Two-tier local government model: From expectations to operational challenges (Part 1)

Nearly one year after its nationwide implementation, the two-tier local government model has gradually demonstrated its effectiveness in reforming the organizational structure and governance methods of local administrations.

Streamlining the administrative apparatus, promoting decentralization and delegation of authority, and enhancing grassroots autonomy have not only improved the effectiveness and efficiency of governance, but also created new demands regarding governance capacity, the quality of public servants, and the adaptability of administrative systems amid emerging development requirements.

Residents perform administrative procedures at the Dong Nai City Public Administration Service Center. Photo: Hoang Loc

Within this context, Dong Nai has emerged as one of the localities showing clear momentum in transformation, both demonstrating the initial effectiveness of the model and reflecting new demands placed upon the two-tier government system.

Part 1: Foundation for sustainable development

Since Dong Nai officially became a city on April 30, 2026, the effective operation of the two-tier local government model has become not only a requirement for improving the administrative structure, but also an important foundation for building a modern and professional urban governance model capable of meeting the development demands of a new growth pole.

Initial implementation results have shown that the model is opening up new expectations for Dong Nai to further improve governance efficiency, streamline its administrative apparatus, and strengthen the foundation for sustainable development in the new era.

Changes begin at the grassroots level

Initial changes can be clearly seen in the settlement of administrative procedures at the grassroots level. At the Public Administrative Service Center in Dai Phuoc Commune, notarization and authentication procedures now take only around 10 minutes to complete. The process has been significantly shortened thanks to deeper decentralization and a more streamlined organizational structure with clearer responsibilities and closer engagement with the public.

Phan Chi Thao, Vice Chairman of Dai Phuoc Commune People's Committee, emphasized that the locality has identified the building of a service-oriented administration, with public satisfaction serving as the highest benchmark. On that basis, the commune has implemented comprehensive administrative reforms tailored closely to practical realities.

Cadres of the Dong Nai City Land Registration Office are processing documents for citizens. Photo: Hoang Loc

Among the most notable initiatives is the expedited on-site processing and immediate return of results for high-volume procedures, particularly authentication, which accounts for approximately 70% of all applications. Since March 2026, delegating authentication authority directly to the Director of the Public Administrative Service Center has significantly streamlined the process, reduced processing time, and increased grassroots autonomy.

At the same time, the locality has launched an online public administrative support team via Zalo groups, enabling residents to receive guidance, consultations, and submit applications remotely through images or digital support software. In the first quarter of 2026 alone, the channel handled more than 400 support requests.

The implementation of the two-tier local government model in Dong Nai extends beyond Dai Phuoc Commune. Across the city, various innovative approaches have been introduced to improve public services. Notably, the expansion of administrative application acceptance regardless of administrative boundaries now allows residents to submit applications at any commune-level public administrative service center. In addition, the police force has organized 45 locations for issuing and renewing citizen identification cards and digital identity accounts directly at the grassroots level. Many localities have mobilized youth union members and students to assist residents in using online public services, while mobile administrative teams have been deployed to villages and hamlets to receive and process procedures on-site. Furthermore, the classification of applications based on priority levels, flexible working arrangements including after-hours services, and stronger application of information technology have all contributed to making administrative procedures faster and more transparent.

These changes demonstrate an important transformation in Dong Nai: the two-tier local government model is not merely streamlining the administrative apparatus, but fundamentally changing how grassroots authorities operate — shifting from simply following procedures to serving residents more quickly and effectively.

Streamlining apparatus, changing governance methods

Beyond procedural reforms, Dong Nai has also comprehensively disseminated and implemented new regulations while accelerating decentralization and delegation of authority to grassroots levels, with more than 500 tasks transferred to specialized agencies and commune-level People’s Committees. This has shortened processing procedures, reduced intermediate layers, and increased grassroots autonomy in handling daily administrative matters.

