3 evaluation-study-mp-gpsd-act2010-fin

AN independent report FEBRUARY 2012

Prof. B Muralidharan, Advisor,

Evaluation and Management Audit of the Madhya Pradesh Lok

Sewaon Ke Pradan Ki Gurantee Adhiniyam, 2010 (Madhya

Pradesh Guarantee of Public Service Delivery Act, 2010)

Sl. No. Contents Page No.

1 Executive Summary 3

2 Evaluation of the MP Guarantee of Public Service Delivery Act 2010 - Background and Rationale 4-6

3 Purpose, Objectives and Scope of the Evaluation 7-8

4 Methodology and Work Plan 9-10

5 Findings and Observations 11-72

5.a Evaluation 11-31

5.b Management Audit 32-71

6 Conclusions 72-73

7 Recommendations 74-75

8 A Note on Inclusion and Right to Services 76

9 Annexures 77

9.a Terms of Reference 78-80

9.b List of Persons Interviewed 81

9.c List of Documents Consulted 82-83

9.d Evaluator‟s Bio-data 84-87

9.e Acknowledgement 88

ABOUT THE STUDY

• This Study was commissioned by the School of Good Governance and Policy Analysis, an Autonomous Society registered under the Societies

Registration Act, 1860. It functions from c-324, 3rd Floor, Narmada Bhawan, 59 Arera Hills, Bhopal - 462011 - Madhya Pradesh- India Phone:+91 755

2570216 Web: www.sushasanmp.in

• The Commissioning Manager is the Dr. Akhilesh Argal, Director (Governance). He can be contacted at [email protected]

• The Study spanned an overall period about 2 months, and covered the state of Madhya Pradesh, India.

• Two field visits were conducted: one, in Bhopal and the other in Vidisha District.

• This study was conducted by the Centre for Organization Development, P.O. Cyberabad, Madhapur, Hyderabad - 500081 - Andhra Pradesh - India

Phone: +91 40 23118889 Web: www.codhyd.org

• Prof. B Muralidharan, Advisor, Centre for Organization Development, Hyderabad was the evaluator; He can be contacted at [email protected] or

[email protected] and on Phone: +91 9818101646

http://www.sushasanmp.in/

http://www.codhyd.org/

mailto:[email protected]

mailto:[email protected]

Areas and Findings

1. The Act has impacted a large number of

citizens

2. The Act provides key features such as a

clearly defined service, a Designated Officer

responsible to deliver that service, a Time

Limit within which the service will be

delivered, penalty in case of delay or denial,

appeals and review processes

3. 56 Services and 16 departments are covered

by the Act

4. The number of applications from October

2010 till date have crossed 9 10 million;

services delivered are almost the same

number

5. Awareness about the act poor, but improving

6. Reforms undertaken to improve efficiency like

use of ICT have improved efficiency and

conformity to the Act

7. New reforms like a PPP mode on the anvil

8. A separate department called the Public

Service management Department under the

Chief Minister of Madhya Pradesh to signify

the importance of the Guarantee

9. Coordination is good and visible; reviews have

resulted in corrective action – like redrafting

of circulars in easy-to-understand language

and with a view to state „How to deliver the

service?”

10. Sincerity in improving effectiveness, even

when efficiency [measured in terms of

services delivered on time], is patently

visible and high. See for instance, two

impact surveys conducted.

11. Innovations in delivery and use of

technology are in the offing

Conclusions

1. the Act and the notified

services are extremely

relavant in the context of a

rights-based approach to

public service delivery.

2. Thanks to the Act and its

implementation,

Transparency, Accountability

and timeliness have

increased in the public

service delivery process in

Madhya Pradesh, especially

in the context of the notified

services

3. Efficiency and Administrative

Reforms have got a boost.

Use of ICT, strengthening of

monitoring and coordinating

mechanism have helped in

improvements.

4. The impact on the citizens

and staff have been in

general very positive. There

is enthusiasm amongst

departments and confidence

in public.

5. The programme of

imlementation of the Act –

and even its expansion –

is eminently possible.

Constraints of resources

and rules have led to led

innovative thinking – Lok

Sewa Kendras on a PP

mode with modest user

fees.

6. The Act and the programme

have had significant

national impact. 12 state

governments have

followed suit; at least 3

more are in the offing; >

50% of the states in India

1. Executive Summary

Recommendations

1. The thrust on awareness building

must be continued. Awareness as empowerment is a key to good governance

2. Continue to use ICT for both awareness and to reduce physical interface between citizen and government staff

3. Balance the management approach to accountability. Bring in rewards for excellent performance to offset the fear psychosis of penalties for erring.

4. Do not restrict excellent public service to the implementation of an Act. Instill excellent public service as a culture across government.

5. Provide sufficient efforts to ensure that the PPP mode is designed and delivered well; document the entire process for others to learn.

6. Given that still a large number of applicants are illiterate, use ICT to eliminate fear and middlemen from the service delivery

mechanism.

4

2. BACKGROUND AND RATIONALE FOR THE STUDY

Background:

The Legislative Assembly of Madhya Pradesh passed unanimously the MP Guarantee of Public Service Delivery Act in July 2010. The Act was a path-

breaking attempt to provide rights to citizens on essential services and guarantee their service delivery.

The Act had its origin in Citizens‟ Charters. Reviews by the state government of these charters found that while a lot of work had been done on their

formulation and efforts made to implement them, consistency across departments and individual government officers was absent. Much depended on

the drive and personality of responsible officers in different departments vis-a-vis implementation and results.

Independent studies across the country also revealed that the impact of Citizens Charters on service delivery was varied and positive results

depended too much on the enthusiasm of the local actors1

Commenting about their experience, the Public Administration Select Committee, UK, observed:

“The Citizen‟s (sic) Charter has had a lasting impact on how public services are viewed in this country. The initiative‟s underlying principles retain their validity nearly

two decades on – not least the importance of putting the interests of public service users at the heart of public service provision. We believe this cardinal principle

should continue to influence public service reform, and encourage the government to maintain the aims of the Citizen‟s Charter programme given their continuing

relevance to public service delivery today.”

On Charter Mark, it commented: “Measures of user satisfaction can shed some light on the quality of public service provision. They should, however, be treated with

care because they are subjective and are sometimes based on less important considerations than service quality.”

However, the Committee noted that in the crucial area of outlining the standards of service that people could expect to receive “… the Citizen‟s Charter

programme was rather confused – promises contained in the charters were often vague and aspirational…” It went on to state “We recommend that there should be

clear, precise and enforceable statements of people‟s entitlements to public services. These should be in the form of Public Service Guarantees…”2

It is striking to note that at the same time in two different parts of the world – UK, considered one of the most developed nations and Madhya Pradesh,

a state considered as struggling to develop - the same theme was being taken up with the conclusions being almost identical.

In a National Consultation on Strengthening Delivery and Accountability Frameworks for Public Service organized by the Government of

Madhya Pradesh and UNDP, India, the Chief Minister of Madhya Pradesh observed:

“At the time of elections people are the most important. After that the government ignores them. The CM, Ministers, and bureaucrats, all think that they are perfect and wisdom cannot reside outside this group. In the case of MP, we had introduced One day Governance – Samadhan Ek Din Mein and we had Citizens Charters.

But when we listened to the people, we found that no body looked at the Citizens Charters and no body bothered about the details. We wanted, then, to introduce a Citizens Charter Act. There were a number of doubting Thomases. But the question we asked was if we are giving rights through the Charters why are we scared of fixing responsibility?

Thus was born the MP Lok Sewaon Ke Pradan Ki Guarantee Adhiniyam.”3

It was in the context of unclear Citizen‟s Charters and non-functional Sevottams, that the Government of

Madhya Pradesh, as stated above, decided to legislate select services as rights of the people in August

2010 and implemented from 25 September 2010 onwards. The legislation that was brought in – The

Madhya Pradesh Guarantee of Public Service Delivery Act 2010 – had the following features.

1 2007, Public Affairs Centre, Review of India’s Citizens Charters- A Decade of Experience, Public Affairs Centre, Bangalore, India 2 2008, House of Commons-Public Administration Select Committee, From Citizen’s Charter to Public Service Guarantees:

Entitlements to Public Services, House of Commons, London, UK 3 2012, Tina Mathur, Right to Public Services: A Comparative Perspective of Implementation of Guarantee of Public Services

in Select States of India, Centre for Organization Development, Hyderabad, India

5

1. Clearly stated services that will be specifically notified by the government

2. A time limit within which the service will be delivered [in days]

3. A Designated Officer of the government who will be held responsible for the service delivery to

each and every applicant

4. In the event of failure, a grievance redressal mechanism through a process of First and Second

Appeals

5. A scheme for penalty in the event of proven failure on the part of the Designated Officer by the

Second Appellate Authority.

In the first instance twenty six (26) services delivered by nine (9) departments4 were notified. The choice

of services were determined by the following factors:

1. Importance of the service to the people, especially the poor and disadvantaged;

2. Willingness of the departments to get the services notified under the Act

3. Feasibility of guarantees: did a realistic chance exist of guaranteed service delivery within a fixed time frame?

4. No other law had already provided a guarantee similar to the one envisaged under the Act

Rationale for the Study:

Since the passage of the Act in September 2010 and its implementation, several developments have taken place.

1. Obviously impressed and inspired with the innovation that this Act brought in public service delivery, several state governments quickly

followed in succession enacting laws on similar lines.

2. The Government of Madhya Pradesh had done an impact study through a non-governmental organization in July 2010 of the status of

implementation of the Act. It also initiated another set of studies by three (3) institutions to do a follow up study in December 2011-January

2012.

