This chapter analyses the human resource management system in Uzbekistan and its recent reform agenda. It looks at four main challenges central to prioritising reform efforts and to build the basis for the strategic management of public employment in Uzbekistan: 1) Establishing the right ecosystem by placing the Agency for the Development of Public Service at the centre; 2) Strengthening merit-based recruitment; 3) Defining civil service competences and integrating them in the human resources cycle; and 4) Building an effective senior civil service.
OECD Public Governance Reviews: Uzbekistan
Towards a More Modern, Effective and Strategic Public Administration
OECD Public Governance Reviews
Abstract
In recent years, Uzbekistan has undergone an ambitious reform programme aimed at modernising and liberalising the economy and attracting foreign investment, streamlining the bureaucracy and strengthening anti-corruption. It marks a shift towards greater openness and reform. One of the key areas supporting this reform programme is the civil service.
The civil service plays a crucial role in fostering economic growth and societal well-being. It serves as the backbone of public administration, overseeing essential services like healthcare, education, and social assistance programmes crucial for citizens' welfare and economic stability. Moreover, civil servants are tasked with efficiently managing government resources, including budget allocation and procurement, to bolster sustainable economic growth and ensure fair distribution of resources. Additionally, they actively contribute to shaping regulatory frameworks and policy formulation aimed at nurturing economic prosperity, tackling societal disparities, and safeguarding public welfare.
In 2017, Uzbekistan introduced the Concept of Administrative Reform which sets out six directions for reforming the public administration and establishing an effective and transparent system of public administration capable of safeguarding citizens' rights and enhancing Uzbekistan's economic competitiveness on the global stage. Defined by six priority areas, including the improvement of institutional, organisational, and legal frameworks within executive authorities and the establishment of a professional civil service system, the Concept represents a concerted effort to modernise governance structures and combat corruption within the public sector.
Overseeing the reform and implementation of human resources standards, the Agency for the Development of Public Service under the President of the Republic of Uzbekistan (ARGOS) was established in 2019. ARGOS was tasked with a range of responsibilities, including the initiation of reforms in the civil service, facilitation of co-ordinated personnel policies across state agencies, implementation of innovative methods for personnel management, oversight of the National Personnel Reserve, introduction of a system for evaluating civil servants' effectiveness, and organisation of transparent and independent competitive selections for vacant positions. Furthermore, the Agency assumed responsibility for the administration of the "El-Yurt Umidi" Foundation under the Government of Uzbekistan. This foundation provides scholarships for bachelor's, master's, or PhD programmes abroad in specialties needed in the public service. Grantees are required to work in the public service for three years after completing their studies.
The impetus for reform of the civil service was further strengthened by the Development Strategy of New Uzbekistan 2022-26. The strategy outlines seven priorities, with the first priority focussed on building a people's state by elevating human dignity and advancing civil society. Within this priority, Goal 10 specifically targets the re-organisation of the civil service system in alignment with modern standards. The objectives under Goal 10 include the elimination of factors contributing to corruption, recruitment of personnel through competitive processes, evaluation of performance based on key performance indicators (KPIs), enhancement of professional training, pay, and social security benefits for civil servants, formation of a National Personnel Reserve, implementation of the "Digital Civil Service" project, and revision of working hour requirements and labour standards.
The reforms in the civil service regime were further solidified with the Law on Public Civil Service in 2022. The law provides the legal framework for the civil service, including a basic classification of positions.
Source: based on the Law of the Republic of Uzbekistan on public civil service and information provided by ARGOS.
Despite these reform efforts, Uzbekistan's civil service continues to face myriad challenges, as acknowledged by expert assessments (World Bank Group, 2019[1]) (World Bank, 2022[2]). Efficiency and staff capacities remain relatively low. Opaque decision-making and outdated recruitment practices dominate on the ground, while nepotism persists. Senior staff lack strong accountability, and ineffective communication within and between government departments remains prevalent. These systemic shortcomings have severely impeded the development of a modern, effective bureaucracy.
The OECD framework for Public Service Leadership and Capability
Recognising the need for a whole-of-government approach for public employment, in 2019, the OECD Council adopted the Recommendation on Public Service Leadership and Capability (OECD, 2019[3]). The recommendation is a normative instrument that aims to guide member and partner countries in developing a future-ready public sector workforce equipped with the skills, supported by effective organisations and practices. The fourteen principles provide a framework for building a values-driven culture and leadership, investing in public service capability and setting up a responsive and adaptive public service (Figure 6.1).
Source: (OECD, 2019[3]).
In adopting a strategic approach to public employment, OECD countries typically exhibit several shared characteristics. Firstly, senior leadership acknowledges the significance of people management strategies in attaining organisational objectives. They actively engage in strategies aimed at attracting and retaining top talent for the civil service. Secondly, the participation of senior leaders includes a focus on organisational capability, including through positioning Human Resources (HR) departments/ministries or units as proactive partners capable of aiding in the achievement of strategic goals—not merely as passive administrators of staff records. Thirdly, the importance of cultivating a workforce with the appropriate skill and competency mix at both individual and team levels is recognised. The majority of OECD countries utilise competency frameworks to guide recruitment campaigns, assessment queries, performance evaluations, and promotion/mobility determinations. This approach is designed to establish a symbiotic relationship where distinct organisational goals align with observed traits of individuals who contribute effectively to their attainment (OECD, 2021[4]).
Against the backdrop of reform and transformation in Uzbekistan, this review analyses how to anchor the reforms in a long-term strategic approach to ensure that the right people with the right skills work in the right places to achieve goal and objectives as effectively and efficiently as possible. In line with OECD standards and the Recommendation on Public Service Leadership and Capability, this means designing a system that is able to determine what skills are needed, evaluate how people with those skills can be attracted to the public sector, develop a culture of learning to support employee development and using those skills optimally through sound management practices and organisational structures. The review looks at four main challenges to prioritise reform efforts and to build the basis for the strategic management of public employment in Uzbekistan:
1. Establishing the right ecosystem by placing ARGOS at the centre;
2. Strengthening meritocracy in the civil service;
3. Defining civil service competences and integrating them in the human resources cycle;
4. Building an effective senior civil service.
Size and shape of the public employment in Uzbekistan
The civil service in Uzbekistan employs approximately 94,000 individuals. Of this number, 2.1% work at the national level across 10 different state bodies (e.g., the Presidential Administration), 55% are employed in republican executive bodies (e.g., committees or inspection bodies), and 42% work at the regional level, including in khokimiyats. According to ARGOS, a breakdown of roles shows that 0.2% hold political positions, 22.7% managerial positions and 77.1% occupy auxiliary positions. In 2024, public sector employment constituted 18.5% of total employment as reported by the Uzbek Statistics Agency. Unfortunately, no current information is available on the government expenditure for employee compensation.
ARGOS needs to consolidate its role as the central HR actor
Within the framework of the public employment system, numerous institutions and entities play a role in strategic HR management. It is important to establish transparent and co-ordinated institutional responsibilities for formulating, leading, and executing the components of the HR system. This ensures adherence to normative requirements and the implementation of measures that mutually reinforce one another, driving positive transformation. However, the effectiveness of these responsibilities hinges upon the provision of mandate, resources, and capabilities.
Before 2017, the configuration of the civil service in Uzbekistan reflected a hierarchical model inherited from the Soviet era. Various government ministries and agencies held responsibility for distinct sectors and functions. Patronage influenced appointments, promotions, and career advancements, leading to a highly politicised civil service. Decisions regarding appointments and career progressions were frequently aligned with political agendas rather than solely based on merit or professional qualifications. This lack of transparency and political influence presented challenges in establishing standards for recruitment, training, and career progression within the civil service.
The establishment of ARGOS in 2019 represents a significant transformation in the structure and operation of Uzbekistan's civil service. Tasked with strategic HR leadership for the public sector, ARGOS co-ordinates, oversees, and standardises HR practices. The establishment of one single body responsible for HR guidance and development aligns with the reform agenda aimed at modernising the civil service and enhancing its efficiency and improve co-ordination.
The OECD Recommendation on Public Service Leadership and Capability (PSLC) underscores the importance of clarifying institutional responsibilities for people management to bolster the efficiency of the public employment system by:
Setting up an institutional authority to establish and oversee common minimum standards for merit-based people management.
Delegating an appropriate level of autonomy to individual agencies, ministries, leaders, and/or managers to align people management with their strategic business objectives.
Ensuring effective mechanisms for communication and information sharing among institutional actors in the public employment system.
Ensuring that each institutional actor in the public employment system possesses the requisite mandate and resources for effective functioning.
Similar to the model in Uzbekistan, nearly all OECD countries, except Germany and the Slovak Republic, have at least one central HRM unit at the national level. Among OECD countries, 22 countries have established central units tasked with overseeing key HR functions, such as pay setting, performance appraisal systems, and codes of conduct. Additionally, eleven OECD countries, including Australia, Austria, Belgium, Finland, France, Iceland, Ireland, Italy, Portugal, Slovenia, and Sweden, have central HRM units that serve a co-ordinating role across line ministries, despite not having formal responsibility for HRM functions (Figure 6.2).
