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DECEMBER 2008
ELEVENTH REpoRT
SEConD ADMiniStRAtivE REfoRMS CoMMiSSion
PRoMoting e-govERnAnCE
Te SMARWay Forward
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GOVERNMEN OF INDIA
SECOND ADMINISTRATIVE REFORMS COMMISSION
ELEVENH REPOR
PROMOING e-GOVERNANcETe SMAR Way Forward
DEcEMbER 2008
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PREFAcE
In his Grundlegung Zur Metaphysik de Sitton, Immanual Kant says, So act as to
treat humanity, whether in their own person or in that of any other, in every case as
an end withal, never as means only. Kants observation is even more valid today. The
citizens are ends in themselves, rather than as means to other ends. he olonial view
o the Government used to e as a ontroller and ruler. It is now that o a oordinator
and provider. Government is responsile or providing ertain servies to the itizens, justlike an organisation is responsile or managing a value hain that leads to output. business
orporations have disovered over the last ew deades that inormation tehnology an
make the value hain more eiient and lead to quality improvements and ost savings.
Similarly, Governments have disovered that inormation tehnology an make the provision
o servies to the itizen more eiient and transparent, an save osts and lead to a higher
level o eiieny.
eGovernane is in essene, the appliation o Inormation and communiations
ehnology to government untioning in order to reate Simple, Moral, Aountale,
Responsive and ransparent1 (SMAR) governane. In this report on eGovernane, the
Seond Administrative Reorms commission (ARc) has tried to analyse the suesses and
ailures o eGovernane initiatives in India and at the gloal level, in order to extrapolate
the est praties, key reorm priniples and reommendations that an help the government
to implement a new paradigm o governane in the ountry. his new paradigm would
ous on the use o inormation tehnology to ring puli servies to the doorsteps o our
itizens and usinesses on the asis o revolutionary hanges in our institutional strutures,
proedures and praties that would transorm the relationships etween our three levels
o government, our usinesses and our itizens.
he revolution in Inormation and communiations ehnology (Ic) has rought
a whole new agenda or governane into the realm o possiility. eGovernane omprises
deisional proesses and the use o Ic or wider partiipation o itizens in puli aairs.
citizens are partiipants in eGovernane. he purpose o implementing eGovernane is
to improve governane proesses and outomes with a view to improving the delivery o
puli servies to itizens. Some authors have deined eGovernane as the eusiness o the
i
1Paragraph 83, Report o the Working Group on convergene and EGovernane or Te enth Five Year Plan (20022007), Planning commission,Novemer, 2001
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State. This seems appropriate as oth e-Governane and e-usiness use similar tehnologies,
infrastruture and hardware. However the market models are widely different thus justifying
e-Governane as a separate area of researh (Gisler, 2001). Although there are many
definitions of e-Governane, the ojetives of governments are indisputale: maintaining
olletive seurity, administering justie, providing the institutional infrastruture of
the eonomy and ensuring that vital soial apital is enhaned through improvements inhealth and eduation and through strong families and ommunities (Dawes et al. 1999). A
more omprehensive definition of e-Governane proposes hanges of government in two
related aspets: 1) transformation of usiness of governane i.e. reduing osts, improving
servie delivery and renewing proesses; 2) re-examination of the funtions and proesses
of demoray itself (Aiholzer and Shmutzer 2000). The resulting impats are redued
osts, lesser orruption, inreased transpareny, revenue growth and onveniene for the
itizenry.
India, eing the largest demoray in the world, has muh to gain from e-Governane,espeially when itizen partiipation in governane is one of the features of the fully evolved
stage of e-government. Many e-readiness assessments have een arried out at the gloal level
that show the urrent state of Indias e-readiness. Some of the more reent study findings
are as follows: The July 2002 EIU ranking found that 55 of the ountries navigating the
information super highway aount for 98 per ent of all IT in 150 ountries. It ranked
India at 54 among the group of elite 55.The May 2001 M-connell ranking of e-readiness
assessment indiated that sustantial improvements were needed in the area of onnetivity.
Improvements are also required in the areas of E-Leadership, E-business, Information
Seurity and Human capital. The Gloal Information Tehnology Report, 2002-03, ranked
India 37 aove china whih is ranked 43rd, whereas the 2001-02 Report ranked India
54 (adapted from INDIA: E-Readiness Assessment Report 2003, Department of Information
Tehnology, Government of India).
Singapore has SINGAPORE ONE, an e-Governane suite that offers very
omprehensive servies to its itizens. One a hild is orn, the data ase keeps trak of
this hild during its primary and seondary shool days, graduation degree, employment,
marriage, housing loans, passport, usiness et. South Korea is another ountry that has
developed a numer of e-Governane projets. This ountry oasts of the est onnetivity
in the world. The UK also has an exellent e-Governane system and a lot an e learntfrom how the government has transformed itself in the new era. While the India proesses
are ased on the UK proesses, they have remained antiquated. They need to e updated
and hanged as per urrent irumstanes.
e-Governane refers to the use y government agenies of Information Tehnologies
(suh as Wide Area Networks, the Internet and moile omputing) that have the aility to
ii
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eGovernment is not aout e ut aout government; it is not aout omputers and
wesites, ut aout servies to itizens and usinesses. eGovernment is also not aout
translating proesses; it is aout transorming them. eGovernment is onerned with the
transormation o government, modernisation o government proesses and untions and
etter puli servie delivery mehanisms through tehnology so that government an e
put on an autopilot mode.
he our pillars o eGovernment are:#
People
Process
Technology
Resources
he hallenges in eGovernane have een desried as entred around or key areasviz people, proess, tehnology and resoures. he key onsiderations in eGovernane are
desried elow:
eGovernane imperatives
Proess Simpliity Eiieny citizen Sustainaility cost
entriity eetiveness
People Vision Leadership commitment competeny change
ehnology Arhiteture Open Reliaility Salaility SeurityStandards
Resoures Holisti Eiient Servie Sustained Adequate
oriented
o ompete suessully in a network ased gloal eonomy, governments need to e
oth leaders and ailitators. he leadership and ailitation roles omprise the ollowing
elements:
Developinganationale-strategy,makingICTadoptionandnetworkreadinessanational priority;
Undertaking innovative projects thatmake a difference, to lead by example,
adopting est praties;
Reforminggovernmentprocessescoveringareas suchas revenues,expenditures,
prourement, servie delivery, ustomer grievanes et;
v# his and susequent paragraphs are adapted rom a paper prepared/presentation made y Dr. P.K. Mohanty
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Tracking,storingandmanaginginformation,promotingproductionofnational
ontent online and through eletroni media; and doumenting suesses and
failures;
Accordinghighpriorityto protectionof individualrights,intellectualproperty,
privay, seurity, onsumer protetion et. and mobilising the ivil soiety; and
Developing a supportive framework for early adoptionof ICT and creating a
regulatory framework for IcT-related ativities.
creating the maro-eonomi environment for growth and innovation in IcT, inluding
fisal poliies (ost, innovation, investment, and venture apital), legal and regulatory
environment (ompetition, independent regulator, rule of law, intelletual property
protetion) and hannelizing and mobilization of resoures for IcT is an important
orollary to e-Governane as is implementing an eduation poliy for the right quantum
and quality of manpower resoures for a network-ready eonomy-urriula, IcT trainingfailities and wiring/networking of eduational institutions. Addressing the digital divide
domestially and internationally, giving signals to markets - artiulating a national vision of
IcT, aording national priority to IcT, undertaking large projets, promoting innovation
and risk taking through fisal onessions and availability of venture apital; reating an
investment limate for domesti and foreign investment in IcT setor; hampioning national
interests in international forums et. are equally important.
Despite important poliy initiatives and signifiant ahievements in the eonomi and
soial setors in our ountry, we still have a long way to go before ahieving our full potentialfor development. This is beause there is still a wide gulf between our poliy initiatives and
intents and the atual ahievements. Among the major reasons for this gap inlude outmoded
systems of governane, umbersome proesses and proedures, prevalene of orruption and
lak of aountability in our funtioning. A pertinent question, therefore, is how an these
defiienies be best redressed. An obvious answer is through adopting e-Governane as an
inextriable part of government funtioning, be they in routine matters or major projets.
In this ontext I would like to share some of the suessful initiatives in e-Governane
whih were undertaken when I served as Eduation and Finane Minister and later as chief
Minister in Karnataka. These inlude use of e-Governane both in routine matters as well
as in major initiatives. Some of these are:
IntroductionofcomputerisedcounselingintheCommonEntranceTest(CET)
for admission to Professional colleges in Karnataka.
This involved reation of a omputerized system to manage the proessing of the
results of cET, to prepare merit lists and thereafter on the basis of the merit list
to enable seat seletions by the andidates in a transparent manner.
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DisposaloffilesintheChiefMinistersoffice.
Every grievane or appeal whih was addressed to the chie Minister, was given
a omputer numer and date and wathed on omputer or its disposal. Needless
to mention the impat o suh ojetive wath had an impat on the eiieny
o the cMs seretariat in the matter o prompt disposal o iles, redressal and areelaorated in this Report.
