Two-tier local government model: From expectations to operational challenges (Part 3)

PART 3: REMOVING BOTTLENECKS FOR EFFECTIVE OPERATIONS

After more than one year of implementing the two-tier local government model, alongside the positive outcomes already proven in practice, the operation of the system in many localities has also revealed several difficulties and obstacles that need to be addressed to ensure the apparatus functions in a synchronized, effective and sustainable manner.

Initial challenges are inevitable in the transition to a new governance model, especially as Dong Nai is a vast area experiencing rapid urbanization, with numerous national key projects underway and mounting pressure from mechanical population growth. These factors place increasingly high demands on grassroots authorities after decentralization, requiring the system to quickly adapt in terms of organization, personnel and governance capacity.

Practical bottlenecks emerge

Recently, Dong Nai City organized a preliminary review and comprehensive evaluation of the administrative unit rearrangement and the implementation of the two-tier local government model after one year of operation. The review process was conducted seriously and objectively, with the spirit of accurately reflecting reality and avoiding formality or “achievement-oriented” reporting. It also clarified achievements, limitations, causes and lessons learned in order to propose appropriate solutions for the 2026-2030 period.

Residents come to complete administrative procedures at the Public Administration Service Center of Tran Bien Ward. Photo: Ho Thao

At Tran Bien Ward, Deputy Secretary of the Ward Party Committee, Chairman of the Ward People’s Committee Nguyen Duy Tan said that administrative procedure settlement had improved significantly since the implementation of the two-tier local government model. The ward established a public administrative service center, invested in infrastructure and arranged sufficient personnel to serve residents and businesses. As a result, despite having a large population, the rate of on-time administrative processing exceeded 98 percent. Expanded decentralization and delegation of authority have also accelerated work processing, reduced intermediate steps and increased proactiveness in urban management.

However, according to Tan, one of the biggest current difficulties is personnel management after administrative mergers. Since most officials were transferred from former localities, professional qualifications and expertise remain uneven across departments. Meanwhile, although the organizational structure has been streamlined and the number of units reduced, workloads have increased due to the integration of multiple sectors, placing significant pressure on specialized staff. Some newly assigned tasks or areas previously not handled at ward level still create uncertainty during implementation.

Officials and civil servants of Long Thanh Ward Public Administration Service Center are resolving administrative procedures for people. Photo: Ho Thao

Similarly, Deputy Secretary of the Party Committee and Chairman of Long Thanh Ward People’s Committee Le Hoang Son noted that the two-tier local government model has helped reduce intermediary administrative layers, enabling local authorities to respond more quickly to practical issues, especially in urban order management, infrastructure development and implementation of major projects. As Long Thanh is currently home to numerous key infrastructure and transportation projects, demands related to documentation processing, planning, land management and urban administration have risen sharply.

Alongside the increasing workload, the locality is also facing pressure regarding specialized personnel, particularly in land administration, urban planning and infrastructure management. According to Son, arranging appropriate staffing to meet the requirements of national key projects remains difficult. The locality has proposed increasing staffing quotas based on job positions and introducing special support policies for officials working in strategic areas to help retain qualified personnel and ensure stable, long-term operation of grassroots authorities.

Residents are supported and guided by officials and members of the Long Thanh Ward Public Administration Service Center when coming to complete administrative procedures. Photo: Ho Thao

Meanwhile, in the border commune of Loc Thanh, implementing digital government and online public services still faces difficulties due to the large geographic area, scattered population and the fact that more than 33 percent of residents belong to ethnic minority groups. Local leaders said that many residents are still unfamiliar with digital platforms and have limited technological skills. Telecommunications infrastructure in some remote and border areas is also occasionally unstable, making access to online public services less convenient. According to local authorities, deploying online public services is not only a matter of technology, but also depends on infrastructure conditions, education levels and local living habits. Therefore, flexible and practical solutions are needed for remote and border regions to help residents access public services more easily.

