Tender-free projects and conflicts of interest: Analyzing Botir Zokirov’s five-year tenure as Uzbekistan's Minister of Construction

From COVID Centers to the Olympic Village

Botir Zokirov, who was not unfamiliar with the construction sector, was appointed Minister of Construction in September 2019. What changed in the construction industry during his tenure (2019-2024)? What actions of the minister stood out and are remembered?

During Zokirov's time as minister, significant steps were taken to make the construction sector more transparent.

In particular, within the framework of state programs and projects, the main project-research and main construction-contracting organizations were identified through electronic tenders in the "Transparent Construction" national information system, and the process of accepting construction objects until their use was digitized. Additionally, the Institute for Development of Competence and the Institute of Technical Regulation and Standardization were established under the ministry.

Major construction projects carried out during Zokirov's tenure include COVID centers, the Center for Islamic Civilization, the Imam al-Bukhari complex, the Olympic Village, and the tourism center in Samarkand.

"Gifts" Without Tender to "Trust-12"

During Zokirov's time as minister, the media frequently reported that projects were awarded to a company connected to his relatives without tenders. In May 2021, the director of the Anti-Corruption Agency, Akmal Burkhanov, revealed that projects worth nearly 5 trillion UZS were awarded to "Trust-12" without tenders.

In 2021, for instance, "Trust-12" was selected as the contractor for a 431.5 billion UZS project in Independence Square. As part of this project, the engineering company "Unified Customer Service" under the Tashkent city administration signed an order contract with "Trust-12" on July 9, 2019. Two months earlier, on May 11, 2021, Minister of Construction Abdulkahhor Tokhtaev was transferred to another position, and Botir Zokirov was serving as the first deputy minister of construction. Shortly thereafter, he became the minister.

“There is a clear conflict of interest here, and it cannot be hidden. Because the Ministry of Construction is involved,” Akmal Burkhanov said.

Among the shareholders of "Trust-12" JSC, one of the largest construction companies in Uzbekistan, are Botir Zokirov's son and wife.

Later, the minister commented on the situation of "Trust-12" receiving projects without tenders.

"There are reasons why "Trust-12" is directly designated for certain construction projects. The organization’s history, quality, deadlines, and its own regulations matter. Not everyone can meet these regulations.

Of course, the direct assignment of projects is not up to me, it is determined by the Cabinet of Ministers' decision. As for the '450 billion' project, I am not aware of it, I have my own responsibilities,” said the former minister at that time.

Unfulfilled Promises

In April 2021, Botir Zokirov, at a press conference in Samarkand, said he would reveal the people behind each illegal construction.

"Today, if someone is carrying out illegal construction, it is not done by an ordinary person. They have significant backing, and this too is corruption. If we are fighting against them today, they are fighting against us as well. If someone steps out of line, it will be a problem for them. We will fight to the end because we have the power and the tools. We will show who is behind it. Everything will come to light. We have no other choice but to fight to the end. The opposition we face is because we are fighting against them,” said Botir Zokirov.

However, it seems the ministry lost the "fight" Zokirov talked about: efforts to build on lands allocated for other purposes continued. Yet, the people behind these actions remain "behind the curtain."

Unbeaten Corruption

During the former minister’s tenure, the construction sector remained at the top of the most corrupt sectors rankings.

For instance, in April 2021, Bekzod Rakhmonov, an official from the Anti-Corruption Agency, named the top three most corrupt ministries based on 2020 data. He listed the Ministries of Health, Higher and Secondary Specialized Education, and Construction.

On March 24, 2024, the agency published the effectiveness ranking of state institutions in fighting corruption. The Ministry of Construction and Housing and Communal Services was rated "satisfactory." However, the Construction and Housing Communal Services Inspection ranked in the "red column."

On July 17, during a video conference chaired by President Shavkat Mirziyoyev, it was announced that Botir Zokirov was relieved of his duties. First Deputy Minister Sherzod Khidoyatov was appointed acting minister.

For Sherzod Khidoyatov, this is not his first ministerial position. He was appointed Minister of Housing and Communal Services in January 2021, and after the ministry was merged with the Ministry of Construction in January 2023, he became the first deputy minister.

Sherzod Khidoyatov also has unfulfilled promises. One of them is the master plan for Tashkent city. In 2020, while serving as the Deputy Minister of Construction, he mentioned in an interview that the master plan would be ready by 2022.