Behind these territorial and organizational transformations lies a far-reaching movement, as every cadre must adapt to new positions and duties; grassroots-level administrations are vested with greater authority while concurrently shouldering heightened accountability; and administrative methods and public service delivery are progressively evolving. Practical realities from the grassroots level demonstrate that the one-year operational journey of the new model from “restructuring” to “operation” has unlocked a responsive, proactive governance approach close to the people, creating fresh development momentum.

Part 1: Navigating a major restructuring

From 129 commune-level administrative units reduced to 45 communes and wards; from a three-tier apparatus to a two-tier governance model - the change was first visible on the administrative map. Yet for cadres and citizens alike, this restructuring materialized in longer commute routes, new workplaces, and disruptions in daily routines. After one year, behind the new boundary lines lies an extensive adaptation across both administrative machinery and grassroots-level life.

New boundaries

At 6:00 AM, Nguyễn Thị Lý leaves her home in the center of Mường Ảng commune to start a new working day in Mường Lạn commune. Previously, her workplace was less than 1km from home. Following administrative restructuring, her working locality changed, extending her commute to more than 30km. In the early days, this change upended her family life. Commute times increased, requiring daily schedules to adjust accordingly. Yet gradually, like many other cadres and civil servants, she adapted to her new workplace. “In the beginning, it was inconvenient. Traveling further meant altering family routines. But over time, I became accustomed to it. What matters most is adapting to new job requirements,” Lý shared.

Nguyễn Thị Lý’s transition represents a small snapshot within Điện Biên’s large-scale administrative reorganization. Effective July 1, 2025, in implementing the two-tier local governance model, 129 commune-level administrative units across the province were reorganized into 42 communes and 3 wards; 84 units were restructured, representing a reduction of roughly 65.1%. Concurrently, the district tier ceased operations, and local governance was structured under a two-tier framework. On maps, new boundaries were established by resolution. Yet behind them lies an expansive administrative jurisdiction, where geographic distances between residential areas and administrative centers have lengthened in many parts; headquarters, office spaces, living quarters for cadres, and operational methods across the apparatus have all had to adapt.

Sín Thầu commune was established by merging three former communes: Sín Thầu, Sen Thượng, and Leng Su Sìn. It is the province’s largest commune by land area following the restructuring, situated over 230km by road from the provincial administrative center, encompassing 21 villages and more than 6,100 residents belonging to four ethnic groups. Immediately after the merger, nearly 100 cadres, civil servants, and part-time workers had to operate in cramped physical conditions. The old headquarters was repurposed and partitioned into seven temporary working rooms for more than 50 people. Meetings gathering over 25 participants required borrowing the school’s multi-purpose hall. Furthermore, the commune lacked official public housing. Over 60 cadres had to commute 18-30km daily. Because surrounding areas offered few rental properties, many were forced to take midday rests right at their desks.

Lưu Bá Thượng, working at the Office of the People’s Council and People’s Committee of Sín Thầu commune, shared: “Our current working conditions are truly challenging, with hot weather and cramped, stuffy offices. Nevertheless, we remain determined to keep the administrative machinery running smoothly, ensuring work is not disrupted and residents do not have to wait.”

In Quảng Lâm, post-merger hurdles are evident in both working conditions and physical distances. The new commune was unified from Quảng Lâm and Na Cô Sa, yet the former headquarters lacked adequate floor space, forcing departments to work across two separate locations. The Party, mass organizations bloc, and Public Administrative Service Center operate out of the old commune People’s Committee headquarters; the People’s Committee administrative bloc relocated to an old primary school site consisting of seven single-story classrooms. Office space is utilized to the maximum, with commune leaders sharing quarters to make room for personnel directly processing citizen dossiers. In the initial days, the workplace lacked tap water, requiring cadres to fetch stream water until the commune installed two water filtration systems to improve living conditions.

Distance also proved to be a formidable trial. More than half of the cadres and civil servants hail from the former territories of Nậm Pồ, Mường Nhé, and old Na Cô Sa, with some commuting 30-60km daily. The commune was only able to arrange temporary lodging for 7-8 individuals at the old communal health station, while the remainder had to seek private rentals.

