Abstract
Modern conditions of public administration are formed in the BANI world (Grabmeier, 2020), unstable, disturbing, uniquely technological and digital. How many of today's civil servants are capable of functioning in such a world through current training and professional development systems? This issue is particularly relevant for post-Soviet countries, as most of them belong to emerging economies that are still shaping their own unique public administration system. The article is aimed at studying the practice of professional development of civil servants within the framework of additional education in post-Soviet countries in the context of digitalisation. According to the study, it is clear that the Soviet model of supplementary education for civil servants is still valid, with minor differences in the countries studied. This model is characterised by a centralised organisation of training of civil servants within the framework of specially created structures (public service academies). With the transition to digital learning, countries are differentiated by the pace and level of transition to distance and e-learning for public servants.
Keywords
Introduction
In public administration as a field of training, the focus of education shifts in response to evolving knowledge, needs and interests (see Guy, Mastracci, 2023, Farrell et al., 2022; Haruna, 2022; McDonald, 2021). The shift in focus and major trends are discussed annually at academic and practical conferences, such as the SPAE Conference on Public Administration Education (TPAC), ASPA, EGPA and NISPAcee conferences.
The attainment of independence by the countries of the former USSR in the 1990s made it necessary to reform their civil service systems. However, this process over the past 30 years has resulted in fifteen post-Soviet countries achieving surprisingly different results in public service reform. This diversity in transformation processes can be attributed to historical and cultural traditions and the inherited Soviet legacy, as well as the influence of the political will of the ruling elites, which has influenced the socio-economic and governance models adopted by these countries (Baimenov, Liverakos 2022).
In the 21st century, the widespread adoption of the Internet and information technology, alongside increasing demands from citizens, has facilitated the modernization of civil service systems and the professional development of employees (Baimenov, Janenova. 2019). The digitalization of public administration has gained popularity as a means to enhance the delivery and production of public services, diminish corruption, and augment transparency in government operations (Balzer et al. 2020; Mouna et al., 2020; Androniceanu et al., 2022). In 2010, the European Union (EU) proposed digital transformation in all EU member states for the purpose of overcoming inefficiencies and enhance the transparency in public administration. 1 Yet, little consensus exists among researchers and practitioners on how to effectively digitalize public administration. In a broad sense, digitalization refers to the “multidimensional organizational and technological process of mass application of new digital technologies in production and management to reduce costs and increase the speed of business processes”, that is going digital does not mean buying a few computers or designing a Web site to display information, but transforming the fundamental relationship that exists between the government and the general public (Gascó, 2003). In certain countries, like Great Britain, the concept of digitalization includes a fundamental reconfiguration of internal processes of public administration. 2 Meanwhile, in other countries, such as Russia, it is only applicable to the realm of public services. 3 Thus, the decision of the Supreme Eurasian Economic Council on the Main Directions of the Implementation of the Digital Agenda of the Eurasian Economic Union until 2025 defines digital transformation as a qualitative and revolutionary change that encompasses not only specific digital transformations, but also fundamental changes to the economy's structure. 4 These changes include the transfer of value-added centers to the sphere of constructing digital resources and end-to-end digital processes. The main directions of digitalization of public administration are considered: the process of providing public services, smart technologies of management, digital interaction of citizens and the state, public participation in public decision-making, improvement of the regulatory legal environment for the introduction and use of digital technologies, cybersecurity, human resources, formation of infrastructure for the use of digital platforms, systems, services in public administration, etc.
The issue of the digitalization of post-Soviet countries is a subject of considerable academic discussion. (Kreitem et al, 2020) It is also possible to track the results of the digitalization of public administration in various international rankings, for example, in the UN EGDI index. In 2022, Estonia ranked 8th, followed by Lithuania in 24th place, Kazakhstan in 28th, Latvia in 29th, Russia in 42nd, and Ukraine in 46th, according to the ranking of considered countries. 5
Since digitalization implies such a transformation of relationships both within public administration and with citizens and organizations, it requires a review of the functions and competencies of public servants. The digital skills of citizens and employees are given attention to in the UK Digital Strategy, 6 the digital culture for transforming the country into a center of digitalization is stated in the French Digital Strategy, 7 the understanding and learning of digital skills is stated in the “Shaping digitalization”, 8 etc.
Currently, digital technologies make it possible to solve a set of tasks related to the collection, processing, storage and distribution of all types of information necessary for the implementation of public administration. The digitalization of public and governmental processes necessitates civil servants to acquire novel digital competencies and professional functions to enhance the effective use of digital services and technologies. Moreover, they must be immersed in a professional digital management environment. These tasks cover almost all activities of a civil servant. Modern challenges require constant updating of the content of educational programs and approaches to learning, the introduction of new knowledge and new educational technologies that satisfy the demands of continual professional development for civil servants.
In the context of digitalization of public administration, the importance of human resources and their quality increases, which requires civil servants to possess new digital competencies (knowledge and skills) and often to master new professional functions that allow them to work effectively in the new digital environment (Bannykh, Kostina, 2021). The need to include knowledge and skills in the field of ICT in the requirements for state and municipal employees is due to the formation of an e-government in almost every modern state.
