Information Technology for Citizen-Government Interface:

A Study of FRIENDS Project in Kerala

Information Technology for Citizen-Government Interface:

A Study of FRIENDS Project in Kerala

SHIRIN MADON⊗ G. R. KIRAN

∗

⊗ Lecturer in the Department of Information Systems, London School of Economics & Political Science. ∗ M. Phil Scholar, Centre for Development Studies & Assistant Manager, KSIDC Ltd. Trivandrum, Kerala

Acknowledgement

We would like to express our deep sense of gratitude to Professor Subhash Bhatnagar for

supporting us in undertaking this study. We are also grateful to the Ms. Aruna Sundararajan,

Secretary to Government, Department of Information Technology, Government of Kerala and

to Mr. M. Sivasankar, Director, Kerala State IT Mission for granting us the permission to

undertake the study and for the continuous support during the study. We would also like to

utilize the opportunity to thank all the Service Officers, Kudumbasree women, employees &

heads of participating departments for sparing their valuable time and cooperating with our

study.

Shirin Madon

G. R. Kiran

CONTENTS

List of Tables

Executive Summary

Chapter Page

1. Introduction 1

1.1 IT, Government and Citizens 1

1.2 FRIENDS Project in Kerala 2

1.3 The Objectives 6

1.4 Methodology 6

1.4.1 The Approach 6

1.4.2 Sampling Design 7

1.4.3 Data Gathering Method 7

1.4.4 Data Entry and Analysis 8

1.5 Chapter Scheme 8

2. Assessment of FRIENDS by Targeted Customers 10

2.1 The Target 10

2.2 Profile of the Sample of Targeted Customers 10

2.3 Awareness about FRIENDS 11

2.4 Details of Visits to FRIENDS 12

2.5 Details of Payment of Bills 13

2.6 Cost and Time in making Payments 14

2.7 About the Location and Accessibility of FRIENDS 15

2.8 Interaction with Officials 15

2.9 Overall Rating of FRIENDS 16

2.9.1 Factors of Attraction 16

2.9.2 Factors of Dejection 16

2.9.3 Problems Faced in FRIENDS 17

2.9.4 Relative Assessment of FRIENDS and Department Counters 18

2.10 Opinion on using IT for delivering Citizen Services 18

2.11 Suggestions for Improvement 19

2.12 Conclusion 20

3. Evaluation by Service Personnel at FRIENDS Centres 21

3.1 Importance of Employee Response 21

3.2 Evaluation by Service Officers at FRIENDS 21

3.2.1 Profile of Service Officers 22

3.2.2 Selection Process 23

3.2.3 Training Program 24

3.2.4 Service Environment 25

3.2.4.1 Physical Conditions 25

3.2.4.2 Interaction with Colleagues 26

3.2.5 Service Conditions 27

3.2.6 Overall Satisfaction 28

3.2.7 Suggestion for Improvement 29

3.3 Experiences of Kudumbasree Unit Members 29

3.3.1 Profile 30

3.3.2 Awareness and Joining Process 30

3.3.3 Service Environment 30

3.3.3.1 Physical Conditions 30

3.3.3.2 Interaction with Officials 31

3.3.4 Service Conditions 31

3.3.5 Overall Satisfaction 31

3.4 Conclusion 32

4. Evaluation by the Employees of Participating Department 34

4.1 Introduction 34

4.2 Profile of Employees 34

4.3 Comments on the Selection Process to FRIENDS 35

4.4 Training Program 35

4.5 Service Environment and Conditions 36

4.6 The Concept of IT Enabled Citizen Services 37

4.7 Opinion on the Concept and Practice of FRIENDS 37

4.8 Suggestion for the improvement of Present System 37

4.9 Conclusion

38

5. Summary and Conclusions 39

5.1 Kerala-at the cross roads of Development 39

5.2 The customer profile 40

5.3 Direct Cost Implementation for Government 41

5.4 Benefits to the citizens and government 42

5.5 Sustainability of the centres 43

5.6 FRIENDS and its impact on the future ICT diffusion in the state 45

5.7 Areas for further research 46

Annexure

A. Tables 47-126

B. Questionnaire administered to Customers 127

C. Questionnaire administered to Service Officers 130

D. Questionnaire administered to Kudumbasree women 133