3. The Madhya Pradesh Government, having implemented the Act for a year and on the verge of introducing more changes and learning from

new comers, again took the initiative of organizing a National Consultation on Strengthening Delivery and Accountability Frameworks

for Public Service, as stated above with the assistance of UNDP India. The consultation provided a fertile ground for an exchange of ideas

and different perspectives that came across from different parts of India.

4. Independently, the Centre for Organization Development, Hyderabad in collaboration with Oxfam India, a rights-based organization, was

planning to organize a Seminar on Right to Public Services in February 2012. The Seminar aimed at capturing the unusual phenomenon of

rights being conferred without agitations and protests, and the new federal spirit of India where states were willing to learn one from the

other.

Given these developments, the Government of Madhya Pradesh strongly believed that an independent evaluation of the MP Act and its implementation

will add value to its continued and consistent efforts to ensure that the guarantees promised are delivered in letter and spirit.

Thus on 27 January, the School of Good Governance and Policy Analysis, an autonomous institution under the aegis of the Government of Madhya

Pradesh, wrote to the Centre for Organization Development (COD) to undertake this study since they were already the first independent organization in

the country to organize a national Seminar on Right to Public Services.

4 Please see Annexure for a list of Departments and Services that were first notified.

6

3. PURPOSE, OBJECTIVES AND SCOPE OF THE EVALUATION

PURPOSE:

Madhya Pradesh is a state that is considered as a developing state within India that has shown remarkable

progress over the last decade. As of 2011 the state had a population of 72,597,565 of which 37,612,920

are males and 34,984,645 are females.5

1. Madhya Pradesh is the second largest state in terms of geographical area and sixth largest state by population in India. The population of Madhya Pradesh is 72.59 million, and the population density is 196 people per square kilometer. More than 75% of state population resides in villages whose main occupation is agriculture. The literacy rate is 63.70%.

2. The Government of Madhya Pradesh implements, various social welfare as well as development-related schemes and programmes through 57 functional departments having their own administrative setup in 50 Districts.

3. The State considers delivery of effective and efficient services to its citizen is the foremost challenge. It was felt that notwithstanding various initiatives of the Government like the citizens charter, the citizens do not get the services from the responsible government officials in time limits prescribed. The problem is more acute in rural areas particularly affecting weaker sections and women.

4. There appeared to be general lack of accountability accentuated by casual attitude of some of the field functionaries. The inability of the citizen to assert and their ignorance of the procedures were adding to the problem.

5. Therefore, the Government of Madhya Pradesh passed the “Madhya Pradesh Lok Sevaon ke Pradan ki Guarantee Adhiniyam 2010” (Madhya Pradesh Guarantee of Public Service Delivery Act, 2010) in August 2010 and implemented from 25th September 2010. This land mark legislation provides

5.1.1. Statutory justifiable right to the eligible citizen to obtain notified services within stipulated time frame, from the designated officers, who are made legally duty bound to provide the service to entitled applicant.

5.1.2. In case designated officer fails to provide service, a two-tier grievance redressal mechanism in the form of first appeal and second appeal.

5.1.3. Imposition of penalty on the errant officials and compensation to the aggrieved applicant who may have been wrongfully denied the service.

5.1.4. To implement above design of the act, it is made mandatory that every applicant gets a receipt of the application for a notified service, indicating the date by which the service will be delivered and in case the service is not provided by the date indicated in the receipt by the designated officer, redressal mechanism may be set in motion.

5.1.5. This initiative is a major paradigm shift in the policy regime of citizen charter that was a mere intent of the government to a right based delivery, akin to shifting an item from directive principal of the state policy to the area of fundamental right.

According to the Terms of Reference of this study, the purposes of the study are:

1. The Government of Madhya Pradesh, after about 15 months of implementation of the above Act, desires an independent evaluation of the implementation of the Act.

2. This evaluation of the Act and its implementation is to get an independent view of the promulgation of the Act, the services rendered, and their relevance. This independent evaluation is deemed necessary at this point of time, as the Government of Madhya Pradesh desires to know the impact and introduce changes where necessary.

3. This report should be useful first and foremost to the residents of Madhya Pradesh in getting the service efficiently and secondly to the Government of Madhya Pradesh to improve the service delivery system.

OBJECTIVES:

5 2011, Census Of India, Population Chapter, Madhya Pradesh, Census of India, Delhi

7

Essentially after having implemented the Act for over a year and a half and after having lead discussions on

the subject in the country, the Government of Madhya Pradesh is keen to analyse and document the impact

and lessons learnt, as also find ways and means of improving its public service delivery.

Specifically, the objectives, as stated in the Terms of Reference, are:

1. The objectives of the Evaluation are to study if the principle components of the Act – Transparency,

Accountability and Timeliness - have been achieved and if so to what extent.

2. The study will cover the Implementation modalities of the Act and issues arising thereof.

3. The study will make suggestions to strengthen the Government of Madhya Pradesh’s attempts in

achieving its objectives in relation to the Act.

SCOPE OF THE STUDY:

Consistent with its purpose and objectives the scope of the study was set down as follows in the terms of

reference:

The study will cover the following areas:

1.The process adopted in passing the legislation. 2. The legal provisions related to Transparency, Accountability and Timeliness. 3. The choice of notified services. 4. The extent of implementation. 5. The study will cover the entire gamut of services notified under the Act. 6. The study will be based largely on the data derived from the MIS created specifically for monitoring the implementation of the Act and other secondary sources. 7. Where feasible, the consultant will make 1 or 2 field visits. 8. Where feasible, the consultant will use his/her prior information / knowledge.

8

4. METHODOLOGY AND WORKPLAN

METHODOLOGY:

The methodology adopted for the evaluation study was two fold:

1. Primary observations in two (2) field visits to service delivering institutions and select interviews

with staff and applicants there:

a. Bhopal District Collectorate

b. Vidisha District – Tehsil Office, Municipal Office, and Electricity Supply Office

2. Primary Data collected by the Governemnt of Madhya Pradesh

a. The status of applications received, services rendered, pending applications, etc.

b. Survey of the impact of the Act over two periods: July 2011 and December 2011-January

2012

c. Documents shared by the government and available on the MIS related to issues like the

Lok Sewa Week, Digital Notarization, etc.

d. Hard copies of government orders, budget papers, circulars and other relevant documents

shared by the Government of Madhya Pradesh.

3. Interviews with Department Officials (especially the Head and his Deputy) and the Officers of the

School of Good Governance and Policy Analysis, Bhopal.

4. Cases where found appropriate, the consultant, has made use of his knowledge of the

implementation of similar Acts in others states of India.

This Methodology was adopted given the time constraints and as the Terms of Reference state: “the objective of the study is to quickly assess the status of implementation and suggest recommendations for the future on 3 dimensions [transparency, accountability and timeliness] which are possible with the data available.”

WORK PLAN:

The work plan for the study was as follows:

I t e m S t a r t T i m e E n d T i m e R e m a r k s

A p p r o v a l o f t h e P r o p o s a l

D e c i d e d b y

t h e S c h o o l o f

G o o d

G o v e r n a n c e

S t u d y – P r e l i m i n a r y V i s i t a n d

D i s c u s s i o n 1 3 - 0 2 - 1 2 1 4 - 0 2 - 1 2

W i l l b e i n

B h o p a l

L i s t o f D o c u m e n t s r e q u i r e d b y C O D 1 4 - 0 2 - 1 2 2 2 - 0 2 - 1 2

T o b e

p r o v i d e d b y

S c h o o l o f

G o o d

G o v e r n a n c e

A n a l y s i s a n d D r a f t E v a l u a t i o n 2 6 - 0 2 - 1 2 2 6 - 0 2 - 1 2

S o f t c o p y t o

b e m a i l e d b y

C O D

D i s c u s s i o n s a n d „ M a n a g e m e n t ‟

R e s p o n s e t o F i n d i n g s 2 7 - 0 2 2 8 - 0 2 - 1 2

T h i s w i l l b e i n

B h o p a l

S u b m i s s i o n o f t h e E v a l u a t i o n S t u d y

R e p o r t b y C O D 2 9 - 0 2 - 1 2

As part of the preliminary visit on 13th and 14th February, the consultant, apart from discussions with the

concerned officials visited the Bhopal Collectorate and the Vidisha District.

9

Management Audit:

In addition to these, the consultant had developed a questionnaire, based on and adapted from those

utilized for ISO certification, to conduct an audit of the larger management processes. Please note that this

audit is NOT operational, financial, detailed process or project management audit. It is in the nature of audit

to understand the conformity or otherwise to larger strategic and general management areas. It was also

aimed to understand how the implementation of such an Act where the line departments (16 of them)

deliver services and the Public Service Management coordinates them; surely not a typical project

management structure.

The consultant shared the questionnaire with the client, and based on the initial response (filled in

questionnaire), sought clarifications and further details. The Audit table was finalized after a final round of

discussions with the client on 28th February 2012.

10

5. FINDINGS AND OBSERVATIONS

5.a EVALUATIONS STUDY

Phase I: SEPTEMBER 2010- JULY 2011

As stated in the foregoing sections the Madhya Pradesh Guarantee of Public Service Delivery Act was

passed by the Legislative Assembly in August 2010 and implementation commenced from 25th September

2010.

In the first instance twenty six (26) services delivered by nine (9) departments were notified. The notification

captured the key features of the guarantee:

a) the serviceto be delivered on receipt of a full and complete application ,

b) the Designated Officer accountable for the delivery of the service, c) the time limit for service delivery, d) the First Appellate Authorityto whom an appeal could be preferred by the applicant , e) time to dispose the first appeal off, and f) the Second Appellate Authority.

Please find below the first list of notified services and relevant details thereof.

