Journal section JURISPRUDENCE
AI Competency Model for Penal System Staff
Kuznetsova E.V. AI competency model for penal system staff. Penitentiary Science, 2026, vol. 20, no. 3 (75), pp. 312–322. doi 10.46741/27132811.2026.75.3.010.
digital transformation of the penal system as envisaged in the state strategic
documents creates an objective need for employees having AI competencies. A scientifically
validated competency model and corresponding assessment tools for penal system staff have
not yet been developed in either domestic or foreign research. Purpose: to identify the essence
of AI competence of a penal system employee, as well as conceptual approaches to developing its
substantive model and assessment tools. Methods: the study is based on the dialectical approach
to knowledge, system analysis, qualitative content analysis, and the comparative method. The
empirical base consists of domestic and foreign scientific studies in the field of AI competencies,
regulatory legal acts, as well as reports and guidance documents (UNESCO, OECD, Interpol)
on the use of artificial intelligence in the field of public administration and law enforcement.
Results: the terms of “AI literacy” and “AI competence” are conceptualized in relation to law
enforcement personnel. A theoretical AI competence model for an employee of the penal system
is developed, including six interrelated blocks (cognitive, regulatory‑ethical, functional‑activity,
communicative‑affective, and socio-cultural). A four‑level structure for mastering competencies
is substantiated (basic level, qualified user, strategic leader‑customer, developer of AI systems).
Conclusions: the proposed model can serve as a conceptual basis for transforming educational
programs at departmental universities, the system of additional professional education, and
professional service training. A promising direction for further research is the empirical verification
of the model and the development of a validated diagnostic toolkit on a representative sample of the
penal system employees.
Keywords: artificial intelligence; competencies in the field of artificial intelligence; AI competencies; AI literacy; penal system; AI competency model for a penal system employee.
-
Candidate of Sciences (Law), Associate Professor, associate professor at the Department of State Legal Disciplines of the Vologda Institute of Law and Economics of the Federal Penitentiary Service of Russia, Vologda, Russia
ORCID 0000-0002-2593-2002
, e-mail kuznecova_ev@mail.ru
1. Perechen’ poruchenii po itogam zasedaniya Gosudarstvennogo Soveta Ros-siiskoi Federatsii po voprosam podgotovki
kadrov dlya ehkonomiki, sostoyavshegosya 25 dekabrya 2025 g. [List of instructions following the meeting of the State
Council of the Russian Federation on issues related to training personnel for the economy, held on December 25, 2025].
Available at: http://www.kremlin.ru/acts/assignments/orders/79143 (accessed March 4, 2026).
2. Chee H., Ahn S., Lee J. A competency framework for AI literacy: variations by different learner groups and an implied
learning pathway. British Journal of Educational Technology, 2025, vol. 56, no. 5, pp. 2,146–2,182.
3. Mansur S. AI as a catalyst in education, adult learning, and digital literacy. International Journal for Multidisciplinary
Research, 2025, vol. 7, no. 4, art. 54,198.
4. Laupichler M.C., Aster A., Schirch J., Raupach T. Artificial intelligence literacy in higher and adult education: a scoping
literature review. Computers and Education: Artificial Intelligence, 2022, vol. 3, art. 100,101.
5. Lintner T. A systematic review of AI literacy scales. Science of Learning, 2024, vol. 9, art. 50.
6. Zhang L., Si W., Shang K., Zhu J., Ji X. Mapping the AI divide in undergraduate education: community detection in disciplinary
networks and survey evidence. Available at: https://arxiv.org/html/2510.19288 (accessed March 4, 2026).
7. Su J., Chen X., Chu S., Hu X. A scoping review of empirical research on AI literacy assessments. Educational Technology
Research and Development, 2025, vol. 73.
8. Markus A., Carolus A., Wienrich C. Objective measurement of AI literacy: development and validation of the AI Competency
Objective Scale (AICOS). Computers and Education: Artificial Intelligence, 2025, vol. 9, art. 100,485.
9. Yuan C.W., Tsai H.-Y. S., Chen Y.-T. Charting competence: a holistic scale for measuring proficiency in artificial intelligence
literacy. Journal of Educational Computing Research, 2024, vol. 62, pp. 1455–1484.
10. Soto-Sanfiel M. T., Angulo-Brunet A., Lutz C. The scale of artificial in-telligence literacy for all (SAIL4ALL): assessing
knowledge of artificial intelligence in all adult populations. Humanities and Social Sciences Communications, 2025, vol. 12,
art. 1
11. Kuz’minov Ya.I., Kruchinskaya E.V., Gruzdev I.A., Naumov A.A. Falling behind and getting ahead: student use of generative
AI in education. Vysshee obrazovanie v Rossii = Higher Education in Russia, 2025, vol. 34, no. 6, pp. 9–35. (In Russ.).
