from among the Hmong ethnic
minority. This force continued to be active after December 1975 and threatened the
security of the Lao People’s Democratic Government (LPDR). In July 1977, Vietnam
and Laos signed a Treaty of Friendship and Cooperation which provided the basis for
Vietnam to provide international security assistance to the Lao military. This
assistance was successful and the LPDR remains the government of Laos today.
Question 6: From your perspective, why has Vietnam sent its troops to UN
peacekeeping missions since 2014? Which message does Vietnam wish to send to the
international community by this deployment?
ANSWER: When Vietnam first served as a non-permanent member of the United
Nations Security Council for the 2008-2009 term it drew the lesson that such
membership required a commitment to the UN’s role in maintaining world peace.
Vietnam studied very carefully all the risks, obligations and opportunities involved in
contributing to UN peacekeeping missions.
Vietnam sought and utilized the support of the international community to train its
forces up to UN standards.
Vietnam sent the message that it was a good international citizen and highly respected
the role of the UN and its mandate to conduct peacekeeping operations where
necessary.
Vietnam’s contribution to UN peacekeeping enhanced its prestige and international
reputation. Vietnam was the unanimous choice of the Asia Bloc in the UN General
Assembly as its candidate for a second term as non-permanent member of the UN
Security Council. Vietnam was elected by an overwhelming majority of the UN General
Assembly and served a second time from 2020-2021.
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Question 7: The VPA has continuously strengthened its bilateral and multilateral
defense partnerships. How is it relevant to Vietnam's "four no’s" defense policy?
ANSWER: Vietnam’s bilateral and multilateral defence partnerships form part of its
policy of diversification and multilateralization of external relations with the goal of
maintaining Vietnam’s independence, self-reliance and strategic autonomy. Vietnam
limits such cooperation to military training (diễn tập) rather than war fighting
exercises (tập trận). Vietnam thus enhances its military professionalism especially in
international defence cooperation and strengthens multilateral cooperation to
address common security challenges particularly under ASEAN’s leadership.
Vietnam’s “four no’s” defence policy ensures that Vietnam does not take part in major
power rivalry and poses no threat to any of its neighbours.
The 2019 Defence White paper, however, contained one caveat, “Depending on
circumstances and specific conditions, Viet Nam will consider developing necessary,
appropriate defence and military relations with other countries on the basis of
respecting each other’s independence, sovereignty, territorial unity and integrity as
well as fundamental principles or international law, cooperation for mutual benefits
and common interests of the region and international community.” In other words, it
is in the interest of all major powers to respect Vietnam’s “four no’s” defence policy.

Suggested citation: Carlyle A. Thayer, “Vietnam People’s Army Turns Eighty, 1944-
2024,” Thayer Consultancy Background Brief, November 24, 2024. All background
briefs are posted on Scribd.com (search for Thayer).
Thayer Consultancy provides political analysis of current regional security issues and
other research support to selected clients. Thayer Consultancy was officially
registered as a small business in Australia in 2002.
Contact: [email protected]