11

The first set of Notified Services under the MP Guarantee of Public Service Delivery Act 2010 –

September 2010

12

1. Energy Department

Sr No. Services Designation of Designated Officer

Defined timelines for providing the Services

Designation of First Appellate Officer

Defined timelines for disposal of First Appeal

Designation of Second Appellate Authority

1.1 Providing demand letter for individual new electricity low tension connection in places where such connection could be provided through the existing network

a. Zone/Urban Distribution Centre office Zonal/Distribution Centre incharge

11 working days Executive Engineer

30 working days Superintendent Engineer

b. Rural Areas Distribution Centre incharge



1.2 Provision of low-tension new electricity connections through existing network upon deposit of amount as per the demand letter







1.3 Provision of temporary connections upto 10 KVA upon deposit of fees where there is no requirement of expansion in the existing infrastructure







1.4 Issuance of demand letter for increasing the load of equipments upon submission of all the documents by the consumer where there is no requirement of expansion in the existing infrastructure

13







1.5 Increasing the load upon deposit of amount and supplementary contracting as per the demand letter where there is no requirement of expansion in the existing infrastructure







1.6 Inspection of meter upon receiving complaints from low-voltage consumers regarding non-functional or fast meters and to repair or replace such erratic meters







14

2. Labour Department






2.1 Providing benefits of Maternity Assistance Plan

Rural Areas – CEO, Janpad Panchayat Urban Areas – Authorised Labour Officer or municipal Commissioner/Chief Municipal Officer where there is no labour office

30 working days Sub divisional officer, Revenue

30 working days Collector

2.2 Providing benefits of Marriage Assistance Plan

Rural Areas – CEO, Janpad Panchayat Urban Areas – Authorised Labour Officer or Municipal Commissioner/Chief Municipal Officer where there is no labour office



2.3 Providing benefits of Compassionate Assistance on death

Rural Areas - CEO, Janpad Panchayat



Urban Areas - Authorised Labour Officer or Municipal Commissioner/Chief Municipal Officer where there is no labour office

15

3. Public Health Engineering Department






3.1 Minor repairs in the above ground part of departmental handpump

Sub Engineer 7 working days Assistant Engineer 7 working days Executive Engineer

3.2 Major repairs in the line assembly and cylinder of hand pump in the subsoil part of departmental hand pump

Sub Engineer 15 working days Assistant Engineer 15 working days Executive Engineer

4. Revenue Department






4.1 Providing economic assistance in the event of loss of limb or death due to natural tragedy according to Revenue Book of circulars 6(4).

Sub divisional officer, Revenue

30 working days Collector 30 working days Divisional Commissioner

4.2 Providing copies of current Khasra/Khatauni

Tahsildar or authorised revenue officer by him



4.3 Providing copies of current land maps Tehsildar/Additional Tehsildar/Naib Tehsildar (according to their jurisdiction)



4.4 Provision of Land Rights and Debt Book for the first time

Tehsildar/Additional Tehsildar/Naib Tehsildar (according to their jurisdiction)



4.5 Provision of Second copy (Duplicate copy) Land Rights and Debt Book




16

5. Urban Administration and Development Department

Sr No. Services Designation of Designated Officer Defined timelines for providing the Services




5.1 Provision of new water connection wherever possible

1) Nagarpalika/Nagar Panchayat Area - Chief Municipal Officer

30 working days 1) Sub divisional officer (Revenue)

30 working days 1) Collector

2) Municipal Corporation area -Officer authorised by Commissioner (if authorised)

2) Commissioner Municipal Corporation

2) Collector

3) Commissioner Municipal Corporation 3) Collector 3) Divisional Commissioner

6. General Administration Department





6.1 Issuance of domicile certificate




7. Social Justice Department





7.1 First time sanction and provision of Social Security Pension

1. For Rural Areas - CEO, Janpad Panchayat



2. For urban areas

a) Commissioner, Municipal Corporation

60 working days a) Collector 60 working days Divisional Commissioner

b) Chief Municipal Officer, Nagarpalika/Nagar Panchayat

60 working days b) Sub divisional officer, Revenue


17

7.2 First time sanction and provision of Indira Gandhi National Old Age Pension




2. For urban areas






7.3 First time sanction and provision of Indira Gandhi National Widow Pension




2. For urban areas






7.4 First time sanction and provision of Indira Gandhi National Disability Pension




2. For urban areas






7.5 Provision of National Family Assistance




2. For urban areas






18

8. Tribal Welfare and Scheduled Castes Welfare Department





8.1 Disposal of applications for non-receipt of relief under MP Scheduled Castes/Tribes Emergency Plan Rule 1995

District Coordinator/Assistant Commissioner, Aboriginal Castes and Scheduled Castes Welfare Department


9. Food, Civil Supplies & Consumer Protection Department





9.1 Issuance of New BPL Ration Cards

Assistant Supply Officer in the urban area of District HQ

30 working days District Supply Controller/ District Supply Officer


Tehsildar in remaining urban and rural areas except urban area of District HQ



9.2 Issuance of New APL Ration Cards

Commissioner/ Chief Municipal Officer of urban body situated in the district HQ

30 working days District Supply Controller/ District Supply Officer


Commissioner/ Chief Municipal Officer of urban areas except urban areas of district HQ



Secretary of Gram Panchayat of rural areas of district

30 working days Tehsildar 30 working days Sub divisional officer, Revenue

19

ORGANIZATION STRUCTURE

The Government of Madhya Pradesh created a new Department called the Public Service Management

Department in September 2010 to coordinate the activities, monitor the progress of implementation of the

Act and suggest changes that might be required for improving implementation and enhancing effectiveness.

By a Government Order notified in the Gazette on 10th September 2010, the government also changed its

Business Allocation Rules to facilitate and streamline this process [Gazette Notification Ref. No. F-1-13 -

2010-ONE (1) dt. 10-09-2010].

A new position of District Managers was created for coordination and monitoring help. The posts were filled

with either experienced, recently retired officials or young, experienced Management Graduates from

reputed institutions. The experienced officers were provided training in ICT related areas, and the

management graduates were trained in government structures, rules of business, office procedures, etc. All

District Managers were trained on all aspects of the Act and nuances of the Act were highlighted.

AWARENESS:

The Act with the above Notified Services were in operation for a period of about 9 months (October 2010 –

June 2011). During this period a round of training was provided to all the relevant officials in the districits and

the state head quarters. These training sessions were based on instructions that were available for the

implementation of the Act and the specifics of each service.

Simaltaneously, the Government of Madhya Pradesh (GoMP) had organized a major campaign to raise the

awareness of the citizens to whom the rights were conferred and to elected representatives of the Local Self

Governments. The GoMP had carried out this campaign through various media:

- News Papers

- Television

- Radio

- Prominent display of hoardings and boards as dictated by the Act

- Word-of-mouth

To ensure that proper data was available for monitoring the progress of implementation the GoMP conceived

a simple software. While the records were being kept manually at the service rendering centres, they were

asked to enter data in a specific format that showed:

1. Applications received

2. Applications disposed off within the specified time limit

3. Applications rejected for being incomplete/in-eligble

4. Pending Applications:

a. Which Exceeded time limit

b. Within time limit

A sample of the data extracted from the MIS system for the period 1st October 2010 to 31st March 2011 is

reproduced below.

Sl.No Dept Applications received Pending applications

Service DELIEVRED

APPLICATIONS Rejected

TOTAL Time limit over

Within time limit

total

(1) (2) (3) (4) (5) (6) (7) (8)

1 GAD 191829 411 192240 229 39 268

2 Revenue 1930033 6387 1936420 947 360 1307

3 Energy 875315 3328 878643 292 3063 3355

20

4 LABOUR 16634 1808 18442 2 160 162

5 URBAN ADMN. & DEVPT

18253 144 18397 16 353 369

6 TRIBAL WELFARE

544 5 549 0 0 0

7 Social justice 169285 17296 186581 291 1941 2232

8 FOOD &CIVIL SUPPLY

49034 1922 50956 0 423 423

9 Pub. Health Engg. Dept. 11078 1 11079 0 0 0

Total 3262005 31302 3293307 1777 6339 8116

As can be observed a substantial majority of the applications were disposed off on time. A minority of

applications were rejected and a further small minority of valid applications had not been disposed off within

the stipulated time limit.

A STRATEGIC AND DETERMINED MOVE BY THE GOMP:

Despite getting kudos from all, and having by this time [July 2011] been emulated by other state

governments like Uttar Pradesh, Delhi, Punjab, the GoMP did not rest on on its laurels.

In an appreciable move, they decided to study the impact of the implementation further not just through MIS

reports that essentially came through its own channels, but by conducting a survey through a third party- the

Jan Abhiyan Parishad, an autonomous society. The study commissioned in July 2011 had an intersting story

to tell.

FIRST IMPACT STUDY

The study was based on interviews [primary data collection] and on secondary sources from the government

records. The survey was conducted in 22 Blocks of 11 Districts of 10 Divisions of the state. In all 1225

respondents were contacted. Approximately 490 were applicants for services, about 415 general public and

300 elected representatives of the Local Self Governments.

The results were revealing. Some highlights follow:

1. Only 1 in 4 (302 out of the 1225) were aware of the features of the Act;

2. Even fewer amongst the applicants were aware of the provisions for appeals (1.6%) and penalty that

could be levied on the Designated Officer or the First Appellate Authority (0%).

3. Most came to know about the Act and its features largely from News papers, Government Orders/Displays

and „Word-of-mouth‟

4. Only 142 out of 490 were provided with acknowledgement receipt at the time of acceptance of

applications.

4. Self-declared on-time service delivery by applicants was, however, as high as about 70%. While this was

less than what the MIS reports showed, as these were self-declared reports, these too should be taken with

a lit bit of errors in margin.