Inormation ehnology presents many avenues or improving governane. It has
opened up new opportunities or governments to manage things dierently and in a more
eiient manner y utilizing inormation eetively and reengineering proesses. Ic
tools are emerging as important instruments towards the goal o good governane. Many
ountries have launhed speii initiatives or open government. Freedom o inormation
is eing redeined and supported y Ic. Indias Right to Inormation At, 2005 is a prime
example in this regard. Ic has ailitated a onsious attempt to ring the itizen to the
entrestage. citizens are eing pereived as ustomers and lients rather than eneiiaries.he internet revolution oupled with rapid advanes in ommuniation have proved to
e a powerul tool or itizenentri governane. An important dimension o the Internet
potential is the possiility o providing puli servies anytime, anywhere.
My hope is that the ARcs Eleventh Report on eGovernane, an help transorm
governane in India to a transparent, responsive, itizen riendly and eiient regime that
we an all e proud o.
New Delhi (M. Veerappa Moily)
Deemer 20, 2008 chairman
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Government o India
Ministry o Personnel, Public Grievances & Pensions
Department o Administrative Reorms and Public Grievances
RESOLUTION
New Delhi, the 14th Feruary, 2008
No.K11022/26/2007AR Te President is pleased to extend the term o the seond
Administrative Reorms commission (ARc) y six months upto 30.9.2008 or sumission
o its Reports to the Government.
Sd/-
(Dhruv Vijai Singh)
Additional Secretary to the Government o India
Government o India
Ministry o Personnel, Public Grievances & PensionsDepartment o Administrative Reorms and Public Grievances
RESOLUTION
New Delhi, the 5th Septemer, 2008
No.K11022/26/2007AR Te President is pleased to extend the term o the seond
Administrative Reorms commission (ARc) y six months upto 31.3.2009 or sumissiono its Reports to the Government.
Sd/-
(P.K. Jha)
Joint Secretary to the Government o India
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box 6.2 National Knowledge commission on 72
Government Proess Re-engineering
box 6.3 business Proess Re-engineering Projet o 73Inome Tax Department
box 6.4 common Standards 91
box 6.5 Some Novel Tehnologial Solutions 94
box 7.1 State Data centres 116
box 7.2 comparison o Visa Systems 151
LIST OF ABBREVIATIONS
Abbreviation Full Form
AOA Artiles o Assoiation
APL Aove Poverty Line
APR Annual Perormane Appraisal Report
ARc Administrative Reorms commission
ATIs Administrative Training Institutes
bIS bureau o Indian Standards
bOD bulk Operations Division
bPL below Poverty Line
bPR business Proess Reengineering
bSEb bihar State Eletriity board
cbDT central board o Diret Taxes
cbRMs capaity building RoadmapsccTNS crime and criminal Traking Network and System
c-DAc centre or Development o Advane computing
cDb core Dataase
cET common Entrane Test
cIO chie Inormation Oer (USA)
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cIOc chie Inormation Oer counil (USA)
cIPA common Integrated Polie Appliation
cIU central I Unit (UK)cLR computerisation o Land Reords
cOD compliane Operations Division
cSc common Servie centre
cSS centrally Sponsored Sheme
DAR&PG Department o Administrative Reorms and Puli Grievanes
DDA Delhi Development Authority
DGF Diretorate General o Foreign rade
DHS Department o Homeland Seurity (USA)
DIN Diretor Identifation Numer
DISNIc Distrit Inormation System o the National Inormatis centre
DI Department o Inormation ehnology
DMA Disaster Management At, 2005
DoLR Department o Land Resoures
DPR Detailed Projet Report
EA Enterprise Arhiteture
Ec Empowered committee
EDI Eletroni Data Interhange
EFc Expenditure Finane committee
EGOM Empowered Group o Ministers
EOI Expression o Interest
ERNE Eduation and Researh Network
ES Eletroni otal StationEXIM Export Import
FAR Federal Aquisition Regulation (USA)
FEA Federal Enterprise Arhiteture (USA)
FIFO First in First out
FIUIND Finanial Intelligene Unit India
G2b Government to business
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G2c Government to citizen
G2G Government to Government
GIS Geographi Inormation SystemGPS Gloal Positioning System
GSA General Servies Administration (USA)
HRSI High Resolution Satellite Imagery
IcT Inormation & communiations Tehnology
IEc Inormation Eduation and communiation
IEE Internal Eieny and Eetiveness
IRM Institute o Risk Management (USA)
ISRO Indian Spae Researh Organization
IT Inormation Tehnology
ITES Inormation Tehnology Enaled Servies
ITIN Individual Tax Identifation Numer
JNNURM Jawaharlal Nehru National Uran Renewal Mission
KISS Keep it Small and Simple
KM Knowledge Management
LAN Loal Area Network
McA Ministry o corporate Aairs
MEA Ministry o External Aairs
MHA Ministry o Home Aairs
MIS Management Inormation System
MMPs Mission Mode Projets
MNIc Multi-purpose National Identity card
MOA Memorandum o AssoiationMoUD Ministry o Uran Development
MPLADS Memer o Parliament Loal Area Development Sheme
MSA Measurement System Analysis
NARA National Arhives & Reords Administration (USA)
NASScOM National Assoiation o Sotware and Servies companies
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NeGP National eGovernane Plan
NIc National Inormatis centre
NIcNE National Inormatis centre NetworkNISG National Institute o Smart Governane
NLRMP National Land Reords Modernisation Programme
NLSA National Level Servie Ageny
NMMP National Mission Mode Projet
NPR National Population Register
NREGA National Rural Employment Guarantee At, 2005
NSDG National eGovernane Servie Delivery Gateway
OEcD Organisation or Eonomi cooperation and Development
OFPP Oe o Federal Prourement Poliy (USA)
OMb Oe o Management and budget (USA)
OPM Oe o Personnel Management (USA)
PAN Permanent Aount Numer
PDS Puli Distriution System
PeM Projet eGovernane Mission eams
PESU Patna Eletri Supply Undertaking
PFO Physial Front Oe
PIAs Privay Impat Assessments
PPP PuliPrivate Partnership
PSUs Puli Setor Undertakings
RAcE Revenue Administration through computerised Energy
REGS Rural Employment Guarantee Sheme
RDs Regional DiretorsRFP Request or Proposal/Partiipation
RGI Registrar General o India
ROc Registrar o companies
RoR Reords o Rights
RPO Regional Passport Oe
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Rc Reords o Right, enany and cultivation
RI Right to Inormation
ScA Servie centre AgenySDA State Designated Ageny
SDcs State Data centres
SeM State e-Governane Mission eams
SMAR Simple, Moral, Aountale, Responsive and ransparent
SRA Strengthening o Revenue Administration
SROs Su-Registrars Oes
SSc State Servies commission (New Zealand)
SQc Standardization esting and Quality certifation
SWAN State Wide Area Network
IN ax Identifation Numer
UID Unique Identity
ULbs Uran Loal bodies
ULR Updating o Land Reords
URL Uniorm Resoure Loator
Us Union erritories
VFO Virtual Front Oe
VLE Village Level Entrepreneur
WAN Wide Area Network
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xxi
1INTRODUCTION
1
1.1 One o the terms o reerene o the Seond Administrative Reorms commission
pertains to promoting e-Governane and in partiular, to the ollowing aspets o this
sujet:
i. o redue red-tape, delay and inonvenienes through tehnology
interventions inluding the use o modern tools, tehniques and instrumentso e-Governane.
ii. Promote knowledge sharing to realize ontinuous improvement in the quality
o governane.
1.2 Te e in e-Governane stands or eletroni. Tus, e-Governane is asially
assoiated with arrying out the untions and ahieving the results o governane
through the utilization o what has today ome to e known as Ic (Inormation and
communiations ehnology). Te reason why ountries around the world are inreasingly
opting or e-Governane is that governane per se has eome more omplex and variedin the last ew deades and more importantly, itizens expetations rom government have
inreased maniold. Ic ailitates eient storing and retrieval o data, instantaneous
transmission o inormation, proessing inormation and data aster than the earlier manual
systems, speeding up governmental proesses, taking deisions expeditiously and judiiously,
inreasing transpareny and enoring aountaility. It also helps in inreasing the reah
o government oth geographially and demographially.
1.3 Te primary purpose o governane is the welare o itizens. While one aspet o
governane relates to saeguarding the legal rights o all itizens, an equally important aspet
is onerned with ensuring equitale aess to puli servies and the enets o eonomigrowth to all. It is expeted that e-Governane would enale the government to disharge
its untions more eetively. However, this would require the government to hange itsel
its proesses, its outlook, laws, rules and regulations and also its way o interating with
the itizens. It would also require apaity uilding within the government and reation
o general awareness aout e-Governane among the itizens.