12. Sokolov N.V. Development of a pedagogical model for forming competencies in the field of artificial intelligence for
bachelor’s students. Problemy sovremennogo pedagogicheskogo obrazovaniya = Problems of Modern Pedagogical Education,
2024, no. 84-1, pp. 297–300. (In Russ.).
13. Plashchevaya E.V., Utochkina E.A., Nigei N.V. The role of the “introduction to artificial intelligence” course in developing
digital competencies among students of the Amur State Medical Academy. Tendentsii razvitiya nauki i obrazovaniya =
Trends in the Development of Science and Education, 2024, no. 107-2, pp. 37–40. (In Russ.).
14. Gual L., Medina L., Parejo J.-L. A tridimensional model of AI literacy: an empirical analysis of student performance and
demographic patterns in higher education. Australasian Journal of Educational Technology, 2025, vol. 41, pp. 37–55.
15. Mukhamedkarimova D.F., Umurkulova M.M. Factors contributing to higher education students’ acceptance of artificial
intelligence: a systematic review. European Journal of Educational Research, 2025, vol. 14, no. 4, pp. 1,373–1,388. (In
Russ.).
16. Sysoev P.V. A modern teacher’s competence in the field of artificial intelligence: structure and content. Vysshee obrazovanie
v Rossii = Higher Education in Russia, 2025, vol. 34, no. 6, pp. 58–79. (In Russ.).
17. Smyshlyaeva (Dedkova) O.V., Gruzdeva M.L. Defining the concepts of literacy and competences in artificial intelligence
in the context of teacher education. Vestnik Rossiiskogo Universiteta Druzhby Narodov. Seriya: Informatizatsiya
obrazovaniya = RUDN Journal of Informatization in Education, 2025, vol. 22, no. 3, pp. 371–381. (In Russ.).
18. Evstigneev M.N., Polyakov O.G., Evstigneeva I.A., Filatov E.M. Content of a pre-service training teacher’s competence
in the field of artificial intelligence. Pedagogika. Voprosy teorii i praktiki = Pedagogy. Issues of Theory and Practice, 2026,
vol. 11, no. 1, pp. 87–96. (In Russ.).
19. Laupichler M.C. et al. Artificial intelligence literacy in higher and adult education: a scoping literature review. Computers
and Education: Artificial Intelligence, 2022, vol. 3, art. 100,101.
20. N. Yamashita et al AI literacy education for older adults: motivations, challenges and preferences. Available at: arXiv:
2504.14649 (accessed March 4, 2026).
21. Bialy F., Elliot M., Meckin R. Perceptions of AI across sectors: a comparative review of public attitudes. Available at:
arXiv:2509.18233 (accessed March 4, 2026).
22. Lavrova T.B., Morozov M.Yu., Zhovnir M.G. Digital competence of state civil servants in the context of the challenges of
digital transformation. Gosudarstvennaya sluzhba = Civil Service, 2025, vol. 27, no. 6 (158), pp. 36–47. (In Russ.).
23. Misuraca G.C., Medaglia R., Feijoo C., Mortat M. et al. Developing competences for artificial intelligence in the public
sector: the AI4Gov canvas, Conference on Digital Government Research, 2025, vol. 26.
24. Ekler N.A., Yanchenko I.V. Artificial intelligence-related digital competences of municipal employees: an empirical
study. Sovremennye problemy nauki i obrazovaniya = Modern Problems of Science and Education, 2026, no. 3. Available
at: https://science-education.ru/ru/article/view?id=34535 (In Russ.). (Accessed May 15, 2026).
25. Shalina O.I., Sheina A.Yu. Digital competencies of municipal employees: Current state assessment. Ars Administrandi,
2025, vol. 17, no. 4, pp. 709–729. (In Russ.).
26. Weichong Z., Chen X.U., Yiran Z. H.U. Cultivation path of AI literacy for grassroots civil servants based on the integrated
TAM-IDT model. Journal of Library and Information Sciences in Agriculture, 2025, vol. 37, pp. 72–85. (In Russ.).
27. Panova E.A., Tarasova E.Yu. Enhancing of digital competencies and digital literacy of civil servants in the context of
digital modernization of public administration. Gosudarstvennoe upravlenie. Elektronnyi vestnik = Public Administration.