5. Amongst the elected representatives only 94 out of 304 respondents were aware of the provisions of the

Act. The proportion rose with rank (Proportionally more Members of a District Panchayat knew about it, than

Heads of Gram Panchayats than Members of Gram panchayats.)

Alarmed at the results the GoMP began to take quick action; some of which were:

21

1. Improve awareness through different means: a Service Delivery Week and using folk songs, and

dance to spread the message.

2. Increase the number of training programmes and the quality of its content

3. Provide provisions for initiating appeals suo moto by the 1st Appellate Officer and Second Appeal

Authority

4. Initiate a process where computerized acknowledgement receipts were to be provided to applicants.

5. On-line applications registration

6. SMS based acknowledgement

7. A regular review at the highest levels.

8. Lack of Appeals even when a few hundreds of services (out of a few million) were not delivered on

time was construed to be a function of lack of awareness.

9. Despite difficulties, induce existing departments to notify more services under the Act, and induce

departments not under the Act to agree to come under its purview and notify some services.

PHASE II – JULY 2011 TO NOVEMBER 2011

FOLLOW-UP ON THE IMPACT STUDY

A. AWARENESS AND TRANSPARENCY

1. Serious and concerted efforts were made by the Public Service management Department to push officials

and elected representatives to take up awareness campaigns. Organzing rallies and press conferences were

suggested. Engaging children in innovative ways and delivering services ina ceremonial manner were taken

up. The appropriate officials were also required to document these seriously. These were again monitored

through the MIS created by the Madhya Pradesh wing of the National Informatics Centre (NIC). More than

20,000 Gram Sabhas were organized during this period and compliance of total coverage was close to 90%.

2. The GoMP decided to declare a week in September as the annual Lok Sewa Week and 25 September as

annual LokSeva Day.

3. A check of the MIS showed that districts participated actively in documenting their awareness campaigns

and in providing valuable feedback from the ground level. A random check of a district – Damoh – revealed

the following. 129 out of 161 Gram panchayats were encouraged to hold Special Gram Sabhas on the issue

of Guarantee of Public Service Delivery. Kits were issued to District Panchayats to display on the walls

during a workshop held for the District Panchayat members on 10th September 2011. Several groups were

trained on the features of the Act and a press conference was held on the same date [10-09-2011] to ensure

that the local press gives the guarantees wide publicity.

4. Locally popular methods were adopted to promote awareness during the Lok Sewa week. The following

pictures from Sehore district [provided by the department] show a glimpse of these efforts.

Local newspapers, too, it appeared, were happy to carry the news of the guarantees during this period.

22

B. IMPROVING EFFICIENCY: INTRODUCTION OF COMPUTERS AT THE FRONT-END SERVICE

DELIVERING CENTRES:

By coordinating with the nine departments (initially), the PSM Department ensured that in a phased manner

the line departments will utilize their own budget to equip their front offices with computers and internet

connectivity. By the end of 2011 they had ensured that at least half of the nearly 313 Blocks of Madhya

Pradesh had been covered. About 50% of the designated officers get connected at the Block level; by end

2012 all to be connected.

In almost all cases, the front offices were mandated to register all applications „on-line‟ in the computers.

This was linked to the respective Designated and Nodal Officers at different levels. Officials were now able to

track the status of applications in a manner that was of help to them: a status picture, plus a dash board that

warned them of delays, and a day-wise status of pending applications.

A snap shot of the status between 1st April 2011 and September 2011 is shown below:

RED: denotes lapsed time limit

AMBER and YELLOW: denote that there is just about enough time

GREEN: denotes that sufficient time is available for disposal of the applications.

An added benefit of the computerization drive was that an SMS-based acknowledgement could be sent to

the applicants as indicated by the photograph which the consultant took in Vidisha district Tehsil Office. A

screen shot of on-line registraion in the same office is also shown below.

23

S.No

Department

Application

Received

Applications Disposed

within time limit

Applications Disposed

after time limit is over

Pending Applications Number of

Incomplete

Applications

Service

delivered

Service Applicat

ion Rejecte

d

Total

Service

delivered

Service Application Rejected

Total

Beyond Time limit

Whose Time limit will be over

Total

Today

In two days

In Three days

after three days

(1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (11) (12

)

(13) (14) (15) (16)

1 General Administration

201682 195658 1374 197032 888 19 907 3267 0 0 0 0 3267 476

2 Home 146 86 0 86 0 0 0 27 0 0 3 30 60 0

3 Revenue 437027 429133 542 429675 1703 16 1719 4680 0 0 2 241 4923 710

4 Transport 6915 4775 73 4848 0 0 0 2047 0 0 0 0 2047 20

5 Forest 94 34 0 34 5 1 6 26 2 0 0 4 32 22

6 Energy 131602 123398 2939 126337 597 58 655 3462 28 4 12 20 3526 1084

7 Labour 27877 20811 2581 23392 115 20 135 2837 110 7 91 604 3649 701

8 Urban

Administration and Development

18466 15443 574 16017 23 4 27 1263 113 7 89 645 2117 305

9 Rural Development

585 438 18 456 0 0 0 82 0 0 0 40 122 7

10 Tribal Welfare 385 340 19 359 0 0 0 20 1 0 0 4 25 1

11 Social Justice 133144 98665 10273 108938 467 52 519 5197 286 109 257 12564 18413 5274

12

Food, civil supplies and

consumer

Protection

68782 61487 1080 62567 263 13 276 3618 167 32 141 1137 5095 844

13 Public health engineering

10418 9917 52 9969 19 2 21 398 0 0 0 0 398 30

14 Women and child

welfare 2451 444 1 445 0 0 0 890 1 59 146 753 1849 157

Total 1039574 960629 19526 980155 4080 185 4265 27814 708 218 741 16042 45523 9631

http://lokseva.gov.in/fusr/format1b1app.asp?crypt=%CB%86%C2%BD%E2%80%9D%C2%AB%CB%9C%C2%A1%C2%A1pYv%E2%80%9E%E2%80%BA%C2%90%C2%AE%C2%BC%C5%B8%E2%80%93%60

http://lokseva.gov.in/fusr/format1b1app.asp?crypt=%CB%86%C2%BD%E2%80%9D%C2%AB%CB%9C%C2%A1%C2%A1pYw%E2%80%9E%E2%80%BA%C2%90%C2%AE%C2%BC%C5%B8%E2%80%93%60

http://lokseva.gov.in/fusr/format1b1app.asp?crypt=%CB%86%C2%BD%E2%80%9D%C2%AB%CB%9C%C2%A1%C2%A1pZr%E2%80%9E%E2%80%BA%C2%90%C2%AE%C2%BC%C5%B8%E2%80%93%60

http://lokseva.gov.in/fusr/format1b1app.asp?crypt=%CB%86%C2%BD%E2%80%9D%C2%AB%CB%9C%C2%A1%C2%A1pZu%E2%80%9E%E2%80%BA%C2%90%C2%AE%C2%BC%C5%B8%E2%80%93%60

http://lokseva.gov.in/fusr/format1b1app.asp?crypt=%CB%86%C2%BD%E2%80%9D%C2%AB%CB%9C%C2%A1%C2%A1pZw%E2%80%9E%E2%80%BA%C2%90%C2%AE%C2%BC%C5%B8%E2%80%93%60

http://lokseva.gov.in/fusr/format1b1app.asp?crypt=%CB%86%C2%BD%E2%80%9D%C2%AB%CB%9C%C2%A1%C2%A1p%5Bq%E2%80%9E%E2%80%BA%C2%90%C2%AE%C2%BC%C5%B8%E2%80%93%60

24

C. INCREASING THE COVERAGE: NUMBER OF SERVICES

In July 2011 the PSM Department intiated a process of inducing departments already covered under the Act

to include and notify more services, while asking other departments if they would like to offer any of their

services to be included under the Act.

A series of discussions with the departments followed.

7 new departments with 18 services joined in to guarantee service delivery, and of the existing 9

departments 5 decided to add on 8 more services.

In all, then, by 24th September 2011 52 services delivered by 16 Departments of the GoMP were covered by

the Act. The additions to the earlier 26 Services and 9 Departments are provided in the Table below.

25

Second Notification: Departments AND Services added under MP Guarantee of Public Service Delivery Act 2010

July 2011 1. Energy Department






1.7 Disposal of Application pertaining to Permanent Disconnection


30 working days Executive Engineer 7 working days Superintendent Engineer


30 working days Executive Engineer 7 working days Superintendent Engineer

2. Labour Department






2.4 Registration of Construction Workers Rural Areas CEO of Jila Panchayat; Urban :authorised Labour Officer; Where no Labour Officer is posted 1.Commissioner of Municipal Corporation 2. CMO of Municipality as the case may be

30 days 30 days 30 days 30 days

Sub Divisional Officer, Revenue Sub Divisional Officer, Revenue Collector Sub Divisional Officer, Revenue


District Collector District Collector Divisional Commissioner District Collector

2.5 Financial Assistance in case of permanent disability caused in construction work

Rural Areas CEO of Jila Panchayat; Urban :authorised Labour Officer; Where no Labour Officer is posted 1.Commissioner of Municipal Corporation 2. CMO of Municipality as the case may be


Sub Divisional Officer, Revenue Sub Divisional Officer, Revenue Collector Sub Divisional Officer, Revenue