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2
1.4 During the initial stages o introdution o Ic in governane there was resistane rom
some quarters. Some elt that omputerization annot work in the omplex government
system and that introdution o omputers would lead to un-employment. Tere were
also serious douts whether government employees at all levels would e ale to handleomputers. Fortunately all these misgivings have proved wrong. oday, new sotware tools
have enough fexiility, to aommodate the most omplex situations. Te new tehnology
makes the mahine human interae very user-riendly. Te Inormation ehnology (I) and
Inormation ehnology Enled Servies (IES) setors have reated millions o jos esides
improving vastly on the servies provided y government undertakings like banks, Airlines,
Railways et. Tus e-Governane is no longer a ar-ethed dream.
1.5 Te commission in its various Reports has advoated the need or introduing
e-Governane tools or reorming governmental proesses and ringing elements oaountaility and transpareny along with itizen-entriity. In its First Report, entitled
Right to Inormation: Master Key to Good Governane, while disussing suo motu
dislosures, the commission reommended that In respect to electronic disclosures, NICshould provide a single portal through which disclosures o all public authorities under appropriate
governments could be accessed, to acilitate easy availability o inormation(paragraph 5.4.11.d).However, while making this reommendation, the commission was not unaware o the
ground realities prevalent in the ountry, espeially in the rural areas, whih alled or a thrust
towards apaity uilding and reating adequate inrastruture or taking e-Governane
to the people. Tus, the commission autioned that there are inherent limitations inelectronic communication. Te vast majority o people will not have access to computers in the
oreseeable uture. Also a large number o small public oces and village panchayats are unlikelyto be able to use this mode o communication(paragraph 5.4.2).
1.6 Te commissions Seond Report entitled Unloking Human capital: Entitlements
and Governane A case Study, ontained a omplete module on Use o Inormation
ehnology in implementation o the National Rural Employment Guarantee At, 2005.
Some o the important reommendations made y the commission are quite illustrative
in the ontext o e-Governane whih is the ous o the present Report:
Blocksmustbethenodallevelsofgovernmentatwhichallinformationiselectronic.
Any inormation collected in non-electronic orm at this or a lower level ogovernment must be digitized at block level (paragraph 5.4.8.1.6).
Datafromtheblocksshouldbeaggregatedincentralrepositoriesineachofthestates.A
single data centre may be adequate or each state, and transmission to this centre romeach o the blocks should be enabled. Te Union Government should maintain its owndata centre, aggregating data rom each o the state repositories (paragraph 5.4.8.3.3).
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3
eidenticationofparticipantsintheREGSshouldbedevelopednationally,in
preparationforwideruseofanationalcitizenidenticationnumber.epotential
or such identity to be developed congruently with other systems o nationwide
part icipation e.g. elections should be explored along with appropriaterepresentatives rom such other arenas as well (paragraph 5.4.8.5.3).
AGeographicInformationSystem(GIS)fortheREGSshouldbedevelopedand
inormation that is developed through aggregation should be presented throughthis system as well. A zoom-able and pan-able interace should allow perormanceto be understood at diferent levels o administration rom the same base data.
Wherever possible, suo motu disclosures should be in GIS ormat also, in additionto their other means o dissemination (paragraph 5.4.8.7.5).
Afewpilotprojectsindierentregionsmaybetakenupinaclusterofvillagesusing SMAR cards. Such SMAR cards should store inormation aboutthe persons identity (including biometrics) and should have the capacity o recordingtransactionsunderNREGAandevenauthorizepayments(paragraph
5.4.8.9.5).
1.7 In its Report on crisis Management, the commission had one again put emphasis
on the use o Geographial Inormation System tools in order to integrate spatial datasuch as topography, hydrology, land use, land cover, settlement pattern and built structure aswell as non-spatial data such as demography, socio-economic conditions and inrastructure in a
common platorm. Tis should be integrated with satellite and aerospace data as well as data romGeographicalPositioningSystemsforrealtimemonitoringofcrisissituationsandforscientic
assessment o damages(paragraph 5.3.8).
1.8 Te commissions Fourth Report entitled Ethis in Governane also emphasized
the use o Inormation ehnology and highlighted the need or onomitant proess re-
engineering in the government. Its spei reommendations were as ollows:
EachMinistry/Department/OrganisationofGovernmentshoulddrawupaplan
or use o I to improve governance. In any government process, use o Inormationechnology should be made only ater the existing procedures have been thoroughlyre-engineered (paragraph 6.4.7a).
eMinistryofInformationTechnologyneedstoidentifycertaingovernmental
processes and then take up a project o their computerization on a nationwidescale (paragraph 6.4.7b).
Introdution
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Forcomputerizationtobesuccessful,computerknowledgeofdepartmentalocers
needstobeupgraded.Similarly,theNICneedstobetrainedindepartmentspecic
activities, so that they could appreciate each others view point and also ensure
that technology providers understand the anatomy of each department (paragraph6.4.7c).
Alloceshavinglargepublicinterfaceshouldhaveanonlinecomplainttracking
system. If possible, this task of complaint tracking should be outsourced (paragraph6.10.2a).
Anationaldatabasecontainingthedetailsofallcorruptioncasesatalllevelsshould
becreated.isdatabaseshouldbeinthepublicdomain.Identiedauthorities
should be made responsible for updating the database regularly (paragraph
6.16.2).
1.9 In its Fith Report entitled Puli Order, the commission had emphasized the use o
tehnology in making the registration o FIRs hassle ree. It also suggested that tehnology
should e used to improve the aessiility o Polie Stations to the puli.
1.10 Te commission had urther oasion to disuss the use o Inormation and
communiations ehnology (Ic) in its Sixth Report on Loal Governane with a view
to strengthening the institutional strutures and servie delivery mehanisms with reerene
to the third tier o government. It was o the view that Information and Communication
echnology provides tools which could be utilized by the local governments for simplifyingcumbersome processes, reducing contact between the cutting edge functionaries and thecitizens, enhancing accountability and transparency and providing single window servicedelivery for a variety of services. Te Commission would discuss such issues in detail in itsReport on e-Governance(paragraph 3.10.1.1). Having said this, however, the commissiondid look into some spei uses o e-Governane tools in matters related to panhayats and
uran loal odies. Some o the reommendations made in this Report are as ollows:
Information andCommunicationTechnology shouldbeutilized by thelocal
governmentsinprocesssimplication,enhancingtransparencyandaccountabilityand providing service delivery of services through single window (paragraph3.10.1.2 a).
Localgovernmentsshouldbecomeonepointservicecentresforprovidingvarious
web based and satellite based services. Tis would however require capacity buildingin the local governments (paragraph 3.10.2.8 b).
4
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StateGovernmentsshouldmakeuseofthesoftwareonfundtransfertoPanchayats
prepared by the Union Ministry o Panchayati Raj or speedy transer o unds
(paragraph 4.3.7.5d).
StepsshouldbetakentosetupInformationandCommunicationTechnology(ICT)
and Space echnology enabled Resource Centres at the Village and Intermediate
Panchayat levels or local resource mapping and generation o local inormationbase. Tese Resource Centres should also be used or documenting local traditionalknowledge and heritage (paragraphs 4.5.5.6 a&b).
Municipalbodiesshouldhaveaperiodicallyupdateddatabaseofitsproperties.
I tools like GIS should be used or this purpose. Tis database should be in thepublic domain (paragraph 5.3.8.7a).
Paymentofwaterchargesinurbanareasshouldbemadehassle-freethroughuse
o Inormation echnology (5.4.3.2.8e).
Anexhaustivesurveytoidentifytheurbanpoorshouldbecarriedoutwithinone
year.eurban poor so identiedmaybe issuedmulti-utility identity cards for
availingofbenetsunderallpovertyalleviationprogammes(paragraph5.6.2.3).
1.11 While dealing with illegal immigration into the North East in its Seventh Report
entitled capaity building or confit Resolution, the commission drew attention
towards having a multi-purpose national identity ard or itizens. It was o the view thatTe Multi-purpose National Identity Card (MNIC) will also unction as a necessaryinstrument or e-Governance. It will provide a user-riendly interace between the citizenand the government and will unction as a deterrent or uture illegal immigration
(paragraph 12.6.6.1). However, the commission noted that there were several Union and
State Government agenies whih issue similar identity ards. Aordingly, it reommended
that the MNIC project needs to be taken up on a priority basis. Since there are severalUnion Government and State Government agencies which issue similar identity cards,
it would be necessary to achieve convergence amongst all such systems so that the MNICbecomesthebasicdocumentforidenticationofapersonandlendsitselftobeusedasa
multi-purpose individual card. Priority should be given to areas having internationalborders, or implementation o this Project(paragraph 12.6.6.3).
1.12 In its earlier Reports, the commission has examined some aspets o e-Governane
while dealing with spei issues o governane. In the present Report, e-Governane is
examined as the ore issue in improving governane as a whole. Te Report disusses the
oneptual ramework o e-Governane in chapter 2 and then looks into some international
Introdution
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praties in chapter 3. chapter 4 examines some o the e-Governane initiatives undertaken
in India prior to the ormal launh o the National e-Governane Plan (NeGP) in 2006. In
chapter 5, the core Priniples o e-Governane have een outlined in the Indian ontext
and chapter 6 elaorates upon the issues involved in implementation o e-Governanereorms on the asis o these ore priniples. Te asi omponents o NeGP are disussed
in chapter 7. Tis chapter also ontains a disussion on some o the issues involved in
the implementation o the mammoth National e-Governane Plan. chapter 8 deals with
the legal ramework required or e-Governane in the ountry. chapter 9 inludes a rie
disussion on Knowledge Management.