Residents are guided on administrative procedures at the Public Administration Service Center of Long Thanh Ward. Photo: Ho Thao

According to City Party Committee member, Director of the Department of Home Affairs Nguyen Huu Dinh, the city has also restructured personnel arrangements by strengthening staffing at the grassroots level. Hundreds of city-level officials and civil servants have been reassigned or seconded to communes and wards to support the heavy workload during the initial phase of implementing the new model. As a result, grassroots administrative systems have gradually stabilized, work-processing capacity has improved, overload situations have been reduced, and interruptions in administrative services have been avoided.

Organizational restructuring has also been implemented comprehensively and has already yielded clear results. Following the restructuring, the city-level administration now consists of 14 departments and one administrative organization, reducing specialized agencies by 50%. The number of specialized divisions has fallen by more than 45%. At the commune level, 95 communes and wards have been reorganized with 380 specialized divisions and public administrative service centers, while more than 1,200 public service units continue to operate stably.

Speaking at the conference reviewing one year of operating the two-tier local government model held on May 8, Deputy Secretary of the City Party Committee, Chairman of the City People’s Committee Nguyen Van Ut stated that despite numerous unprecedented challenges, Dong Nai has basically fulfilled all key requirements thanks to strong political determination. The administrative apparatus has gradually operated more smoothly, maximizing the benefits of streamlining, reducing intermediate layers, enhancing grassroots autonomy, and improving the quality of administrative services for residents and businesses. This, he noted, serves as the foundation for a more service-oriented and effective governance model.

After nearly one year of implementation, Dong Nai has demonstrated the rapid adaptability of its new administrative system. The model has gone beyond organizational streamlining to create substantial changes in governance methods, service quality, and grassroots autonomy.

The reform outcomes are also reflected in various governance indicators. Dong Nai achieved a PAR INDEX score of 93.1% in 2025, ranking third among 34 provinces and cities nationwide. Compared to 2024, when the country had 64 provinces and cities, the locality rose five places from eighth to the national top tier. Meanwhile, the SIPAS index in 2025 reached 87.16%, also ranking third out of 34 provinces and cities nationwide, representing an increase of 42 places compared to 2024 (when the country had 64 provinces and cities). These improvements not only reflect higher scores, but also indicate growing satisfaction among residents and businesses in the actual operation of the system.

Nguyen Thi Tra, a resident of Long Binh Ward, said that since the implementation of the two-tier local government model, administrative procedures have become significantly faster and more convenient. Residents no longer have to travel through multiple administrative levels as before. Processing times have been substantially shortened, and procedures have become more transparent and accessible. Most importantly, grassroots authorities have become more proactive in addressing practical public needs.

Dong Nai is also accelerating the development of digital administration and digital government to meet the requirements of modern urban governance. Since implementing the two-tier local government model, the locality has invested hundreds of billions of VND in upgrading information technology infrastructure, online meeting systems, data centers, and digital governance platforms. More than VND42 billion has been invested specifically in equipment for public administrative service centers to improve service quality and public accessibility to online public services.

These developments are also reflected in the broader socio-economic picture. In 2025, Dong Nai recorded GRDP growth of 9.63%, the highest level in the past decade, while state budget revenue exceeded VND100 trillion for the first time. In the first quarter of 2026, growth momentum continued with GRDP expanding by 9.76%, ranking seventh nationwide and leading the Southern region. The locality also attracted more than VND15.5 trillion in domestic investment and over USD1.1 billion in foreign direct investment (FDI).

Overall, after nearly one year of implementing the two-tier local government model, Dong Nai has demonstrated an important transformation not only in organizational structure, but more profoundly in governance methods and administrative mindset.

However, the practical operation of the model is also presenting new challenges as workload pressure increasingly shifts to the grassroots level, while organizational capacity, human resources, and adaptability remain uneven among localities. This transition raises the next critical question for the two-tier local government model: how to ensure decentralization goes hand in hand with effective implementation, so that grassroots authorities are not only geographically closer to the people, but also more responsive and proactive in addressing issues arising from reality.

By Ho Thao - Translated by Mai Nga, Thu Ha