In accordance with the fact that our research discusses the introduction of digital technologies into the training systems of civil servants, it is necessary to dwell on the digitalization processes in the countries of the post-Soviet space. In this case, in our view, two aspects should be discussed –– digitalization of public administration and digitalization of education systems in the countries under consideration. The digitalization of education systems provides the general background for the introduction of digital technologies in the training of public officials and creates the institutional conditions for it. However, the reforms of the education systems associated with digitalization have been uneven across the countries of the former USSR. The digital divide between the post-Soviet countries is evident: Russia and Kazakhstan take the lead in promoting information technology in education. 9 It should be noted that the COVID-19 pandemic was a major factor in accelerating the introduction of digital technologies in education (Nurlybaeva, 2023).
The article's primary objective is to examine the characteristics of civil servant professional development systems in the post-Soviet countries, including their focus on the use of digital technologies and the formation of digital competencies. This is accomplished through a comprehensive review of training methods for government officials and identification of models: - By conducting a review of training approaches and identifying applicable models for public officials.; - By examining the use of digital technologies in the education and training of public servants' digital competencies; - Through an analysis of case studies on digital competence training systems and the skills of public servants in Kazakhstan, Ukraine, Belarus, and Russia.
Literature review
Modern scientists note that the number of studies on changes in the content of professional activities within the field of public administration in the context of digitalization is increasing, but the number of studies on the profession of public servants is still insufficient. The concept of “digitalization,” “digital transformation,” and “digital transformation of public administration” have yet to be fully understood by the academic community. There is ongoing debate regarding the definition of digital competencies, both at a general and professional level. All of this complicates the very process of responding to the new digital challenges of the public system and the public administration (Bannykh, Kostina, 2021).
The disciplinary narrative tends to emphasize the existence of multiple models of public administration education systems around the world or in different regions of interest. At the same time, when national systems are compared with each other, they are usually seen as relatively homogeneous internally.
The global experience of training systems for civil servants allows us to distinguish three main models of their organization and functioning: Anglo-Saxon, French and American.
Within the framework of the Anglo-Saxon model, the training of civil servants focuses on change management skills and leadership potential, based on hard skills in the field of jurisprudence. In 2003, the PSG (Professional Skills for Government) set of competencies was consolidated, and an important role was assigned to information literacy, which enables research in the field of working with information, including effective communication and information security (Hajnal, 2003).
In the French model, the content of the training is knowledge from the field of political and administrative sciences, and the main educational institutions are universities and institutes of political studies (Pollitt, Bouckaert, 2011). Retraining is carried out in state educational institutions with special visiting centers. Civil servants may choose any educational program, as part of a corporate training plan or during individual paid study leave.
The American model provides for flexible adaptation of vocational education to the needs of the labor market in the public sector. Advanced training is built on the basis of independent work, taking into account the pace of learning, the development of the material studied and the improvement of professional and personal qualities. The development of additional education systems in the United States has become one of its priority tasks (Staroňová, Gajduschek, 2016), which outlined the priorities of state policy in the development of the education system. The motive for the specialist is to keep the salary in the next fiscal year, which in its self-evaluation, presents a report on the process of continuing education. Professional development is considered as an indicator of continuing education.
Researchers have also identified the Soviet academic system a distinct system (Staroňová and Gajduschek, 2016). Public administration education was notably concentrated in specialized personnel centers catering to the political and administrative elite, and later transitioned to particular universities of public administration. Public administration research was also concentrated in National Academy of Sciences institutes. The focus shifted primarily towards economic and legal disciplines, aligning with Marxist economics principles.
At the end of the Soviet period in the USSR there was a unified system of professional training and retraining of people employed in the sphere of state and political administration. The system of additional professional education included three main types –– retraining programs, which gave the right to carry out a new type of professional activity and were of a long-term nature (up to 1000 h), advanced training programs, which gave additional competencies within the acquired profession and were of a short-term nature (up to 144 h), and internships.
In the post-Soviet period, the independent states began the process of reforming their civil service systems, which also affected the issues of education and advanced training of civil servants. For almost 30 years, the civil service systems in the post-Soviet countries have followed a rather long path of reform. Some countries took the path of extensive borrowing of Western experience, while others adhered to a more conservative approach to management reforms (Borshchevsky, 2016). Haynal talked about this a little earlier, summarizing the changes in the European PA educational models (Hajnal, 2015). Thus, he singled out three distinct clusters of countries, based on their specific PA educational traditions: the Legalist paradigm (German model), the Public cluster (Anglo-Saxon model), the Corporate cluster.
The post-Soviet countries that formed the CIS initially tried to develop a common policy on vocational education in public administration. The Model Law “On the Fundamentals of the Civil Service” adopted at the Eleventh Plenary Session of the Interparliamentary Assembly of the CIS Member States (Resolution No. 11-5 of June 15, 1998) established the right of civil servants to a budget. Art. 11 defines the following forms of training: education, retraining and advanced training in relevant educational institutions and in the form of self-education, as well as internships (both in the country and abroad) with the aim of practical preparation for the upcoming activities. It was also found that the professional development of civil servants should take place regularly (as a rule, once every 5 years), and the results of education and advanced training are one of the grounds for the promotion of a civil servant in the service. In the legislation of national states on civil service, these norms are currently implemented in different ways.