1.13 Te commission has visited several States and Us to eliit the views o State
Government oials and the puli. During these visits, the presentations made y the
State Governments generally inluded a presentation on the e-Governane initiativesundertaken y them. Te commission has also enefted rom additional inputs on
e-Governane initiatives provided y several State Governments. Te commission is grateul
to Shri Dayanidhi Maran, the then Union Minister or communiations and Inormation
ehnology, and oers o the Ministry or disussing the initiatives undertaken in
relation to e-Governane. Te commission is also grateul to Dr. Sam Pitroda, chairman,
the National Knowledge commission and its memers with whom it had a very useul
interation. Te commission would also like to thank Shri Rajiv chawla, commissioner,
Survey and Settlement, Land Reords, Government o Karnataka, Shri Ajay Seth, Seretary
(Finane), Government o Karnataka; Shri S.G. Hegde, Exeutive Diretor, KEA; and
Shri Amod Kumar, Speial Seretary (I&), Government o Uttar Pradesh or their valuale
inputs on the Bhoomi, Khajane, computerised counselling and Lokvani projets
respetively. Te commission aknowledges the ontriution o Shri Harish Gowda,
commissioner o commerial axes, Karnataka. Te commission would like to plae on
reord its gratitude to Dr. N. Sheshagiri, ormer Diretor General, National Inormatis
centre; Shri Vivek Kulkarni, chairman and cEO, brikwork India; and Shri Nazeer
Hussain, ormer Diretor, Planning Department, Government o Karnataka or their valuale
suggestions. o assist in the preparation o this Report, the commission had entrusted the
task o preparing a onept paper on the commissions erms o Reerene on e-Governane
to the National Institute o Smart Governane, Hyderaad. Te inputs provided y them intheir onept paper were invaluale. Te commission also aknowledges the ontriution o
Shri R. chandrasekhar, Speial Seretary (I), Department o Inormation ehnology;
Shri J. Satyanarayana, cEO, NISG and Shri b.b. Nanawati, Prinipal consultant, NeGP
Projet Monitoring Unit.
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2e-GOVERNANCE : CONCEPTUAL FRAMEwORK2.1 Enabling Good Governance through Use o ICT
2.1.1 Te emergene o Inormation and communiations ehnology (Ic) has provided
means or aster and etter ommuniation, eient storage, retrieval and proessing o
data and exhange and utilization o inormation to its users, e they individuals, groups,
usinesses, organizations or governments. What had egun as a aster, more aurate andsimpler means o word-proessing quikly lent itsel to eing used as a tool or proessing
and taulating data as an aid in deision making. With growing omputerization and
inreasing internet onnetivity, this proess has presently reahed a stage where more and
more users are motivated to modiying their ways o doing things in order to leverage the
advantages provided y Ic. In other words, this has led to usiness proess re-engineering.
So ar as governments are onerned, the oming together o omputerization and internet
onnetivity/we-enalement in assoiation with proess re-engineering, promises aster
and etter proessing o inormation leading to speedier and qualitatively etter deision
making, greater reah and aountaility, etter utilization o resoures and overall goodgovernane. In the ase o itizens, it holds the promise o enhaned aess to inormation
and government agenies, eient servie delivery and transpareny in dealings and
interations with government.
2.1.2 With the inreasing awareness among itizens aout their rights and the resultant
inrease in expetations rom the government to perorm and deliver, the whole paradigm
o governane has hanged. Government, today, is expeted to e transparent in its dealings,
aountale or its ativities and aster in its responses. Tis has made the use o Ic
imperative in any agenda drawn towards ahieving good governane. It has also led to the
realization that suh tehnologies ould e used to ahieve a wide range o ojetives and
lead to aster and more equitale development with a wider reah. In its Fourth Report
entitled Ethis in Governane, the commission had learly stated that the tools o modern
tehnology suh as Inormation and communiations ehnology (Ic) should e used to
transorm the relationship o the government with its onstituents, itizens and usinesses,
and also etween its own agenies. While reognizing the potential o Ic in transorming
and redening proesses and systems o governane, the commission had suggested that
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e-Governane : coneptual Framework
articulation o their interests and exercise o their legal rights and obligations.E-Governancemaybeunderstoodastheperformanceofthisgovernancevia
the electronic medium in order to acilitate an ecient, speedy and transparent
process o disseminating inormation to the public, and other agencies, and orperorming government administration activities.
Tis denition visualizes the use o the eletroni medium in the exerise o
authority in the management o a ountrys aairs along with artiulation o
itizens interests leading to greater transpareny and eieny.
iii. Te counil o Europe has taken e-Governane to mean:6
the use o electronic technologies in three areas o public action:
- relations between the public authorities and civil society
- unctioning o the public authorities at all stages o the democratic process
(electronic democracy)
- the provision o public services (electronic public services)
In this ase, the ous is on making use o eletroni tehnologies with a view
to enourage etter interation etween government and itizens, promote
demoray and provide puli servies.
iv. Te US E-Government At o 2002 denes eletroni Government to mean
(Setion 3601):7
the use by the Government o web-based Internet applications and otherinormation technologies, combined with processes that implement thesetechnologies, to-
(A) enhance the access to and delivery o Government inormation and servicesto the public, other agencies, and other Government entities; or
(B)bringaboutimprovementsinGovernmentoperations thatmayinclude
eectiveness, eciency, service quality, or transormation.
Tis denition refets the strategy o the US Government regarding the use
o Ic in improving Government operations on the one hand and enhaning
the aess and delivery o inormation and servies to itizens and government
entities on the other.
6Soure: http://www.oe.int//E/com/Files/Temes/e-voting/denition.asp7Soure: E-Government At o 2002; http://rwegate.aess.gpo.gov/gi-in/getdo.gi?dname=107_ong_puli_laws&doid=:pul347.107.pd
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2.2.2 basially, e-Governane is generally understood as the use o Inormation and
communiations ehnology (Ic) at all levels o the Government in order to provide
servies to the itizens, interation with usiness enterprises and ommuniation and
exhange o inormation etween dierent agenies o the Government in a speedy,onvenient eient and transparent manner.8 Dr. APJ Adul Kalam, ormer President o
India, has visualized e-Governane in the Indian ontext to mean:
A transparent smart e-Governance with seamless access, secure and authentic fow o
inormation crossing the interdepartmental barrier and providing a air and unbiased
service to the citizen.9
2.3 Stages of e-Governance
2.3.1 It is evident that e-Governane is intrinsially linked with the development o omputer
tehnology, networking o omputers and ommuniation systems. In developing ountries,
suh tehnologies and systems eame availale with a pereptile time lag as ompared to
developed nations. However, in the ase o India, with the lieralization o the eonomy
rom the early 1990s onwards, there has een a onvergene in the availaility o utting
edge tehnologies and opportunities in the eld o e-Governane. Generally speaking, the
Indian experiene demonstrates that the onset o e-Governane proeeded through the
ollowing phases:
(a) Computerisation: In the rst phase, with the availaility o personal omputers,a large numer o Government oes got equipped with omputers. Te use o
omputers egan with word proessing, quikly ollowed y data proessing.
() Networking: In this phase, some units o a ew government organizations got
onneted through a hu leading to sharing o inormation and fow o data
etween dierent government entities.
() On-linepresence: With inreasing internet onnetivity, a need was elt or
maintaining a presene on the we. Tis resulted in maintenane o wesites
y government departments and other entities. Generally, these we-pages/we-sites ontained inormation aout the organizational struture, ontat
details, reports and puliations, ojetives and vision statements o the
respetive government entities.
Promoting e-Governane Te SMAR Way Forward
8e-Government: From Vision to Implementation y Suash bhatnagar; Sage Puliations; 2004.9Inaugural address at II Delhi during International conerene on e-Governane.
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(d) On-lineinteractivity:A natural onsequene o on-line presene was openingup o ommuniation hannels etween government entities and the itizens,
ivil soiety organizations et. Te main aim at this stage was to minimize the
sope o personal interae with government entities y providing downloadaleForms, Instrutions, Ats, Rules et. In some ases, this has already led to
on-line sumission o Forms. Most itizen-government transations have the
potential o eing put on e-Governane mode.
2.4 Types o Interactions in eGovernance
2.4.1 e-Governane ailitates interation etween dierent stake holders in governane.
Tese interations may e desried as ollows:
G2G (Government to Government) In this ase, Inormation and communiationsehnology is used not only to restruture the governmental proesses involved in the
untioning o government entities ut also to inrease the fow o inormation and
servies within and etween dierent entities. Tis kind o interation is only within
the sphere o government and an e oth horizontal i.e. etween dierent government
agenies as well as etween dierent untional areas within an organisation, or vertial
i.e. etween national, provinial and loal government agenies as well as etween
dierent levels within an organisation. Te primary ojetive is to inrease eieny,
perormane and output.
