Developing Competency Frameworks in the Civil Service System-Taking the Ministry of Home Affairs of Vietnam as a Case Study

Competency-based human resource management is a management approach that demonstrates the response to organizational changes that is taking place in many developed countries. It is associated with competency-determination, competency framework development, and using that competency framework as a basis for selecting, training, developing, and remunerating human resources. In Vietnam, through many years of administrative reform, though the quality of officials and civil servants have been improved, the results are modest. Therefore, the approach to civil servant management based on competency framework has been set. The project on job and/or position determination presided over by the Ministry of Home Affairs has initially approached the issues of developing competency framework for job and positions. However, the determination of competency framework for civil servants is still facing many difficulties because of the lack of systematic research and there’s no piloting of a complete sample competency framework (model) to be applied in practice in a specific sector or field in Vietnam. The author has practically studied the process of job/position determination of the Ministry of Home Affairs of Vietnam as a focal agency assigned by the Government of Vietnam to build regulations, implement and manage this mandate so far. In which, statistical data from the implementation results of the Project of job/position determination of the Ministry of Home Affairs are used.

Competency framework is often divided into three levels: General competencies; Professional or functional competencies; Competencies appropriate to specific role (according to individual, profession, position in the organization). This framework can guide career development at all levels.
Competency framework includes the following basic components: -Name of the main operational competency: used to determine the function of the job; -Definition of competency: which describes the general behaviors, functions and activities that need to be done to achieve the desired results; -Competency levels: to determine the behaviors that the civil servant needed to perform effectively and control (master) that ability. The levels are arranged incrementally according to knowledge, skills, attitudes and other related-to-work abilities; -Competency index: Describes the level to which a civil servant controls the criteria of competency levels.

The need to develop competency frameworks
First, competency framework is the basis for personnel planning and discovering talents of civil servants. Competency framework is the basis for planning a personnel development strategy for the organization and for discovering talents of civil servants. It is used to assess the current and future of competency requirements to each employee and organization. The gap between the competency of an individual or a group of staff or even an organization in comparison to requirements in the HR development plan would be identified through competency frameworks. Competency framework is a selection tool based on core competencies. When identifying the types of core competencies, the competency levels will help determine which level is the recruited or appointed person is in. The necessary competencies are clearly defined in the competency framework for recruitment and selection. Those who apply for a certain job position are assessed on each type of competencies available in the competency framework.

Second, competency framework is the basis for competency-based training and development
Competency framework becomes the basis for making a HR development plan. Each HR development plan is made based on a list of specific competencies that are consistent with the need for effective service performance. Employees assigned to study and courses organized are based on the need to develop specific types of competencies. The competencies built in the competency framework are the basis to create individual career plan of each civil servant. The necessary competencies of all job positions are then considered and compared with the capabilities they have to identify their potential positions and thereby develop their career plan.
Third, competency framework is basis for assessing the performance results Competency framework arranges types of competencies from work (positions) not from persons (civil servants and officials). Work performance of civil servants and officials should be evaluated in line with the requirements of competency standards as well as organization's objectives. The evaluation system should focus on specific behaviors and provide a "road map" for recognition, reward and promotion.

Fourth, competency framework is the basis for competency-based remuneration
The system of competency-based pay and remuneration encourages civil servants and employees to try their best to follow the organization's defined competency framework to achieve high efficiency. Various remuneration systems are used to: reward individuals whose competency level are higher than the standard level; increase salary and provide incentives based on competency development and performance results.

CONTEXT OF DEVELOPING COMPETENCY FRAMEWORK ACCORDING TO JOB POSITION IN VIETNAM
The process of identifying job positions in state agencies in Vietnam has two main contents: developing job descriptions, job standards and competency frameworks for various positions of an organization. Thus, each state agency needs to determine how many positions are available and equivalent job descriptions and competency frameworks. The number of staff and structure of civil servants in each organization are accordingly determined. This will help the organization's recruitment and selection are based on clear criteria, helping to employ and evaluate civil servants objectively and manage civil servants effectively It is common that when developing job positions, state agencies often base on available organizational structure and staff to define job positions for staffing and propose for approval rather than basing on their goals, functions, and tasks as well as from the actual workload. This has made the total staff increase compared to the approved number of staff. Therefore, it is imperative to conduct job analysis to define job positions for staffing and employment in a scientific and objective manner. The final product of developing job position includes the list of job positions in each agency and division; the job descriptions and competency frameworks; the total staff determination and civil servant structure; and the regulations stipulating competency-based civil servant management. Currently, due to lack of detailed instructions on how to do (the level of difficulty of job, competency scale, indicators of each competency content), each Ministry, sector and locality has their own way of implementation, leading to the difference in the job descriptions, competency standards of the same job positions. Some carries out in detail, some does not. The way to implement the current job position project between ministries, sectors and localities has not been consistent in form and content, especially the job description has not shown specific types of tasks and standards of each job position has not been built in a general model.