Source: (OECD, 2017[5]).
ARGOS, as the central strategic HR body for the civil service in Uzbekistan, has an ambitious mandate encompassing co-ordination, oversight, standard-setting, and direct management of key HR processes. Despite its pivotal role, ARGOS has encountered significant challenges in fulfilling its potential to shape the HR agenda.
Capacity constraints, prevalent throughout the public sector, have impacted ARGOS. While the agency boasts skilled experts, their capacity is often limited to the dedicated project teams, hindering broader implementation. Furthermore, while ARGOS has undertaken a vast reform agenda, there has been limited consideration and understanding for the optimal allocation of resources, the sequencing of projects, and the identification of potential challenges in implementation. This has resulted in a dispersed focus, weak implementation across the civil service, and limited progress on foundational elements essential for subsequent initiatives.
For example, despite a thorough development process involving the analysis of national and international reports, best practices, and extensive consultation with over 400 deputy ministers, heads of departmental divisions, and heads of departments, the planned competency model has not been fully integrated into HR processes. Interviews revealed a lack of shared understanding among stakeholders regarding its implementation, hindering its effectiveness in driving organisational performance.
At the same time, a lack of prioritisation can be identified where the quantity of reforms is prioritised over targeted successful initiatives. This runs the risk of projects and reforms becoming tick-box exercises without real progress. Moreover, there is limited understanding of project goals, intermediate milestones and desired impact beyond the core ARGOS team, affecting stakeholder engagement and potential resistance to change.
To overcome these challenges and garner support, ARGOS needs to enhance transparent communication, clearly articulating its objectives and reform agenda. Effective collaboration with key stakeholders, including HR units within entities, the National Academy of Public Administration (APA), and the Agency for Strategic Reform (ASR), is essential. In some areas, ARGOS has taken strides in this direction, such as partnering with the Ministry of Digital Technologies.
ARGOS has also established a Public Council under its leadership, comprising representatives from various agencies, ministries, such as the APA, and the public, for example a representative from the Federation of Trade Unions of Uzbekistan. The Public Council meets quarterly to discuss progress on the civil service reform agenda.
The objectives of the Public Council are to discuss challenges to the development of the civil service, implementation challenges to regulatory acts and programmes and to develop proposals for improving the legislative framework for the civil service. To fulfil its mandate, the Public Council has the right to consult procedural and statistical information necessary for developing and implementing proposals and make proposals to the heads of the state body and subordinate organisations.
The Public Council has the potential to improve co-ordination among civil service actors. However, interviews suggest that further efforts are needed to create a shared vision, co-ordinate and prioritise efforts and proactively address implementation challenges during the project planning phase.
Strengthen the Public Council to prioritise projects and avoid overly ambitious projects
To achieve better co-ordination and a targeted focus in its reform agenda, the Public Council needs to be leveraged more effectively. The current membership of the Council is rather large, which risks hindering effective discussion. While a diverse membership ensures broad perspectives, the formation of technical working groups can help to address specific issues and bring together experts with relevant expertise. These groups could meet regularly to advance in their areas and report back to the broader Public Council.
For example, Ireland established a Civil Service Management Board to oversee the implementation of the priorities set out in the Irish Civil Service Renewal Plan. The Board is chaired by the Secretary General to the Government, comprises all secretaries general and heads of offices. Two sub-groups drive progress on specific actions. The minutes of meetings and annual reports on reform progress and follow-up actions are published regularly.
In Uzbekistan, to improve project management, ARGOS needs to prioritise a set of manageable initiatives with defined objectives and allocate resources accordingly. Project scopes need to be realistic and manageable, focusing on foundational elements. Therefore, a priority of the Public Council should be to review the current portfolio of reform projects and rank priorities. A dedicated sub-working group, including ARGOS, APA, and relevant agencies and ministries, could prepare this review. For each identified priority, the Public Council should agree on targeted outcome goals. The HR strategy, currently under development, should inform these discussions and serve as a roadmap.
Once a limited and manageable number of priorities have been established, experts from member organisations could meet in thematic technical subgroups to break down priority projects in terms of scope, sequencing, intermediate outputs, resource requirements, costs, implementation barriers, timelines, and necessary data. These findings would be presented to the Public Council for review.
Robust monitoring and evaluation mechanisms are necessary to inform future projects. Once adopted, the Strategy would be guided and monitored by the Public Council and the relevant working group. This approach fosters a shared vision among the civil service and stakeholders, supports priority-setting, focuses on delivery, ensures effective sequencing, and avoids overly ambitious or poorly designed reforms.
These exercises should be conducted regularly for both ongoing and new initiatives. Outcome reports of Public Council meetings, including recommendations to clarify scope, goals, sequencing, and costs, should be published to enhance transparency.
Increase the availability of capable personnel by leveraging the National Personnel Reserve
To effectively implement the ambitious reform agenda, addressing capacity constraints within ARGOS and the wider public sector is paramount. A critical step is to increase the availability of skilled personnel capable of driving priority projects. While training initiatives are underway, their impact will take time to materialise.
To bridge this gap, leveraging the National Personnel Reserve as a flexible talent pool presents a promising strategy. The Reserve prepares selected personnel for managerial roles through tailored development plans and specialised training. By enhancing the mobility of its members and enabling their deployment to specific projects, ARGOS can augment project teams with skilled personnel, meeting immediate capacity needs while also further developing future leaders with practical experience.
Drawing inspiration from the Australian Public Service, the concept of task forces could be adapted to the Uzbek context. In Australia, task forces are assembled for specific projects/priorities, bringing together public servants with diverse expertise. Members are seconded from their regular roles for a defined period, contributing their skills to the project while gaining valuable experience. Upon completion, they return to their original positions, enriching their skillset and potentially assuming leadership roles. This could be done in a similar way for those civil servants belonging to the National Personnel Reserve. By strategically addressing capacity constraints through talent development, workforce flexibility, and targeted deployment, ARGOS can significantly enhance its ability to deliver on its mandate and contribute to the modernisation of the Uzbek civil service.
In summary, while ARGOS has made commendable efforts, it faces significant challenges in fulfilling its mandate. By addressing capacity constraints, improving project management, and strengthening stakeholder engagement, ARGOS can enhance its effectiveness as a strategic HR leader and contribute to the modernisation of the Uzbek civil service.
APA is a strong partner in the reform agenda with a focus on training that could be further strengthened
A key partner for the civil service reform agenda led by ARGOS is APA. APA plays a pivotal role in civil service learning and development, coupled with a research function. It offers a broad range of training courses and is central to addressing the current skills gap.
Given its expertise, APA's role could focus on three key areas: capacity building aligned with the competency framework, developing a centre of excellence for senior civil servants, and conducting research to inform policy and provide advice to ministries and agencies on civil service.
APA's expertise lies in designing and delivering training courses, ranging from leadership development to specialised courses. While progress has been made towards more practical and transferable skills training, a stronger emphasis on building a learning culture is needed. For example, to develop civil servants capable of leading change and managing complex programmes, APA could consider incorporating other learning modalities such as internal secondments and cross-government placements into its training offerings. The offer needs to be co-ordinated with other schools of government to avoid overlap.
Improving civil service capability is paramount. As planned by ARGOS and APA, the future competency framework should guide APA's training programme development, for both long-term and short-term initiatives. Training courses must align with the competency framework, focussing on essential skills for all civil servants, including leadership competencies. These programmes should be practical, interactive, and demonstrate how to apply skills for improved public service delivery.
APA can also play a pivotal role in developing senior-level civil servants. By positioning itself as a Centre of Excellence for senior-level civil servants, APA can offer specialised training and development courses tailored to the unique challenges and responsibilities of senior-level civil servants. This includes strategic management, change management, public policy development, performance management of staff, and stakeholder management. Through a combination of executive education courses, mentorship, and coaching, APA can cultivate a cadre of skilled and visionary leaders capable of driving the reform agenda forward. Some steps towards this have already been taken with training courses being offered.
Lastly, APA's academic foundation positions it uniquely to serve as a research centre supporting the civil service reform agenda and providing expertise in forecasting future needs as well as strategies to improve public administration efficiency. By conducting in-depth research, assessments, and data analysis, APA can:
Identify knowledge gaps: Pinpoint areas where data and information are lacking to inform effective policymaking.
Inform policy development: Provide evidence-based recommendations to support the development and implementation of new policies.
Evaluate policy impact: Assess the effectiveness of existing policies and programs to inform future initiatives.
Build a knowledge base: Create a repository of research findings and data to support continuous learning and improvement.
Develop research capacity: Strengthen the research capabilities of civil servants through training and mentorship.
Collaborate with stakeholders: Partner with government agencies, academia, and civil society to conduct collaborative research projects.
By focussing on these areas, APA can further strengthen its role as a source of evidence-based information and contribute significantly to the success of the reform agenda.