G2C (Government to Citizens) In this ase, an interae is reated etween the
government and itizens whih enales the itizens to enet rom eient delivery
o a large range o puli servies. Tis expands the availaility and aessiility o
puli servies on the one hand and improves the quality o servies on the other.
It gives itizens the hoie o when to interat with the government (e.g. 24 hours
a day, 7 days a week), rom where to interat with the government (e.g. servie
entre, unattended kiosk or rom ones home/workplae) and how to interat with
the government (e.g. through internet, ax, telephone, email, ae-to-ae, et). Te
primary purpose is to make government, itizen-riendly.
G2B (Government to Business) Here, e-Governane tools are used to aid the
usiness ommunity providers o goods and servies to seamlessly interat with
the government. Te ojetive is to ut red tape, save time, redue operational
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osts and to reate a more transparent usiness environment when dealing with the
government. Te G2b initiatives an e transational, suh as in liensing, permits,
prourement and revenue olletion. Tey an also e promotional and ailitative,
suh as in trade, tourism and investment. Tese measures help to provide a ongenialenvironment to usinesses to enale them to perorm more eiently.
G2E (Government to Employees) Government is y ar the iggest employer and like
any organisation, it has to interat with its employees on a regular asis. Tis interation
is a two-way proess etween the organisation and the employee. Use o Ic tools helps
in making these interations ast and eient on the one hand and inrease satisation
levels o employees on the other.
2.5 Benefts o e-Governance
2.5.1 In the end, e-Governane is aout reorm in governane, ailitated y the reative use
o Inormation and communiations ehnology. It is expeted that this would lead to:
i. Betteraccesstoinformationandqualityservicesforcitizens: Ic would makeavailale timely and reliale inormation on various aspets o governane. In
the initial phase, inormation would e made availale with respet to simple
aspets o governane suh as orms, laws, rules, proedures et later extending
to detailed inormation inluding reports (inluding perormane reports),
puli dataase, deision making proesses et. As regards servies, therewould e an immediate impat in terms o savings in time, eort and money,
resulting rom online and one-point aessiility o puli servies aked up
y automation o ak end proesses. Te ultimate ojetive o e-Governane
is to reah out to itizens y adopting a lie-yle approah i.e. providing puli
servies to itizens whih would e required right rom irth to death.
ii. Simplicity, efciency and accountability in the government: Appliation o Ic to
governane omined with detailed usiness proess reengineering would lead
to simplifation o ompliated proesses, weeding out o redundant proesses,
simplifation in strutures and hanges in statutes and regulations. Te end
result would e simplifation o the untioning o government, enhaned
deision making ailities and inreased eieny aross government all
ontriuting to an overall environment o a more aountale government
mahinery. Tis, in turn, would result in enhaned produtivity and eieny
in all setors.
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iii. Expandedreachofgovernance:Rapid growth o ommuniations tehnology andits adoption in governane would help in ringing government mahinery to
the doorsteps o the itizens. Expansion o telephone network, rapid strides in
moile telephony, spread o internet and strengthening o other ommuniationsinrastruture would ailitate delivery o a large numer o servies provided y
the government. Tis enhanement o the reah o government oth spatial
and demographi would also enale etter partiipation o itizens in the
proess o governane.
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e-GOVERNANCE : INTERNATIONAL SCENARIO33.1 Many ountries have initiated e-Governane programmes in order to make government
and its agenies eient, more responsive and transparent. Some o these initiatives are
desried in this hapter.
3.2 Recent Steps in the USA10
3.2.1 In July, 2001 an initiative known as Expanding Eletroni Government was initiated as
a part o the Presidents Management Agenda. Te ojetive was to make use o inormation
tehnology to eliminate wasteul ederal spending, redue governmental paperwork and
improve government response time to itizens. Tis expansion o e-government had three
guiding priniples:
i. It should e itizen-entered and not ureauray or ageny-entered.
ii. It should produe measurale improvements or itizens.
iii. It should e market-ased, aimed at promoting innovation.
3.2.2 Te approah o the Federal Government was aimed frst at modernizing the use
o inormation tehnology within its agenies through using the priniples o e-usiness;
seondly, it aimed at integrating inormation tehnology appliations aross dierent
agenies with a ous on dierent groups o itizens inluding individuals, usinesses, Federal
Government employees, et. Te frst strategy envisaged adoption o ertain e-Governane
praties within government agenies and departments. Te seond strategy involved
ahieving the ollowing perormane ojetives in ase o speifed Portolios:
Government to Citizen (G to C): o provide one-stop, on-line aess to inormation
and servies to individuals.
GovernmenttoBusiness(GtoB): Te Federal Government should not ontinue
to make usinesses report the same data multiple times to multiple agenies.
Government should re-use the data appropriately and take advantage o
ommerial eletroni transation protools.
10Soure: based on Implementing the Presidents Management Agenda or E-Government: E-Government Strategy, April 2003; Exeutive Oe o thePresident
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Government to Government (G to G): Federal, State and Loal Governments should
work together to improve servies to itizens within key lines o usiness.
InternalEciencyandEectiveness(IEE): Te Federal Government should
modernize internal proesses to redue osts.
3.2.3 Te initial e-government aomplishments an e gauged rom the ativation o the
ollowing programmes:
FirstGov.gov: Tis is the itizens gateway to millions o pages o inormationontained in more than 22000 Federal and State Wesites.
Volunteer.gov: Allows itizens to volunteer or more than hundred thousandopenings at National Parks, Veteran Hospitals and other ederal ailities.
Recreation.gov: Provides itizens one-stop online aess to National Parks andPuli rereation areas.
GovBenets.gov:Provides one-stop aess to inormation and servies o over ourhundred government programmes or the eneft o itizens.
IRS Free Filing:Allows itizens to fle their taxes on-line or ree.
BusinessLaw.gov:Provides on-line resoure guide to small usinesses enaling aessto legal and regulatory inormation, ompliane assistane et.
Regulations.gov: Provides a single system supporting the rule making proess.
GoLearn.gov.: Provides e-training ourses, e-ooks and areer developmentresoures.
E-Payroll: consolidates government payroll proessing entres.
E-Clearance: Provides an integrated data ase to enale redutions in the seuritylearane aklog.
3.2.4 Tese initial eorts also led to the realization that a Federal Enterprise Arhiteture(FEA) was needed or implementing suh initiatives. basially, an enterprise arhitetureis the omprehensive view o what an organization does, how it does it and how it is
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supported y inormation tehnology. Tis led to the estalishment o the FEA in the
Oe o Management and budget (OMb).
3.2.5 Te importane o e-Governane was also reognized y the US congress whihresulted in the passage o the E-Government At o 2002 whih was signed y the Presidenton Deemer 17, 2002. Tis legislation :
CodiesandexpandstheE-GovernmentleadershiproleofOMBthroughthe
estalishment o an Oe o E-Government and I headed y a Presidentially-appointed Administrator;
Authorizes severalinitiatives (E-Rulemaking,GeospatialOne-Stop,E-Records
Management, E-Authentiation and Disaster Management), and endorses the
FirstGov.gov portal;
Sponsorsongoingdialoguewithstate,localandtribalgovernments,aswellasthe
general puli, the private, and non-proft setors to fnd innovative ways to useI to improve the delivery o government inormation and servies; and
EstablishesanE-GovernmentFund,administeredbyGSA,tosupportITprojects
approved y OMb, that enale the Government to ondut ativities eletronially.Te At authorizes unding through FY07.
3.2.6 Tus, the Oe o Management and budgets (OMb) E-Government and Inormationehnology Oe, has, with the support o the General Servies Administration (GSA) and
the Federal chie Inormation Oers (cIO) counil, estalished the Federal EnterpriseArhiteture (FEA) Program whih uilds a omprehensive usiness-driven lueprint o
the entire Federal Government. Te development o this ramework aims to enale theFederal Government to identiy opportunities to leverage tehnology to :11
Reduceredundancy;
Facilitatehorizontal(cross-federal)andvertical(federal,stateandlocal)informationsharing;
EstablishadirectrelationshipbetweenITandmission/programperformanceto
support itizen-entered, ustomer-oused government; and
MaximizeITinvestmentstobetterachievemissionoutcomes.
Promoting e-Governane Te SMAR Way Forward
11Soure: Expanding E-Government: Partnering or a Results-Oriented Government, Deemer 2004; Exeutive Oe o the President, Oe oManagement and budget
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12http://arhive.ainetoe.gov.uk/e-envoy/resoures-pds/$fle/Strategy.pd
3.3 Recent Steps in the UK
3.3.1 In April 2000, the cainet Oie in the UK ame out with the doument
E-Government: A Strategi Framework or Puli Servies in the Inormation Age.12 Tisdoument did not propose any tehnial solutions to a set o usiness needs. Instead, yreognizing that the usiness o Government is too varied and omplex or adopting suh
an approah, it provided a strategi diretion to the puli setor or transorming itsely exploiting the possiilities o new tehnology. Tis strategy ouses on using e-usinessmethods as a means o meeting the governments targets or eletroni servie delivery,eletroni prourement and e-ommere. Te strategy has our guiding priniples:
Buildingservicesaroundcitizenschoices
MakingGovernmentanditsservicesmoreaccessibleovertheinternetandthroughmoile phones, digital V, all entres and personal omputers
Socialinclusion
Usinginformationbetter.