In addition to these localities, many other communes and wards reported that difficulties stem not only from human resources, but also from technical infrastructure, information technology systems and operational mechanisms. Some decentralization regulations remain overlapping or lack detailed guidance, causing confusion during implementation. The lack of synchronization and data integration among software systems also affects work processing speed and the quality of services provided to residents and businesses.

Practical operations at the grassroots level show that many current difficulties mainly arise during the initial transition stage, when authority is strongly decentralized to commune-level administration while organizational structures, personnel and technical infrastructure still need more time for comprehensive improvement.

Completing the model for sustainable operation

At the recent conference reviewing one year of operating the two-tier local government model, Member of the Standing Board of the City Party Committee (CPC), Head of the CPC’s Information, Education and Mass Mobilization Commission Duong Minh Dung stated that surveys of public opinion showed officials, Party members and residents highly appreciated the positive changes brought about by the model in streamlining the apparatus, reducing intermediary levels and improving governance and management efficiency. This is considered an important step forward in reforming the political system’s organizational apparatus toward becoming closer to the people and more responsive to grassroots realities.

Residents come to complete administrative procedures at the Dong Nai City Public Administration Service Center. Photo: Ho Thao

However, many opinions also expressed concerns about potential overload among commune-level officials; difficulties related to travel, accommodation and working conditions for officials in remote areas; and disparities in staff quality among localities and administrative levels. According to Duong Minh Dung, if these issues are not resolved soon, they could affect the effectiveness of grassroots administrations and become obstacles to development.

After nearly one year of implementing the two-tier local government model, Dong Nai City has basically fulfilled the proposed requirements. The apparatus has gradually operated more smoothly, promoting streamlined efficiency, reducing intermediary layers and improving the quality of administrative services for residents and businesses.

Nguyen Van Ut, Deputy Secretary of the City Party Committee, Chairman of the City People's Committee

Nevertheless, Chairman of the City People’s Committee Nguyen Van Ut candidly acknowledged that several limitations still need to be addressed. Coordination between departments and localities has at times lacked synchronization. In some areas, officials have not fully met task requirements, while shortages of highly specialized personnel have occasionally affected advisory quality. Information technology infrastructure, data connectivity and digital transformation conditions in certain localities also remain inconsistent, impacting work processing speed and service quality for residents and businesses. These difficulties require all levels and sectors to continue reviewing and improving the model to ensure more effective operation in practice.

Deputy Secretary of the City Party Committee, Chairman of the Dong Nai City People's Committee Nguyen Van Ut visits and inquires about people when they come to complete administrative procedures at the City Public Administration Service Center. Photo: Cong Nghia

Not only in Dong Nai, but during recent socio-economic discussions of the 16th National Assembly, many deputies also stated that the two-tier local government model is the right direction for streamlining the administrative system and improving public services, although “bottlenecks” related to personnel, mechanisms and infrastructure still need to be resolved.

Based on these realities, on April 21, 2026, Deputy Prime Minister Pham Thi Thanh Tra signed a plan to review one year of administrative unit restructuring and operation of the two-tier local government model. The plan requires ministries, sectors and localities to comprehensively and objectively evaluate the effectiveness of the new model, clarify achievements and identify difficulties arising during implementation, especially regarding the arrangement and utilization of commune-level officials and civil servants after restructuring. At the same time, authorities are required to review decentralization efficiency, digital transformation infrastructure and service quality in order to propose improvement solutions for the 2026-2030 period. The Central Steering Committee is scheduled to organize a preliminary review before June 20, 2026.

Acknowledging existing shortcomings and operational difficulties is not meant to deny the achievements already attained, but rather to continue refining the two-tier local government model toward greater efficiency and effectiveness. Practical experience after more than one year of implementation has shown that alongside political determination, gradual improvements in mechanisms, personnel and infrastructure will be crucial for ensuring the model’s sustainable effectiveness and meeting Dong Nai’s demand for rapid and modern development in the new period.

By Ho Thao - Translated by Mai Nga, Thu Ha