Merging provinces and cities: A journey to open the way for development and awaken potential

The process of administrative unit arrangement in Vietnam is a long journey, reflecting the dynamic development of the country. From the decisions to separate provinces after Doi Moi (1986) to the current merger policy, each step demonstrates strategic thinking appropriate to each stage of development.

"Journey" of 15 years of provincial separation

After Doi Moi (1986), when Vietnam entered the process of building a socialist-oriented market economy, the whole country had 40 provinces and cities and the separation of provinces became an inevitable trend.

1989 marked the first wave of separation with the separation of 3 provinces: Binh Tri Thien was separated into Quang Binh, Quang Tri, Thua Thien-Hue; Nghia Binh was separated into Quang Ngai, Binh Dinh; Phu Khanh was separated into Phu Yen, Khanh Hoa. At this time, the whole country increased from 40 provinces and cities to 40 provinces, 3 cities, 1 special zone Vung Tau-Con Dao.

The next split took place in 1991 with 11 splits: Hoang Lien Son split into Lao Cai, Yen Bai; Ha Tuyen split into Ha Giang, Tuyen Quang; Ha Binh Son split into Ha Tay, Hoa Binh; Ha Nam Ninh split into Nam Ha, Ninh Binh; Gia Lai-Kon Tum split into Gia Lai, Kon Tum; Nghe Tinh split into Nghe An, Ha Tinh; Thuan Hai split into Binh Thuan, Ninh Thuan; Hau Giang split into Can Tho, Soc Trang; Cuu Long split into Tra Vinh, Vinh Long; some suburban districts of Hanoi moved to Vinh Phu, Ha Tay; three districts split from Dong Nai province and Vung Tau-Con Dao Special Zone merged into Ba Ria-Vung Tau. The number of administrative units increased from 44 to 53 provinces and cities.

In 1997, the separation continued, reflecting the policy of stronger decentralization in administrative management, the number of administrative units increased from 53 to 61 provinces and cities. 8 provinces continued to be separated, including: Bac Thai separated into Bac Kan, Thai Nguyen; Ha Bac separated into Bac Giang, Bac Ninh; Nam Ha separated into Ha Nam, Nam Dinh; Hai Hung separated into Hai Duong, Hung Yen; Vinh Phu separated into Vinh Phuc, Phu Tho; Quang Nam-Da Nang separated into Quang Nam, Da Nang city; Song Be separated into Binh Duong, Binh Phuoc; Minh Hai separated into Bac Lieu, Ca Mau.

The decision to separate large provinces was made at this stage not only to overcome difficulties in management but also to create conditions for each region to promote its own economic and cultural characteristics.

Can Tho City is peaceful in the last days of 2024. (Photo: Thanh Liem/ VNA)

Continuing the urban development strategy, in 2004, Can Tho was separated into Hau Giang and Can Tho city. Also in this year, Lai Chau was separated into Lai Chau and Dien Bien, Dak Lak was separated into Dak Nong and Dak Lak. At this time, the number of administrative boundaries was the largest in the history of separation and merger of localities, the whole country had 64 provinces and cities.

Although the separation process brings many development opportunities, it also leaves many concerns as the administrative apparatus becomes increasingly cumbersome and many provinces struggle with the "problem" of balancing their own budgets.

In the 15 years from 1989 to 2004, the number of administrative units increased from 40 provinces and cities to 64 provinces and cities. The continuous separation took place as a strong affirmation of the determination to invest so that each land and locality could develop and grow. However, the separation process, although bringing many development opportunities, also left many concerns when the administrative apparatus became increasingly cumbersome and many provinces struggled with the "problem" of balancing their own budgets. These experiences are a valuable basis for the current administrative unit arrangement.

The year 2008 marked the end of the trend of dividing provinces and switching to merging to expand administrative boundaries and create development space. Ha Tay province, 4 communes of Hoa Binh province and Me Linh district of Vinh Phuc province were merged into Hanoi city. The whole country has 63 provinces and cities and has maintained it until now.

Merging provinces and communes, eliminating district level: Breakthrough thinking in administrative reform

The policy of reorganizing administrative units was initiated in 2017 with Resolution 18 of the 12th Central Committee, laying the foundation for the comprehensive reform process. Since then, the reorganization has achieved remarkable results. The whole country has carried out two rounds of reorganization of district- and commune-level administrative units in 2019-2021 and 2023-2025, the number of district-level administrative units decreased from 713 to 696; the number of commune-level administrative units decreased from 11,162 to 10,035.

2025 marks a new step forward with Conclusions No. 126-KL/TW and 127-KL/TW of the Politburo and Secretariat on continuing to reorganize and streamline the apparatus. In particular, the policy of merging provinces and communes and abolishing the district level demonstrates a breakthrough in administrative reform.

Conclusion No. 126-KL/TW of the Politburo and Secretariat on some contents of continuing to arrange and streamline the organizational apparatus of the political system in 2025, issued in the second half of February, clearly stated the requirements for studying the arrangement and elimination of intermediate administrative levels (district level); continuing to arrange commune level in accordance with the new organizational model; merging some provincial-level administrative units.

Immediately afterwards, the Politburo and the Secretariat continued to issue Conclusion No. 127-KL/TW on the implementation of research and proposals to continue to reorganize the apparatus of the political system with the policy of merging provinces and communes and abolishing the district level. For the provincial level, the Politburo and the Secretariat believe that in addition to the basis of population size and area, it is necessary to carefully study the national master plan, regional planning, local planning, socio-economic development strategy, and sectoral development.