Using the HR strategy to guide HR reforms under ARGOS leadership
A strategy or strategic policy for HR in the civil service is essential to support a coherent and comprehensive HR system. Strategic planning, based on insights gained from data, consultation and evaluations to learn from past practices as well as foresight on future trends, is crucial to build a forward-looking civil service. The PSLC Recommendation calls on countries to develop a long-term, strategic and systematic approach to people management based on evidence and inclusive planning. Indeed, in 2016, a majority of OECD countries reported articulating a strategic medium to long-term vision for the civil service (OECD, 2017[6]).
Uzbekistan is currently in the process of developing the Strategy for the Development of the civil service until 2030. This presents a significant opportunity for ARGOS to bolster its leadership credibility in driving reforms to modernise Uzbekistan's civil service. Firstly, ARGOS should ensure that the civil service strategy reflects a vision aligned with the broader reform agenda, articulating targeted goals and objectives aimed at enhancing professionalism, efficiency, and transparency within the civil service. By demonstrating a strong commitment to addressing key challenges and priorities identified in the reform agenda, ARGOS can instil confidence in its leadership role.
Moreover, ARGOS needs to leverage the development process as a platform for extensive stakeholder engagement, actively involving ministries, agencies, and civil society organisations in shaping the strategy. In the majority of OECD countries, HR strategies are endorsed at the political level, with their development typically involving internal and/or external consultation. Countries like Estonia and Finland engage senior management in the strategy's development, while countries such as the Netherlands, Slovak Republic, Sweden, and the United States take it a step further by soliciting input from all civil servants. In the Netherlands, the HR Strategy 2020 for the central public administration was initiated by an in-depth analysis of trends and forecasts, followed by an inclusive drafting process with directors of HR and Organisational Development of all ministries. In addition, civil servants, experts and young people from outside the public administration were asked for critical feedback on draft versions.
As part of this Review, the HR Strategy of Uzbekistan was not available for analysis given its current drafting process. The Review focusses therefore on the development process. The process seems to follow a similar approach closely involving actors across the public sector as well as the public. ARGOS has been organising seminars and workshops with ministries and agencies to gather direct input into the strategy. This inclusive approach not only fosters a sense of ownership among stakeholders but also enhances the strategy's relevance and effectiveness by incorporating diverse perspectives and expertise. However, while the inclusive development process is commendable, it is crucial to expedite the finalisation and adoption of the strategy to enable immediate action. The strategy is essential for guiding reforms, and it should be implemented promptly without compromising due process.
Prioritisation is crucial in the development of HR strategies. Effective strategies are characterised by an approach that focusses on a limited number of objectives. As discussed previously, rather than attempting to address every potential issue, well-crafted strategies identify key priorities based on careful analysis and consultation. This approach ensures that resources and efforts are directed towards the most critical areas for improvement, maximising the strategy's impact. By narrowing down the focus to a manageable set of priorities, countries are able to develop strategies that are more targeted, actionable, and ultimately, more successful in achieving their intended outcomes. Under the leadership of the Public Council, ARGOS should similarly prioritise its objectives in consultation with relevant stakeholders. This can ensure that the HR strategy is both comprehensive and focussed on addressing the most pressing needs and challenges within the public sector, while avoiding the current overload of projects which are not sequenced adequately.
Additionally, ARGOS should prioritise transparency and accountability throughout the strategy development process, ensuring that decisions and actions are open to scrutiny and public feedback. An important step would be if ARGOS, as planned, opens the final Strategy to a rigorous review process involving all ministries, legal and public experts, and make it accessible to the public for feedback. By embracing transparency, ARGOS can mitigate doubts regarding its intentions and build trust with stakeholders. Uzbekistan has planned to adopt the HR strategy through a regulatory legal document by the President of the Republic of Uzbekistan. This would showcase commitment at the highest level.
Furthermore, ARGOS should emphasise the importance of implementation and monitoring mechanisms within the strategy, outlining pathways for execution and evaluation of progress. In OECD countries, most strategies foresee a process for reporting on implementation. Some countries also hold senior management directly accountable for results (Figure 6.3). In Uzbekistan, there are currently no concrete measures to monitor and evaluate strategy implementation or to hold senior managers accountable for strategy implementation.
Lastly, once adopted, a continuous and sustained communication strategy should be planned beyond the initial roll-out of the strategy to reach the different ministries and agencies. This should also target the HR offices who will be responsible for implementation, civil servants, as well as the public.
Source: (OECD, 2017[6]).
In the Netherlands, the HR Strategy 2020 for the Central Public Administration was developed in an interactive process between October 2011 and March 2013. This development not only included senior level public servants, but all willing civil servants. The highlights were included in the reform agenda of the new Minister of Housing and Central Public Administration in May 2013.
The process of development started with an in-depth analysis of internal trends and forecasts of personnel development, and external economic, social and technological trends. These included labour market, labour relations and labour conditions, as well as trends that would influence the policy areas and operational management of central public administration.
The directors of HR and Organisational Development of all ministries, chaired by the director of the central department for civil service of the Ministry of Interior, were responsible for the development of the Strategy 2020. This group met monthly during the first half of 2012 to discuss various areas related to the strategy. Each meeting was prepared by the programme leader from the Ministry of Interior, together with members of this group and external experts. One of the meetings was with the strategic advisors on policy areas of the ministries. The secretaries-general of the ministries and their directors for operational management were asked in individual interviews for their image of the future, and were involved in steering boards for their agreement during several phases of the process.
The strategy began to take shape as a PowerPoint presentation with a lot of background analyses and information and focused on the main challenges and basic assumptions for future HR-policy development for specific areas. In summer 2012, groups of experts from the ministries and agencies further developed each area to come up with shared ideas and to identify the policies in each area and the inter-connections across areas that needed to be successful. The evolving presentation was adjusted and expanded in order to be used internally by each ministry.
In September 2012, a group of young people from outside the public administration was asked to critically reflect on the draft HR-strategy 2020. In October 2012, the final draft interactive presentation of the HR Strategy 2020 was approved by the directors of HR from all ministries, their directors of operational management and the secretaries-general.
A draft policy paper on the HR Strategy 2020 was developed and posted on the internal website of central public administration in order to engage all civil servants in discussions on the strategy. Individual civil servants, as well as groups or departments from all over the central public administration, works councils and unions, sent their responses and suggestions. Finally, the (political) highlights became part of the reform agenda in May 2013. A flyer and a video were made to inform all civil servants. The HR Strategy 2020 continues to provide the framework for policy development in specific HR areas or topics, and after several years a process to update the strategy will be launched.
Source: (OECD, 2017[6]).
HR bodies in the ministries fulfil mostly administrative roles
Having a central HR body does not preclude the delegation of responsibilities. Delegation, under appropriate framework conditions and minimum standards, empowers public managers to oversee their staff effectively. This allows them to consider the unique needs of their respective ministry or agency. Such an approach has the potential to align HR planning more effectively with organisational strategy. However, delegation in the absence of common HR standards and central oversight often leads to disparities in pay scales and limits opportunities for comprehensive government-wide HR planning. Moreover, it increases the risk of nepotism and political intervention in staffing decisions.
Analysing the delegation levels in OECD countries, it is noteworthy that the structure of HR decision-making in countries typically seeks to maintain an equilibrium. In 2016, several OECD countries exhibited a notable degree of delegation, with examples such as the Slovak Republic and Sweden standing out. In the Slovak Republic, the absence of a central HRM unit overseeing minimum standards poses challenges in data collection for HR planning and the establishment of common performance processes. Meanwhile, Sweden's delegation model is accompanied by robust standards managed by the central HR authority, facilitating more effective delegation (Figure 6.4).
Source: (OECD, 2017[5]).
HR units or departments play a crucial role in overseeing all stages of an individual's career and managing HR within the ministry or agency. HR units are uniquely positioned to understand and address the specific needs and challenges faced by ministries and their staff. Their proximity to the day-to-day operations allows them to serve as strategic allies in driving organisational transformation. With the advent of digital tools, HR units have the opportunity to transition to higher-value work, expanding their responsibilities beyond traditional administrative tasks to encompass areas such as work organisation, career development, training, and change management.
While some OECD countries have made strides in this direction, Uzbekistan's HR function appears to be lagging behind. HR units in ministries and agencies often find themselves overwhelmed with administrative duties and lacking the necessary resources and capabilities for more strategic people management. Without adequate support, HR units struggle to innovate and meet the evolving needs of the civil service.
The support ARGOS gives to HR units in enhancing their skills is a lever for transformation. ARGOS and APA have facilitated workshops, seminars, and conferences where representatives from various ministries and agencies at all levels of government can exchange best practices, share insights, and address common human resources management challenges. This includes seminars on human resource management, focussing on new HR technologies, selection and recruitment, staff development, performance evaluation, and the utilisation of analytics and metrics. In 2023, 16 training courses were held.
Furthermore, ARGOS has undertaken measures to alleviate the administrative burden faced by HR units. For instance, it has set up a central recruitment platform, which not only fosters greater transparency and open competition but also lightens the workload of HR units. Previously, candidates had to supply about 16 documents. This has been replaced by one electronic questionnaire. To further streamline administrative processes, a unified information system for personnel records management has been introduced. This has the potential to considerably alleviate HR administrative tasks.