3.3.2 Tis strategy is entered around ertain ramework poliies whih are geared towardsproviding standardization and uilding onfdene. Tus, the Seurity Framework Poliyprovides a ramework against whih servie providers will need to assess their servies.However, servie providers are ree to propose implementations within the ramework.Te Authentiation Framework Poliy and guidelines estalish a ommon approah
to authentiation or government departments, agenies and the wider puli setor.Tis ramework poliy does not assume the estalishment o a single, national system oidentifation. It looks to the estalishment o a range o authentiation servies y entraland loal government and private and puli setor odies. Further, the Smart card
Framework Poliy provides a mandatory set o standards to ailitate interoperaility.Tis is intended to allow the holder o a smart ard issued y any private or puli setorody to aess the roadest possile range o puli servies. Te strategy also proposes the
development o a Privay Framework to seure the system. Te overall ommon poliyand standards are set out in the interoperaility ramework poliy.
3.3.3 Te institutional mehanism or implementing the strategy is desried elow:
A. Te e-Envoy, supported y the Inormation Age Government champions,will
articulateadetailedchangeprogramme
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leaditsimplementation
identifynewopportunitiesforcross-cuttinginitiatives
reportregularlyonprogresstoMinisters.
b. Te central I Unit (cIU) in the cainet Oe, in ollaoration with
ounterparts in the devolved administrations and lead agenies, will
supportcitizen-focusedserviceintegration
leadimplementationofframeworkpolicies,standardsandguidelines
promotesharedinfrastructureandapplications
establishagovernmentportal
promotecommonpoliciesonthemanagementofinformation.
c. Puli setor organizations will
establishnewwaysofdoingbusiness
implementcommonstandardsandframeworkpolicies
develope-businessstrategies
provide services which are accessibleviathegovernment andother
portals.
3.3.4 In Novemer 2005, the cainet Oe ame out with the doument ransormational
Government: enaled y tehnology. Tis doument reognizes that many systems and
proesses are still paper ased and sta-intensive. Tey are strutured around the produt
or the underlying legislation rather than the ustomer. Further, most government agenies
are designed as islands, having their own dataases, inrastruture and seurity and identityproedures. Tis makes it diult to work with other parts o government as also with the
voluntary and ommunity setor. Te doument also reognizes that the numer, sale
and sheer diulty o puli setor projets puts a stress on the apaity o the puli and
the private setors to deliver eiently. Aordingly, the doument stresses on three key
transormations. Tese are:
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ServicesenabledbyITmustbedesignedaroundthecitizenorbusiness,not
the provider, and provided through modern, o-ordinated delivery hannels.
Tis will improve the ustomer experiene, ahieve etter poliy outomes,
redue paperwork and improve eieny y reduing dupliation and routineproessing, leveraging delivery apaity and streamlining proesses.
Governmentmustmovetoasharedservicecultureinthefront-oce,in
the ak-oe, in inormation and in inrastruture and release eieniesy standardization, simplifation and sharing.
eremustbebroadeninganddeepeningofgovernmentsprofessionalism
in terms o the planning, delivery management, skills and governane o I
enaled hange. Tis will result in more suessul outomes; ewer ostlydelivery ailures; and inreased onfdene y itizens and politiians in the
delivery o hange y the puli servies.
3.4 Recent Steps in New Zealand
3.4.1 Realising the importane o opportunities oered y Ic, the New Zealand Governmentame out with its e-government vision doument in May 2000 and an E-GovernmentUnit was estalished y the State Servies commission (SSc) in July 2000. In April 2001,the government ame out with its E-Government Strategy.13 Tis strategy had a simple
operational vision: New Zealand will e a world leader in e-government. Tis vision wassupported y a time-ound mission: By2004,theInternetwillbethedominantmeanso enabling ready access to government inormation, services and processes.basially, thisstrategy was in the nature o a programme or ation or the State Servies commissions
E-government Unit (EGU) and government agenies working alongside the Unit, aimedat making the most o e-tehnology in government. Te overall ojetive was to reate apublic sector (includingthe public service,Crownentities,StateOwnedEnterprisesandlocal government) that is: structured, resourced and managed to perorm in a manner which
meets the needs o New Zealanders in the inormation age and which increasingly delivers
inormation and services using online capabilities.As per this strategy, e-government wasexpeted to provide:
Better services more onvenient and reliale, with lower ompliane osts,higher quality and value;
Cost efectiveness and eciency heaper, etter inormation and servies or
ustomers and etter value or taxpayers;
e-Governane : International Senario
13Soure: http://www.e.govt.nz/aout-egovt/programme/e-gov-strategy-apr-01/
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HealthInformation
Strategy or New
Zealand
I CT S tr a t eg i c
Framework or
Eduation.
3.5 UN eGovernment
Survey
3 . 5 . 1 b a s e d o n t h ee-Governane preparedness
levels internationally, theUnited Nations rings outan annual survey report- he United NationsE-Government Survey.
he UN Survey (2008)has used a omprehensivee-government readinessi n d e x t o a s s e s s t h e
preparedness o variousountries or e-Governane. Te omponents o this omposite index inlude the wemeasure index, the teleommuniation inrastruture index and the human apital index.Tese omponents o the index are desried elow:
(a) Te Web Measure Index: It is ased on a fve-stage model, whih uilds uponthe previous levels o sophistiation o a ountrys online presene.
() Te elecommunication Inrastructure Index: Tis is a omposite index o fveprimary indies relating to a ountrys inrastruture apaity as they relate tothe delivery o e-government servies. Tese are:
i. Internet Users /100 persons
ii. Pcs /100 persons
iii. Main elephones Lines /100 persons
Box 3.1: Evaluation o eGovernance Initiatives in New Zealand
o help understand what transormation an mean, and how we an gaugethe extent to whih it has een suessul, the evaluation will look at questions
like:1. Are New Zealanders ale to ahieve the results they need, without
searhing aross many agenies?2. can New Zealanders get onsistent servie whihever omination o
hannels they use to engage with government?3. can New Zealanders provide inormation to government just one, or
do they have to provide the same inormation many times to dierentagenies?
4. Do workers in State agenies work with olleagues aross the setor toput results or New Zealanders ahead o individual ageny interests?
5. Are they drawing on the est examples o learning and development andtools rom aross the government setor?
6. Are mehanisms eing developed or agenies to work together and share
inormation and researh?7. Are inrastruture and systems supporting ollaoration and
partnership?8. Are New Zealanders using the servies provided y agenies, and are
arriers to aess eing redued?9. Are New Zealanders fnding the government servies intended or
them?10. How muh do agenies know aout the experiene o servie users and
do they use this knowledge to improve servie delivery?11. Do New Zealanders have onfdene in the integrity o government
agenies and workers?
Source:EnablingTransformation:Astrategyfore-government2006
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iv. cellular telephones /100 persons
v. broad anding /100 persons
() Te Human Capital Index: Tis is a omposite o the adult literay rate and
the omined primary, seondary and tertiary gross enrolment ratio, with
two thirds weight given to the adult literay rate and one third to the gross
enrolment ratio.
It is evident that improving
e-Governane readiness
would require addressing
issues related to not only
inrastruture development
ut also human apital.
3.5.2 Te Survey has laid
stress on the marh rom
e-government to connected
g ov er nment. I t s ta tes
that many governments
a r e m o v i n g t o w a r d s
e-government-as-a-wholeconcept whih ouses on
the provision o servies at
the ront-end, supported y
integration, onsolidation
and innovation in ak-
end proesses and systems
to ahieve maximum ost
savings and improved servie
delivery. Here, the termak oe reers to the internal operations o an organization that support ore proesses
and are not aessile or visile to the general puli. Tese are government untions that
normally do not interat with outside entities. Te term ront oe reers to government
as its onstituents see it, meaning the inormation and servies provided and the interation
etween government and oth the itizens and usiness. In this ontext, the UN doument
mentions that onneted or networked governane involves the governmental promotion
o olletive ation to advane the puli good, y engaging the reative eorts o all o
Box 3.2: UN Five-stage Evolution Model
Stage I-Emerging: A governments online presene is mainly omprised awe page and/or an oial wesite; links to servie providing ministries ordepartments may/may not exist. Muh o the inormation is stati and thereis little interation with itizens.Stage II-Enhaned: Governments provide more inormation on puli poliyand governane. Tey have reated links to arhived inormation that is easilyaessile to itizens, as or instane, douments, orms, reports, laws andregulations, and newsletters.Stage III-Interative: Governments deliver online servies suh asdownloadale orms or tax payments and appliations or liense renewals.In addition, the eginnings o an interative portal or wesite with serviesare evident.Stage IV-ransational: Governments egin to transorm themselves yintroduing two-way interations etween itizen and government. Itinludes options or paying taxes, applying or ID ards, irth ertifates,passports and liense renewals, as well as other similar G to c interations,and allows the itizen to aess these servies online 24/7. All transations areonduted online.Stage V - conneted: Governments transorm themselves into a onnetedentity that responds to the needs o its itizens y developing an integratedak oe inrastruture. Tis is haraterized y:1. Horizontal onnetions (among government agenies)2. Vertial onnetions (entral and loal government agenies)3. Inrastruture onnetions (interoperaility issues)4. connetions etween governments and itizens5. connetions among stakeholders (government, private setor, aademiinstitutions, NGOs and ivil soiety)(Source: United Nations e-Government Survey 2008)
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16Soure: Figure 1.2; Te United Nations e-Government Survey 2008
soiety. Tus, in this ase, Ic-ased onneted governane eorts are aimed at improvedooperation etween governmental agenies, allowing or an enhaned, ative and eetive
onsultation and engagement with itizens, and greater involvement with multi-stakeholders
regionally and internationally. It onludes that An efective connected government is abouta bigger and better ront-end with a smaller and smarter back-end.Te enefts o suhgovernane are indiated in the Fig.3.1:16
3.5.3 Some o the key lessons identifed in the Survey are as ollows:
A key lesson or developing countries in this regard is the necessity o ollowing throughthe trajectory sketched out above (as either three phases o e-government or the closelyrelated ve-stage framework adopted in previous surveys)with a sustained focuson both internal change within the public sector and external connectivity or the
jurisdiction as a whole.