In addition, when merging provinces and cities, it is necessary to take into account the factors of expanding development space, promoting comparative advantages, meeting development requirements for each locality and the requirements and development orientations of the new period... as a basis and scientific basis for arrangement.

After the reorganization, the number of provincial administrative units will be reduced by about 50%. (Photo: VNA)

On March 20, the Central Steering Committee summed up the implementation of Resolution No. 18 on a number of issues to continue innovating and streamlining the political system's apparatus to be streamlined and operate effectively and efficiently. It issued a Plan to continue streamlining the political system's apparatus. Accordingly, the roadmap for merging provinces and cities was clearly stated. The National Assembly will pass the resolution on merging provincial-level administrative units before June 30.

The Government Party Committee is assigned to preside over and coordinate with the Central Organizing Committee and relevant agencies to receive opinions, complete the Submission and Project on reorganizing administrative units at all levels and building a model of organizing a 2-level local government to report to the Politburo before March 25 and report to the Central Committee before April 1.

The plan to continue to reorganize the political system of the Central Steering Committee summarizing the implementation of Resolution No. 18 clearly states the roadmap for merging provinces and cities. Accordingly, the National Assembly will pass the resolution on merging provincial-level administrative units before June 30.

At the first meeting of the Government's Steering Committee on science, technology, innovation, digital transformation and Project 06, Minister of Home Affairs Pham Thi Thanh Tra said that the Ministry of Home Affairs is focusing on implementing the arrangement of provincial-level administrative units, reorganizing commune-level administrative units and organizing two-level local governments to ensure prudence, thoroughness, urgency and efficiency.

According to the Minister of Home Affairs, it is expected that the entire arrangement of commune-level administrative units will be completed before June 30 so that by July 1, commune-level administrative units will be operated under the new organization. The merger of provincial-level administrative units will be completed before August 30 so that the operation of provincial-level administrative units can be immediately implemented starting from September 1.

Maximize the potential of each locality

The decision to merge provinces and cities aims at sustainable development and more effective management. First of all, the merger helps to streamline the administrative apparatus, reduce intermediary units, thereby cutting costs and increasing the efficiency of state management. This also creates conditions for optimizing resources, exploiting economic potential and increasing the ability to balance the budget, especially for small provinces or provinces with limited revenue. The merger also contributes to promoting regional connectivity, forming large economic centers, enhancing competitiveness and attracting investment, in line with the trend of international integration.

Lach Huyen International Port in Hai Phong is the first deep-water seaport in the northern key economic region. (Photo: Duc Nghia/VNA)

In particular, in the current context, the construction of a digital government and the application of information technology have greatly facilitated administrative management, allowing the settlement of administrative procedures without borders, minimizing geographical barriers between provinces. Along with that, the inter-provincial and inter-regional transport system has been basically completed, including expressways, national highways and modern public transport infrastructure, creating favorable conditions for connecting between localities after the merger.

Agreeing with the policy of merging provinces and cities, Professor, Doctor Vu Minh Giang, Vice President of the Vietnam Historical Science Association, said that the digital age has created a flat space, geographical distance is no longer a big barrier. Digital technology and modern transport infrastructure will facilitate the management and development of new administrative units after the merger.

However, Professor, Dr. Vu Minh Giang believes that the current merger of provinces needs to consider the effectiveness of the merger. For a specific example, Professor, Dr. Vu Minh Giang cites Hai Duong as a large province but has no sea. If it merges with Hai Phong, it will develop very positively because there will be a government that can coordinate both land resources and seaports. Or if Hung Yen merges with Thai Binh, there will be more seaports. These are factors that need to be considered when implementing the arrangement of provinces.

Reorganizing administrative units at all levels will create new development space, maximizing the potential differences, outstanding opportunities, and competitive advantages of each locality.

Chairing meetings of the Government Party Committee Standing Committee on the Project on rearranging and reorganizing administrative units at all levels and building two-level local governments recently, Prime Minister Pham Minh Chinh emphasized that this is a policy that is supported and highly appreciated by the people, suitable for the new situation and current management capacity when traffic infrastructure and digital infrastructure conditions have been strongly improved.

In particular, the reorganization of administrative units at all levels will create new development space, maximizing the potential differences, outstanding opportunities, and competitive advantages of each locality.

The Government Party Committee agreed to submit to competent authorities a plan that after the reorganization, the number of provincial-level administrative units will be reduced by about 50% and the number of grassroots-level administrative units will be reduced by about 60-70% compared to present.

The Prime Minister requested that the arrangement of administrative units, in addition to criteria on natural area and population size, should consider criteria on history, tradition, culture, ethnicity, geographical conditions, socio-economic development level, infrastructure, etc. The naming of provincial-level administrative units must be inheritable, and the selection of administrative-political centers must consider historical, geographical, infrastructure connection, development space, national defense, security and integration factors.

The merger of provinces and cities will open up great opportunities for economic development and exploit the characteristics and peculiarities of each locality to support each other. Each province and city has its own advantages in terms of resources, culture, tourism or industry, and when merged, the localities can coordinate and complement each other for more comprehensive development, creating a common development momentum for the whole region and the country./.

(Vietnam+)

Source: https://www.vietnamplus.vn/sap-nhap-cac-tinh-thanh-hanh-trinh-mo-loi-phat-trien-danh-thuc-tiem-nang-post1021655.vnp