District Collector District Collector Divisional Commissioner District Collector

26

4. Revenue 5. Urban Administration and Development






5.2 Fresh inclusion in BPL (below Poverty Line) List

SDO Revenue 30 days District Collector 30 days Divisional Commissioner

6. General Administration Department






6.2 Income Certificate Tehsildar/Additional Tehsildar/Naib Tehsildar

3 days SDO 7 days District Collector

10. Forest Department






4.6 Compensation for crop damage caused by wild animals

Tehsildar/ Additional Tehsildar/ Naib Tehsildar

30 days SDO, Revenue 30 days District Collector

4.7 No Objection Certificate (NOC) for Nazul land

Nazul Officer 1 month District Collector 15 days Divisional Commissioner

4.8 Solvency Certificate Tehsildar/ Addl. Tehsildar/Naib Tehsildar- up to Rs.5 lakhs SDO: up to Rs.25 lakhs District Collector: more than Rs.25 lakhs

45 days 45 days 45 days

Sub Divisional Officer (SDO) District Collector Divisional Commissioner


Divisional Commissioner Divisional Commissioner Secretary, Revenue Department






10.1 Relief for death caused by wild animals Range Officer 3 days Divisional Forest Officer/dy director/asst director of protected area/

15 days Conservator of Forests/regional director of protected area

10.2 Relief for harm/injuries caused by wild animals

Range Officer 7 days Divisional Forest Officer/dy director/asst director of protected area/

15 days Conservator of Forests/regional director of protected area

27

11. Home Department






11.1 Copy of the Post Mortem report Inspector-in-charge of the Police Station

30 days SDOP/ Suptd. Of Police (SP)- City

15 days Suptd. Of Police (SP)

11.2 Copy of the First Information Report (FIR)

Inspector-in-charge of the Police Station

1 day SDOP/SP-City 7 days SP

11.3days Renewal of Arms License before expiry date for weapons of non-prohibited bore

District Magistrate 15 days Divisional Commissioner

7 days Secretary, Home Department

11.4 Renewal of Arms license after expiry date for weapons of non-prohibited bore

District Magistrate 45 days Divisional Commissioner

15 days Secretary, Home Department

12. Public Health and Family Welfare Department






10.3

Relief for damage caused to cattle

Range Officer

30 days

Divisional Forest Officer/dy director/asst director of protected area/

30 days

Conservator of Forests/regional director of protected area

10.4 Payments in malik makbuja cases 1 In cases where wood is

received in government depot.

2 In cases of complete recovery of sale value in cases of separate lots.

Divisional Forest Officer Divisional Forest Officer

45 days 30 days

Conservator of Forests Conservator of Forests

30 days 30 days

Additional Principal Chief Conservator of Forests (Production) Additional Principal Chief Conservator of Forests (Production)

10.5 Permits to carry wood 1 Forest Range Officer for Government depot

2 Forest Range Officer for registered Dealers/producers

3 Deputy divisional forest officer for wood received from land owner.


Dy. Divisional Forest Officer D. Divisional Forest Officer Divisional Forest Officer


Divisional Forest Officer Divisional Forest Officer Conservator of Forests

28

12.1 Sanction from State fund for Financial Assistance during illness, cases upto 1.0 lakh (district level)

Chief Medical and Health Officer (CM&HO)

10 days Divisional/Joint Director of Health

15 days Commissioner of Health Services

12.2 Disability Certificate Civil Surgeon 15 days Chief Medical and Health Officer

15 days District Collector

12.3 Issue of Deen Dayal UpadhyayTreatment Scheme- Cards

a) Dist. HQ- CM&HO

b) Other than Dist. HQ- Block medical Officer

7 days 7 days

District Collector CM&HO

15 days 15 days

Divisional Commissioner District Collector

13. Farmers Welfare and Agriculture Department






13.1 Issue of License – Chemicals, Fertilizers, Pesticides and Seeds

Dy. Director of Agriculture in Dist.

30 days Divisional Jt. Director, Agriculture

15 days Director of the Department

13.2 Renewal of License- Chemicals, Fertilizers, Pesticides, and Seeds

Dy. Director of Agriculture in Dist.

30 days Divisional Jt. Director, Agriculture

15 days Director of the Department/District Collector

14. Women and Child Development Department






14.1 Laadli Lakshmi Scheme Child Development Project Officer

30 days Dist Women and Child development Officer

15 days District Collector

15. Transport Department






15.1 Issue of Learner’s License Regional Transport Officer 10 days District Collector 15 days Divisional Commissioner

15.2 Vehicle Fitness Certificate Regional Transport Officer 15 days District Collector 30 days Divisional Commissioner

16. Panchayat Raj and Rural Development Department






16.1 Fresh addition of name in the Below Tehsildar/Additional 30 days SDO Revenue 30 days Divisional Commissioner

29

Poverty Line (BPL) List Tehsildar/Naib Tehsildar

30

D. INCREASING EFFECTIVENESS:

A key insight that the PSM Department got by its inward looking analysis was that circulars related to the

delivery of services were in language that was not very clear, sometimes even to the government officers.

Interpretational flexibility led to different ways of functioning.

In an important move, the PSM Department coordinated with all the line departments and set up a series of

meetings. The PSM departments role was to ensure that everyone understood the spirit and letter of the MP

Guarantee of Public Service Delivery Act 2010 and to encourage the concerned stakeholders to come up

with revised circulars that clearly indicated, in unambiguous language, HOW A SERVICE IS TO BE

DEFINED AND DELIVERED.

The results of these long deliberations [between November 2-5, 2011] that includedOfficers of the PSM

Department, the District Managers, hired for coordination by the PSM Department, and for each

service/department 2 Designated Officers, 1 Appellate Authority, and members of the District Administration,

were clearly explicated circulars for each service that is now being brought out as a compendium for ready

reference and use.

E. COMBINING EFFICIENCY AND EFFECTIVENESS:

Realizing the inherent limitations of human and financial resources, as also that of the existing infrastrcture,

and keeping in times with the idea of Public Private Partnerships (PPP), the GoMP mulled over the

possibility of setting up Service Centres of an entirely different nature.

That there existed thousands of Common Service Centres (CSCs) that were promoted under a national

programme was a fact. But the ground reality was that, not only in Madhya Pradesh but also in many other

states, these centres which were expected to work on the principle of pay per service had become non-

functional due to economic infeasibility – the volume of business [both G2C and B2C] some how did not

materialize.

Yet again in a path breaking move, the PSM department through its Deputy Secretary, decided to expand its

sources for getting a good solution. A query was raised in the United Nations Solution Exchange Community

of Practice hosted in India. Based on a few answers that were provided, and having committed to have a

national consultation on accountability and guarantee mechanisms in public service delivery, the GoMP

proposed that Lok Sewa Kendras (Public Service Centres) be initiated on a PPP mode in 400 places in

Madhya Pradesh.

31

A draft of the Request for Proposals (RFP) was placed in the national consultations held in December 2011

and suggestions were elicited.

A revised version of the proposal was put up, and in February 2012 the Cabinet of the GoMP have cleared it

paving the way for a new era in large scale private provision of public services under the Act.

F. A SECOND ROUND OF IMPACT ANALYSIS

A second round of surveys were conducted during the period December 2011 to february 2012 in three

different phases covering different districts and by different agencies.

The salient findings are:

1. Nearly 3,500 respondents including officers were covered in this round of impact assessment.

2. Some features

SL.NO ITEM SURVEY 1

(COVERING 17

DISTRICTS)

SURVEY 2

(COVERING 16

DISTRICTS)

SURVEY 3

(COVERING 20

DISTRICTS)

1. Gender of Respondents M:71% ; F:29% M:74 ; F: 26% M:61% ; F:39%

2. Percentage Below Poverty Line

(BPL)

40% 48.9% 54%

3. Awareness 34% 70.11% 35%

Awareness on Appeals 22% 58.9% 30%

Awareness of Penalty 7% 35.6% 28%

Awareness of Compensation 4% 5.5% 8%

4. Service Delivery On Time 72% 92.29% 74%

Of which Before time 44% 24.88% 18%

After Time Limit 10% 7.72% 13%

Did Not Remember 18% 7.72% 13%

5. Who Filled the Application

Self 31% 54.72% 28%

Friends/Relatives 25% 30% NA

Touts 21% 10% 6%

6. Number of Visits

1 time 52% 33.6% 14% said 1 Visit

2 times 29% 50.6%

3 times 9% 11.82% 86% said they had to

make repeat visits > 3 times 11% 3.86%

The table indicates that awareness has increased, but not to an extent where a majority, leave alone a

significant majority, are aware. Efficiency levels (service delivery on or before time) are high and higher than

what the first survey indicated, which augurs well for the government.

That a substantive number of applicants rely on friends and relatives to fill application forms could also

possibly be linked to the high number of repeat visits. It is often incomplete forms, not enclosing all relevant

documents, etc. that necessitate recourse to error removal and may probably to multiple visits. This would

need a closer scrutiny.

G: ACCOUNTABILITY:

In a far-reaching move in December 2011 the law was amended to allow the First Appellate Authority to take

suo moto cognizance of delays or denials and authorize him/her to impose penalties. Till date about 100

cases have been taken up, with 49 Designated Officers being fined, the total sum of fines being Rs.175,000/-

5. FINDINGS AND OBSERVATIONS

32

5.b MANAGEMENT AUDIT

As mentioned in the methodology a detailed questionnaire was submitted to the client by the consultant

regarding the various stages of management and decision making and responses elicited. The filled in

questionnaire was then analysed by the consultant and further details and clarifications sought. The audit

was finalized after consultations with the client on 28th February 2012.

The consultant confirms that the details provided below in the audit table below have been verified to the

best of his knowledge and ability and all due diligence has been done to ensure that the relevant documents

that have been listed have been referred by him.

Overall, the management audit reveals that conformity to norms and standards in a major service delivery

intiative with a number of line departments and a coordinating one has been close to complete. The details

for each step and issue are listed in the table below.