In Europe, in the last two decades, a number of documents have become the conceptual core of the system of training and education of civil servants. The European standards of ideal administration are formulated in the SIGMA document “Principles of Public Administration”. The SIGMA program establishes the institutional and legal framework for a professional civil service and, on this basis, develops the political, legal and organizational principles of the civil service of the Central and Eastern European countries. Since 1992, SIGMA has provided assistance on a wide range of economic issues to the reforming countries of Central and Eastern Europe and the former Soviet Union, including Latvia, Lithuania and Estonia, which have become members of the EU, as well as Ukraine, Georgia and Moldova, aspiring to join the EU. It is also necessary to note the principles of the European Administrative Space (EAS), according to which the training systems for civil servants in the EU were built. The NASPAA standards focus on critical situations in the formation of civil servants' competencies, as they need the skills to succeed in a multi-sectoral, reference and rapidly changing environment. Training civil servants in the basics of e-government plays an important role in achieving this ambitious goal.
Digital technologies in the training of civil servants
In the context of digitalization, the importance of e-learning for civil servants is growing. In the public administration system worldwide, there are two areas of e-learning for civil servants. The first is the use of ICT as a means, a technology for organizing learning. The second is the study of ICT as a means of e-government, which involves the development and implementation of courses for civil servants related to the study of technologies for the provision of electronic services to the population, as well as the use of artificial intelligence technologies, big data, the Internet of Things, etc., in the practice of public administration.
The use of digital technologies as a means of learning is quite diverse. It can be online learning, which involves a completely distance format. It is also possible to use blended learning, which involves the use of face-to-face approach and information technology (Khrykov, et al, 2022). It is noted that digital learning technologies in the modern period can be quite diverse, and include both online courses and other technologies –– cloud e-learning, the use of virtual and mixed reality, artificial intelligence tools, big data, etc. (Bannykh et all, 2022).
The introduction of new forms and technologies into the practice of training civil servants, which have emerged as a result of the informatization and digitalization of education, began in the early 2000s. Many governments are going to use e-learning to meet the needs of employees (Yang, Ruan, 2007). Digital skills development within the public sector in ICT is said to have a double impact on the e-government development than ICT outsourcing (Arduini et al., 2013). The introduction of ICT alone cannot improve the efficiency of the public sector (Seri, Zanfei, 2013). For a long time, the use of distance and electronic forms of training for active civil servants was very limited. The COVID-19 pandemic was the key event that triggered a massive transition to distance learning and e-learning.
Many countries have long since begun actively incorporating digital technologies into the practice of training civil servants. In 2015, for example, Singapore began offering free access to more than 2500 courses for government employees, including many on the Udemy online platform. As of February 2019, it has trained over 10,000 employees at all levels of government.
CSTDI Civil Service Training and Development Institute (Hong Kong) has launched a training portal “Innovation. Technologies” to help civil servants acquire basic knowledge and skills about innovative trends in new technologies, modern equipment, Internet security, personal data protection, and tools for analyzing large databases. In 2019, it was planned that about 43,000 civil servants of various levels would participate in information technology training programs organized by CSTDI.
Online learning is an alternative to traditional face-to-face learning. E-learning is more in line with the current situation, allowing civil servants to combine work and study. E-learning in the field of civil servant training is of interest not only as a tool to innovate in the professional training of civil servants and the development of the education system, but also to promote social cohesion, comprehensive educational well-being and encourage cooperation. Online learning as part of the basic training of civil servant candidates, with all its strengths and weaknesses, is considered useful in achieving learning objectives.
Pratiwi P., Krismiyati K., Wahyuadianto, A. and Masrulli M. outline several principles of flexible bureaucracy in e-learning, such as continuous improvement, collaboration, merit-based management, bottom-up responsive decision making, and flexibility. support. (Pratiwi et al, 2022) The results showed that bottom-up decision making and merit-based human resource management are two critical challenges in enabling flexible e-learning. Employees' initial perceived satisfaction with technology-based e-learning will determine whether or not they will use the system on an ongoing basis.
At the same time, it should be noted that the transition to online education is controversial. Public administration in general has long been concerned about the quality of education students receive from online courses (McDonald, 2021). As noted by Coggburn J.D., Llorens J.J., teaching experiences during a pandemic cannot be generalized. It is unlikely that all public administration education will be offered exclusively online in the near future (Coggburn, Llorens, 2020).
Atkinson S.L. based on a survey of students taking online courses in Human Resources, Public Budgeting, and Public Procurement in the Public Administration Program, developed and taught over the course of one calendar year at a public regional university in the southeastern United States, concluded that short-term courses may limit students’ ability to fully master knowledge transfer and applied skills (Atkinson, 2021). Study participants expressed particular concern about high job expectations, even given the accelerated nature of the programs, and how this may undermine the potential for quality learning outcomes.