However, further reinforcement is necessary to equip HR bodies with personnel capable of fulfilling a strategic role and transitioning beyond purely administrative functions. ARGOS has reviewed the responsibilities and activities of HR units using specific metrics. On the basis of this analysis, a draft resolution on Model Regulations on Personnel Departments of Republic and Local Executive Authorities was prepared. The draft was not available for review by the OECD team and as such could not be assessed. In implementing the draft, ARGOS could consider focussing on reducing administrative burdens through measures such as automation, while striving to maximise value.
As HR professionals assume a more strategic role, there is merit in contemplating the development of a structured HR career path in Uzbekistan. Such a pathway would entail specific training and learning programmes tailored to equip HR professionals with the skills needed to adopt a more strategic HR approach within their ministries and entities, thereby providing crucial support to line managers. A step towards a HR career is the planned introduction of a master’s degree in human resources management.
By conducting a comprehensive review and bolstering HR units and their activities, HR units can allocate a greater portion of their resources towards higher-value tasks. Strengthening these units allows them to dedicate their expertise to the development and implementation of strategic programmes aimed at more effectively managing personnel within ministries or agencies.
Many OECD governments recognise that building institutional human resource capacity is essential for public administrations to fulfil their missions:
Canada: The Policy on Workforce Management provides deputy ministers with the fundamental support needed to recruit and retain high-performing officers, thereby ensuring good governance and quality services to Canadians, as well as an inclusive, safe and barrier-free workplace that embodies public service values such as respect for people and democracy, integrity, responsible management, and excellence in action and decision-making. The policy defines the human resources goals and expected results, the role of other government organisations and the consequences of non-compliance.
France: Human resources (HR) are an important lever for the performance and modernisation of public intervention. The HR sector is accordingly at the heart of transformations, which concern both the professionalisation of its players and the renewal of its functions focused on new strategic, forward- looking and steering missions. Based on the comment of an image deficit in the sector, which leads to difficulties in recruiting and retaining agents, in a framework of permanent transformation of the professions, the General Directorate of the Public service has developed an "action plan for the transformation of the HR function" in 2019. This ambition is reflected first of all in the opening in 2020 of a project that forms part of the government's priority reforms, aimed at modernising the recruitment function. An "interministerial plan to transform the recruitment function" has produced concrete deliverables such as: the basis of an "employer brand" to promote the sector and develop its attractiveness; a guide to structuring the recruitment function; an interministerial recruitment training market; an "induction toolbox"; methods and tools for describing needs, sourcing and managing recruitment pools. These actions will be extended in 2021 to support the transformation of the HR function, processes and businesses.
Ireland: The third pillar of the people Strategy for the Public Service 2017-2020 focuses on strengthening the human resource capacity of managers and better positioning the human resource functions to contribute to organisational goals.
United Kingdom: The UK Public service has established a set of minimum standards and expectations for various public sector roles, including human resource management. This norm forms part of a set of operational standards that define the government's management expectations. Standards can include both mandatory and advisory elements.
Source: (OECD, 2021[7]), Australia: https://www.apsc.gov.au/redesigning-hr ; Canada https://www.tbs-sct.gc.ca/pol/doc-fra.aspx?id=32621; France,https://www.fonction-publique.gouv.fr/files/files/publications/coll_outils_de_la_GRH/guide-transformation-de-fonction-RH.pdf ; Ireland, https://assets.gov.ie/7232/1bd4d30f2003444a9ca59f1cf87afc28.pdf; United Kingdom:
https://assets.publishing.service.gov.uk/; Government Functional Standard GovS 003: Human Resources - GOV.UK (www.gov.uk).
A merit-based civil service is essential for the effective functioning of a modern state. Such a system ensures qualified individuals are placed in positions where they can make the greatest contribution, while also enhancing public trust and confidence in government institutions. Beyond recruitment, meritocracy fosters a culture of continuous learning and performance improvement. When promotions are based on objective criteria rather than personal connections, civil servants are incentivised to develop their skills and expertise, leading to a more professional and responsive civil service.
Digitising the recruitment process is a step towards strengthening the consistent application of merit
Uzbekistan has undertaken significant reforms in recent years, aiming to establish a more open and competitive recruitment process. These include:
Centralised online portal: The introduction of a central web portal (www.vacancy.argos.uz) allows for online applications and vacancy announcements. All stages of the selection process have been automated and decisions communicated through the web portal. This promotes transparency and accessibility, potentially attracting a wider pool of qualified candidates.
Standardised exams: Standardised tests assess candidates' basic skills and knowledge, including IQ, logical thinking, and language proficiency. While a positive step, these tests alone may not capture the specific skills and competencies required for specific roles. As a result, ARGOS is working to further improve the procedure and include tests for more specific roles.
To publish a vacancy, ministries and agencies first need to ensure that they remain within the approved headcount. Positions are automatically opened for competitive application on a web portal upon vacancy registration with ARGOS. By moving the application process online, counterparts have indicated that it helped to attract younger generations to apply for positions. On average, each vacant position receives 55 applications. To maximise the effectiveness of the web portal as a recruitment tool, it is essential to evaluate compliance with the requirement of publishing all vacancies on the portal.
Candidates must meet qualification criteria before undergoing a standardised examination assessing IQ, logical thinking, Uzbek language proficiency, and constitutional and civil service legal knowledge. This test does not evaluate skills or competencies.
Successful candidates proceed to interviews conducted by a ministry or agency selection committee, with ARGOS acting as an observer. Interviews consist of presentations on a specific topic or case studies, including five standard questions selected from a question catalogue followed by up to five additional questions at the interviewer's discretion. This can help to assess specific skills not addressed in the standardised exams.
Candidates have the possibility to lodge a complaint to ARGOS in cases where they feel the recruitment process did not follow the rules. Where there are justified grounds, ARGOS makes binding recommendations to the recruiting authority on removing the causes and contributions contributing to the violations. Since 2022, ARGOS has received 464 complaints, primarily related to administrative issues. According to ARGOS, the majority of the complaints related to administrative issues.
Despite these efforts, in practice, there is still a strong perception of limited meritocracy in the civil service. Recruitment processes often prioritise degrees over practical skills, neglect comprehensive talent assessment, and lack consistent implementation of standards. In addition, instances of nepotism persist.
Capabilities among ministries and agencies for recruitment needs to be strengthened before delegating the recruitment process
While Uzbekistan has made progress in digitising the recruitment process, establishing a robust governance structure and baseline capability is crucial to ensure consistent application of merit principles. Clearly defined roles and responsibilities for all stakeholders, namely ARGOS, APA, and HR units, are essential. ARGOS needs to monitor the application of the standardised procedures and tools more closely. In addition, over-emphasis on standardisation has led to insufficient skills and competency assessment. Implementing a competency framework is crucial to address this (see also the following section).
To ensure effective implementation, HR units and managers require capacity building. Ministries and agencies have assumed recruitment responsibilities without adequate preparation. ARGOS, in co-ordination with APA, have provided trainings to more than 300 members of recruitment commissions at all levels of government. However, these types of capacities can be built only gradually and is, if done effectively, a longer process. Therefore, ARGOS needs to take a more active role in guiding recruitment in those agencies and departments where capacities have not yet been developed. As capabilities grow, ARGOS can gradually transfer responsibilities and focus on oversight. For advanced ministries and agencies, some level of delegation, for example of developing vacancy descriptions and holding interviews can be considered.
Regular audits to assess implementation, data analytics, and monitoring of candidate experience are essential for continuous improvement. By leveraging data and analytics on recruitment outcomes, candidate profiles and candidate experience can help identify trends, measure effectiveness, and inform future strategies. Building data analytics capabilities within HR functions will be crucial for evidence-based decision-making. In the long-term this data should also help to support strategic workforce planning.
Ultimately, establishing a culture of meritocracy requires consistent application of these principles and a long-term commitment to improvement. By systematically monitoring progress and adapting practices accordingly, Uzbekistan can build a civil service that is both efficient and effective.
The introduction of a competency framework is a step towards systematising competences and skills
An integral aspect driving strategic personnel management is competency management, i.e., the articulation of requisite abilities and behaviours essential for various job roles. Integrating competences into HR management policies and processes such as recruitment, performance management and learning and development ensures that the public sector develops and maintains a workforce equipped with the necessary skills (OECD, 2017[6]).
A competency-based model underscores the significance of skills, knowledge, and abilities essential for individuals to perform effectively in their respective roles, irrespective of their job titles or assigned tasks. Competences encompass expected abilities and behaviours crucial for success across various job functions, such as communication, problem-solving, teamwork, and leadership. These competencies serve as elements guiding recruitment, learning and development initiatives, and performance management within the civil service (OECD, 2011[8]).
In contrast, a functional model for personnel management within the civil service primarily revolves around structuring tasks and responsibilities based on specific job functions or roles (OECD, 2011[8]). Within this model, employees are typically assigned duties in accordance with their job titles or positions.
While a functional model relies on predefined job descriptions and tasks to structure personnel management, a competency-based approach prioritises the identification and cultivation of core competences crucial for success across various roles. This approach fosters greater flexibility and adaptability in job assignments and performance assessments by emphasising the fundamental skills and capabilities indispensable for achieving organisational objectives (Table 6.2) (OECD, 2011[8]).