E. Questionnaire administered to Employees of Participating Departments 136

F. Questionnaire administered to Heads of Departments 138

LIST OF TABLES

No. Title Page

1.1 Commencement of FRIENDS centres 47

1.2 Details of monthly collection at FRIENDS centre Trivandrum during 2000-2001 47

1.3 Details of monthly collection at FRIENDS centres during 2001-2002 48

1.4 Details of Field Survey 8

2.1 Distribution of Targeted Customers Across Sample Centres and Wards 49

2.2 Distribution of Respondents in the Survey among Customers 50

2.3 Distribution of Customers by the Educational Status of Head of Household 51

2.4 Occupational Distribution of Heads of Households 52

2.5 Distribution of Customers by Income Classes 53

2.6 Distribution of Targeted Customers According to their Awareness about FRIENDS 54

2.7 Educational Status of HoH and Awareness of FRIENDS 55

2.8 Occupation of Head of Household and Awareness of FRIENDS 56

2.9 Awareness of FRIENDS and source of Information 57

2.10 Awareness that FRIENDS Works on Sundays Also 58

2.11 Customers’ Awareness that FRIENDS centres are open from 9 AM to 7 PM 58

2.12 Monthly Family Income and Frequency of Visit to FRIENDS 59

2.13 Monthly family income and the practice of going to FRIENDS on the last date. 60

2.14 Occupation and the practice of Going to FRIENDS on the Last Date. 61

2.15 Monthly Family Income and the Practice of Paying Utility Bills Together at FRIENDS Counter.

62

2.16 Bills that can be paid at FRIENDS and the Percentage of Customers Knowing and paying them at FRIENDS

62

2.17 Preferred Time of Making Payments Against Electricity Bills 63

2.18 Preferred Time of Making Payments Against Water Bills 63

2.19 Preferred Time of Making Payments Against Telephone Bills 63

2.20 Occupation and Preferred time of making payments - Electricity bills 64

2.21 Occupation and Preferred time of making payments - Water bills 64

2.22 Occupation and Preferred time of making payments - Telephone bills 65

2.23 Gender profile of the Person Paying at Dept. Counter and at FRIENDS 65

2.24 Women preference for FRIENDS compared to Dept. Counters 65

2.25 Average Monthly Cost Involved in making payments at FRIENDS and at Department Counters

66

Department Counters

2.26 Comparison of Delay in paying bills at Dept. Counters and at FRIENDS 66

2.27 Average time for waiting at Department counters and at FRIENDS 66

2.28 Average time saved because of FRIENDS 66

2.29 Satisfaction levels on the present location of FRIENDS 67

2.30 Accessibility of FRIENDS Centre 68

2.31 Difference in Customer friendliness at FRIENDS and Department counters 69

2.32 Difference in personal attention at FRIENDS and Department counters 69

2.33 Difference in clearing doubts of customers 69

2.34 Difference in issuing error free receipts 69

2.35 Preference for FRIENDS to Department Counters 70

2.36 Distribution of the Percentage of Customers by Reasons for Preferring FRIENDS to Department Counters

70

2.37 Distribution of the Percentage of Customers by Reasons for Not Availing Services from FRIENDS

71

2.38 Distribution of Customers Who Faced Problems from Electricity Board After Payments at FRIENDS

72

2.39 Distribution of Customers Who Faced Problems from Department of Telephones after Payments at FRIENDS

72

2.40 Distribution of Customers Who Faced Problems from Water Authority After Payments at FRIENDS

73

2.41 Distribution of Customers by Problems Faced at Different FRIENDS Centres 73

2.42 Mean Values of Selected Parameters of Comparison Between FRIENDS and Department Counters

74

2.43 Opinion on Information Technology as a Tool for Better Citizen Services 75

2.44 Opinion on the Statement that the Government should have used the Money Spent on FRIENDS on Other Welfare Activities.