The executive and professional civil servant position Functions, tasks and characteristics of job positions
The executive and professional civil servants may advise and propose assigned tasks by themselves or cooperate with other units and other officials to perform their tasks, ensuring the authenticity and proper regulations of the products directly submitted to Department leaders, Ministry leaders. They are responsible to complete assigned tasks according to certain contents, processes and procedures and have the right to reserve their opinions on matters having different opinions. Depending on the functions and tasks of each unit, professional exeutive have assigned with different tasks, job positions. However, output products must meet general regulations, be accepted and used by leaders of the Ministry and Department.
Executive and professional civill servant position is characterized by performing tasks according to the "administrative orders", directly drafting, advising and assisting the unit leaders when receiving tasks and taking direct responsibility to leaders of the specialized unit. Ordinarily, executive and professional civil servants perform tasks according to assignments, and are bound by the time schedule to perform such tasks.

Output standards to measure ability of executive and proffessional civil servants
Output standard to measure the performance of functions and duties of executive and professional civil servants are daily work products that such civil servants perform, be it advisory documents, proposals or ideas, inititives on assigned tasks. These products are expressed in writing, showing their accumulated and crystalized knowledge and wisdom. These output products can be "produced" in the following cases: (1) Performing tasks according to the unit's plan; (2) Executing unexpected tasks directly assigned by department leaders, Department leaders, in some cases, executing tasks assigned directly by Ministry leaders; (3) Initiatives, ideas proposed in the process of implementing tasks and missions related to the functions and tasks of the and Ministry; the shortcomings, difficulties and legitimate proposals to improve the process of receiving and implementing work; improving working habits and manners for the development of agencies and units. The measurement of products and performance results can be based on annual plans; the tasks handled by civil servants.
The process, procedure and time for handling tasks of executive and professional civil servants are complied with the working regulations of the Ministry and the unit. Time for submission and handling of documents is specifically and clearly regulated and this is also one of the bases for evaluating public servants and civil servants at the end of the year, and classifying task completion level. Time to handle work is one of the "hard" standards to measure the result of civil servants' performance. Civil servants who are lazy, irresponsible, slow in work,.... shall be evaluated, criticized, warned by leaders at regular, preliminary and final meetings. This is also one of the bases to assess civil servants who have not completed their tasks or completed their tasks with limited capability.
The work result performed by executive and professional civil servants are advisory documents submitted to the leadership of the Department and the Ministry for consideration and approval. The products may also be creative ideas, proposals and recommendations to enhance work capacity and work handling ability; or suggestions related to the management of ministries and sectors, that are approved by the leaders for deployment.
For civil servants who perform tasks, professional capacity is always an important role, deciding the "product" of work. Professional capability shows the understanding of civil servants in the field of work; on the issues, tasks assigned regularly or unexpectedly. At the same time, the smooth coordination, exchange of information and experiences among civil servants in the same issue to make recommendations, solutions and proposals help to show their teamwork spirit.

