Una OUTER JOIN no funcionará aquí, porque no desea tener todos los elementos de la tabla 2, sino solo aquellos donde existe un elemento correspondiente en la tabla 1.
Te gustaría hacer algo como esto:
SELECT tbl1.province, tbl1.district, tbl1.commune, tbl1.village
FROM dbo.table2 AS tbl2
INNER JOIN dbo.table1 AS tbl1
ON tbl1.province = tbl2.province_id
AND tbl1.district = tbl2.district_id
AND (tbl1.commune is NULL OR (tbl1.commune = tbl2.commune_id))
AND (tbl1.village is NULL OR (tbl1.village = tbl2.village_id))