In a study by Brazilian authors A. Stadler, R. T. M. de Camargo and M. R. Maioli, it is noted that although civil servants are well aware and loyal to the use of distance learning through e-learning methods, on the other hand, the use of educational materials points to conservatism and attachment to printed educational materials, emphasizing that the printed book is the key to distance (Stadler et al, 2017) learning.
Research design
In the first stage of the study, the legislation on the civil service of the countries forming the territory of the former USSR was analyzed. On the basis of the analysis of legislative acts, the peculiarities of the regulation were considered, since the legislation is, on the one hand, the result of the policy, and, on the other hand, the framework of the practical activities for authorities. For this purpose, the authors selected the laws of post-Soviet countries regulating civil service (special types of service, such as military or other types of service in special bodies were not considered) as of 1 January, 2023. The theoretical thematic analysis of the texts of legislative was carried out (this type of analysis is described in detail by Braun and Clarke (Braun, Clarke, 2006)). First of all, the main codes were generated, on the basis of which the main topics were determined: the forms of training of civil servants, the requirements for their duration, the conditions for obtaining various forms of education. As a result of the thematic analysis, it became clear that the main themes of analysis were not disclosed in all laws of post-Soviet countries. Accordingly, if the texts of the laws did not contain the necessary data, or if there were direct references to other legal acts, such acts were searched. For the secondary legislation identified, the review procedure was repeated. As a result, the main regulatory models related to the training of civil servants, implemented in the post-Soviet period, were described. The main model the for post-Soviet republics was the Soviet model of specialized educational organizations. A list of educational organizations in the post-Soviet countries which were created specifically for the training and additional education of civil servants was formed. The criterion for inclusion in the sample was that the organization was vested with the authority to educate civil servants in laws or bylaws.
In the second stage, the official websites of selected educational organizations for the training of civil servants were analyzed in order to determine the features of the educational programs implemented by them, including the use of digital technologies as of 01.02.2023. For this purpose, first of all, the search was carried out for pages of official websites of universities containing information about the educational programs being implemented. Further, a thematic analysis was carried out on a number of identified topics, describing: (1) the contingent of students (the program is implemented only for active civil servants or for a wide range of people); (2) the level of education (bachelor’s, master’s, postgraduate, additional vocational); (3) type of education (full-time or part-time); (4) learning technology (traditional, fully distance learning, distance learning, e-learning).
The third stage of the study involved the use of case studies to describe identified practices in the use of electronic and distance training for public servants. In each case, the practice of applying digital technologies by an educational organization was described according to the following characteristics: the number of advanced training programs for civil servants; the number of programs using digital learning technologies (electronic or distance learning); conditions for admission to the programs (customer, cost, number of hours).
Research methods: comparative analysis, analysis of normative legal acts, content of Internet resources. The authors analyzed the websites of educational organizations created to train civil servants.
Results
Let us consider how the legislation of the countries of the post-Soviet space presents the norms of training and education of civil servants.
First, in all post-Soviet countries, the right of civil servants to receive additional education (advanced training) is established and/or the receipt of such education is guaranteed at the expense of budgetary funds. Also, in a number of countries, the obligation of civil servants to maintain the required level of qualification (e.g., Belarus, the Russian Federation, Kazakhstan, Estonia) or to improve their qualifications (e.g., Lithuania, Moldova) has been established. In a number of countries, the system of education and advanced training has been replaced by standards for the professional development of employees. Various forms of training, including Continuing Professional Education (CPE), are offered. The concept of professional development is present in the civil service legislation of the Russian Federation, as well as in the legislation of Moldova where the emphasis is on continuous professional development.
The legislation in most of the examined countries mandates civil servant training through retraining and advanced training. Only Kyrgyzstan utilizes these forms exclusively. Other legislated training forms in certain countries include training (Kazakhstan, Turkmenistan, Russia), internships (Belarus, RF and Azerbaijan), and self-education (Belarus, Uzbekistan). In several countries, civil service laws do not provide any provisions for additional professional education to employees. For instance, this is applicable in Georgia, Lithuania, Estonia, and Moldova. However, they may be presented in by-laws. For example, in Lithuania, the government has decreed various methods for providing advanced training to civil servants. These comprise self-education, learning by doing, whereby a civil servant performs difficult, complex tasks either alone, with a person or persons holding a position in an institution or with a mentor. Additionally, learning from others is facilitated via business trips, internships, working groups, projects and events, collaborating centers or training guides. Lastly, non-formal education is also part of the training methods provided.
The analysis revealed that different national states have varying strategies for determining the types and frequency of training. In a number of countries that adhere to the conditionally “traditional” approach of “additional professional education”, the fundamental legislation governing civil service outlines requirements for the periodicity of training provided to civil servants. In Belarus advanced training or internships are normally sought out every 3 years, albeit at the very least once every 5 years. In Kazakhstan, employees must undergo advanced training at least once every 3 years. Similarly, in Kyrgyzstan, advanced training for employees within the same group of positions must occur at least once every 3 years. In Moldova, the law requires public authorities to provide an employee with various forms of continuous professional development for a minimum of 40 h annually, and each debutant civil servant must complete an introductory course lasting at least 80 h.
