8 th Asian National Quality Congress, Delhi 2010Presentation for Paper No. INI129 Citizen Centric Quality Management Systems in Public Service Delivery

8th Asian National Quality Congress, Delhi 2010 Presentation for Paper No. INI129

Citizen Centric Quality Management Systems in Public Service Delivery

Integrated Child Development Services in seven Service Delivery Centres in two villages in Karnataka State in India

Section 1 The Citizen Centric Quality Management System Framework

Section 2 Project Implementation structure

Section 3 Highlights of the Initiative

The three Sections of this presentation

Social Sector Research shows a strong and positive

correlation between equitable and efficient service delivery to the poor and overall reduction in poverty

Pro – Poor Service Delivery based on Quality for Reduction in poverty

PricewaterhouseCoopers

Based on Quality Standards that are well documented and well publicized

Efficient in their delivery such that they can be measured both by the service providers and by the citizens

Simple to Understand and Use

Equitable Service delivery Systems need to be:-


Civil Servant

citizen

“How do we connect policy with operations?”

politician

“We sometimes assume that policies will implement

themselves.”

“The civil service requires a better delivery culture.”

BUT major Gaps exist between intent and outcome due to which Public Service Delivery Systems tend to fail the poor

The Quality Management System (QMS) developed by the Department of

Administrative Reforms and Public Grievances, Government of India, is

called SEVOTTAM The term is a combination of two Hindi words – ‘Uttam’ + ‘Seva’= Sevottam It is backed by an Indian Standard IS 15700 :2005 that was especially

created for certifying achievement of excellence in service delivery in the government service sector

Quality Management System called Sevottam framework aims at filling these gaps through a simple process

Sevottam seeks excellence by focusing on Quality Standards based Public Service Delivery only

Uncertainty is sought to be removed through published standards

Government’s services delivery should not be a game of dice - Citizen’s should know what to expect ? how much to expect? from whom ? when ? And where?

1. Citizen’s Charter – that specifies and publishes the

standards of service delivery

2. The Grievance Redress Mechanism that process complaints from citizens when standards in Citizen’s Charter are not met in the service delivery 3. Capacity Building for service delivery to bring improvements on a continuous basis

The QMS Sevottam framework provides the answer through three modules that help to identify Gaps in Service Delivery


Common Understanding

2 Common Understanding

1. Expectations

Experience Perceived

Delivery

Desired Delivery

3. Promised Delivery

4. Actual Delivery

Identified Gaps are filled through the QMS Sevottam framework for which the following logo is used for awareness


The Three Modules of QMS Sevottam Framework


Simple Seven Steps that cover the entire QMS Sevottam framework

‘Sevottam’ – Assessment/Improvement Model: Quality Criteria and Benefits

Critical Areas(3) Criteria(9) Elements for assessment*

(33)

Inte

gra

ted M

odel fo

r Asse

ssing S

erv

ice D

eliv

ery

Citizen Charter

Implementation 5

Monitoring 3

Review 3

Public Grievance Redress

Receipt 3

Redress 3

Prevention 5

Service Delivery Capability

Customers 5

Employees 3

Infrastructure 3

Healthy competition to achieve excellence

Compliance with basic standards

BENEFITS

Citizen empowerment

Redress Satisfaction

Delivery Capability enhancement

* As questions which are rated on a five point scale ranging from “ad hoc” to “Systematic”


DARPG, GoI

• Project Sponsor

• Keen on improvement of public service quality across various departments / states

DWCD, GoK (Client)

• Client state/ end-user department

• Piloting Sevottam/ QMS for improving service delivery

Administrative Training Institute (ATI)

• State capacity building agency

• Absorb QMS support capacity

• To assist future Sevottam roll-outs to other departments in the state


• Implementation agency/ consultant

• Provide expertise and responsible to implement the project in pilot locations

Project Implementation Structure and Stakeholders

Promoting Excellence in Service Delivery

DARPG

PwCATI

DWCD

ICDS in pilot districts

• Chamrajnagar Project

− Chamrajnagar District

− Tribal Project: 529 sanctioned AWCs

− Eligible 25,230 children; 3,237 PW & 3,023 LM

− Pilot in Badanaguppe Village (4 AWCs)

• Manvi Project

− Raichur District

− Rural Project: 381 sanctioned AWCs

− Eligible: 46,558 children; 4436 PW & 5017 LM

− Pilot in Mudlapura Village (3 AWCs)

• Both projects sanctioned in 1990-91Promoting Excellence in Service Delivery


Project Methodology

Initial interactions with project officials and study of existing processes in the pilot locations

ASSESS PHASE (Dec 08 to Mar 09) 1

Sevottam implementation in pilot location, documentation & preparation of QMS manual

