A new mindset and vision in the two-tier local government model

In the process of building a socialist rule-of-law state of Vietnam, continuing to reform the organization and operation of local government toward a lean, effective, and efficient structure is a strategic and long-term requirement. In that spirit, the two-tier local government model is not only a technical solution for apparatus organization; but also represents a fundamental shift in mindset and vision in national governance, aimed at better serving the people and promoting fast and sustainable development.

Practical implementation of this model in many localities nationwide, including Dong Nai province, has already shown clear progress, generating positive impacts on the effectiveness of state management, administrative reform, and socio-economic development.

A move from a management mindset to a service-oriented approach

The policy of establishing a two-tier local government model is part of the broader set of key resolutions and conclusions of the Party Central Committee on the political system’s organizational structure toward lean, effectiveness and efficiency, strengthening decentralization and delegation of authority linked with power control, and developing a service-oriented public administration that places people and businesses at its center. The throughout directive spirit is to reduce intermediate layers, eliminate overlapping functions and tasks, and empower grassroots government where directly handles citizens’ affairs. This marks an important shift from an administrative management mindset toward developmental governance, and from a control-oriented approach to a service- and development-oriented one

Residents handle administrative procedures at the Dong Phu commune Public Service Center. Photo: Xuan Tuc.

Under the central guidance, Dong Nai, like other localities, has actively concretized these orientations into practical and innovative models suited to local conditions. In Bu Dang commune, for example, the Morning with the People model has become a vivid illustration of a proactive, close-to-people grassroots government under the two-tier model. It creates an open and direct dialogue between commune leaders and residents, enabling timely listening, and resolution of issues at the grassroots level. The model has quickly gained support and positive feedback from local residents after a short period of implementation

Nguyen Thi Le, a resident of Minh Hung hamlet in Bu Dang commune, shared that: “My family’s concerns over a land boundary dispute were directly received and clearly explained, addressed by the communal leadership. I find the Morning with the People model both meaningful and effective. Thanks to the enthusiasm of local leaders and their willingness to actively listen to citizens’ views and petitions, issues are resolved much more quickly, with fewer unnecessary intermediary steps.”

Alongside the changes in delivery of public services, digital transformation has become a key pillar enabling the two-tier model to function effectively in the new context. In Dong Phu commune, a major industrial hub in northern Dong Nai, the grassroots government have taken advantage of the two-tier model to accelerate the application of information technology in solving administrative procedures.

Ngo Sy Quyen, Deputy Director of the Dong Phu Public Service Center, said that: the Center publicly posts 399 administrative procedures delegated to the communal level by the central and the Provincial People’s Committee, ensuring transparency and convenience for residents and businesses. The commune’s throughout spirit is to place residents at the center of its service delivery. The results are clear: 100 percent of administrative outcomes are digitized; more than 93 percent of applications are submitted online; all fee- and charge-related payments are processed electronically; and nearly all cases are resolved ahead of schedule.

These figures reflect not only the efforts of Dong Phu commune government but also the growing familiarity of citizens with the digital environment, and they demonstrate the effectiveness of decentralization combined with digital transformation under the two-tier model.

Experience at the grassroots shows that when the apparatus is streamlined, authorities are clearly defined, responsibilities are attached to the heads of agencies, and digital technologies are strongly applied, governments at levels have become more proactive in management, promptly addressing difficulties faced by residents and businesses, and mobilizing development resources

A new driver for sustainable development

Under the two-tier local government model, the provincial level focuses on strategic planning, policy-making, and coordinating resources to drive development, while the grassroots level directly delivers services to residents and businesses efficiently and promptly. This clear division of responsibilities helps reduce overlap, eliminate “ask-and-grant” mechanism, and shorten administrative processes. This is also a necessary requirement when many localities, including Dong Nai, implement numerous national priority projects and attract significant investment, requiring a transparent, efficient, and responsive administrative environment.

In reality, Dong Nai shows that the two-tier model not only improves the quality of public services but also provides a strong drive for socio-economic development, enhances the investment climate, and strengthens local competitiveness. The Dong Nai Provincial People’s Committee’s 2025 socio-economic report shows many positive points: GRDP reached nearly VND 678 trillion, up 9.63%, surpassing the government’s target of 8.5%, leading the Southeast region and ranking seventh nationwide. These results reflect the decisive leadership of the Provincial Party Committee, the People’s Council, and the People’s Committee, the concerted efforts of departments, sectors and localities, and the proactive and innovative spirit of the business community.

This is a vivid testament of the broader impact of the new governance mindset  and vision promoted following the guidance of the Central leadership, including the effective implementation of the two-tier local government model in combination with administrative reform, digital transformation, and improved public service quality.

Continuing to follow the Central directives, at the 8th session of the 10th Provincial People’s Council, Comrade Nguyen Van Ut, Deputy Secretary of the Provincial Party Committee and Chairman of the Provincial People’s Committee, emphasized that: the province will continue reviewing and adjusting decisions on decentralization, devolution, and delegation to suit the practical conditions of each locality, particularly communes and wards with high urbanization rates, ensuring the “six clarities”: clear personnel, clear tasks, clear timelines, clear responsibilities, clear outputs, and clear authority.

In addition, the Provincial People’s Committee will strengthen specialized training and capacity building for communal officials and civil servants; prioritize investment in office facilities, equipment, and digital infrastructure; and enhance the operational support role of provincial departments and sectors during the period when localities assume new responsibilities

The province will periodically review and summarize the implementation of decentralization and devolution, and promptly propose to the Central government any necessary adjustments to regulations, ensuring that the two-tier local government model operates effectively and substantively

The policy on streamlining the administrative apparatus, along with decentralization and devolution, will help bring government closer to the people, save public funds, and enhance management efficiency. To ensure the two-tier local government model delivers sustainable results, particular attention must be given to training grassroots officials in modern governance skills, investing in digital infrastructure, reforming administrative procedures, and strengthening oversight by citizens and the Vietnam Fatherland Front.

The two-tier local government model is producing positive ripple effects not only in Dong Nai, but also across other localities nationwide and contributing to the country’s overall socio-economic development. In the national context of 2025, these positive outcomes continue to confirm the soundness of major policies on administrative restructuring, administrative reform, and strengthening governance effectiveness and efficiency. Macroeconomic fundamentals remain stable, major balances are maintained, economic growth continues on a positive trajectory, the investment and business environment is improving, and significant progress has been made in digital transformation and administrative procedure reform. People’s living standards are gradually rising, national defense and security remain secure, and Vietnam’s position and reputation on the international stage continue to be reinforced.

It can be affirmed that the two-tier local government model represents a crucial shift in thinking and vision in national governance. From the central directives to tangible implementation at the grassroots, this model is proving its validity and suitability to the country’s developmental needs in the new era, contributing to the establishment of a modern, effective, and efficient public administration that truly serves the people.

By Ho Thao, Xuan Tuc - Translated by Thu Hien, Thu Ha