A key lesson or developing countries is the importance o a realistic and incrementalapproach to both upgrading and aligning the rontline interace with the public as
service recipients and back oce capacities or processing inormation and conductingtransactions. Any notion o an available e-government solution or holistic integrationis now widely viewed as unrealistic, and governments in the developing world areincreasingly cognizant o the need or a genuine partnership with industry (where 123
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e-GOVERNANCE : INITIATIVES IN INDIA44.1 Introduction
4.1.1 Reognising the inreasing importane o eletronis, the Government o India
estalished the Department o Eletronis in 1970. Te susequent estalishment o the
National Inormatis centre (NIc) in 1977 was the frst major step towards e-Governane
in India as it rought inormation and its ommuniation in ous. In the early 1980s, useo omputers was onfned to very ew organizations. Te advent o personal omputers
rought the storage, retrieval and proessing apaities o omputers to Government oes.
by the late 1980s, a large numer o government oers had omputers ut they were mostly
used or word proessing. Gradually, with the introdution o etter sotwares, omputers
were put to other uses like managing dataases and proessing inormation. Advanes in
ommuniations tehnology urther improved the versatility and reah o omputers,
and many Government departments started using Ic or a numer o appliations like
traking movement o papers and fles, monitoring o development programmes, proessing
o employees pay rolls, generation o reports et.
4.1.2 However, the main thrust or e-Governane was provided y the launhing o
NIcNE in 1987 the national satellite-ased omputer network. Tis was ollowed y
the launh o the Distrit Inormation System o the National Inormatis centre (DISNIc)
programme to omputerize all distrit oes in the ountry or whih ree hardware and
sotware was oered to the State Governments. NIcNE was extended via the State apitals
to all distrit headquarters y 1990.
4.1.3 In the ensuing years, with ongoing omputerization, teleonnetivity and internet
onnetivity, ame a large numer o e-Governane initiatives, oth at the Union andState levels. A National ask Fore on Inormation ehnology and Sotware Development
was onstituted in May 1998.20 While reognising Inormation ehnology as a rontier
area o knowledge per se, it oused on utilizing it as an enaling tool or assimilating and
proessing all other spheres o knowledge. It reommended the launhing o an Operation
Knowledge aimed at universalizing omputer literay and spreading the use o omputers
and I in eduation. In 1999, the Union Ministry o Inormation ehnology was reated.
by 2000, a 12-point minimum agenda or e-Governane was identifed y Government
20Soure: http://it-taskore.ni.in/prem.htm
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o India or implementation in all the Union Government Ministries/Departments. Te
agenda undertaken inluded the ollowing ation points:21
i. Eah Ministry/Department must provide Pcs with neessary sotware up to
the Setion Oer level. In addition, Loal Area Network (LAN) must alsoe set up.
ii. It should e ensured that all sta who have aess to and need to use omputer
or their oe work are provided with adequate training. o ailitate this, interalia, Ministries/Departments should set up their own or share others Learningcentres or deentralized training in omputers as per the guidelines issued ythe MI.
iii. Eah Ministry/Department should start using the Oe Proedure Automationsotware developed y NIc with a view to keeping a reord o reeipt odak,issue o letters, as well as movement o les in the department.
iv. Pay roll aounting and other house-keeping sotware should e put to use inday-to-day operations.
v. Noties or internal meetings should e sent y e-mail. Similarly, sumission oappliations or leave and or going on tour should also e done eletronially.Ministries/Departments should also set up online notie oard to display orders,
irulars et. as and when issued.
vi. Ministries/Departments should use the we-enaled Grievane RedressalSotware developed y the Department o Administrative Reorms and Puli
Grievanes.
vii. Eah Ministry/Department should have its own wesite.
viii. All Ats, Rules, cirulars must e onverted into eletroni orm and, alongwith other pulished material o interest or relevane to the puli, should emade availale on the internet and e aessile rom the Inormation and
Failitation counter.
ix. Te wesites o Ministries/Departments/Organisations should speiallyontain a setion in whih various orms to e used y itizens/ustomers are
e-Governane : Initiatives in India
21Adapted rom Minimum Agenda or e-Governane in the central Government; http://darpg.ni.in/arpg-wesite/ReormInitiatives/eGovernane/IndianExperiene/EgovExp73.do
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Promoting e-Governane Te SMAR Way Forward
availale. Te orms should e availale or eing printed or or eing ompleted
on the omputer itsel and then printed out or sumission. Attempts should
also e made to enale ompletion and sumission o orms online.
x. Te Hindi version o the ontent o the wesites should as ar as possile e
developed simultaneously.
xi. Eah Ministry/Department would also make eorts to develop pakages so as
to egin eletroni delivery o servies to the puli.
xii. Eah Ministry/Department should have an overall I vision or strategy or a
fve year period, within whih it ould dovetail speif ation plans and targets
(inluding the minimum agenda) to e implemented within one year.
4.1.4 ax administration departments oth at the Union and State levels were among the
frst to use Ic to improve their internal working. Ic was used to have etter reporting
systems, preventing leakages and aster proessing o returns. Te ax Reorms commission
o Karnataka (2001) had the ollowing to say:
ComplexityanddiversityarethedeningcharacteristicsofgovernmentattheleveloftheStateaswellastheCentre.TeStatewouldserveitselfbestbydevelopingauniede-Governance plan and assigning priorities inter-ministerially, inter-departmentally
and intra-departmentally to achieve and maintain minimum break-evenness duringadenedplanperiod.Tismakesiteasiertoprovideadequatefundsforoptimumcomputerization. It also brings in the essential discipline o managing to projectedcosts and returns.
AuniedplanandprioritizationattheStatelevelallowsgovernmenttomaintainthe right balance between its interests and those o the citizen. Frequently the ocusappears to settle on citizen satisaction through citizen visible e-Governance initiatives,such as kiosks and citizens charters. While this is not, by itsel, objectionable it isnot clear whether computerization within the department should not ocus also on
attaining higher internal productivities and efciencies. While popular appeal wasessentialintheearlydaystogivealliptoe-Governanceinitiatives,itistimenowto adopt a more tough-minded approach.
4.1.5 Prior to 2006 when the Government o India ormally launhed its National
e-Governane Plan (NeGP), whih is disussed in chapter 7 o this Report, some
Departments o Government o India as well as State Governments had initiated steps to
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c. States which have placed RoR data on websites: Andhra Pradesh (AdangalPani), chhattisgarh, Gujarat, Madhya Pradesh, Rajasthan, Orissa and
Uttarakhand.
4.2.1.4 Due to the unsatisatory implementation o the sheme, the Union Ministry orRural Development onstituted a committee to suggest pratial steps to implement the
sheme. Te committee on computerisation o Land Reords sumitted its Report inApril 2005. Tis Report suggested that:
i. In addition to omputerizing Reords o Rights, all States must omputerize
the details o rops, ultivation, soil lassiation, irrigation, et. Sanning oasi land reords and digitization o adastral maps/village maps may also e
taken up under the Sheme o cLR.ii. Village /adastral maps/tippan should e digitized under the sheme o cLR
or integration, updation and preservation o maps, whih will enale a landowner to get a omputerized opy o the Reords o Rights along with plotoundaries. Due to variations in the system o maintenane o adastral map,
States may adopt the strategy suitale to their requirements. However, priorityor digitization should e given to those distrits, whih have suessullyompleted omputerisation o textual land reords.
iii. Integration o omputerisation o land reords and omputerisation o landregistration should e initiated at the earliest on pilot asis in some States
without waiting or amendments suggested in the provisions o the RegistrationAt, 1908. Funds or setting up o omputer entre in the oe o the Su-
Registrar may e given under the sheme o cLR equivalent to unds providedto su-divisions. (Te committee also suggested making amendments to theRegistration At, 1908 to simpliy registration and its integration with the landreords).
iv. Tere should e a time rame or the implementation o this sheme.
