The implementation of the two-tier local government model represents a concrete step in realising the Party’s major policy on reorganising the state apparatus, with the aim of building a modern, service-oriented administration centred on the people. The significance of this model extends beyond reducing intermediate layers or improving administrative efficiency; it also reflects a clear shift in thinking on social governance, particularly in the context of uneven development across regions.
For ethnic minority areas, where socio-economic conditions remain challenging and access to public services and information is still limited, restructuring the government apparatus towards a streamlined and people-oriented model is of particular practical importance. This is not merely an administrative solution but also a significant step towards ensuring citizens’ access to policies, narrowing development gaps, and strengthening public trust in the leadership of the Party and the State.
Theoretical foundations and the Party’s sound orientation
The Party’s policies on reforming and reorganising the local government apparatus towards a streamlined, effective and efficient structure stem not only from the practical requirements of national development but are also deeply rooted in the thought of President Ho Chi Minh on building a truly administration of the people, by the people and for the people. Throughout the revolutionary process, President Ho Chi Minh consistently attached great importance to grassroots authorities, viewing them as the level closest to the people, directly connected to their lives, and the clearest reflection of the nature of the regime.
According to President Ho Chi Minh, a proper state apparatus must “respect the people, stay close to the people, understand the people and be accountable to the people”. He repeatedly criticised cumbersome, bureaucratic systems detached from reality, considering them among the causes of reduced governance effectiveness and diminished public trust. Therefore, he called for a streamlined organisational structure with clearly defined functions and responsibilities, avoiding overlap, while ensuring that every cadre and civil servant truly serves as a “public servant of the people”, placing service to the public as the highest objective.
From this perspective, the current reform of the local government apparatus towards streamlining is not merely an administrative adjustment but also a consistent continuation and development of President Ho Chi Minh’s thought under new conditions. Reducing unnecessary intermediate layers, strengthening direct interaction between authorities and citizens, and enhancing accountability at each level are concrete manifestations of translating the principle of “closeness to and service for the people” into state governance.
Notably, in ethnic minority regions where access to information and public services remains limited, President Ho Chi Minh’s philosophy of caring for people’s livelihoods and ensuring that no one is left behind carries even greater significance. Streamlining and improving the effectiveness of the government apparatus not only enhances service quality but also facilitates easier access to policies for local communities, thereby safeguarding legitimate rights and improving living standards. This is a vivid realisation of his vision of a state that genuinely serves the interests of the people, particularly vulnerable groups in society.
Resolution No.18-NQ/TW of the 6th plenum of the 12th Party Central Committee marks a particularly important milestone, clearly reflecting the Party’s innovative thinking in this field. The core principle is that organisational reform must go hand in hand with reform of governance methods, ensuring that a streamlined structure is not only leaner in form but also stronger in operational quality.
This means that streamlining is not about mechanical cuts, nor about diminishing the role of grassroots authorities. Rather, it aims to address long-standing shortcomings in organisation and administration, enabling each level of government to fully perform its functions and responsibilities, enhance proactiveness and accountability, and improve policy responsiveness to issues arising in practice. This spirit was reaffirmed at the 13th National Party Congress, which clearly set out the requirement to build a socialist rule-of-law state in Viet Nam that is “streamlined, effective and efficient, serving the people and advancing national development”.
This represents an important advancement in the Party’s theoretical thinking on the organisation and exercise of state power, placing greater emphasis on the service-oriented nature of public administration, with people at the centre and practical effectiveness as the key measure. Accordingly, organising local government in a more rational manner—reducing unnecessary intermediate layers and strengthening direct interaction between authorities and citizens—is an objective requirement, consistent with the trend of modern governance.