In OECD member countries, there is a notable trend towards adopting common competency frameworks, particularly at the highest levels of leadership within the public sector. Among OECD member countries, 18 countries have implemented common competency frameworks, specifically designed to highlight the leadership skills expected from public managers. In contrast, only six countries have established a centralised competency framework applicable to all civil servants (Figure 6.5). This trend reflects a strategic approach to managing senior executive groups separately, emphasising the transversal leadership qualities deemed essential for effective governance (see also the following section) (OECD, 2021[10]).
Note: Data not available for Chile, Iceland, and the Slovak Republic, other answer for Finland. Original survey question: “Is there a standard competency framework for senior level public servants?
Source: (OECD, 2021[10]).
Aligned with OECD standards and practices, Uzbekistan initiated the development of a competency model in 2022, under the guidance of ARGOS. This collaborative effort involved APA, stakeholders representing different agencies and government levels, and international experts. The ongoing development process aims to establish a comprehensive framework comprising ten competences: strategic thinking, leadership, teamwork, result orientation, decision-making, time management, initiative, change management, self-development, and analytical thinking. The ultimate goal is to formulate a competency framework that encompasses the entire public service, categorised by groups of position, i.e., political, managerial and auxiliary. The draft competences are largely in line with OECD practices. However, Uzbekistan could include additional emerging competences in its framework to address evolving challenges, such as digital technologies, diversity and inclusion, crisis management, resilience, and emotional intelligence, as some OECD countries have done (OECD, 2021[10]).
While the inclusive development approach is a commendable first step in structuring the civil service around competencies, promoting professionalism and merit-based practices, it currently lacks concrete measures for implementing the competency framework. A robust implementation strategy is crucial to avoid the framework becoming a paper tiger. ARGOS has indicated plans to begin training and implementing competencies at various levels of ministries and departments starting in the second half of 2024, and to extend this effort to the management of ministries and departments in their areas of activity in the middle of 2025. However, no specific actions have been outlined, and interviews suggest limited understanding of how to apply the competency framework to practical HR processes.
To remedy this, the following actions could already be contemplated throughout the development process. First, this entails communicating the competency framework, particularly to HR units and line managers. To facilitate this, ARGOS could provide them with information material explaining the competences. For example, Switzerland provides, for each competence, a definition, various dimensions that give the competency tangible relevance, and a statement outlining the kinds of behaviours that demonstrate this competence (Box 6.3). Second, the competency framework needs to be integrated into HR processes. Currently, plans for integrating the competency framework into HR processes appear undefined in Uzbekistan. Therefore, it is crucial to proactively strategise on leveraging the competency framework to guide HR processes and policies. Third, it is advisable to incorporate regular reviews of the competency framework to ensure its continued relevance.
The competency model of the Swiss federal administration is made of up of 10 competencies grouped under management, personal and social competencies as follows:
Management competences: leadership, people management, effective action in the political context, strategic thinking and action, change management, entrepreneurial thinking and action.
Personal competences: personal responsibility, loyalty, focus on objectives and results, ability to cope with stress, self-reflection, capacity for learning and changing, analytical and conceptual thinking, networked thinking.
Social competences: ability to communicate, ability to deal with criticism and conflict, ability to work in a team, service orientation, diversity management.
Each competency is printed on a card that includes a definition of the competency, various dimensions which give the competency tangible relevance, and a statement of the kinds of behaviours that demonstrate this competency. For example:
Effective action in the political context refers to the ability of individuals to analyse the political context in its full complexity, to recognise opportunities for taking action, and to consider and take advantage of the dynamics of political processes to achieve the goals that lie within the scope of their own responsibility:
Dimensions: Political sense, ability to act in the political process, ability to forge consensus and compromise, focus on stakeholders, public appearance skills.
Behaviours: Analyses the political context and takes advantage of opportunities to act. Considers political processes in order to achieve objectives within scope of own responsibility.
Keeps up with political developments and deepens own understanding of events.
Takes the political process into account in the performance of own tasks.
Puts forward own suggestions to help reach a consensus or compromise.
Knows the needs and expectations of political stakeholders, networks effectively with the political environment.
Represents own administrative division plausibly in wider political and media circles.
Source: (OECD, 2017[6]).
The competency framework needs to be integrated in the HR processes
Recruitment and selection
To determine the competences required for different positions, many OECD countries use job profiling. A job profile combines a description of job expectations with an outline of the competences, skills, abilities, and behaviours, necessary for effective job performance. When appropriately employed and supported by suitable assessment methods, a set of competences offers a rigorous objective means of evaluating candidate suitability. Competency assessment allows for the evaluation of how well both internal and external candidates meet the requirements of a particular role (OECD, 2011[8]).
While the current recruitment process includes job-related presentations and question topics, it does not systematically assess competencies or skills. To integrate the competency framework, ARGOS, in collaboration with HR units, could develop job profiles for each qualification rank of civil service positions based on the framework. ARGOS reported that job profiles have been drafted in the draft regulation on Model Job descriptions of civil servants of the Republic of Uzbekistan. While these were not available to be reviewed, it is important that these profiles outline both generic and job-specific competences, along with their respective development levels. During the recruitment phase, more fine-tuned competency assessments could be integrated into the candidate evaluation process based on this.
In OECD countries, a diverse range of methods is employed to evaluate the analytical and behavioural competences of candidates during the recruitment phase (Figure 6.6). Common approaches include assessing analytical competences through interviews or examinations, with some countries employing more comprehensive assessment centres. Additionally, methods such as computer-based tests, psychological assessments, and simulation games fall under the category of 'other' approaches used to evaluate these competences. It is noteworthy that almost all OECD countries incorporate assessments for behavioural competences. These assessments offer valuable insights into candidates' problem-solving approaches, decision-making abilities, and interpersonal skills within professional settings (OECD, 2021[10]).
Note: Original survey question: “How are the following criteria tested for applicants to the civil service?”
Source: (OECD, 2021[10]).
By aligning the recruitment process with the competency framework and employing diverse assessment methods, ARGOS can ensure a comprehensive evaluation of candidates' competences. This approach enables the selection of candidates who not only possess the requisite skills and abilities, but also demonstrate behaviours aligned with the values and objectives of the civil service.
To kickstart the integration of the competency framework in HR processes, Uzbekistan could start with a pilot process for a specific area in a specific ministry or agency or among the senior civil servants. The planned Centre for the Evaluation of Senior Personnel could support this. Given the priority of reforming the recruitment process, Uzbekistan could start introducing the competence framework in this area.
Learning and development
Competency management serves as a valuable tool for identifying employees' current competency gaps and devising targeted training and development plans to address them. Most OECD countries use managerial feedback on skill gaps or other forms of employee skills and competences assessment. This can help to structure learning and development (OECD, 2023[11]).
In Uzbekistan, there has been no gap analysis of the competences and skills available in the civil service and those missing. The adoption of a competency framework offers the opportunity to develop a structured approach to assess and address the learning needs of civil servants.
The approach to learning and development appears fragmented. While APA offers training courses, these lack a clear focus on skills development. Ministries and agencies have their own programmes, contingent upon HR unit involvement. For instance, the Ministry of Justice mandates a training programme for its staff, including modules relevant to their roles. While decentralised training can be effective, effective planning, organisation, and co-ordination are vital for success. OECD countries with robust learning systems feature centralised, universal frameworks fostering communication and best practices (OECD, 2023[11]). As such, co-ordinated efforts between ARGOS and APA, aligned with the competency framework, are essential for steering cohesive learning and development across the public sector. While there are efforts to use the competency framework, once adopted, to guide training, there are no concrete plans to implement these.
Based on the job profiles developed, ARGOS could consider providing HR units with specific learning templates that would help to develop individualised personal development plans, outlining the specific competences each civil servant needs to strengthen for enhanced performance in their roles. These plans are customised to address the unique requirements and career aspirations of civil servants, ensuring relevance and effectiveness in their professional development journey. For these to be effective, the role of HR and line managers is crucial in identifying trainings need and creating a culture in which learning is seen as beneficial.
Performance management
Currently, Uzbekistan lacks a standardised performance management system for civil servants and, as such, effective accountability structures. The forthcoming competency framework needs to form the foundation for performance assessments. Under ARGOS' leadership, criteria and processes for performance evaluations aligned with the competency model must be developed. ARGOS has drafted several regulatory acts on performance evaluation, but these have not yet been adopted and therefore cannot be assessed at this time.
Competences offer clear expectations for individuals, providing an objective set of measures against which performance can be evaluated. Incorporating competences into performance assessment ensures that evaluations are based on tangible behaviours and skills relevant to the job roles. It can enhance the fairness and objectivity of performance evaluations and ensure that merit-based principles are upheld in assessing and rewarding employees' contributions.
Moreover, competences enable a more comprehensive evaluation of performance by considering not only the outcomes achieved but also the behaviours demonstrated in achieving those outcomes. This holistic approach to performance assessment allows for a deeper understanding of employees' strengths and areas for development, facilitating targeted training and support initiatives.