IMPLEMENT PHASE(Nov 09 to Mar 10) 4

Stakeholder interactions on key issues in ICDS and QMS rollout; Framing sectoral standards

DESIGN PHASE(Apr-09 to Aug-09) 2

Preparation of draft QMS manual & implementation plan; Sevottam training for officials

CONSTRUCT PHASE(Sep 09 to Oct 09) 3


Project Stages: Key Activities & Project DocumentsS

tag

e I:

AS

SE

SS

KEY ACTIVITY

Project Initiation meeting

Initial field visit to both pilot locations by PwC

Project Initiation meeting

Detailed AS-IS study in pilot locations

Document 1: Inception Report: project brief, a summary of the ICDS scheme and Sevottam model, approach and methodology

Document 2: AS-IS Analysis report: Project details and benchmarking; Detailed functional assessment of 15 key business processes of ICDS with process maps; Roles and views of all key stakeholders

Sta

ge

II: D

ES

IGN

KEY ACTIVITY

Stakeholder consultations at pilot locations –set sector standards, identify targets and KPIs

Internal Stakeholder consultations

State level stake holder Workshop

Citizen consultation and Surveys

Document 3: Discussion note on Sector Standards in ICDS in Karnataka: Lists sector standards, targets and KPIs identified based on citizen and stakeholder consultations

Document 4: Note on Key issues in implementing QMS: Citizen Satisfaction Survey; Identification of current status and key issues in implementing in 5 areas of Sevottam;


Project Stages: Key Activities & Project DocumentsS

tage

III

: C

ON

ST

RU

CT KEY ACTIVITY

Draft Initial Action Items Note

Prioritization of implementation activities

Preparation of the QMS Framework

Concept Note: Public Grievance Redress

Concept Note: Better Monitoring with MIS

Infrastructure assessment tool

Document 5: Quality Management System and Implementation Methodology for Pilot: contains citizen’s inputs regarding sector standards compared with current provisions; draft service quality manual having detailed design of QMS framework. implementation methodology and activities for pilot implementation

Sta

ge

IV: I

MP

LE

ME

NT KEY ACTIVITIES

Implementation activities in pilot locations

Documentation commenced across dept

Final Citizen satisfaction survey

Creation of institutional structures to take Sevottam implementation forward

Preparation of Citizen Charter

Document lessons learnt from Sevottam and prepare users manual

Document 6: Note on insight in to implementation process for full service delivery chain

Document 7: Users’ Manual for implementing QMS

Capacity Building and Involvement of State Administrative Training Institute, Mysore

• Three day training and certification course on “Implementation of Service

Quality in Public Service Organizations as per IS 15700: 2005 given to

around 17 officials of department and 3 faculty from ATI

• Sevottam Workshop at district level for field level functionaries

• Presentation on Sevottam to all personnel concerned in the State

• Capacity built through full time involvement of a faculty team of two

coordinator from the State Administrative Training Institution, Mysore

• Funds released by DARPG to create Sevottam Training Cell to

institutionalize and disseminate service quality to DWCD and other

departments in the State Government

All the 89 households eligible for availing the ICDS benefits in the 7 Anganwadi Centres in the two villages were surveyed at the beginning in September 2009 and again at the end of the pilot project in March 2010

The results from the surveys were utilized for creation of service standards for the Citizen’s Charter

Initiatives are clustered in to four Groups:- Group 1. Citizen’s Charter and Grievance Redress Mechanism - creation and

activation as a tool to empower service recipients Group 2. Pre-School EducationGroup 3. Supplementary Nutrition PackagesGroup 4 Infrastructure and others

Citizen’s Satisfaction Survey and the four groups of initiatives

• Categories in the survey results:

1. Awareness about Integrated Child Development Services (ICDS)

2. Integrated Child Development Services availed

3. Access to ICDS services

4. Citizen Satisfaction for each ICDS service

5. Rating for each service and overall rating

6. Satisfaction with AWW/ AWH/ BVS

7. Feedback on Complaint Handling Process

8. Specific responses Supplementary Nutrition Package (SNP)

9. Awareness and Satisfaction about Pilot Initiatives (only in final survey)

10.Suggestions for improvements/ changes

Citizen Satisfaction Survey and 10 Categories of its Results

S No Initiatives Details

1 Drafting of Citizen Charter containing standards of service delivery under ICDS

2 Grievance Redress Mechanism created and activated

Group 1. Citizen’s Charter and Grievance Redress Mechanism – creation and activation