E-journal, 2025, no. 112, pp. 64–77. (In Russ.).
28. Lavrova T.B., Morozov M.Yu., Zhovnir M.G. Digital transformation: issues of professional development of civil servants.
Gosudarstvennaya sluzhba = Civil Service, 2025, vol. 27, no. 6 (158), pp. 36–47. (In Russ.).
29. Medaglia R., Mikalef P., Tangi L. Competences and governance practic-es for artificial intelligence in the public sector.
Available at: https://publications.jrc.ec.europa.eu/repository/handle/JRC138702 (accessed March 4, 2026).
30. Chen Y., Wu Y., Lin K., Hoggenmueller M. et al. Attitudes toward AI-powered robots in policing: AI literacy, organizational
justice, and occupational wellbeing among Chinese police officers. Asian Journal of Criminology, 2026, vol. 21, art. 3.
31. Strel’nikov S.S., Vokhmintsev A.P., Katkova A.L., Ushakova O.M. The potential of the influence of AI-literacy on students’
information behavior. Mir nauki. Pedagogika i psikhologiya = World of Science. Pedagogy and Psychology, 2024,
vol. 12, no. 4. Available at: https://mir-nauki.com/PDF/91PDMN424.pdf (In Russ.). (Accessed May 15, 2026).
32. Chiu T.K.F. et al What are artificial intelligence literacy and competency? A comprehensive framework to support them.
Computers and Education Open, 2024, vol. 6, art. 100,171.
33. Smyshlyaeva O.V., Gruzdeva M.L. Defining the concepts of literacy and competences in artificial intelligence in the
context of teacher education. Vestnik Rossiiskogo universiteta druzhby narodov. Seriya: Informatizatsiya obrazovaniya =
RUDN Journal of Informatization in Education, 2025, vol. 22, no. 3, pp. 371–381.
34. Long D., Magerko B. What is AI literacy? Competencies and design considerations. Proceedings of the 2020 CHI Conference
on Human Factors in Computing Systems, 2020, pp. 1–16.
35. A. Carolus et al. MAILS – Meta AI literacy scale: development and testing of an AI literacy questionnaire based on
well-founded competency models and psychological change – and meta-competencies. Computers in Human Behavior:
Artificial Humans, 2023, vol. 1, no. 2, art. 100,014.
36. Annapureddy R., Fornaroli A., Gatica-Perez D. Generative AI literacy: twelve defining competencies. Digital Government:
Research and Practice, 2025, vol. 6, no. 1, pp. 1–21.
37. Nikiforova O.A., Akimova O.A., Bordunos A.K., Kaisheva K.V. et al. Generative AI literacy of university faculty members
in Russia. In: Data-driven monetization strategies for economic insights. Hershey, 2025. Pp. 309–334.
38. Artificial intelligence and digital transformation: competencies for civil servants. UNESCO. Available at: https://unesdoc.
unesco.org/ark:/48223/pf0000383325 (accessed May 14, 2026).
39. Lebezova E.M. From digital skills to digital leadership: formation of competencies of public sector managers in the era
of artificial intelligence. Novoe v ekonomicheskoi kibernetike = New in Economic Cybernetics, 2025, no. 2, pp. 101–122.
(IN Russ.).
40. Kompetentsii v oblasti II [Competencies in the field of artificial intelligence]. Available at: https://github.com/aimclub/
ai-competency-model (accessed April 14, 2026).
kadrov dlya ehkonomiki, sostoyavshegosya 25 dekabrya 2025 g. [List of instructions following the meeting of the State
Council of the Russian Federation on issues related to training personnel for the economy, held on December 25, 2025].
Available at: http://www.kremlin.ru/acts/assignments/orders/79143 (accessed March 4, 2026).
2. Chee H., Ahn S., Lee J. A competency framework for AI literacy: variations by different learner groups and an implied
learning pathway. British Journal of Educational Technology, 2025, vol. 56, no. 5, pp. 2,146–2,182.
3. Mansur S. AI as a catalyst in education, adult learning, and digital literacy. International Journal for Multidisciplinary
Research, 2025, vol. 7, no. 4, art. 54,198.
4. Laupichler M.C., Aster A., Schirch J., Raupach T. Artificial intelligence literacy in higher and adult education: a scoping
literature review. Computers and Education: Artificial Intelligence, 2022, vol. 3, art. 100,101.
5. Lintner T. A systematic review of AI literacy scales. Science of Learning, 2024, vol. 9, art. 50.
6. Zhang L., Si W., Shang K., Zhu J., Ji X. Mapping the AI divide in undergraduate education: community detection in disciplinary
networks and survey evidence. Available at: https://arxiv.org/html/2510.19288 (accessed March 4, 2026).
