KINLEY KHANDU CHODEN | Thimphu
“The government may be compelled to invoke legal provisions if the Royal Civil Service Commission (RCSC) fails to implement recommendations aimed at reforming the Managing for Excellence (MaX) performance management system,” said Sangay Khandu, Deputy Speaker of the National Assembly.
The remarks came during a post-session press conference, where concerns were raised over the MaX system, particularly its bell curve or forced-ranking component, which they say has become a major source of dissatisfaction among civil servants.
The issue has been raised repeatedly in Parliament over successive sessions, but lawmakers say significant progress has yet to be seen.
Despite the growing concerns, Deputy Speaker said the RCSC should be given sufficient time to address the matter, as the RCSC is already aware of the shortcomings and is reviewing possible reforms.
He also stressed the need to respect the institutional independence of the RCSC, warning that excessive parliamentary intervention could undermine the ongoing reform process.
As a constitutional body, the RCSC is responsible for managing and regulating the country’s civil service system through its own mandates and procedures.
The renewed scrutiny follows findings by the National Assembly’s Good Governance Committee (GGC), which carried out consultations with stakeholders from various sectors to assess the impact of the MaX system.
The committee engaged with school principals, dzongdags and civil servants from key ministries, including the Ministry of Health, the Ministry of Education and Skills Development, and the Ministry of Agriculture and Livestock shared the concerns about the effects it has in the civil service annual performance evaluation.
According to Deputy Chairperson of the GCC, Kinzang Wangchuk, the consultations revealed widespread dissatisfaction among civil servants, with some reportedly choosing early retirement because of frustrations associated with the evaluation system.
The MaX framework was introduced to strengthen accountability, improve performance awareness and encourage merit-based assessments within the civil service.
However, the committee found that one aspect of the system has generated the greatest criticism.
The forced-ranking mechanism requires agencies to place a fixed percentage of employees under specific performance categories, including “Partially Meets Expectations”, regardless of whether an entire team is performing well.
MP Kinzang Wangchuk said that this requirement has created perceptions of unfairness because employees are assessed against predetermined quotas rather than solely on their individual performance.
During consultations, concerns were also raised about the impact of the system on highly specialised profession.
Referring to discussions with the President of Jigme Dorji Wangchuck National Referral Hospital, Kinzang Wangchuk said that even among doctors with similar levels of performance, some are still placed in lower categories because institutions must fulfil quota requirements of the Max rating system,
“This leads to difficulties within the system and can ultimately result in reduced motivation and early retirement,” he said.
The committee said such concerns are particularly significant at a time when Bhutan is already facing human resource shortages and increasing attrition across the public sector.
MP Kinzang Wangchuk warned that a performance management system perceived as unfair could further affect efforts to retain skilled professionals within the civil service.
The committee also examined international experiences with similar systems.
According to Kinzang Wangchuk, countries such as Japan, Singapore and Australia have implemented comparable performance management frameworks, but Bhutan’s circumstances differ considerably.
“In those countries, the system was designed to identify and remove underperforming employees. However, in Bhutan, where there is already a shortage of manpower and high staff turnover, it does not operate in the same manner,” he said.
MPs also observed that opposition to the MaX system largely centres on the forced-ranking mechanism rather than the entire framework.
They noted that if the bell curve component is removed or revised, the remaining aspects of the system may not pose major concerns.
The committee further found that despite nearly five years of implementation, the MaX system has not fully achieved its intended objectives.
According to officials, employees who consistently perform well have not received adequate incentives or recognition, while employees requiring improvement have not been sufficiently supported through training and capacity-building initiatives.
As a result, the system has struggled to balance accountability with professional development.
The committee noted that there is currently no immediate mechanism to abolish the forced-ranking component, nor has the RCSC formally proposed an alternative framework.
Instead, it recommended a phased removal of the system.
To address the shortcomings, the GCC submitted four recommendations to the RCSC.
The committee called for a comprehensive review and reform of the bell curve mechanism, stronger fairness and grievance redress systems, meaningful incentives for high performers alongside structured support for employees requiring improvement, and sector-specific performance assessment frameworks that recognise the unique responsibilities of different professions within the civil service.
The recommendations now place the responsibility on the RCSC to determine the future direction of the MaX system, a decision that could significantly influence efforts to improve morale, strengthen accountability and retain talent within civil service.