4.2.1.5 However, the proess ontinued as earlier and so ar, 582 distrits, 4423 taluks /
tehsils /irles and 1021 su-divisions have een overed under the sheme. In 3356 tehsils,omputer entres have een set up and in 2902 tehsils / taluks / irles omputerized opieso RoRs are eing issued to landowners on demand. Tus, even in twenty years, this shemehas not een ale to over the entire ountry.26
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4.2.1.6Lessons:
i. Te scheme ailed to address the main problem in case o land records in India,
i.e. the land records do not refect the actual ground reality. Computerisationofexistinglandrecordswithoutcorroboratingitwiththeactualeldposition
only led to perpetuation o existing loopholes and errors.
ii. Complex e-Governance projects have various components all o which
need to be implemented or which a holistic approach is needed during
implementation.
4.2.2 BhoomiProject in Karnataka : Online Delivery o Land Records27
4.2.2.1 Bhoomiis a sel-sustainale e-Governance project or the computerized deliveryo 20 million rural land records to 6.7 million armers through 177 Government-owned
kiosks in the State o Karnataka. It was elt that rural land records are central conduits
to delivering etter I-enaled services to citizens ecause they contain multiple data
elements: ownership, tenancy, loans, nature o title, irrigation details, crops grown etc. In
addition to providing the proo o title to the land, this land record is used y the armer
or a variety o purposes: rom documenting crop loans and legal actions, to securing
scholarships or school-children. Tese records were hitherto maintained manually y 9,000
village ocials. Trough this project, computerised kiosks are currently oering armers
two critical services - procurement o land records and requests or changes to land title.Aout 20 million records are now eing legally maintained in the digital ormat. o ensure
authenticity o data management, a iometric nger authentication system has een used
or the rst time in an e-Governance project in India. o make the project sel-sustaining
and expandale, Bhoomilevies user charges. Te need or a project such as Bhoomiwas elt
or the ollowing reasons:
i. In the traditional system, land records were not open or pulic scrutiny
resulting in manipulation and avouritism.
ii. Te process or applying or transer o title was cumersome, time consumingand prone to harassment.
iii. Tere were instances o Government land eing illegally transerred in the
name o infuential persons.
iv. It was not possile or the administrators to procure, collate and analyse data
rom the manually maintained records.
Promoting e-Governance Te SMAR Way Forward
27Source: based on inormation urnished y Government o Karnataka and their we-site.
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v. Land reords oered a unique opportunity to make people in the rural areasaware o the enets o e-Governane. A numer o enets were attahed
with suessul implementation o suh projets: or example, the santion o
rop loans, sine anks would insist on prodution o land reords; reduingdelay in the disposal o ourt litigation due to non-availaility o reords et.
4.2.2.2 o ahieve its ojetives, ertain I innovations had to e arried out. Teseinluded:
i. Due to limited exposure o the oials in the use o I and the ritial nature o
the data, the projet relies on ngerprint iometris or not only authentiationo identity ut also at eah stage o any transation relating to updation o
data. Tis multi layered seurity aess looks eyond the ovious danger ohaking o passwords and ensures aountaility at all levels with no sope or
repudiation.
ii. o ensure that the oials are responsile or the deisions they take onBhoomi,the original papers onneted with the deisions are sanned. o ontain
rivolous litigation y people laiming that noties seeking possile ojetionsto hange o titles were not served on them, the noties are also sanned on tothe system.
iii. o onvine a armer o the genuineness o a omputer interation, a seondomputer sreen aing him has een provided at the kiosk. Separate touh sreenkiosks linked to the dataase are also availale or armers to independentlyveriy the reords in question.
iv. In order to protet the data rom physial threats like re or alamities, akingup o data was done y way o online repliation.
v. Bhoomisotware runs on a First in First Out proess.
4.2.2.3 During projet implementation, all the oials involved were assigned well-denedroles and responsiilities, down to the grass roots level. However, in the initial stages, inspite o elaorate and detailed guidelines, these were not perolating down. Tis was nallyahieved through State level workshops and intensive trainings or ringing aout hangesin the attitude among departmental sta.
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4.2.2.4 Te Bhoomiprojet is a noteworthy eort and sets an example or other projets inits approah towards piloting a projet, as well as its rolling out and sustenane. It may e
mentioned here that manually written Reords o Right, enany and cultivation (Rc)
have een delared illegal. based on the suess story o this projet and its innovations,the Union Ministry o communiations and Inormation ehnology has announed
that Bhoomiwould e a national model or omputerisation o land reords and repliatedthroughout the ountry. In at, Bhoominow envisages oering some additional serviesin the uture:
i. Issue o land reords with digital signature
ii. Providing onnetivity with Bhoomito ourts and anks
iii. Sanning o survey skethes/maps and linking them with Bhoomi
iv. Deentralisation the issue o land reords to Hobli(su taluk) level on a PPPmodel along with RDS projet.
4.2.2.5Lessons:
i. Awell conceptualized andexecutedBPR is apre-requisite forsuccess ofe-Governance projects.
ii. Tere should be end-to-end computerization.
iii. Largee-Governanceprojects,havinglargescaleimpactrequiretotalsupportat the political level.
iv. Continuity in the Project Management team helps in proper implementationof e-Governance projects.
v. Ifbenetstocitizensarerealandsubstantial,projectsbecomesustainable.
vi. A holistic approach is necessary for e-Governance. Adequate time and resourcesneed to be devoted in conceptualization, implementation and maintenance of
projects.
vii. Systems should have a strong back-up mechanism.
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ottleneks. It also mentions that SincethecostofGyandootE-commercetransactionsfor
most villagers is high, it is important for basic services (e-mail, government databases) ratherthan high-end applications.30 Te centre or Eletroni Governane, Indian Institute o
Management, Ahmedaad also made an evaluation o this projet or the World bank in2002. It onluded that power supply, onnetivity, and akend support are the essential
pre-requisites or suh projets and signifant re-engineering o akend proesses and
introdution o servies that diretly ontriute to poverty alleviation are needed to make
suh initiatives sustainale.31
4.2.3.4Lessons:
1) Supporting infrastructure is a pre-requisite for e-Governance projects
2) User charges may act as a deterrent, especially in rural areas
3) Te interface with the users should be simple and citizen-friendly
4) echnolog y should be tailored to the environment.
4.2.4 LokvaniProjet in Uttar Pradesh32
4.2.4.1 Lokvaniis a puli-private partnership projet at Sitapur Distrit in Uttar Pradesh
whih was initiated in Novemer, 2004. Its ojetive is to provide a single window, sel
sustainale e-Governane solution with regard to handling o grievanes, land reordmaintenane and providing a mixture o essential servies. As 88 per ent o the Distrit
population resides in villages and the literay rate is only 38 per ent, the programme had
to e designed in a way whih was user-riendly and within the reah o the people oth
geographially as well as soially. o ahieve this, the programme ormat uses the loal
language, Hindi, and is spread throughout the distrit to a hain o 109 LokvaniKiosk
centres. Tese Kiosks have een estalished y liensing the already existing yer aes.
Te servies oered yLokvaniare:33
a. Availaility o land reords (khataunis) on the internet
. Online registration, disposal and monitoring o puli grievanes
. Inormation o various Government shemes
d. Online availaility o presried Government orms
e. Online status o Arms Liense appliations
Promoting e-Governane Te SMAR Way Forward
30
India: e-Readiness Assessment Report 2003; hapter 3, page 4231http://unpan1.un.org/intrado/groups/puli/douments/apity/unpan015131.pd32Soure: based on inormation urnished y the State Government o Uttar Pradesh33Soure: http://sitapur.ni.in/lokvani/rojgar/tt.htm (27.08.08)
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. GPF Aount details o basi Eduation teahers
g. Details o work done under MPLAD/Vidhayak Nidhi
h. Details o allotment o unds to Gram Sahas under dierent developmentshemes
i. Details o allotment o ood grains to Kotedars(air prie shops)
j. Other useul inormation o puli interest.
4.2.4.2 As was the ase in the Gyandootprojet in Madhya Pradesh, no loan or governmentsusidies were involved in this projet. Sine existing yer aes are eing used to run theprojet, apital outlays are not involved. Te system is expeted to generate its own unds
rom the itizens and also ontriute to the earnings o the Kiosk operators. However,like Gyandoot in Madhya Pradesh, low literay rate omined with minimal omputerliteray, poor internet onnetivity and only 5 to 6 hours availaility o power in rural areasonstitute major ottleneks. Despite these ottleneks, the response to this projet has
een overwhelming. Te main attration or the itizens is the online grievane redressalsystem. Te Lokvanicentre enters the omplaint on ehal o the omplainant. Te userneed not e literate or omputer expert to lodge his / her grievane. A opy o the omplaintis given to the omplainant along with the omplaint numer (like th
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