7. Su J., Chen X., Chu S., Hu X. A scoping review of empirical research on AI literacy assessments. Educational Technology
Research and Development, 2025, vol. 73.
8. Markus A., Carolus A., Wienrich C. Objective measurement of AI literacy: development and validation of the AI Competency
Objective Scale (AICOS). Computers and Education: Artificial Intelligence, 2025, vol. 9, art. 100,485.
9. Yuan C.W., Tsai H.-Y. S., Chen Y.-T. Charting competence: a holistic scale for measuring proficiency in artificial intelligence
literacy. Journal of Educational Computing Research, 2024, vol. 62, pp. 1455–1484.
10. Soto-Sanfiel M. T., Angulo-Brunet A., Lutz C. The scale of artificial in-telligence literacy for all (SAIL4ALL): assessing
knowledge of artificial intelligence in all adult populations. Humanities and Social Sciences Communications, 2025, vol. 12,
art. 1
11. Kuz’minov Ya.I., Kruchinskaya E.V., Gruzdev I.A., Naumov A.A. Falling behind and getting ahead: student use of generative
AI in education. Vysshee obrazovanie v Rossii = Higher Education in Russia, 2025, vol. 34, no. 6, pp. 9–35. (In Russ.).
12. Sokolov N.V. Development of a pedagogical model for forming competencies in the field of artificial intelligence for
bachelor’s students. Problemy sovremennogo pedagogicheskogo obrazovaniya = Problems of Modern Pedagogical Education,
2024, no. 84-1, pp. 297–300. (In Russ.).
13. Plashchevaya E.V., Utochkina E.A., Nigei N.V. The role of the “introduction to artificial intelligence” course in developing
digital competencies among students of the Amur State Medical Academy. Tendentsii razvitiya nauki i obrazovaniya =
Trends in the Development of Science and Education, 2024, no. 107-2, pp. 37–40. (In Russ.).
14. Gual L., Medina L., Parejo J.-L. A tridimensional model of AI literacy: an empirical analysis of student performance and
demographic patterns in higher education. Australasian Journal of Educational Technology, 2025, vol. 41, pp. 37–55.
15. Mukhamedkarimova D.F., Umurkulova M.M. Factors contributing to higher education students’ acceptance of artificial
intelligence: a systematic review. European Journal of Educational Research, 2025, vol. 14, no. 4, pp. 1,373–1,388. (In
Russ.).
16. Sysoev P.V. A modern teacher’s competence in the field of artificial intelligence: structure and content. Vysshee obrazovanie
v Rossii = Higher Education in Russia, 2025, vol. 34, no. 6, pp. 58–79. (In Russ.).
17. Smyshlyaeva (Dedkova) O.V., Gruzdeva M.L. Defining the concepts of literacy and competences in artificial intelligence
in the context of teacher education. Vestnik Rossiiskogo Universiteta Druzhby Narodov. Seriya: Informatizatsiya
obrazovaniya = RUDN Journal of Informatization in Education, 2025, vol. 22, no. 3, pp. 371–381. (In Russ.).
18. Evstigneev M.N., Polyakov O.G., Evstigneeva I.A., Filatov E.M. Content of a pre-service training teacher’s competence
in the field of artificial intelligence. Pedagogika. Voprosy teorii i praktiki = Pedagogy. Issues of Theory and Practice, 2026,
vol. 11, no. 1, pp. 87–96. (In Russ.).
19. Laupichler M.C. et al. Artificial intelligence literacy in higher and adult education: a scoping literature review. Computers
and Education: Artificial Intelligence, 2022, vol. 3, art. 100,101.
20. N. Yamashita et al AI literacy education for older adults: motivations, challenges and preferences. Available at: arXiv:
2504.14649 (accessed March 4, 2026).
21. Bialy F., Elliot M., Meckin R. Perceptions of AI across sectors: a comparative review of public attitudes. Available at:
arXiv:2509.18233 (accessed March 4, 2026).
22. Lavrova T.B., Morozov M.Yu., Zhovnir M.G. Digital competence of state civil servants in the context of the challenges of
digital transformation. Gosudarstvennaya sluzhba = Civil Service, 2025, vol. 27, no. 6 (158), pp. 36–47. (In Russ.).
23. Misuraca G.C., Medaglia R., Feijoo C., Mortat M. et al. Developing competences for artificial intelligence in the public
sector: the AI4Gov canvas, Conference on Digital Government Research, 2025, vol. 26.