Further efforts are needed to invest in managing senior-level public servants
The reform agenda pursued in Uzbekistan regarding the civil service aims to enhance transparency, professionalism, and accountability. Within this framework, senior leadership plays a crucial role in fostering an efficient, innovative, and trustworthy public sector. They are instrumental in creating an environment where employees feel engaged and supported to effectively fulfil the public sector’s mission. Effective leaders drive efficiency and productivity by fostering conditions conducive to employee engagement. Engaged employees, in turn, demonstrate higher performance levels and are more productive and innovative.
Recognising the role of senior leadership in civil service performance, the PSLC Recommendation underscores the importance of leaders and managers in strengthening HR capacity across governmental bodies. Specifically, the recommendation highlights the importance of:
Clarifying the expectations incumbent upon senior-level public servants to be politically impartial leaders of public organisations, trusted to deliver on the priorities of the government and uphold and embody the highest standards of integrity without fear of politically motivated retribution.
Considering merit-based criteria and transparent procedures in the appointment of senior-level public servants and holding them accountable for performance.
Ensuring senior-level public servants have the mandate, competencies and conditions necessary to provide impartial evidence-informed advice and speak truth to power.
Developing the leadership capabilities of current and potential senior-level public servants (OECD, 2019[3]).
In most OECD countries, a dedicated system is established to manage the senior public service (Figure 6.7). It is common that recruitment is more centralised and a greater emphasis is placed on avoiding conflicts of interest and on performance management. Senior public-level servants typically have less job security. At the same time, more attention is paid to the management of their careers with career mobility being encouraged.
These systems are designed to equip administrative public leaders with the requisite skills and resources by creating pathways for career advancement and professional growth for individuals. This entails initiatives aimed at nurturing leadership potential, providing specialised training and development programmes, and fostering a culture that values continuous learning and progression. By investing in the career development of senior officials, governments can ensure a steady pipeline of capable leaders equipped to navigate the complexities of public administration. Beyond the individual level, countries also seek to establish an enabling operating environment for senior-level public servants to effectively carry out their responsibilities Lastly, given the political-administrative interface that many senior public level servants need to navigate, specific provisions are often taken to limit the political influence on this level (OECD, 2021[10]) (Gerson, 2020[12]).
Source: (OECD, 2021[13]).
Given the pivotal role that senior-level public servants play in driving organisational performance and shaping the overall culture of the public service, Uzbekistan would benefit from targeting reform efforts at this level. According to the qualification ranks set by the Civil Service Law, this would be the political and managerial group, which are usually either appointed or going through a public competition.
By concentrating resources and attention on implementing reforms targeting senior officials, Uzbekistan can harness the significant influence these leaders wield within the public service. Focussing reforms on this specific cohort not only allows for targeted interventions but also maximises the ripple effect that improvements at the senior level can have throughout the entire public service. Furthermore, reform initiatives undertaken at the senior level send a powerful message of commitment to transparency, professionalism, and accountability, setting the tone for broader organisational culture and practices. Therefore, directing reform efforts towards the senior level of the public service represents a strategic approach to catalysing comprehensive and sustainable transformation within Uzbekistan's public administration. Adopted successfully at that level, reforms could be rolled out in subsequent stages.
Procedures for the appointment and dismissal of senior civil servants need to be adopted and legally regulated.
Regarding recruiting and selecting leaders, Uzbekistan can draw insights from OECD practices, where the majority of countries recruit senior civil servants through competitive processes. While the merit principle is enshrined in the Uzbek law, its application in senior appointments is inconsistent. According to the newly introduced groups of position, the political group are appointed, while the managerial group is selected through competition. As indicated by Uzbekistan, the appointment of civil servants of the political group is made from the National Personnel Reserve.
The National Personnel Reserve is a centralised pool of high-potential individuals identified for future leadership roles in the Uzbek civil service. Its aim is to enhance meritocracy through fair and transparent selection and development. Candidates for the National Personnel Reserve undergo a competitive selection process based on qualifications, experience, and performance. This typically involves written examinations and interviews led by ARGOS.
ARGOS is responsible for developing and implementing the National Personnel Reserve selection criteria and procedures, and providing training and development in co-ordination with APA. This means there is a pool of candidates having undergone stringent selection as well as training to be well-prepared for leadership positions.
Throughout OECD countries, while the civil service strives to adhere to merit-based principles, there are instances where political considerations may influence appointments, particularly at higher levels (this does not apply to inherent political appointees such as the prime minister or local authorities). Political influence can have negative consequences on merit, independence and stability. It can also create an environment in which senior-level public servants do not speak out or provide evidence-based advice in opposition to political priorities out of fear of dismissal (Gerson, 2020[12]).
While some level of political involvement in senior appointments is not uncommon in OECD countries, efforts are made to manage this influence to safeguard merit and accountability. This may entail allowing ministers to select a candidate from a shortlist presented by a selection panel, thereby ensuring transparency and accountability in the process. Alternatively, in some OECD countries, a recruitment panel ranks candidates according to merit-based criteria, granting political officials the discretion to make the final choice based on specific criteria. In certain cases, appointments may also require confirmation by the legislature. Another approach to curbing political influence is the establishment of minimum requirements for senior-level public positions. The fundamental principle underlying these mechanisms is to ensure an open and transparent matching of appointees' skills with the requirements of the position. This fosters accountability, as decisions need to be transparently justified.
Uzbekistan has yet to develop procedures by law for appointment and dismissal for public servants belonging to the political group and, as such, lacks minimum requirements, leaving the selection process vulnerable to political discretion. To mitigate this, Uzbekistan could introduce competency-based qualification criteria for senior appointments. This should apply to both the political and managerial group of positions.
Political influence can also manifest in politically motivated dismissals, particularly at lower hierarchical levels. Legal safeguards against such dismissals are lacking in Uzbekistan, unlike in many OECD countries where stringent regulations protect senior civil servants from arbitrary termination by ministers (OECD, 2021[10]). While ARGOS formally needs to be notified of any dismissals and has the mandate to oppose dismissals in the case of unjust reasons, in practice this does not seem to be fully enforced.
Strengthening legal protections for senior officials in Uzbekistan would enhance their independence and safeguard against politically motivated actions, fostering a more stable and professional civil service environment and promoting a culture of meritocracy and accountability in line with OECD standards.
Note: 10 OECD countries indicated ‘other’ as a response to the question given that the role often varies according to the level of senior civil servant recruited. For New Zealand, ministers have no formal role, but some informal role. They may not always have this informal role though. Original survey question: “What role, if any, do political officials (president, prime minister, ministers, etc.) have in the recruitment/selection of senior level public servants?”
Source: (OECD, 2021[10]).
Note: Original survey question: “Can a senior level public servant be dismissed before the end of his/ her term, for any of the following reasons?
Source: (OECD, 2021[10]).
The National Personnel Reserve needs to be strengthened with a focus on merit and used as an exclusive recruitment pool for senior positions
Centralising the recruitment process for senior civil servants offers the advantage of ensuring quality and consistency. It can also strengthen meritocracy. In the OECD, 62% of OECD countries have a centralised recruitment process for senior level public servants (OECD, 2021[13]). For example, in Chile, an external enterprise prepares a shortlist of candidates according to the analysis of the curriculum vitae of candidates. This shortlist is reviewed by the Senior Public Management Council which interviews the candidates and prepares a final shortlist for the competent authority.
Uzbekistan has taken steps towards using the National Personnel Reserve as the exclusive pool for recruitment. In addition, the Centre for Assessment of Senior Personnel under the Civil Service Development Agency under the President of the Republic of Uzbekistan is being established. The main objective of the Centre is to assess skills and competencies in the appointment of senior civil servants. These are steps towards reducing political influence on senior civil servant appointments.
However, while the National Personnel Reserve is not used as an exclusive pool for senior civil servant appointments, the effectiveness of the National Personnel Reserve is hampered by instances of inconsistent application and a lack of data on its impact. Centralising the recruitment process under the leadership of ARGOS, could consist of a mandatory shortlist of candidates from the Reserve for any vacant senior public servant position. Individuals not previously included in the Reserve would need to undergo the same qualification process as those already selected. From this shortlist, interviews and assessments could be conducted to create a final shortlist for the recruiting agency's selection. This approach would enable ministers to retain discretion in candidate selection while ensuring appointments are based on necessary skills and competencies, thereby enhancing transparency and accountability in senior appointments.
In addition to the steps already taken, the following actions are essential to further strengthen the selection process for the National Personnel Reserve:
Refine selection criteria: Strengthen selection criteria with a focus on core competencies and leadership potential. While the existing assessment includes tests, 360-degree assessments, and interviews, these could be further refined to more effectively identify candidates with the necessary skills and aptitudes. These could include
Case studies: These can assess a candidate's problem-solving skills and analytical abilities in a simulated work environment.
Group exercises: These can assess a candidate's teamwork, communication, and interpersonal skills.
Psychometric testing: These tests can assess a candidate's cognitive abilities, personality traits, and emotional intelligence.