Therefore, the two-tier local government model can be seen as a concrete manifestation of the Party’s broader policy on continuing to reform the state apparatus. Its implementation reflects a clear effort to ensure a more streamlined, accountable, people-oriented and effective administrative system. Particularly in ethnic minority regions where infrastructure, transport and access to information and public services remain limited, this restructuring carries tangible significance. It not only shortens the administrative distance between authorities and citizens but also enhances access to policies, safeguards legitimate rights, strengthens public trust, and reinforces the great national unity bloc.
It can be affirmed that the Party’s major orientations on reorganising the state apparatus not only provide the political and theoretical foundation for implementing the two-tier local government model but also offer a sound basis for assessing its practical significance. This is a step aligned with the country’s evolving development requirements, clearly demonstrating the Party’s resolve for innovation, scientific thinking, and consistency in leadership, particularly in the goal of building an administration that truly serves the people, stays close to the people, and continuously improves the quality of public service.
Positive changes in the lives of ethnic minority communities
The recent implementation of a two-tier local government model has not only signified an institutional reform but has also brought about tangible improvements in the socio-economic lives of ethnic minority communities. These changes are evident in three key aspects: enhanced grassroots governance, improved access to public policies, and overall improvements in living standards.
Firstly, in terms of governance and administration, the streamlining of the organisational apparatus has helped address overlapping functions and reduce intermediary layers, thereby strengthening the proactiveness and accountability of grassroots authorities. With shortened decision-making and implementation processes, local governments are better positioned to respond swiftly to emerging issues, particularly in ethnic minority regions where geographical conditions are challenging and administrative distances are considerable. This aligns with modern governance trends that emphasise flexibility, efficiency, and a people-centred approach.
Secondly, regarding access to and the benefits of public policies, the new model has facilitated the more rapid and practical implementation of Party and State policies. Previously, fragmented administrative structures and prolonged procedures often delayed the delivery of support policies to citizens. However, with a more streamlined system, grassroots authorities now play a more prominent role in directly bringing policies to the people. Well-designed policies targeting ethnic minority communities have significantly improved both material and spiritual well-being, gradually narrowing regional development gaps.
According to the General Statistics Office of Viet Nam, poverty rates in northern mountainous provinces have declined markedly in recent years, reflecting the effectiveness of socio-economic development policies for ethnic minority areas (GSO, 2023). This indicates that improved governmental efficiency translates into more effective policy implementation. In addition, international assessments have also recognised improvements in public governance quality at the local level in Viet Nam.
A report by UNDP Viet Nam on the Provincial Governance and Public Administration Performance Index (PAPI) shows that many localities have made progress in areas such as transparency, accountability, and citizen participation (UNDP, 2022). These improvements are particularly meaningful for ethnic minority regions, where access to information and public services was previously limited.
According to the Committee for Ethnic Minority Affairs, the synchronised implementation of ethnic policies, combined with reforms in local government organisation, has gradually narrowed development gaps between ethnic minority and lowland regions, while significantly improving both material and spiritual living conditions (CEMA, 2023). Beyond economic indicators, changes are also reflected in the growing proactiveness of citizens in community development activities, increased awareness, and strengthened trust in government.
Practical evidence from provinces such as Ha Giang and Son La further demonstrates the effectiveness of this model. In Ha Giang, the reorganisation of the administrative apparatus, coupled with decentralisation, has enabled the swift and targeted implementation of livelihood support policies, preferential loans, and technology transfer in production.
In Son La, administrative reforms alongside organisational restructuring have shortened the time required to process procedures, facilitating better access to public services for residents in remote and mountainous areas. These changes have not only improved living conditions but have also fostered stronger public trust in the authorities.
More importantly, improvements in socio-economic conditions have led to shifts in awareness and social psychology among ethnic minority communities. When people clearly perceive the government’s practical support and attention, they are more willing to participate actively in development programmes and strengthen their trust in the Party and State’s policies. This trust forms a crucial foundation for reinforcing national unity, ensuring socio-political stability, and driving sustainable development.
The two-tier local government model has increasingly affirmed its role as a key driver of positive and comprehensive change in ethnic minority areas.