24. Ekler N.A., Yanchenko I.V. Artificial intelligence-related digital competences of municipal employees: an empirical
study. Sovremennye problemy nauki i obrazovaniya = Modern Problems of Science and Education, 2026, no. 3. Available
at: https://science-education.ru/ru/article/view?id=34535 (In Russ.). (Accessed May 15, 2026).
25. Shalina O.I., Sheina A.Yu. Digital competencies of municipal employees: Current state assessment. Ars Administrandi,
2025, vol. 17, no. 4, pp. 709–729. (In Russ.).
26. Weichong Z., Chen X.U., Yiran Z. H.U. Cultivation path of AI literacy for grassroots civil servants based on the integrated
TAM-IDT model. Journal of Library and Information Sciences in Agriculture, 2025, vol. 37, pp. 72–85. (In Russ.).
27. Panova E.A., Tarasova E.Yu. Enhancing of digital competencies and digital literacy of civil servants in the context of
digital modernization of public administration. Gosudarstvennoe upravlenie. Elektronnyi vestnik = Public Administration.
E-journal, 2025, no. 112, pp. 64–77. (In Russ.).
28. Lavrova T.B., Morozov M.Yu., Zhovnir M.G. Digital transformation: issues of professional development of civil servants.
Gosudarstvennaya sluzhba = Civil Service, 2025, vol. 27, no. 6 (158), pp. 36–47. (In Russ.).
29. Medaglia R., Mikalef P., Tangi L. Competences and governance practic-es for artificial intelligence in the public sector.
Available at: https://publications.jrc.ec.europa.eu/repository/handle/JRC138702 (accessed March 4, 2026).
30. Chen Y., Wu Y., Lin K., Hoggenmueller M. et al. Attitudes toward AI-powered robots in policing: AI literacy, organizational
justice, and occupational wellbeing among Chinese police officers. Asian Journal of Criminology, 2026, vol. 21, art. 3.
31. Strel’nikov S.S., Vokhmintsev A.P., Katkova A.L., Ushakova O.M. The potential of the influence of AI-literacy on students’
information behavior. Mir nauki. Pedagogika i psikhologiya = World of Science. Pedagogy and Psychology, 2024,
vol. 12, no. 4. Available at: https://mir-nauki.com/PDF/91PDMN424.pdf (In Russ.). (Accessed May 15, 2026).
32. Chiu T.K.F. et al What are artificial intelligence literacy and competency? A comprehensive framework to support them.
Computers and Education Open, 2024, vol. 6, art. 100,171.
33. Smyshlyaeva O.V., Gruzdeva M.L. Defining the concepts of literacy and competences in artificial intelligence in the
context of teacher education. Vestnik Rossiiskogo universiteta druzhby narodov. Seriya: Informatizatsiya obrazovaniya =
RUDN Journal of Informatization in Education, 2025, vol. 22, no. 3, pp. 371–381.
34. Long D., Magerko B. What is AI literacy? Competencies and design considerations. Proceedings of the 2020 CHI Conference
on Human Factors in Computing Systems, 2020, pp. 1–16.
35. A. Carolus et al. MAILS – Meta AI literacy scale: development and testing of an AI literacy questionnaire based on
well-founded competency models and psychological change – and meta-competencies. Computers in Human Behavior:
Artificial Humans, 2023, vol. 1, no. 2, art. 100,014.
36. Annapureddy R., Fornaroli A., Gatica-Perez D. Generative AI literacy: twelve defining competencies. Digital Government:
Research and Practice, 2025, vol. 6, no. 1, pp. 1–21.
37. Nikiforova O.A., Akimova O.A., Bordunos A.K., Kaisheva K.V. et al. Generative AI literacy of university faculty members
in Russia. In: Data-driven monetization strategies for economic insights. Hershey, 2025. Pp. 309–334.
38. Artificial intelligence and digital transformation: competencies for civil servants. UNESCO. Available at: https://unesdoc.
unesco.org/ark:/48223/pf0000383325 (accessed May 14, 2026).
39. Lebezova E.M. From digital skills to digital leadership: formation of competencies of public sector managers in the era
of artificial intelligence. Novoe v ekonomicheskoi kibernetike = New in Economic Cybernetics, 2025, no. 2, pp. 101–122.
(IN Russ.).
40. Kompetentsii v oblasti II [Competencies in the field of artificial intelligence]. Available at: https://github.com/aimclub/
ai-competency-model (accessed April 14, 2026).