ISSUES RAISED WHEN DEVELOPING COMPETENCY FRAMEWORKS IN VIETNAM
The process of determining job position shows that, in order to properly develop competency framework, it is necessary to clarify the following issues: Firstly, requirements of the competency framework in relation to job position should be defined It's required to determined job position of each unit to propose corresponding competency frameworks. Currently, the Ministry of Home Affairs has still re-considered to approve job positions of units for various reasons, therefore, it is dificult to determine competency framework for each position or groups of postitions such as head of the unit, sub-unit leaders and various types (ranks) of executive/professional civil servants. However, based on assigned staff, the clearly assigned functions and tasks of each unit will be the initial basis to determine competency frameworks.
The development of competency frameworks for management and leadership titles must contribute to a strong and fundamental change in the consciousness of the whole system in terms of capacity requirements to the leadership and management team in the coming time. Important measures and specific actions are taken to improve ability of management and leadership team, thereby promoting civil service reform, towards a professional civil service.
The competency framework development should promote and facilitate the personnel planning, employment, fostering, evaluation and selection for qualified leaders, managers to be able to lead the agency to complete the assigned objectives and tasks, creating a healthy competitive environment.
When developing competency framework, it should be presented at different levels: -On overall level, competency framework is considered as a "legal framework" for the standards of management, leadership titles of the whole country, ensuring the general consistency and the certain "openness" in order for each sector and locality to concretize these standards to suit the characteristics of each place, based on the merit principle; -The level of detail and quantification of criteria to apply. For example, the overall level may determine that Department-level leaders must have the capacity to "advise on the improvement of law and the policy-making of the sector ...", so how to know, to measure a person with this capacity? How to know, evaluate, and to improve this capacity? Only when quantifying these issues, the competency framework of managerial leadership titles are highly feasible and practical..
Secondly, it is necessary to unify the method of developingcompetency frameworks -Determine the purpose and orientation of developing competency frameworks. In order to build frameworks for a number of job positions at the Ministry of Home Affairs, it is necessary to determine its purpose and help leaders and civil servants be aware of the importance of defining competency frameworks as a significant tool to support different HRM aspects. -Analyzing the tasks of each unit according to the functions and tasks assigned to develop competency frameworks for various groups of postions or for a particular postion. Each position requires different specialized skills and professions. In addition, officials need to be knowledgeable about state management of the sectors and fields of the Ministry of Home Affairs, experienced in handling administrative situations and problem-solving skills. Therefore, when developing competency framework for the respective positions, it is necessary to clearly analyze the tasks corresponding to the qualifications and capabilities that the civil servants should meet. -Surveying and giving quantitive criteria on capability of executive/professional and leadership civil servants for assessment. A survey on expectation of executive and leadership civil servants on the importance of developing sample competency framework should be conducted. Since then, some quantitive criteria are given to assess their ability and develop framework for each position. Some given criteria may be surveyed such as professional qualifications, understanding of the sector and the management field; practical experience; other criteria such as public service ethics, decisiveness, thoroughness in leadership and management; behavioral communication, decision-making ability, ability to manage and develop personnel, change the way of managing resources, boldly reassign work and professional tasks to civil servants for high performance.
Third, the structure of competency framework should be defined in accordance with nature of each job position When applying the competency framework in defining leadership and management standards at the Ministry of Home Affairs, the following basic factors need to be paid special attention: Leaders and civil servants pay attention to the development of competency frameworks. To do it, leaders and civil servants need to understand the benefits and reasons of adoping competency-based management approach.
Once the initial framework is built and applied in practice, there should be improvements, amendments, supplements and renewals over time to suit the practical tasks and positions of civil servants. Experience from many countries shows that the competency framework building is a "testing and perfecting" process. Competency framework is initially basic, then evaluated and adjusted based on comments and recommendations from many parties.
Always taking into account the specific features of functions and tasks of the Ministry of Home Affairs in general and such of its subordinate units in particular to develop competency frameworks and make appropriate improvements. Specific features of the Ministry of Home Affairs are shown in State management functions related to organization and staffing; management of public servants and civil servants; adjusting administrative boundaries, urban issues of local authorities; State management in associations and non-governmental organizations, etc. These tasks should be taken into account when developing and applying competency frameworks to achieve positive effects in practice.
CONCLUSION Competency framework has proven to be an effective tool in managing and developing human resource in public and private sectors in many countries around the world. In Vietnam, more and more organizations and businesses develop and apply competency frameworks. In public sector, the issue of developing competency framework has just been raised in recent years. However, the development of competency framework also has different approaches and it has not yet become a tool for HR management in ministries, sectors and localities.
In order to apply the competency framework to the reality of civil service, it is necessary to have systematic and comprehensive research, to identify the key competencies of civil servants in the civil service to apply to the management of civil servants and public servants from recruitment and selection to personnel appraisal and training and development. The application will contribute to improve capability of civil servants constantly, meeting expectations of citizen and organizations to the civil service.
Basically, there is no systemic competency frameworks in Vietnam. With the results of determining job positions, job descriptions and initially developing competency frameworks on the basis of existing institutions, it can be said that the Ministry of Home Affairs should continue to take the next steps to make competency frameworks to become the significant tool in human resource management in public sector. In particular, it is necessary to pay attention to methods, processes, prerequisites for the development of competency frameworks to be effective and highly feasible. Since then, based on the framework, it is possible to compare competency levels of each job position. This will be the foundation for rearranging, arranging, evaluating, developing and recruiting new civil servants to meet the requirements of the job positions in Vietnamese civil service.