Enhance transparency: Increase transparency by maintaining a comprehensive record of all appointments to senior posts, including internal promotions, external hires, and presidential reserve placements, as already implemented through the hrm.argos.uz platform. This record should detail:
Whether each appointment was filled through an open, competitive process.
Whether the appointed individual met the required competency standards.
Invest in ongoing development: Continue to provide comprehensive training and development programmes for National Personnel Reserve members to ensure they maintain their skills and knowledge at the required level.
Evaluate and adapt: Regularly assess the National Personnel Reserve's effectiveness in meeting the needs of the civil service. This evaluation should include analysis of how well the selection process identifies and recruits high-performing candidates. Based on this assessment, make necessary adjustments to the selection criteria and assessment methods to ensure the Reserve remains a valuable source of talent for the civil service.
By implementing these strategies, ARGOS can position the National Personnel Reserve as a cornerstone of a high-performing and trusted civil service.
Competency-based assessment for senior public servants needs to be strengthened
To enhance the selection and development of senior public servants, Uzbekistan needs to prioritise a robust competency-based approach. This involves clearly defining the core competencies required for senior leadership roles, align competencies to the requirements of senior leadership positions, developing assessment tools to measure these competencies and train HR professionals in using these, and incorporating the assessment tools into the recruitment and development process.
While OECD countries consider seniority and education, the emphasis is placed on evaluating job-related experience and leadership competences. Experience-based interviews, situational interview questions, and simulation exercises are commonly employed to assess candidates' leadership potential and behavioural attributes.
In Uzbekistan, the recruitment process does not systematically assess competences. As such, ARGOS needs to reform the recruitment process and introduce a mix of assessment methodologies. Additionally, some OECD countries incorporate integrity tests to uphold ethical standards among senior-level public servants, a practice Uzbekistan could explore to underscore the importance of integrity and ethical conduct in senior positions (OECD, 2021[10]). The Centre for Assessment of Senior Personnel, upon establishment, plans to utilise more targeted assessment methods, such as case studies, simulations, problem-based learning, and business games, to evaluate competencies in areas such as digital technologies, diversity and inclusion, crisis management, resilience, emotional intelligence, values, norms, and incentives.
Publishing information on the recruitment process of senior public servants can strengthen trust in a merit-based process
Currently, Uzbekistan is not actively disclosing information on recruitments of senior public servants, such as how many candidates are recruited from the National Personnel Reserve. To underscore its commitment to merit-based recruitment, Uzbekistan could enhance transparency by actively disclosing information about the recruitment process. This could include details about the vacancy, position requirements, and the number of applicants for each position. Furthermore, anonymous information on candidate profiles, such as age, gender, and ethnicity, could be made available to promote diversity and inclusion. While some OECD countries only publish information about the vacancy and position requirements, others, like Norway, go a step further by publishing the list of all candidates, further enhancing transparency and accountability in the recruitment process.
In 2003, the Chilean government, with the agreement of all political actors (opposition political parties, non- governmental organisations, civil society), created the Sistema de Alta Dirección Pública (SADP), a central senior civil service system. The aim of the SADP was to establish a professional senior management. Following the reform, there are three distinct groups:
1. The most senior positions, which are filled by direct designation by the government (1 000 positions out of 2 million in central government).
2. The SADP, for which recruitment is based on public competition (1 000 positions in central government). There are two levels within the SADP: approximately 1% at the first hierarchical level (heads of service, directors general), and the remainder at the second hierarchical level (regional directors, heads of division).
3. Middle management positions (2 000 positions in central government) at the third hierarchical level, which form part of the career civil service.
The SADP has been implemented gradually by recruiting by open competition whenever a post falls vacant and by expanding it over time to additional groups. For example, it has been expended to include 3 600 municipal education directors and 2 800 new senior management posts in municipalities. Most of the selection process for the SADP is contracted out to specialised recruitment agencies. The National Civil Service Directorate is responsible for management of the SADP. However, the Senior Public Management Council is in charge of guaranteeing the transparency, confidentiality and absence of discrimination of the selection process. It is chaired by the director of the National Civil Service Directorate and has four members proposed by the president of Chile and approved by the Senate. The selection process, which takes about four months, begins with the publication of the vacancy in the media.
A specialised enterprise commissioned by the Senior Public Management Council analyses the curricula vitae of the different candidates and prepares a shortlist for the council or a selection committee (under the council’s supervision). Professional competence, integrity and probity are some of the criteria used in the selection process. Subsequently, the council or the committee selects the best candidates for interview and prepares a final shortlist for the competent authority for the final appointment.
The system is considered one of the main achievements of the modernisation of Chile’s public management. One outcome has been the decline in the number of political appointees in the central government; they currently represent only 0.5% of the total public workforce. It is also argued that the presence of women in senior positions has increased under the system; they occupy 32% of positions, compared to 15% in the Chilean private sector.
Source: (OECD, n.d.[14]).
The learning and development approach for the senior civil service is one-size-fits-all and needs to be diversified
To ensure continuous learning and development among senior civil servants in Uzbekistan, it is crucial to provide structured opportunities that are both relevant and adaptable to their busy schedules. Learning initiatives must be tailored to address the highly specific challenges faced by senior-level public servants and foster a culture of learning within the public sector. In Uzbekistan, APA plays a crucial role in training senior leaders in the public services. Approximately 20,000 top managers undergo in-person training through 50 different programmes annually. The plan is to also incorporate the competency model as soon as it is adopted. These trainings are strongly encouraged with specific training days for all public leaders held in December of each year. In addition, ARGOS organises several training courses for managerial personnel at the national, regional and local level. It has also developed an online learning platform to facilitate regular learning opportunities.
Uzbekistan could diversify its efforts for learning and development and work towards creating an effective learning culture that values investment in learning, and offers regular and quality feedback. OECD countries offer a diverse range of learning opportunities and peer support mechanisms for senior public servants, aimed at enhancing their skills and capabilities in navigating complex public challenges. For example, a majority of OECD countries have put networks for senior level public servants in place (Box 6.5). These can strengthen an environment of continuous learning, boost network collaboration and help build connections across organisational siloes. They can also confront senior-level public servants with different voices and perspectives not common in their area and inspire new solutions to problems. Additionally, OECD countries offer coaching opportunities for senior leaders, providing tailored learning experiences that may strengthen their commitment to learning (OECD, 2021[10]). Given the position of APA in learning and development, it would be in a good position to lead these efforts and could as a kind of Centre for Excellence for senior-level public servants.
While learning and development for existing senior-level public servants is important, setting up a pipeline for future leaders can be equally beneficial. The National Personnel Reserve is a step towards building such a pipeline for future leaders within the public sector. Uzbekistan could draw additional inspiration from leadership programmes in other countries, such as Ireland, which has developed an extensive development programme for future leaders (Box 6.6).
In Ireland, the civil service management board is formalised structure which brings all Secretaries General together to discuss government-wide challenges and potential solutions. The assistant Secretary General’s network provides less formal opportunities for networking around learning events.
Estonia’s Top Civil Service Excellence centre brings together top civil servants to participate in the Centre’s activities. The development of a trusted network and ability to improve relationships across ministries was commonly cited as one of the most important outcomes of these activities. This is particularly important in Estonia where no hierarchical relationship exists among SGs and few formal structures to direct co-ordination and collaboration.
In Finland, Secretaries General meet weekly for on Monday mornings, and they organise special days with the Prime Minister and other high-level informative and motivational speakers for the broader SCS, which provide opportunities to network. For example, The Ministry of Finance organises an annual Public Management Day with high quality speakers and discussions, including with invited mayors and municipal leaders, to promote networking and cooperation among the whole public sector. Finland has also developed more formalised small peer support groups, made up of approximately 10 leaders in each group, which meet approximately 4 times per year. Participants are stable for at least 2 years in the same group, and SCS talk openly about their experience in a comfortable and trusted environment. These groups also enable the sharing of innovations and collective problem solving.
The Netherlands’ Senior Civil Service Bureau has set up “Intercollegiate Groups” to help SCS to learn from the insights of their peers. SCS can use these groups to access additional perspective and experiences when in the thick of particularly complex leadership challenges. Groups of 6 SCS commit to meet together 12 times over a period of 2 years. These groups are each supervised by a professional coach, with 1-2 being present at each meeting to facilitate discussions. At each meeting, they focus on a particular SCS and the challenge they face, and use different tools to generate insights from the group, challenge assumptions and look at the problems from different perspectives.
Canada and France have used various approaches to mentoring and reverse-mentoring, whereby senior leaders are paired with younger employees who provide advice to the senior leader on various possibilities regarding the use of social media and the potential benefits of a more digitally advanced workspace, among other things. In France, Digital Mentors allow public managers who are in charge of digital transformation to work with digitally native internal coaches, who present managers different digital concepts (cloud, big data…) that can provide a solution for specific challenges. Reverse mentoring does not only need to be digitally focused, but can also be a way of sparking new ideas and creating a more inclusive orientation in the senior civil service. Canada had a Deputy Minister (DM) Innovation Committee in which each DM and their reverse mentor participated together, with the mentors treated as equals around the table at these discussions.