Some countries have abandoned this approach and, instead of clear requirements for periodicity, have established the conditions for when the training is needed (such as in Armenia, Azerbaijan, and Russia). So, for example, in Armenia, retraining for each civil servant is carried out according to a personalized program, which is compiled and modified based on an assessment of their needs, inclusive of the yearly performance appraisal. In Azerbaijan, the grounds for obtaining additional education of a civil servant are: appointment to a higher civil service position; inclusion in the lists of the civil service reserve; certification of a civil servant or the result of an assessment of his performance; personal initiative. The legislation of the Russian Federation introduced grounds for sending a civil servant to participate in professional development activities, which include: in decision of the employer's representative; the results of certification, which recommend the passage of FPE; the appointment of a civil servant to another position in connection with the reduction of positions or the liquidation of a state body; as well as the appointment for the first time to a civil service position or in the order of promotion to a number of higher positions (categories of “leaders” of the highest or main group, categories of “specialists” of the highest group).
Another model of advanced training organization is observed in the Baltic countries, Georgia, Ukraine and Moldova. In these countries, employee training needs are assessed on an annual basis and further training is provided accordingly. The Georgia Law on Civil Service stipulates that a government institution shall assess the necessity of advanced training for an employee each year, based on an analysis of institutional needs and official evaluation results. Also, individuals appointed to a position for the first time must complete a basic qualification upgrading program within 1 year, commensurate with the position's ranking. In Estonia, the decision on whether an employee needs to participate in training is made by the immediate supervisor or a high-level supervisor. In Lithuania, advanced training is supposed “in case a civil servant needs to acquire new knowledge or competencies.” The Regulation on Continuing Education of Civil Servants of Moldova establishes that the individual requirements for the professional development of an employee are determined by thier immediate supervisor during the procedure for the annual assessment of one’s professional achievements. These requirements are then updated throughout the year as part of the monitoring and evaluation of an employee’s performance. Based on this, the public authority determines the professional development needs of the group/organization and creates an annual plan for staff professional development.
Specialized educational organizations for civil servants in the post-Soviet countries.
It should be noted that these organizations differ significantly in their tasks and types of programs they implement, as well as the scale of their activities.
In a number of states, these educational organizations are the sole authorized providers of civil servant training. For example, the Academy of Public Administration under the President of the Republic of Uzbekistan was founded as the exclusive institution offering advanced training and master's programs in public administration for central and local government officials, founded by the President of Uzbekistan. The Lithuanian Civil Service Law grants the Lithuanian Institute of Public Administration, under the Department of Civil Service, the exclusive right to develop general advanced training programs pertaining to European integration, and general training programs for civil servants of categories 18 to 20. Additionally, said Institute is authorized to provide training to employees as per the duly approved general programs. The School of Public Administration of Latvia has been authorized under national civil service law to develop training programs for civil servants, as well as to coordinate and ensure the process of their training. The Academy of Public Administration under the President of the Republic of Kazakhstan is the only higher educational institution in the country authorized to provide higher education for civil servants in the country. Advanced training for “B” class employees is also permitted in educational institutions aligned with the state body's profile.
In other countries, in addition to specialized universities, there also are numerous faculties and training programs for civil servants in various educational organizations. For example, in Russia, there are 370 universities offering education in the field of “Public administration”, whereas in Kazakhstan there are 19. In Ukraine, 88 institutions of higher education had the right to carry out educational activities in the field of “Public administration” in 2017. In 2019 the number increased to 116, and as of 2022, over 140 universities in Ukraine had obtained licenses to offer educational activities in the field of “Public administration”. Also, in nation states, short-term training programs for employees can be carried out by public and private educational organizations that are not universities. For example, in Russia, there are 2000 registered organizations that offer programs for civil servants under the main activity of “Training in educational institutions of further professional education (advanced training) for specialists with higher professional education”.
Specialized universities differ in the types of educational programs they implement. Some primarily provide short-term retraining and advanced training programs, while others offer a comprehensive range of educational programs. RANEPA, for instance, implements programs covering school education, secondary vocational, higher and postgraduate education, as well as MBA, RMA programs, retraining and advanced training across a wide range of fields. NHSSU of Kazakhstan implements master's and doctoral programs, retraining and advanced training programs designed for civil servants.
However, there exist examples of decentralized approaches to providing additional education for civil servants. Thus, in Georgia, the coordination of training programs for state and municipal employees is carried out by the Civil Service Bureau. Education is implemented within the framework of lifelong learning approach, which is a requirement for aligning with the EU standards in Georgia's higher education system. Leading Georgian universities are expanding their postgraduate education programs, including programs aimed at state and municipal employees. The ministries of Georgia have departmental educational centers designed for professional training of employees. At the same time, only one university in Georgia, based in Tbilisi, specializes exclusively in training of civil servants. Although 15 leading universities offer relevant training programs for state and municipal employees, some of them have a specific narrow profile. There are 122 training courses being implemented, which have been developed by 23 different educational providers. These providers mainly consist of training centers under various ministries, training centers of LLCs and NGOs, with the only one university participating in the implementation of five educational programs. Continuing education of civil servants is developing towards the decentralization of education (Kordzadze, 2020).