Please note that a separate table containing the list of documents consulted and their references is enclosed

as 9.c -1.

An intersting feature of the combination of the evaluation and audit is that while the audit results show a very

high degree of compliance, and the impact results are mixed. This should be seen in analogous context of

financial audit: a financial compliance need not results in profits; all it can predict is books of account.

Therefore, the significant feature that needs to be really appreciated in the implementation of the MP

Guarantee of Public Service delivery Act 2010 is that the GoMP has not gone by compliance of procedures

alone, but has striven for efficiency, effectiveness and above all transparency and awareness. This is highly

commendable.

33

MANAGEMENT AUDIT – MATRIX

34

Management Audit

Intended use of this

checklist

The purpose of this audit is to determine if due processes have been followed in the formulation and implementation of the MP Guarantee of Public Service Delivery Act 2010. This questionnaire has been adapted from a checklist prepared based on ISO standards

Definition of Categories

C = Compliant, N = Non-compliant, X = Not applicable

Auditor(s)

Prof. B Muralidharan, Advisor, Centre for Organization Development

Proposal

Number S.No.SGPA/Dir./161/2012/1876

Client

School of Good Governance and Policy Analysis,

Government of Madhya Pradesh, Bhopal Date

2 February 2012

Auditee(s):

Name & Surname Mr. Iqbal Singh Bains Function

Principal Secretary, Public

Service Management Dept.

Gov. of MP

Name & Surname Mr. Manohar Dubey Function

Deputy Secretary, Public

Service Management

Department, Gov of MP

35

Table of contents 1. Characteristics of Formulation and Implementation of the Act 36 2. Quality in Management Process 37 3. Strategic Processes 38 4. Interdependency management processes 40 5. Initiation and Plan Development 41 6. Interaction Management 42 7. Change Management 43 8. Scope-related processes 44 9. Concept Development 45 10. Scope Development and Control 46 11. Activity Definition 47 12. Activity Control 48 13. Time-related processes 49 14. Schedule Control 50 15. Cost-related processes 51 16. Cost Estimation 52 17. Budgeting 53 18. Cost Control 54 19. Resource-related processes 55 20. Resource Planning 56 21. Resource Control 57 22. Definition of Organizational Structure 58 23. Staff Allocation 59 24. Team Development 60 25. Communication Planning 61 26. Information Management 62 27. Communication Control 63 28. Risk-related processes- identification 64 29. Risk Assessment 65 30. Risk Control 66 31: Purchase-related processes- Planning and Control 67 32. Documentation of requirements 68 33. Evaluation of sub-contractors 69 34. Sub-contracting 70 35. Contract Control 71 36. Learning from the implementation of the Act 72

36

Sl. No. 1: Characteristics of Formulation and Implementation of the Act

Checklist Questionnaire Document Identification Docume

nt

Result

[C/N/X]

Implementation/ Observation/

Comments

Findings

1. Do Management Processes exist for planning, organizing, monitoring and controlling all aspects of the project?

1. Rules; 2. Instructions 3. Circulars reg. notice boards and awareness 4. Monitoring Software 5. Establishment of a separate department- Public Service Management

C

The Rules and Instructions set out the details of P/O//M/C aspects of how the Notified Services under the act should be delivered

From the Act, Rules, Instructions and Circulars it is clear that all aspects of the Planning, Organizing, Monitoring and Controlling have been addressed

2. Is there an organisation that decides to register/ undertake implementation of the Act and then assign the same to a team/ organisation?

1. Government Order from General Administration Department on the Act and 2. Government Order on the creation of the Public Service Management Department

C

While the Act was promulgated and was initially managed by the General Administration Department, the new Public Service Management Department was created to both signify the importance of the guarantees in public service delivery and for better planning, monitoring and control

The creation of the new department has given 1. A special importance to guarantees; 2. Better coordination with all departments; 3. Better planning, monitoring and control

3. Is implementation of the Act divided into sub-processes/ phases?

1.Act, 2.Rules, 3. Instructions, 4. Circulars

C The four documents together clearly state the sub-processes beginning with application for a service and ending with service delivery/ or addressing a grievance

Clear demarcation of sub-processes with timelines available for each service

4. Is there an organisation responsible for monitoring the realization of the sub-process/ phase objectives and related risks?

1. Government Order regarding the creation of the Public Service Management (PSM) Department

C Clear responsibility laid down The PSM Department is clearly mandated to monitor the realization of the sub-processes,/phase objectives and related risks

37

Sl. No. 2: Quality in Management Processes

Checklist Questionnaire Document

Identification

Document

Result

[C/N/X]


Comments

Findings

1. Which management processes exist

(documented or not) within the organisation e.g. cost, resource & time related processes

1. Documents related to budget, 2. Infrastructure, 3. Dash-board and time monitor charts for services

C

The processes are in place and being implemented

Process implementation has suggested that to ensure guarantee, the Government of Madhya Pradesh needs to provide additional resources for computers and/or Service Centres. A PPP Plan has recently been approved by the Government.

2. Do Management guidelines and processes exist with the organisation/ project organisation to ensure quality?

1. Circulars reg. 52 services 2. Documents on How To Deliver on Time; esp. revised Circulars

C

Quality = Transparency, and Timeliness as of now

In a limited context quality exists. The challenge will be when more services – such as the mid-day meal – are covered under the Act.

38

Sl. No. 3: Strategic processes


Identification

Docu

ment

Result

[C/N/X

]


Comments

Findings

1. Have citizen and stakeholders needs been clearly understood to ensure that all processes focus meeting their needs?

1. Notes regarding Lok Sewa Week; 2. Survey in July 2011; 3. Digital Notarization Note

C

Citizen and Stakeholders (including Elected Representatives of Local Self Governments) have been contacted and views collected.

There has been adequate understanding amongst government staff; understanding of other stakeholders needs to improve through awareness campaigns

2. Has/ is the formulation and implementation of the Act carried out as a set of planned and Interdependent processes?

1. Instructions; 2. Circular on Coordination mechanism; 3. Feedback based on monitoring by PSM Department; 4. Creation of 52 New Circulars for the notified services

C All departments that need to provide the services have planned and linked the inter-dependent processes.

The important part of the planning of inter-dependent processes resulted in the re-drafting of circulars related to the implementation of each of the 52 Notified services in February 2012.

3. Is the clear division of responsibility versus authority between the originating department, other departments/agencies, citizens and stakeholders?

1. Rules and 2. Instructions; 3. Notice Boards

C The Rules to the Act and Instructions adequately state that the responsibility to deliver on time vest with the respective departments and the Authority to monitor, elicit feedback and suggest improvements vests with the PSM department. The Notice Boards adequately lay down the responsibility of the citizens [eg. The Notice Boards state what documents should be attached for each application

Adequate provisions made

4. Do progress evaluations exist? If so what do they evaluate?

1. July 2010 Survey report; 2. January 2011- Survey Report

C In July 2011, progress on implementation of the Act was initiated through a survey by the Jan Abhiyan Parishad; in 2011-12 3 different agencies carried out another Survey.

Evaluation of 1. Awareness of the Act; 2. Awareness of provisions for appeal; 3. Receipt of Acknowledgement Receipt; 4. On-time Delivery of Services

39

5. J Do quality attributes exist within the Management Process? E.g. approvals, documentation, preventative & corrective action, reviews, traceability, training, verification, etc

1. All aspects of the implementation have to be recorded according to standard government rules. 2. Training is documented

C For each of the services, government rules dictate that all processes related to approvals, preventive & corrective action, reviews, traceability (through codes), verification be clearly documented and preserved.

Adequately provided for

6. Have management provided an organisational structure that is a conducive means to support the objectives?

1. Creation of PSM department for oversight; 2. Creation of posts of District Managers; 3. Proposed delivery of services through PPP

C Given the circumstances, management has taken more than adequate action to provide a structure that supports the objectives of the Act

Continuous improvements through innovations [including the appointment of District Managers and the Proposed Lok Sewa Kendras through PPPs] have proven that actions taken by the government have the realization of the objectives in mind

7. Does management make decisions based on data and factual information?

1. MIS 2. Survey Results [see Sl. No. 4 above]

C Yes. Management is continuously making efforts to get factual information and analyses

To an amazing degree the Government has accepted data that do not show it in a very positive light [for instance on Awareness levels of the Penalty provisions] and acted on the same

8. Has a Manager been appointed and defined with accountability, authority and responsibility for managing the project?

1. Government Order C Principal Secretary, PSM Department appointed with defined accountability, authority and responsibility as per the Business Rules

Clarity exists without any scope for confusing or conflicting signals even though several departments and services are involved.

9. Has a system been put in place to collect and analyse the information gained during implementation and/or after a implementation of a sub-project for use in a continual improvement process?

MIS for MP Lok Sewa Guarantee: http://lokseva.gov.in

C An elaborate system has been put in place to collect, analyse information from the implementation of the Act

Proposed Lok Sewa Kendras through the PPP mode an indication of the attempts in continuous process improvement

10. Have provisions been made for self-assessments or internal audits?

1. Reports of PSM Department 2. Surveys

C Periodic Assessments and surveys carried out

Adequate assessments and audits have been carried out; results from the same are acted upon, as in the case of revision of circulars related to 52 services

http://lokseva.gov.in/

40

Sl. No. 4: Interdependency Management Processes


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Who is responsible for managing all of the interdependencies amongst the implementation processes?

1. Government Order on creation of PSM department

C PSM Department Individual services thus far require interdependencies to be managed only within departments, not amongst. Complex services involving multi-departmental coordination will throw up its challenges if guaranteed later.