Source: (Gerson, 2020[12]).
The Executive Leadership Programme for Senior Public Service and Principal Officers is designed to help participants explore various aspects and styles of leadership, thereby advancing their personal and professional development. This initiative aligns with the Irish Civil Service Renewal Plan, which advocates for structured and transparent talent management programmes to identify and support future leaders at key career stages.
Managed by the Department of Public Expenditure and Reform and delivered by the UK-based Roffey Park Institute, these programmes also benefit from input from Secretaries General (for the Senior Public Service programmes) and Assistant Secretaries (for the Principal Officers programmes) to provide contextually relevant information and current insights during the modules.
The programmes encompass crucial aspects such as leading transformation at times of ambiguity and Complexity, working with Ministers and the political system, empowering systems and staff, emotional intelligence, finding the time for leadership, resilience in the face of unrelenting pace and pressure, and collaboration across boundaries.
The programmes include:
A one-day development centre for assessing current leadership strengths and areas for development.
Three two-day modules:
Module 1: developing the necessary emotional intelligence and presence to meet the challenges of 21st century Leadership in Government
Module 2: Enhancing the capability required to empower senior leaders across the civil service.
Module 3: Leading across boundaries and fostering effective cross-Government collaboration.
A one-day organisation workshop designed to explore partnership and collaboration across systems.
A review event.
Coaching with external accredited executive coaches focused on applying learning.
Mentoring from recently retired Secretaries General and current Assistant Secretaries General to support both the programme and the participants more broadly.
For the ambitious civil service reform efforts in Uzbekistan to succeed, it is crucial to begin with foundational steps that focus on getting the basics right. This involves strengthening ARGOS as the central authority for HR management and focussing on manageable, well-designed priority projects. Developing and implementing the HR strategy is an important lever to do so. By empowering HR units to become strategic partners in HR initiatives, strengthening merit, developing a competency framework, and outlining plans for its integration into HR processes, the groundwork can be laid for long-term change.
Furthermore, it is wise not to overextend efforts initially and instead focus on the senior civil service as a priority to introduce HR standards and practices. Senior leadership plays a pivotal role in setting the tone for reform efforts and shaping the culture of the civil service. Therefore, there should be a concerted effort to enhance the capabilities of senior leaders. Specialised training programmes can be implemented in the short term to equip senior managers with the necessary skills and knowledge. Additionally, consideration should be given to reducing political influence on senior appointments.
Getting the ecosystem right for civil service reform in Uzbekistan
ARGOS needs to consolidate its role as the central HR authority, fully embracing its mandate and driving forward the civil service reform agenda:
Strengthen the Public Council to prioritise projects, avoid duplication, and ensure efficient co-ordination with the overall reform agenda. Stakeholders should be represented by senior leadership. Technical proposals could be prepared in smaller workstreams.
Public Council meetings should identify actions to clarify project scope, goals, sequencing, and costs.
Assign responsibilities within ARGOS and APA to support the work of the Council by preparing meeting agenda, information and outcome reports.
Prioritise and manage projects effectively:
Leverage the forthcoming HR strategy to guide project selection.
Focus on foundational elements with clear objectives, milestones and realistic timelines and identify potential barriers for implementation.
Implement robust monitoring and evaluation mechanisms.
Utilise data from the HR database (HRM.ARGOS.UZ) for informed project design and impact assessment.
Utilise the National Personnel Reserve as a flexible talent pool to ring together diverse expertise for specific projects.
APA is a key partner for the civil service reform agenda led by ARGOS. In order to leverage APA’s expertise, it could focus on three main areas:
Develop a comprehensive training portfolio: Align training courses with the forthcoming competency framework, emphasising practical skills and leadership development.
Position APA as a leading authority in civil service learning and development: Build a centre of excellence for senior-level civil servants, focussing on leadership development and evidence-based practice.
Utilise research to inform policy: Conduct in-depth research to identify training needs, evaluate program effectiveness, and inform evidence-based decision-making.
The Strategy for the Development of the civil service could be an opportunity for ARGOS to push for ambitious goals and assume its mandate as the central HR body:
The process for developing the strategy is key and should be guided by these elements:
Assessing the current state
Engage stakeholders
Define objectives and priorities
Set ambitious, but realistic goals and targets
Assign responsibilities for implementation
Allocate the necessary resources for implementation
Conduct an analysis of the strategy impact and develop a robust communication and change management plan
ARGOS could work towards political endorsement of the HR Strategy at the highest level to ensure ownership.
The HR bodies in the ministries and agencies are currently mostly fulfilling administrative tasks. Bolstering their role as strategic partners for ARGOS facilitates the implementation of civil service reforms. These measures would support the efforts:
Establish a clear profile of the role of HR units based on the review already conducted as well as additional assessments where needed.
ARGOS needs to invest further in building capacities among staff in the HR units. They also need to support HR units in having the necessary resources available.
ARGOS could set up a community of practice for HR units to exchange on good practices and challenges.
In the medium-term, the HR profession could be developed as a specific career path, outlining clear development steps and goals to build capabilities
Strengthening meritocracy
To strengthen merit, the procedures and processes introduced by ARGOS through the introduction of the online recruitment platform need to be effectively implemented. This means to
Build the capacity of ministries and agencies to effectively manage the recruitment process by providing additional targeted training to HR units and managers on recruitment processes, competency frameworks, and interview techniques.
Routinely assess candidates' skills and competencies, in addition to technical knowledge.
Initially, ARGOS should take a more active role in guiding recruitment, gradually transferring responsibilities as ministries and agencies develop their capabilities.
Collect and analyse data on recruitment outcomes, candidate profiles, and candidate experience to inform decision-making.
Build data analytics capabilities within HR functions.
Regularly assess candidate satisfaction to identify areas for improvement.
Maintain a sustained focus on improving the recruitment system and continuously assess the effectiveness of the recruitment process and make necessary adjustments.
Defining competences to structure the civil service
ARGOS is working on the development of a competency framework for the civil service. This is a step towards systematising competences and skills. To support implementation, ARGOS could consider providing practical support to HR on what the competences mean in practice. For example, better guidance could explain the dimensions and behaviours related to the competences.
Scrutiny needs to be given on how to integrate this in HR processes, such as recruitment, learning and development, and performance assessment. In this way, a competency framework can help to guide career paths supporting attractiveness of the public sector:
For recruitment, this means to develop additional means for assessing competences that go beyond the current general test and standard interview and are more targeted to the competences needed in the job. In addition, ARGOS could introduce behavioural questions and situational tests.
For learning and development, ARGOS needs to engage in further efforts to set up a learning culture in the public sector and setting requirements for developing individual learning plans. The offer and type of learning offers should also be diversified and aligned to identified competences.
For performance assessment, ARGOS should push ahead with introducing a standardised process for assessing performance. The performance assessment should not only look whether targets have been achieved, but also on how they have been achieved and assess the performance according to the competences displayed.
ARGOS could propose to develop an initial pilot in a selected ministry to apply the competency framework in the recruitment process. Prior to doing this, job profiles setting out the relevant competences need to be developed in co-ordination with HR units and line managers.
In the medium term, ARGOS should use the competency framework to develop competency gap assessments for the public sector and supporting HR units to conduct such assessments in their ministries and agencies.
Building a senior public service that sets an example
Given the pivotal role that senior level public servants play in driving organisational performance and shaping the overall culture of the public service, Uzbekistan would benefit from prioritising reform efforts at this level.
Merit-based recruitment of senior level public servants needs to be strengthened. This could be done by:
Undertake efforts to introduce merit-based principles into the appointment procedures for the political and managerial group of position. ARGOS could suggest reforms mandating minimum requirements and competences for these group of positions and advocating for the selection of candidates from a pre-determined shortlist. Efforts should also be undertaken to introduce legal safeguards for senior level public servants against politically motivated dismissals.
Develop a specific competency model for senior level public servants and align job profiles with it.
Strengthen selection criteria for the National Personnel Reserve with a focus on core competencies and leadership potential.
Increase transparency by:
maintaining a comprehensive record of all appointments to senior posts, including internal promotions and external hires, as well as presidential reserve placements;
detailing whether each appointment was filled through an open, competitive process;
documenting whether the appointed individual met the required competency standards.
Invest in additional comprehensive training and development programmes for National Personnel Reserve members.
Regularly assess the National Personnel Reserve's effectiveness and make necessary adjustments.
Use experience-based interviews, situational interview questions, and simulation exercises to assess candidates' leadership potential and behavioural attributes.
Enhance transparency by actively disclosing information about the recruitment process, to underscore commitment to merit-based recruitment, This could include details about the vacancy, position requirements, and the number of applicants for each position. Furthermore, anonymous information on candidate profiles, such as age, gender, and ethnicity, could be made available to promote diversity and inclusion.
The learning and development approach should be further diversified and targeted to senior-level public servants. This could include networks for senior-level public servants to boost network collaboration and help build connections across organisational siloes. Coaching opportunities could also be offered. ARGOS would need to reach out to APA and HR units to co-ordinate efforts and ensure implementation.
References
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