For Nguyễn Thị Bích Đào, a socio-cultural civil servant, a distance of nearly 40km from her home in central Mường Nhé to her workplace compelled her to rent a shared room with colleagues, allowing her to visit her child only once a week. “I miss my child deeply, but public duty cannot be interrupted. We encourage one another to persevere, for the people and out of responsibility toward our new commune,” Đào shared.

Grassroots-level narratives demonstrate that behind the redrawing of boundaries and organizational machinery lies a journey of adaptation across multiple fronts: workspaces, travel distances, job duties, and public service delivery. Throughout that journey, the imperative confronting grassroots-level administrations is not merely stabilizing their organizational setup, but swiftly ensuring seamless operations, staying close to the people, and resolving issues proactively from the grassroots level.

Staying close to the people

In Huổi Chạ 1, Mường Nhé commune, Vàng A Chư has gone to complete administrative procedures on multiple occasions. What concerned him after the new model became operational was where citizen matters would be processed, whom to contact, and what steps to follow. According to Chư, certain tasks previously had to traverse multiple administrative tiers. Today, with numerous functions devolved to the commune, residents can confer directly with grassroots-level officials. “When commune cadres are closer to the people, it is easier for us to inquire and exchange views. However, the new commune is vast, and certain villages are quite distant from the center, so travel remains a hurdle,” Vàng A Chư shared.

Geographic distance thus remains a challenge. Yet alongside territorial reorganization, the manner in which authorities approach the grassroots level is also evolving. In Thanh Yên commune, immediately after taking charge of the new jurisdiction, Secretary of the commune Party Committee Nguyễn Văn Toản routinely dedicated time to visiting hamlets and villages to meet village management boards and residents, listening to issues arising on the ground. During these meetings, locals voiced practical requests: some areas proposed upgrading road infrastructure; others sought repairs to irrigation systems, clearing stream channels to avert waterlogging; while some desired guidance on developing community-based tourism.

These recommendations were noted by the Secretary of the commune Party Committee and categorized by jurisdiction for direct handling or reporting to competent authorities. For tasks that could be proactively addressed, the commune resolved them directly from the grassroots level. For instance, following a field visit, the Secretary directed the commune People’s Committee, the Youth Union, and the Veterans’ Association to level surfaces, spread crushed stone aggregate, and widen the road segment from On village to Yên Trường hamlet, mitigating muddy, slippery conditions during travel.

Secretary of the commune Party Committee Nguyễn Văn Toản stated: “Visiting the grassroots level is not merely an inspection tour. The grassroots-level tier must stay close to the people, listen to them, truly understand them, and operate in the spirit of serving the people. From these engagements, local socio-economic development issues are evaluated more concretely, grounded in the potentials, advantages, and practical realities of each area.”

In Quài Tở commune, community engagement is conducted through a different method. The commune People’s Committee organizes dialogues with village heads to grasp situations directly from the grassroots level. At these sessions, numerous issues are raised: land disputes, agricultural production land management, stream encroachments, road construction needs, and landslide prevention embankments.

Chairman of the Quài Tở commune People’s Committee Nhữ Duy Đông considers village heads as direct bridges linking authorities with the people, as they possess intimate knowledge of daily life, production conditions, and emerging community issues. Đông stated: “Village heads serve as vital bridges between the government and the people, playing a pivotal role in implementing guidelines and policies, while directly receiving and conveying the aspirations of residents to local Party committees and authorities.”

From Sín Thầu and Quảng Lâm to Thanh Yên and Quài Tở, diverse stories illustrate a shared reality: once administrative boundaries are redrawn, the grassroots-level apparatus must also find an updated operational method.

According to Nguyễn Tiến Đạt, Director of the Department of Home Affairs, following restructuring and the rollout of the two-tier local governance model, the administrative apparatus in Điện Biên has operated stably; communes and wards have assigned duties, maintained routines, and addressed citizen matters without operational disruption. However, across expansive territories situated far from central hubs, hurdles concerning office headquarters, accommodations, and transit conditions for cadres still require ongoing solutions.

A new model and a new apparatus have taken shape. Yet for a new administrative system to run smoothly requires time, adaptation, and above all, updated methodologies. The question following this restructuring is no longer merely “how many administrative units have been cut?”, but rather: are the personnel within the new apparatus sufficiently close to the people, sufficiently competent, and sufficiently responsible to bridge the distance created by the new boundary lines?