Digital training cases for civil servants
In further analysis, we concentrated our efforts on evaluating the programs offered by top specialized educational organizations. After analyzing the official websites of specialized educational organizations, we identified those universities that had information on the implementation of programs for civil servants with the use of digital technologies (electronic courses, distance format programs, distance learning).
One of the most advanced examples of employing digital technologies for civil servants' training has emerged in the Republic of Kazakhstan. The Government of Kazakhstan approved various forms of retraining for civil servants within the administrative civil service category of the “B” corps (middle management). These forms include full-time, online (via an Internet connection in real time or webinars), remote, and/or combined (full-time and remote). The duration of the retraining period is at least 120 academic hours. Advanced training ranges from 8 to 80 academic hours, except for training in foreign and international educational organizations. In 2020, 28,425 civil servants in Kazakhstan underwent retraining and advanced training. 128 people of various levels completed their studies under master's and doctoral programs. In 2021, a total of 36,027 individuals out of 88,321 civil servants received retraining and advanced training
In the plan for 2022, the National Higher School of Public Administration under the President of the Republic of Kazakhstan provides for nine advanced training programs for “B” corps civil servants and 13 programs for “D” corps civil servants of local authorities. 29 diverse thematic programs are scheduled for 2023, catering to various categories of listeners. Among these programs, in 2022 there were Practical Analytics, while Development of digital competencies, Data Science, Data Visualization and Blockchain Technologies, Information and Cyber Security, Critical Thinking and Analytics were added in 2023. To ensure effective learning, the courses utilize video lectures, presentations and gamification (game technologies).
For individuals who are new to the administrative civil service and are pursuing full-time distance learning, a 120 h program is available. It includes 12 blocks in three key areas: Strategic thinking, Effective communications and Competences of the future. The latter suggest including the topics “Digital Technologies in Public Administration” (12 h) and “Practical Analytics” (completely distance learning technologies).
The Academy of Public Administration under the President of Kazakhstan uses distance learning technologies in the educational process. The technologies take the form of an electronic educational platform on which video courses of current and TOP seminar topics are loaded. The institution offers 24 online courses, one of which is the Development of Digital Skills. Within the framework of this course, students are supposed to study the characteristics of big data, the basics of machine learning, data processing technologies, the basics of digitalization and digital transformation, as well as cybersecurity threats.
The Academy also implements the Digital Civil Servants online course, which was developed by the Ministry of Digital Development, Innovation and Aerospace Industry of the Republic of Kazakhstan. The program enables civil servants to gain insight into IT legislation and eGov.kz e-government capacities while learning fundamental information security tenets, effective use of digital tools and techniques to enhance operational efficiency. The Academy provides 24/7 access.
Another compelling example of utilizing digital technologies for civil servant training is demonstrated in Ukraine. The National Academy of Public Administration under the President of Ukraine is the main institution responsible for providing the supplementary education of Ukrainian civil servants. In the Order of the National Agency of Ukraine on Civil Service Issues dated November 26, 2019, advanced training of civil servants is carried out in the following forms of education: full-time (daytime and evening), remote, and mixed modes that combine full-time and distance learning using special Internet platforms, websites, e-learning systems, etc. The form of training depends on the servant's position level and is less diverse for higher-ranking positions. The National Academy conducts student training through state orders and contracts, with the terms established through such agreements. The training period lasts 16 months, as specified in Article 1, 2, and seven of the Ukrainian Law on Civil Service of December 10, 2015.889-VIII Vocational training for civil servants is conducted using funds from the state budget and other sources that are permitted by law. It employs training, retraining, specialization, and advanced training systems, specifically in the field of “Public Management and Administration” and adheres to the legal regulations established for educational institutions, regardless of ownership types, that are permitted to offer educational services, both domestically and abroad. Since March 2020, in response to the introduction of quarantine measures, a substantial portion of the courses has transitioned to distance learning format. This educational model employs both synchronous and asynchronous learning modalities through various online platforms such as Skype, Zoom, Microsoft Teams, Google hangouts, Webex. However, there is an association of the state system for managing the professional development of Ukraine and the public project of massive open online courses “Prometheus”. The outcome of this partnership produced the online courses, including “Fundamentals of personnel management in the public service”, “Preparation and implementation of projects for the development of societies”, “Fundamentals of public policy”, “How to proceed further: for civil servants on sustainable development”. The system of vocational training in Ukraine is closed, restricted to state providers, thus denying access to non-state educational services
Consider how digital technology is used to train civil servants in Russia. Central training of federal civil servants is carried out within the framework of the state task on priorities established by the Government of the Russian Federation for each year. These programs are implemented by several educational organizations: the Russian Academy of National Economy and Public Service under the President of the Russian Federation (RANEPA), the National Research University “Higher School of Economics”, Moscow State University named after M.V. Lomonosov, St Petersburg State University, Financial University under the Government of the Russian Federation. Federal government employees can study at five different educational institutions using their educational certificates. Regional civil servants receive training funded by the budget both at federal and regional universities, as well as private educational organizations.