STAKEHOLDERS CONSULTEDMODE Beneficiaries – Mothers of Children, Pregnant and Lactating WomenCitizen Survey on Sector Standards, Focus Group Discussions, QuestionnairesLocal Community -Bal Vikas Samiti members, Sector Help Group members, Gram Panchayat

members,Focus Group Discussions, Structured QuestionnairesExperts, Academicians and Researchers, NGO’s, Sector expertsWorkshops, Structured Questionnaires, InterviewsHealth Department staff– ANMs, LHV’s, BHEO, Medical Officers, THOFocus Group Discussions, Structured Questionnaires, InterviewsDWCD Department staff– AWHs, AWW’s, Supervisors, ACDPOs, CDPOs, DPOs, Head office

staffFocus Group Discussions, Structured Questionnaires, Interviews, MeetingsWorking group for Citizens CharterMeetingsCitizen charter prepared in both English and Kannada and available in both print and

online versionsSummary chart is to be put up across all 65,000 Anganwadi Centres in state

Formulation of Citizen Charter


3 Annual Bal Mela Function

4 New PSE Kits

Group 2 - Pre-school Education


5 Uniform and Footwear for all PSE children

•Identified from Citizens Survey•Chamarajnagar – GP provided funds•Raichur – Funds raised from Community Mobilization

6 Support group of elderly ladies and kishoris (unmarried women) to assist AWW

• Initiated to increase community participation and quality•Core Groups formed in all pilot AWCs and sessions running at least once a week

7 Child Progress Card implemented – to be repeated annually

•Checklist of child development milestones for Socio-emotional development, Language cognitive skills, Motor skills etc.•CPC was done for all children attending the pre-school activity and results shared with parents

Pre-school Education - continued-

Citizen Survey - Sector Standards - Pre School Education

PSE starting Age

1 year 30%

2 years 29%

3 years 41%

PSE completion Age

3 years 38%

4 years 1%

5 years 3%

6 years 57%

PSE starting Time

8 AM 1%

9 AM 57%

9:30 AM 36%

10 AM 6%PSE completion Time

12 PM 4%

1 PM 47%

1:30 PM 9%

2 PM 29%

3 PM 3%

4 PM 7%

Topics – “Kannada & English - numbers and alphabets”; “cultural activities”; “sports”; “discipline”; “story telling”; “current topics and activities are satisfactory”

Suggestions – “Improvement in quality”; “More AWW training”; “Sports equipment and event among children”; “Extra-curricular and cultural activities”; “Emphasis on writing and learning”; “Minimum PUC pass requirement for AWW”; “Children shown practical things around village”


8 Mobilization of funds through community and other schemes (BRGF, NRHM)

9 Monthly Monitoring by BVS members

10 Grading of AWCs by using UNICEF methodology

UNICEF has developed a methodology for grading of AWC by CDPO/ Supervisor Grading of AWC was carried out in the pilot locations with results of grading being displayed in the AWC.

Pre- School Education - Community Participation/ Monitoring


11 Akshaya Patra (Inexhaustible Vessel / Pot)

12 Assessment to foresee impact of new WHO growth norms

Group 3 Supplementary Nutrition


13 Hemoglobin test to establish level of malnutrition

Supplementary Nutrition – continued -


14 Infrastructure and Facilities assessment tool developed

Conducted in pilot locations Has been scaled up across the state

15 Provision of LPG cylinders and Water filters in all AWCs

16 Re-introduction of Health Referral Slips and ICDS clinic Day

Group 4 - Infrastructure and others

Satisfaction with Project Initiatives from Citizen Survey

Pre-School EducationBaseline Final

Citizen Satisfaction Survey - Sample results

SNP – Cooked FoodBaseline Final

Citizen Satisfaction Survey – Pre-School Education

Very Poor

Poor

Fair

Good

Very Good

Very Poor

Poor

Fair

Good

Very Good

Baseline

Final

Citizen Satisfaction Survey –Supplementary Nutrition Packages

Very Poor

Poor

Fair

Good

Very Good

Very Poor

Poor

Fair

Good

Very Good

Baseline

Final

Citizen Survey - Sector Standards - Pre School Education

Yes (unprompted) Yes (from list) Yes (Combined)

Uniform 50% 43% 93%

Toys & playthings 49% 43% 92%

Books for children 43% 45% 88%

Footwear 38% 53% 91%

Slate and chalk pieces 32% 62% 94%

Children to be taught 3Rs 19% 73% 92%

Playground at AWC 12% 65% 77%

Blackboard for children at AWC 11% 57% 68%

Transfer Certificate (TC) 7% 77% 84%

Mats for children to sit on 7% 62% 69%

Benches for children to sit on 3% 32% 35%

Report Card 1% 84% 85%

Others – bags, scholarships, pens

Citizens’ responses on sector standards in ICDS

Thank You!

Floor open for Discussions