41

Sl. No. 5: Initiation and plan development


Identification

Document

Result

[C/N/X]

Implementation/ Observation/ Comments Findings

1. H Has a plan been prepared to allow for traceability (measuring and assessing objectives/ deliverables? If not, is there an alternative means of traceability?

1. Rules and Notifications [for standards]; 2. MIS for traceability

C The implementation plan has kept in mind that at least 3 factors are traceable: 1. Transparency, including levels of awareness; 2. Accountability [designated officer for ech service; provision to appeal against if service delayed or denied] and 3. Timeliness [applications acknowledged, services delivered on time; delayed, etc.]

The traceability is quite exhaustive; the only areas of weakness could be awareness and acknowledgement receipts for applications

2. Does the Plan consist of a Quality Plan/ Quality approach?

NA X Undoubtedly the listing of services, accountability and timelines indicated a quality approach.

A Quality approach to the extent of delivery of defined/notified service within stipulated time. Not as yet in terms of service levels: for e.g. Uninterrupted electricity supply

3. Are reviews and progress evaluations included in the Project Plan? If so do these reviews include preventive/ corrective action measures?

1. MIS C The MIS provides a mechanism of alerts for preventive action and also data for corrective action.

A red in the dashboard is indicative of corrective action and alerts in amber/yellow indicate immediate attention for ensuring timely delivery

4. What project interfaces exist? Are they identified in the Project Plan and how are they managed? E.g. liaison with customer/ stakeholders – reporting lines – functions within the project organization.

1. Business Rules; 2. Rules

C The Business Rules and the implementation Plan of the PSM department clearly indicate interfaces between PSM and other departments. The Rules to the Act indicate how citizens are to carry out their interactions with Designated Officers, 1st and 2nd Appellate Authorities

Clarity is sufficient

42

Sl. No. 6: Interaction Management


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Over and above the project organisation, does the project consist of project interaction teams? E.g. risk management teams, measuring project performance, project communication.

Revised Circulars

C 52 Circulars revised through project interaction teams consisting of PSM Department representatives, District managers, Designated Officers, Appellate Authorities, representatives of District Administration and selected Senior Officers

An extremely well planned and welcome initiative to remove all jargon, eliminate ambiguous language and redundancies, and explain the service delivery process clearly for each of the 52 notified services

43

Sl. No. 7: Change Management


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Does the project consist of a Change Management approach/ process?

1. Reviews by Top Executive Management led by the Chief Minister

C Reviews done at the top Political level. Amendments to the Act, Service Delivery on a PPP mode, changes in circulars etc.

Exceeds expectations, as implementation of similar Acts across the country are not so effectively followed up.

44

Sl. No. 8: Scope related process


Identification

Document

Result

[C/N/X]


Comments

Findings

1. How are the citizen/customer requirements translated into activities to ensure project objectives are achieved?

1. Notification of Services; 2. Notice Board details and 3. Circulars reg. each of the Notified Services

C Translation of objectives into a series of activities carried out by clearly demarcating the requirements and through circulars [pl also see 6.1 above]

Sufficient mechanisms exist for translation of objectives into activities to be performed.

45

Sl. No. 9: Concept Development


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Have the citizen/customer‟s requirements for both product and processes (expressed and implied) been translated into documented requirements?

1. Act and 2. Notifications

C Transparency, Accountability and Time limits have been clearly translated into documented requirements

This has indeed been the path-breaking aspect of the Act and its implementation

46

Sl. No. 10: Scope Development and Control


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Has a scope been developed? 1. Rules; 2.

Notifications; 3. Circulars

C The scope of the implementation of the Act is defined by the rules and is restricted to those services which are notified from time to time.

The scope is flexible as is witnessed by the expansion of the number of services covered under the Act from 26 in 2010 to 52 in 2012

2. Is there supporting evidence of alternative approaches and solutions?

1. Citizens Charters

X Citizens Charters attempted in the 1990s and early-2000s

Failure of the same resulted in the pioneering MP Public Service Guarantee Act [Please see evaluation Report for further details]

47

Sl. No. 11: Activity Definition


Identification

Document

Result

[C/N/X]


Comments

Findings

1. In the definition of activities, has the department involved the personnel who are responsible for carrying out the activities?

1. Act 2. Rules and 3. Notifications

C This is one of the main aims of the act and its Implementation

The interesting part of the Act is that it mandates the definition of service and entails that respective departments detail the activities to carry them out in a relatively sufficient detail.

2. Have the activities been defined in such a way that its outputs are measurable?

Notifications C Measurement in terms of delivery on time is the crucial element

In ensuring clarity in the Act, Rules and instructions have had to be made that for each activity too the output is measurable: for instance in acceptance of application, the necessary out put has to be an acknowledgement receipt; notice boards [with details clearly defined] have to be displayed in service centres.

48

Sl. No. 12: Activity Control


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Are the activities defined, carried out in accordance to the project plan?

MIS C The MIS provides the definition of services and if carried according to plan

Indeed deviations in actual implementation have been captured and used for continuous improvement of the process

2. Have reviews been planned on the activities?

NA X At each level beginning with the designated officers, reviews are regularly carried out

Reviews, especially on non-conformity to norms stipulated under the act, Rules and Notifications have helped in streamlining service delivery

3. Are variations from the defined activities being updated on the Implementation Plan?

NA X Variations from the Plan are being updated and acted upon

A classic case is where even though services had been delayed, no appeals had come forth. The Government amended the Act to ensure suo-moto beginning of the Appeal process in case of delays.

49

Sl. No.13: Time-related processes


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Does a time-related process exist to determine the dependencies and duration of activities to ensure timely completion of work/delivery of services?

Revised Circulars on 52 Services

C Since in the initial stages of implementation there were ambiguities, the PSM department facilitated the meetings of all departments and all 52 services now have detailed circulars that process and time related inter-dependencies are mapped and followed.

This is a significant achievement, as it will further strengthen the time-related processes when new services are notified.

50

Sl. No. 14: Schedule control


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Changes that affect the objectives - does the customer/ stakeholder agree to these before implementation?

NA X No changes in objectives have been attempted thus far.

Not Applicable

2. How often is the schedule revised? NA X Not Applicable as answer to Sl.

No. 1 is No Not Applicable

51

Sl. No. 15: Cost-related processes


Identification

Document

Result

[C/N/X]


Comments

Findings

1. How are the project costs managed to ensure that the implementation is completed within the original budget constraints?

Coordination Budget costs

C Please note that different department costs are budgeted for and controlled through regular government control mechanisms. The PSM department ensures through its internal control that coordination costs are managed through its internal control

In a Government context cost controls are severe. Generally there is no cost escalation.

52

Sl. No. 16: Cost estimation


Identification

Document

Result

[C/N/X]


Comments

Findings

These relate only to the Coordinating Department: Public Service Management Department

1 Have project costs been clearly identified and documented? If so, by whom?

Budget Documents

C Departments of Finance and PSM have done this

2 Have the project costs been linked to the activity definition process?

Budget Documents

C Yes; those related to the department of PSM

3 Has the project cost estimation involved significant cost related risk? If so how are these managed?

1. Budget Documents including revisions and re-appropriations

C One of the risks was that the cost demands of guarantee would exceed projected costs. These have been managed through revised project basis and re-appropriations/revisions

The interesting aspect of the management of costs, was the rapid re-assessment based on needs and decisions regarding revisions. The cost to the Government of Madhya Pradesh will be minimal as a PPP route through user fee is being adopted

4 Has the project budget been established based on the project cost estimation process and is it in accordance with the approved accounting procedures within the organisation?

Budget Documents

C Yes. Standard operating procedures of the Government of Madhya Pradesh followed.

53

Sl. No. 17: Budgeting


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Is the project budget consistent with the project requirements, assumptions, risks and contingencies? Is this documented?

PSM Department Documents

C The budget requirements are continually refined. New requirements are put up to the Cabinet of Ministers for Approval

In compliance with the Government of Madhya Pradesh‟s standard operating procedures [See section below]

54

Sl. No. 18: Cost Control


Identification

Document

Result

[C/N/X]


Comments

Findings

1. What is the process for project purchasing/ expenditure requirements?

1. Government Budget and Expenditure Rules; 2. Procurement Procedures

C These are part of the standard government operating procedure

2. Has this process been documented and communicated to those responsible for authorizing expenditure or authorizing work that may have cost implications?

1. Procurement Procedures


3. Are project expenditure records reviewed, managed and maintained?

Periodic Reviews [quarterly/bi-annual/annual]


4. Are the root causes for budget variances, both favourable and unfavourable identified? If so, is this part of a project budget review?

Periodic budget reviews

C Root causes had suggested that to implement all aspects of the guarantee costs, if absorbed by government, would escalate

As escalation of costs was not considered a good solution, a PPP mode through user fee has been adopted.

55

Sl. No. 19: Resource-related processes


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Has resource planning and control been applied on the project?

Proposal for introducing Lok Sewa Kendras

C Yes It is a broad-based resource planning and control exercise. Inadequate capacity has resulted in the PSM Department proposing and the Cabinet of Ministers approving a proposal to utilize limited monetary resources to procure services through the PPP route and user charges in about 400 centres. Project in design stage; tenders yet to be floated seeking Request for Proposals from vendors

56

Sl. No. 20: Resource planning


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Does a resource plan exist for the project?