The largest university that teaches civil servants in the Russian Federation is RANEPA, which has a network of branches throughout the country (this university is also considered the largest in Europe). RANEPA offers 19 retraining programs, of which 1 is fully online and 7 use distance learning technologies. The Academy also offers 62 advanced training programs, five of which are remote and 10 use distance learning technologies. Training programs include those related to digitalization: “Information Security and Civil Society”, “New in Design and Digital Municipal Management”, “Working with Digital and Virtual Assets”, “Smart City”, “Digital security of the municipality”, “Legal support of digital economy”. In total, 17,627 federal civil servants and 58,460 civil servants of constituent entities of the Russian Federation were trained in 2021, accounting for 29% of the total number of civil servants. 21,605 federal civil servants and 59,222 employees of constituent entities of the Russian Federation were trained in 2022. It should be noted that training for educational certificates mostly utilized distance learning technologies. In 2021, 3% of the total volume of such programs were carried out in-person without the use of remote technologies, while 50% took place in-person with the use of distance learning technologies, and the remaining 47% were conducted online. In 2022, only 1% of the programs were conducted in-person without remote technologies, while 55% took place in-person with the use of distance learning technologies and 44% were entirely remote.
In addition to training in educational organizations, a single specialized information resource was launched for the professional development of civil servants in the Russian Federation. The resource, available at https://edu.gossluzhba.gov.ru/, contains about 100 self-study materials including educational courses and instructional materials, as of 2021.
In Belarus, civil servants receive additional education primarily at the Presidential Academy of Administration, which was established in 1991 after the reorganization of the Higher Party School. All categories of public servants at all levels of government are enrolled in supplementary education programs, including short-term training and retraining ones. The Academy of Management under the President of the Republic of Belarus is expected to implement 89 State budget-funded programs for civil servants in 2023. Remote participation is limited to only four refresher courses. In addition to the Academy, employees receive further training from departmental institutions of additional education institutions, which began to appear in 2010. For example, the “Centre for Training, Further Training and Retraining of the Personnel of the Ministry of Internal Affairs of the Republic of Belarus”, the educational institution “Institute for Advanced Training and Retraining of the Investigative Committee of the Republic of Belarus”, the state educational institution “Institute for the Further Training and Retraining of the Personnel of the State Forensic Examination Committee of the Republic of Belarus”, and the “Institute for the Retraining and Further Training of Judges and Procurators” of the Belarusian State University, etc. The training, retraining, and advanced training of civil servants in Belarus do not take into consideration the unique needs of this group. Instead, they adhere to the general rules for additional adult education. In fact, the programs largely focus on general managerial skills and are not designed to use modern digital technologies.
Discussion
Organizational models for training civil servants. While this article does not specifically address the factors that have influenced the development of these models, several studies have delved into this issue, focusing on the analysis of complementary education systems in the field of public administration of post-Soviet countries. Thus, Andreescu, Zulean and Diaconu note that education models in post-Soviet countries demonstrate the double dimension of global/regional diversity and national uniformity. (Andreescu et al, 2021) We are also inclined to believe that one of the leading factors in the development of training systems for civil servants has been the application of foreign theoretical and practical approaches and experiences (Hajnal, 2003). The variation in outcomes can be explained in different ways. Baimenov and Liverakos identify several factors that contribute to the diversity in international influence: greater physical and cultural distance between the West and most non-European post-Soviet countries and lower level of strategic interest in these countries (Baimenov, Liverakos, 2022). Several scholars who have analyzed the transition period in Eastern Europe emphasize the importance of the historical legacy, commonly known as the “rut effect” (Auzan, 2015), which largely determines the outcome of the transition period. Politicians in the region have little ability to overcome this effect. Public service systems, including the training and qualification of public servants, are also influenced by prevailing public administration concepts in post-Soviet States (“Good governance” or “New Public Management”). The Civil Service Institute responds not only to structural changes, but also to changes in political discourse. The public service system is characterized by inertia, resulting in slower pace of change.
From a national perspective on civil servant training, Ukraine’s system of additional education for employees aligns with the French model, while in Russia and Belarus in follows the Anglo-Saxon model, and in Kazakhstan it follows the US model.
As a result of this exact study, it is clear that several models for organizing civil servant training exist in post-Soviet countries. The CIS countries have a traditional model that is characterized by a rigid form and a high degree of centralization. This particular model is based on the main provisions prescribed in the Model Law on the CIS Civil Service and is often observed in Belarus, Kazakhstan, Kyrgyzstan, Uzbekistan, Tajikistan, and Turkmenistan.