HZiep Buon Krong, Vice Chairman of the Fatherland Front and Chairman of the Farmers’ Association of Dak Lieng Commune (Dak Lak Province), stated that the policy of merging local government units under the two-tier model is a sound step, aligned with the need to reform the political system towards greater efficiency and effectiveness.
Since its implementation, the policy has generated many positive changes at the grassroots level. Following the reorganisation of administrative units and the operation of the two-tier government model, the new Dak Lieng Commune was formed through the merger of three communes, with a population of over 22,800 people across 38 villages and hamlets.
The total staffing has been reduced from 73 to 66, cutting seven positions. The number of part-time personnel has decreased significantly, from 40 to just three. Agencies have been reorganised more rationally, reducing overlapping functions. The screening and reassignment of officials have enabled the selection of more capable and responsible personnel. Recurrent expenditure has been reduced, freeing up additional resources for development investment. The efficiency of public service delivery has improved as administrative procedures are gradually simplified and processing times shortened, while transparency and accountability at the grassroots level have been strengthened.
For ethnic minority communities, the streamlining of the government apparatus is particularly significant. It improves access to policies, ensures that information is delivered more quickly and clearly, and enhances service quality in remote areas as officials are better allocated, more capable, and closer to the people.
When government operations become more effective, programmes supporting production and poverty reduction are implemented more efficiently, increasing opportunities for economic development. Notably, it also contributes to preserving cultural identity, as improved living standards allow communities to pay greater attention to traditional culture. This, in turn, strengthens people’s trust in the Party and State and motivates ethnic minority communities to participate more actively in local development.
Lieutenant Colonel Dinh Hong Le, Deputy Chief of Police of Dak Long Commune, Quang Ngai Province, observed that following the implementation of the two-tier government model, the most noticeable positive impacts have been seen in mountainous communes.
Specifically, infrastructure development (electricity, roads, schools, health stations) has improved in quality; social policies have received greater attention; access to public services has become more convenient and of higher quality; ethnic minority communities now have greater development opportunities; and public trust in the Party has been further reinforced.
Quang Ngai is a relatively poor province, with many mountainous communes still facing socio-economic difficulties. Streamlining the administrative apparatus is expected to generate new resources and advantages. By focusing budget investment on economic development in areas where the province has comparative strengths, improving trade connectivity, and enhancing links with economic centres, a foundation for sustainable development can be established.
This also provides an opportunity for mountainous communes to leverage their strengths in geography, climate, and culture to develop their economies and narrow regional disparities. Quang Ngai is developing Mang Den into an ecotourism destination, building the brand of Ngoc Linh ginseng, and focusing on the cultivation of industrial crops such as coffee, rubber, tea, and durian in communes including Dak Ha, Bo Y, and Dak Long.
Lessons learned from several ethnic minority localities indicate the need to continue improving the capacity of grassroots officials, particularly in ethnic minority areas; promote the application of information technology and digital transformation in governance and public service delivery; strengthen monitoring and evaluation to ensure policies reach the right beneficiaries and achieve their intended objectives; further refine institutional frameworks to ensure the stable and long-term operation of the two-tier government model; place people at the centre of all governmental activities; and adopt flexible, creative approaches tailored to local conditions.
These lessons suggest that, for the Party’s sound policies to be effectively translated into practice, further clarification of decentralisation and delegation mechanisms is required. At the grassroots level, increased investment in infrastructure and equipment, the acceleration of digital transformation, and the development of integrated data systems are essential to enhancing governance effectiveness.
Preventing hostile forces from distorting the Party’s policies
Despite certain persisting difficulties following the initial implementation such as a lack of synchronisation and specificity in some higher-level guiding documents causing confusion in execution, inadequate facilities and equipment, outdated machinery, increased workload amid reduced staffing, and incomplete standards for officials, particularly at village and hamlet levels—these challenges have only partially affected the efficiency of the new model’s operation. The achievements attained, however, are undeniable. The Party has consistently demonstrated its willingness to candidly assess shortcomings and make continuous adjustments in policy implementation.