75

2.45 Support for Opening FRIENDS Centres at Sub District Levels 76

2.46 Monthly Family Income and Willingness to pay Service Charges 77

2.47 Opinion on Payment of Bills through Internet 78

3.1 Age wise Distribution of Service Officers at FRIENDS 79

3.2 Average age of Service Officers at FRIENDS 79

3.3 Sex Composition of Service Officers at FRIENDS 80

3.4 Marital Status of Service Officers at FRIENDS 81

3.5 Distribution of Service Officers by the occupation of their spouse 82

3.6 Distribution of Service Officers by their Educational qualification 83

3.7 Distribution of Service Officers by their Place of Education 84

3.8 Distribution of Service Officers by their Monthly Family Income 85

3.9 Distribution of Service Officers by their Parent Department 86

3.10 Distribution of Service Officers by their Designation at Parent Department 87

3.11 Distribution of Service Officers by their Length of Service with Government 88

3.12 Distribution of Service Officers by their Length of Service at FRIENDS. 89

3.13 Distribution of Service Officers by the Channel through which They Came to Know FRIENDS

90

3.14 Distribution of Service Officers according to their choice of joining FRIENDS 90

3.15 Distribution of Service Officers by the Reasons for them to join FRIENDS 91

3.16 Distribution of Service Officers by their Opinion on Training Programme 92

3.17 Distribution of Service Officers According to their Opinion on the number of days required for Training

92

3.18 Distribution of Service Officers by the Areas they Need More Training 93

3.19 Distribution of Service Officers by their Preference on Repetition of Training Programme

93

3.20 Distribution of Service Officers by their Opinion on the Location of FRIENDS 94

3.21 Opinion of Service Officers on Locating FRIENDS Office Along with Other Government Offices

94

3.22 Nearness of FRIENDS Office to Home 95

3.23 Opinion of Service Officers on the Seating Arrangements Provided 95

3.24 Opinion of Service Officers on the Numbers of Computers Provided 96

3.25 Opinion of Service Officers on the Existing Software 96

3.26 Opinion of Service Officers on basic Amenities at FRIENDS 97

3.27 Opinion of Service Officers on Interaction with Colleagues at FRIENDS 97

3.28 Opinion of Service Officers on Common Designation at FRIENDS 98

3.29 Opinion of Service Officers on FRIENDS’ Impact in Creating Positive Perspective 98

3.30 Opinion of Service Officers on the Number of Working Days 99

3.31 Opinion of Service Officers on Keeping Sunday as Working Day 99

3.32 Opinion of Service Officers on the Time Schedule 100

3.33 Opinion of Service Officers on Special Incentives 100

3.34 Distribution of Service Officers by Average Time Taken to Deal with a Customer 101

3.35 Average number of Customers Dealt by a Service Officer 101

3.36 Overall Satisfaction of Service Officers at FRIENDS 102

3.37 Centre wise Distribution of Service Officers Thinking of Going Back to the Parent Department

102

3.38 Department wise Distribution of Service Officers Thinking of Going Back to the Parent Department

103

3.39 Distribution of Service Officers Making their Payments at FRIENDS 103

3.40 A Comparative Assessment of FRIENDS to Department Offices by Service Officers

103

3.41 Opinion of Service Officers on IT as an Effective Tool for Government Services 104

3.42 Opinion of Service Officers on Extending FRIENDS to Sub District Levels 104

3.43 Opinion of Service Officers on Introducing a Service Charge at FRIENDS 105

3.44 Age wise Distribution of Kudumbasree Employees 105

3.45 Marital Status of Kudumbasree Employees 106

3.46 Distribution of Kudumbasree Employees by their Monthly Family Income 106

3.47 Distribution of Kudumbasree Employees According to their Sources of Information on FRIENDS

107

3.48 Satisfaction of Kudumbasree Employees on the Seating Arrangements Available 107

3.49 Satisfaction of Kudumbasree Employees on basic Amenities Available 108

3.50 Satisfaction of Kudumbasree women on the Service Environment 108

3.51 Average of Likert Scale Scores on Interaction with Officials by Kudumbasree women

109

3.52 Distribution of Kudumbasree Employees by their Monthly Income from FRIENDS 109

3.53 Opinion of Kudumbasree Employees on the Existing Time Schedule of FRIENDS 110

3.54 Reasons for the Delay in Scroll Delivery 110

3.55 Opinion of Kudumbasree Employees on Improvement in their Standard of Living 111

3.56 Opinion of Kudumbasree Employees on their Interaction with Family 111

3.57 Opinion of Kudumbasree Employees on Dropping the Job with FRIENDS 112

4.1 Average years of Service 112

4.2 District wise Average Age of Employees in Participating Department 112

4.3 District wise Sex Composition among the Employees in Participating Departments 113

4.4 Distribution of Employees according to their Spouse’s Occupation 113

4.5 Distribution of Employees according to their Educational Qualification 114

4.6 Distribution of Employees according to their School Education Background 114

4.7 Income Class wise Distribution of Employees 115

4.8 Channel through which Employees came to know about FRIENDS 115

4.9 Awareness about the Selection to FRIENDS 116

4.10 Willingness to Join FRIENDS among the Employees who did not know about the Selection Process

116

4.11 Opinion on the Need for Training 117

4.12 Adequacy of Training Undergone 117

4.13 Opinion on the Areas for further Training 118

4.14 Opinion of Employees on the Seating Arrangements Provided 118

4.15 Usage of Computers in Offices 119

4.16 User Friendliness of the Software Used in the Office 119

4.17 Sufficiency of Employees in the Office 120

4.18 Satisfaction of Employees over the Working Environment in the Offices 120