A European model is in place in the Baltic States, Georgia, Ukraine, Moldova, and Armenia. This model is characterized by a competitive approach taked by educational institutions in providing additional education for public servants and the variability of the forms of training offered. In recent years, other institutions have appeared in Belarus for the training and retraining of public servants, but these institutions exclusively cater to representatives of “security” departments and structures, leaving practically no room for alternative training options. The opposite situation has arisen in Ukraine where forms of training are randomized, but there is a certain tendency to centralize programs and institutes. Another, “mixed” approach, is implemented in the Russian Federation and Azerbaijan, featuring “soft” centralization and diverse forms of training. The study indicated that the training models for civil servants also influence the adoption and utilization of digital technologies in the national systems of supplementary education of public officials. This hypothesis needs further study. It may be valuable for future research to consider combining in-depth interviews with experts in the system of continuing education of public servants from countries belonging to different normative analysis with the analysis of primary and/or secondary data on the formation of digital competencies of public servants in these countries. It is interesting to study the interconnections among the civil servants training model, the digitalization policy, and the degree of digitalization in post-Soviet countries' civil servant training. Another, in our opinion, important direction of further research in this field is related to investigating the efficacy of the digital technologies in the training of civil servants, their impact on the student motivation and satisfaction, and the results of their subsequent professional activities.
As a result, the systems of professional development of civil servants differ significantly in the post-Soviet states. A number of them have taken steps towards decentralizing education, such as Georgia, while others in Central Asia (including Kazakhstan, Kyrgyzstan, Uzbekistan, Tajikistan, and Turkmenistan) often emulate European and North American IPA programs, adapting them to their unique contextual needs. Public administration academies in Central Asia are often subject to heavy government politicization and authoritarian control. The ambiguous role of public administration academies in these countries is also noted.
Conclusions
The reviewed literature indicates that there is a significant correlation between the development of digital skills among public servants and the digitalization process in the public administration system (Seri, Zanfei, 2013; Ducci et al., 2020). In our view, the changes in the digital transformation process necessitates the acquisition of new digital competencies by public servants. The authors agree that the success of the public sector digitalization depends on identifying requisite digital competencies, collaborating with educational institutions, and monitoring the results of the education process (Ducci et al., 2020). At the same time, providing civil servants with digital competence training through online and a practice-oriented assists in narrowing the digital divide (Carte et al., 2011).
The authors used the method of thematic analysis and case studies to describe the practice of using digital technologies for training civil servants across the territory of the former USSR. Based on a thematic analysis of legal acts, we have identified the features of training systems for civil servants. These systems are distinguished by various parameters, including training formats, duration, requirements for direction, assessment, and results. It is possible to discern three main models for the training of public officials, based on either the European approach or on the approach developed for the CIS countries. The study revealed that post-Soviet countries tend to have different models due to a variety of factors.
In most post-Soviet countries, civil servant training is centralized through institutions specifically designed for this purpose (public service academies), as is customary in the “traditional” model utilized by the countries of Central Asia (Kazakhstan, Kyrgyzstan, etc.). On the contrary, the variability of educational institutions and forms of education is represented in the former Baltic republics of the USSR, as well as those countries that are already integrated or intended for European integration (Georgia, Armenia, Moldova). A “mixed” model of education characterizes the development of one or two models (Russia, Azerbaijan).
A thematic analysis of official websites of specialized organizations focused on civil servant training showed that digital technologies are not implemented uniformly in the training of public officials of the post-Soviet countries. Digital technologies are used in three variations: e-courses, fully distance learning programs, or blended distance learning programs. The greatest penetration of digital technologies is revealed in the programs of civil servants training in specialized academies of Kazakhstan, Ukraine and Russia. Digital divides are visible in the development of digital competencies among public servants at the country level. Differences in the accumulation of competencies of public servants explain the heterogeneity of innovation in the public sector, including at the supranational level (Arduini et al., 2010). We also agree that the need to include ICT courses in the training of future (and current) public servants is determined by the context of the introduction and the professional requirements applicable to public servants in a particular region (Van Jaarsveldt, Wessels, 2015). Therefore, programs for the additional education of civil servants should consider the region's specific requirements for development and the impacts of external environmental changes.
The case of each state under consideration reflects the direction of the system’s development towards enhancing forms and technologies of additional education for public servants. However, it is questionable whether the needs of the system and of civil servants themselves for the development of new digital competencies are being met. A new challenge arises in the constant need to train public servants to work in the new digital environment with the use of modern technologies, up to the use of artificial intelligence. This presents a challenge for public service systems: public service education must be continuous and competency-based. It is critical to ensure the development of not only technical ICT skills, but also a dynamic digital culture within the public administration personnel subsystem. Continuity in supplementary education may be achieved by amending legal norms to establish it as a basic condition for the training of personnel in the public service. In addition, standardizing general directions and programs can further enhance this mission. The active involvement of the authorities in the university training of public officials at various levels can also play a significant role.
To further investigate the impact of digital technology adoption in public servant education, it is suggested to utilize a combination of research designs, such as in-depth interviews, survey results, and analysis of statistical data. This will aid in determining the dependence of the introduction of digital technologies in the education of public servants on “gravitation” to a particular model. At the same time, this method will facilitate comprehension of the challenges of ensuring the continuity of civil servant training in each national system, as well as the features of developing digital competencies within these systems.
Footnotes
Declaration of conflicting interests
The author(s) declared no potential conflicts of interest with respect to the research, authorship, and/or publication of this article.
Funding
The author(s) disclosed receipt of the following financial support for the research, authorship, and/or publication of this article: This work was supported by the Ministry of Science and Higher Education of the Russian Federation (Ural Federal University Program of Development wit).