Taking advantage of these issues, certain hostile forces have advanced false and distorted narratives aimed at undermining the significance of streamlining the two-tier local government apparatus, with particular focus on ethnic minority areas. They argue that reducing intermediary levels would make the government “more distant from the people”, “less effective in service delivery”, or even “neglect ethnic minority regions”. Such claims are not only devoid of scientific basis but also run counter to the objective realities observed across many localities.
It must be clearly affirmed that streamlining the organisational apparatus does not equate to diminishing the role of government, nor is it a mechanical reduction of administrative tiers. The essence of this policy lies in restructuring the system to be more rational and efficient, eliminating unnecessary intermediary steps, and clarifying the responsibilities of each level and agency, thereby enhancing overall effectiveness. Previously, multiple layers could lead to buck-passing and delays; now, with a restructured system, shortened processes, and clearer accountability, authorities are better positioned to remain close to the people and serve them more effectively.
Vivid and effective practices in ethnic minority regions have convincingly refuted these distorted claims. Streamlining the apparatus in tandem with strengthened decentralisation and delegation has empowered grassroots authorities to respond more proactively to emerging issues, accelerate policy implementation, and improve citizens’ access to public services. Tangible improvements in the socio-economic conditions of ethnic minority communities, from poverty reduction and infrastructure development to enhanced education and healthcare, serve as the clearest evidence of the policy’s effectiveness. Practice is not only the measure of truth but also the most compelling rebuttal to all forms of distortion and misrepresentation.
It should also be recognised that narratives denying the achievements of administrative reform are not merely the result of misperception. In many cases, they are politically motivated attempts to erode public trust in the Party and the State. By exploiting localised difficulties and exaggerating temporary limitations, these forces seek to sow doubt and divide the great national unity bloc. However, the history of Viet Nam’s revolution has repeatedly demonstrated that any policy rooted in the interests of the people and validated through practice possesses enduring vitality and gains broad societal consensus.
In this context, correctly identifying and resolutely countering erroneous viewpoints is not only an ideological requirement but also a crucial political task to safeguard the Party’s ideological foundation. This struggle must be conducted not merely through argument, but above all through practical outcomes—through tangible improvements in people’s lives, clearer advances in governance effectiveness, and the increasingly strengthened trust of the people, particularly among ethnic minority communities.
It can be affirmed that the two-tier local government model, far from making authorities “distant from the people” as alleged, is in fact bringing government closer to the people and enabling more practical service delivery. Such closeness is a prerequisite for building a truly people-oriented administration, and a solid foundation for reinforcing the great national unity bloc—the decisive force behind all victories of Viet Nam’s revolution.
Practical evidence in ethnic minority regions clearly demonstrates the effectiveness of this model: a streamlined administrative apparatus, shortened procedures, improved access to policies, and gradual improvements in socio-economic conditions. More importantly, these changes have strengthened public trust in the leadership of the Party and the State, while enhancing the bond between the Party and the people—the firm foundation of national unity.
Amid ongoing distortions and attempts to deny the significance of administrative streamlining, these concrete and vivid outcomes at the grassroots level provide the most convincing evidence to refute erroneous claims. This once again affirms that all Party policies, when grounded in the interests of the people and implemented in line with practical realities, possess enduring vitality and win broad public support.
It is therefore evident that continuing to refine and enhance the effectiveness of the two-tier local government model is not only a requirement of administrative reform but also a key task in building a socialist rule-of-law state, improving national governance quality, and ensuring sustainable development. At the same time, it represents a practical pathway to realising the principle of “placing the people at the centre”, thereby strengthening the great national unity bloc—the decisive factor in all achievements of national construction and defence in the new era.
