This paper studies a multi-facility network synthesis problem, called the Two-level Network Design (TLND) problem, that arises in the topological design of hierarchical communication, transportation, and electric power distribution networks. The nodes of a multi-level network have varying levels of importance; more critical or higher level nodes require more expensive higher grade interconnections. Given an undirected network with L possible facility types for each edge, and a partition of the nodes into L levels, the multilevel network design problem seeks a connected design that minimizes total cost while spanning all the nodes, and connecting nodes at each level via facilities of the corresponding or higher type. The TLND problem is a special case of multi-level network design with L = 2. This problem generalizes the well-known Steiner network problem and the hierarchical network design problem. In this paper, we study the relationship between alternative model formulations for this problem, and analyze the worst-case performance for a composite TLND heuristic based upon Steiner and spanning tree computations. When the ratio of higher to lower grade facility costs is the same for all edges, the worstcase performance ratio of the TLND heuristic is 4/3 if we can solve an embedded Steiner network problem optimally. For other cases, we express the TLND heuristic worst-case ratio in terms of the performance ratio of the Steiner solution method. A companion paper develops and tests a dual ascent procedure that generates tight upper and lower bounds on the optimal value of the multi-level network design problem