4.19 Satisfaction of Employees over the Present Time Schedule 121

4.20 Average Time Taken per Customer in Department Offices 121

4.21 Overall Satisfaction of Employees with the Present Job 122

4.22 Suggestions from Employees for Decreasing Customers’ Queue 122

4.23 Opinion of Employees on the concept of FRIENDS 123

4.24 Comparison between FRIENDS and Own office by Employees 123

4.25 Opinion on the Advantages because of FRIENDS 124

4.26 Opinion on Serving in a FRIENDS Office 124

4.27 Suggestion of Employees on the Expansion of the Idea of FRIENDS 125

4.28 Opinion of Employees on Extending FRIENDS to Sub Districts Level 125

4.29 Opinion of Employees on Collecting Service Charge from FRIENDS 126

EXECUTIVE SUMMARY

Of the many technologies of our time, the progress made in Information and Communication Technology (ICT) is believed to be a revolution with profound influence on economic development. The developed countries are already in the process of taking advantage of the revolution. The developing countries, as well, are showing keen interest in evolving policies and allocating the highest priority for investment of their scarce resources for the development and diffusion of ICT. In this context, it would be interesting to examine the attempt for ‘citizen-government’ interface through IT in the state of Kerala, India. FRIENDS (Fast Reliable Instant Effective Network for Disbursement of Services) is a “single window scheme” where citizens have the opportunity to pay all the taxes and other dues to Government. The project cannot be highlighted as a hi-tech technology solution but probably as an appropriate technology solution based on citizen needs. These centres are currently operational at thirteen out of a total of fourteen district headquarters in the state. The counters are manned by employees deputed from the participating Departments and are designated as Service Officers, irrespective of their designation in the parent Department. The current study examines the working of FRIENDS centres in Kerala based on the satisfaction level of citizens and responses from within Government, especially the participating departments and personnel and undertakes a cost benefit analysis of the system. It also tries to examine the project in the wider context of the economy of the state and explores the sustainability of the centres. The study documents the lessons learned through the project as a specific case study of IT implementation in Government in developing countries and further analyses the areas that warrant attention. While it was noted that FRIENDS has been able to provide much better overall service on all accounts, the lack of proper awareness among the targeted citizens has restricted its use to about one-third of the targeted population. It was also found from the study that it is equally important to roll out the centres at the sub-district levels for easy access and accessibility. It is also interesting to note that the participation of women in making payments at FRIENDS is higher than in department counters. The project has also been able to demonstrate to the common man the possibilities of ICT in governance and has thus been able to gather support of the general public for future e-governance projects in the state. The study also shows that majority of Service Officers are extremely happy about their work in FRIENDS. The positive perception of the service officers highlights the fact that with better service environment and appropriate motivation, Government employees can provide much better services than what is presently provided through conventional mechanisms. The project has successfully created employment opportunities outside Government, for women belonging to below the poverty line. The project could very well be considered as a unique and successful PPP (Public Private Partnership) model where the Citizens, Service Officers and Private partner have benefited. The study also has brought forward the interesting fact that FRIENDS is accepted by the large majority of the employees in the participating departments, who are not deputed to FRIENDS, as a major positive initiative of the Government, in spite of the fact that the centers have systematically curtailed some of the authority vested with these employees. What is more remarkable is the fact that a large majority of these employees support

FRIENDS as a single window for citizen service rather than arguing in favour of FRIENDS like counters attached to their office. One major requirement highlighted by all the agents is the need to extent these centres to the sub-district level so that people have an easier access to these centres. However, these centres need to be started with private partnership. While, the success of FRIENDS relies very much on the fact that it undertook front-end computerisation before completing backend computerisation of departments, the project would become a complete success only when the backend department-computerisation is also completed. The next stage in extending the front end right up to the customers’ desktop is to web enable the service. FRIENDS project provides evidence to the fact that the an attempt to undertake front-end computerisation efforts in the first phase itself, without waiting for the backend computerization of individual departments to be completed, could be one strategy that could be followed by developing regions that are scarce in resources. Such as strategy has the possibility of easier replicability and hence larger coverage among the citizens in a short period of time. It also acts as a pull strategy, driving the back-end computerization programme.