1. PSM Budget; 2. Draft RFP for Lok Sewa Kendras through PPP

C Yes A broad resource plan is in place. Details are being worked out on Sl. No.2 on Lok Sewa Kendras

57

Sl. No. 21: Resource control


Identification

Document

Result

[C/N/X]


Comments

Findings

1. How does the project ensure that resources are sufficient to meet the project objectives?

Project Note for Lok Sewa Kendras

C The new initiative on Lok Sewa Kendras came up because of the need to utilize resources as also raise some through user charges

By combining government resources with user fees the Government of Madhya Pradesh plan to meet the objectives of the Act more efficiently

58

Sl. No. 22: Definition of organisational structure


Identification

Docum

ent

Result

[C/N/X]

Implementation/ Observation/ Comments Findings

1. Has an organisational structure been established?

G.O. s related to the Creation of the PSM Department

C Please note that the organization structure thus created newly is only for coordination and monitoring & review purposes. Individual departments already had a structure in place as the services are not new

PSM Department with a structure created to monitor, review and guide changes

2. Is the organisational structure encouraging for communication and co-operation between the participants?

NA X Yes. As can be seen, for example, from the communication and cooperation of nearly a dozen departments on the reformulation of services related to 52 services

Results till now are very encouraging vis-à-vis communication and cooperation between the PSM and Line departments

3. Is the organisational structure appropriate for scope, size and local conditions?

NA X Yes As actual service delivery vests with line department, the structure of a lean department for communication and coordination is appropriate

4. Does the organisational structure identify customer/ stakeholders?

NA X Yes. 1. Citizens 2. Line departments that deliver service 3. In the future vendors contracted under the PPP model

5. Are accountability, authority, responsibility and job descriptions defined and documented?

Business Rules

C 1. The accountability is for coordination and review 2. Authority to streamline and suggest changes 3. Responsibility for meeting objectives and suggesting improvements 4. Job Description defined in the Business Rules

6. H How often is the organisational structure reviewed for validity and adequacy?

Related to PSM Structure and Proposal for LSKs on PPP Model

C Where the structure does not augur efficiency the PSM department has suggested changes and the same is acted upon.

59

Sl. No. 23: Staff allocation


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Was selection criteria prepared for staff allocation?

1. G.O.s relating to appointment of Principal Secretary and Under Secretary; 2.Demi-Orders relating to hiring of District Managers

C Due process followed Compliant with government rules related to selection and transfer of permanent government servants and hire of project based staff [District managers]

2. Has education, knowledge and experience been accounted for allocation of project staff?

Recruitment Papers for hiring of District Managers

C Compliant Education and experience have both been given due weightage; about half are retired, qualified public servants; the other half are post-graduates in management with experience of projects management.

3. Has the manager been involved in the appointment of key team members?

NA X It was under the authority of the Principal Secretary, PSM Department that the qualification and other guidelines were issued. The actual appointments are with his consent

60

Sl. No. 24: Team Development


Identification

Document

Result

[C/N/X]


Comments

Findings

Relates only to PSM Department

1. Is the team being recognized and rewarded?

Various C There are various documents to suggest that the Team is being recognized. In government rewards are a difficult proposition. However a proposal has been mooted to reward the best performing Designated Officers.

2. Does the environment encourage excellence, good working relationships, trust, respect and open communication?

Various C The communication between PSM and various line departments and especially the line departments positive response and decisions to rework circulars is a classic example of good working relationships.

61

Sl. No. 25: Communication Planning


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Does the plan consist of a communication plan?

1. MIS; 2. Circulars/Orders on Lok Sewa Week

C Basic communication on new initiatives [like Digital Notarizing, RFP for Lok Sewa Kndras, etc and compliance or otherwise to the Act and Notifications is through the MIS. The Lok Sewa Week for creating awareness on all aspects of the Act and its implementation are through specific circulars and feedback mechanisms

A god solid system exists for inter-departmental and external communication

2. What media is being used to transmit communiqués?

NA X Electronic, paper, face-to-face meetings; popular medium such as folk songs and plays

An assortment of media is used. In keeping with the need to reach even the illiterate, the government has used oral tradition as well

3. How often are communiqués transmitted? NA X As required Frequently as required

4. Do „Progress Reports‟ form part of the communiqués?

1. MIS; 2. feedback from Lok Sewa Week

C Complied with The progress reports reviewed by the top political executive is perceived to be one of the driving forces for continuous improvement

62

Sl. No. 26: Information Management


Identification

Document

Result

[C/N/X]


Comments

Findings

1. How does the department manage the following:

Preparing

Collecting

Classifying

Distributing

Filing

Updating and

Retrieving information

1. Software created by MP NIC

C A special software was created by NIC Madhya Pradesh for collection, classification, distribution (with different levels of officers given access to different layers of data], on-line filing & updating, and retrieval

The system is reasonably robust

2. Do meetings consist of meeting agendas? 1. Agenda

papers C All meetings are called for with

specific agenda; meetings are minuted.

Interestingly the meetings at the highest level is for strategic choices [government or private service providers], and at the operational level for systemic improvements [revision of circulars; introduction of computers; improvement of MIS software, etc]

63

Sl. No. 27: Communication Control


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Is the communication plan monitored and reviewed to ensure it continues to meet the needs of the project?

1. Communiques of the PSM department

C This is standard operating procedure. Complied with.

64

Sl. No. 28: Risk-related processes - identification


Identification

Document

Result

[C/N/X]


Comments

Findings

1. How often are risks identified? NA X Based on needs and results of

surveys and reviews It is extraordinary that risks related to lack of awareness and Appeals were not only identified in an impartial manner but acted upon.

2. How are these risks managed? 1. Decision

based on reviews/surveys; 2. Amendment to the Act

C Both legislative and executive action have been taken to manage risks

The findings include the new thrust on communication through the Lok Sewa Week and suo moto resort to Appeals, as amended in the Act

65

Sl. No. 29: Risk Assessment


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Is probability of the occurrence and impact of the identified risk assessed?

1. Decisions based on risk assessment

C The risk assessed is subjective: for instance, how many applicants do not receive acknowledgement receipts; statistical data, however, do exist on risks related to, infrastructure – computers-, for instance

The government in general, and the department in particular, are constantly assessing risks of failure. The implementation of the Act is a top priority of the Chief Minister and his Cabinet, and that gives an added sense of urgency

2. What techniques are being used in the project to prioritise, manage and record the identified risks and their resolutions?

1. Reviews of the PSM department

C Rules of thumb are used, the most important one being that elimination of risks associated with end-user satisfaction [delivery on time] being the most important, followed by other elements

Prioritization and management of risks have been pragmatic

66

Sl. No. 30: Risk Control


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Does the project plan consist of a contingency plan?

1. Documents related to Lok Sewa Kendras

C Broad plan does exist; continuous feed back on the micro aspects are bein fed from the field; for example, on Digitization of Notary

A consistent pattern has emerged in the identification of risks and contingency plans; advance contingency plans are broad as there is a wide variation in field realities..

2. Do risks form part of project progress reports?

1. Review reports to the Chief Minister

C Yes. Periodic reports to the Head of the Government form part of the risk control process.

67

Sl No. 31: Purchase-related processes - Planning and Control

Checklist Questionnaire Document Identification Document

Result

[C/N/X]

Implementation/

Observation/ Comments

Findings

1. Does the plan consist of a procurement / purchasing process?

1. Documents related to acquisition of manpower, computers and software, related infrastucture

C Standard operating Procedure (SoP) followed

2. Does the process cover internal and external acquisitions?

1. Documents related to acquisition of computers and software, and related infrastructure; 2. Documents related to RFP for Lok Sewa Kendras 3. Proceedings of the National Consultation on Guarantee of Public Services

C Standard operating procedure

In the case of external acquisitions, it is to be highlighted, that the PSM Department found it worthwhile to seek expert inputs through a national consultation

3. Does the organisational structure identify the interfaces with sub-contractors?

1. SoPs on procurement and 2. RFP for Lok Sewa Kendras

C Detailed interfaces are provided in the SoPs and RFPs

4. Has purchasing/ procurement been reviewed?

1. Documents on internal procurement C The department regularly reviews the status of those items of purchase that are procured.

68

Sl. No. 32: Documentation of requirements


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Does purchasing documentation exist for the implementation of the Act?

NA X

The purchasing documents for the implementation of the Act will necessarily be scattered as services-related purchase could occur in line departments. However, SoPs are followed

2. Have the citizen/customer requirements been included in the purchasing/ procurement documents?

1. RFP for Lok Sewa Kendras

C Yes, the RFP for Lok Sewa Kendras clearly state the requirements of applicants that the vendors have to cater to

The new model of service delivery through the Lok Sewa Kendras on a PPP mode is more citizen-centric than standard government delivered services. However, arguably, the caveat is the user fee.

3. Do the purchasing documents go through a review process to ensure that all requirements are completely specified?

1. National Consultation 2. Internal Reviews

C The RFP for procurement of vendors has gone through an external consultation and an internal review. Regular pruchases go through an internal SoP.

69

Sl. No. 33: Evaluation of sub-contractors


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Have sub-contractors been evaluated that may impact on the project? . E.g. technical experience, delivery times, quality system and financial stability.

NA X

The use of sub-contractors on a PPP mode is yet to be put in practice

Not applicable in any substantive way at the time of the audit

70

Sl. No. 34: Sub-contracting


Identification

Document

Result

[C/N/X]


Comments

Findings

1. How does the department manage project-relevant information being supplied to subcontractors?

NA X

Not yet relevant or applicable Not Applicable at the time of audit

2. How are subcontractor tenders evaluated?

1. SoP C

The evaluation id done through a committee consisting of technical experts in the respective fields and a financial expert. This is as per SoP. Not yet applicable as Tenders are yet to be floated

Not Applicable at the time of audit

71

Sl. No. 35: Contract control


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Does the work consist of a process to ensure that all contract requirements, due dates and records are met?

1. Documents related to purchases and hiring

C Reviews are carried out as per milestones specified in each of these contracts

Adequate control over the processes

2. How often are the contracts verified to ensure the performance of each subcontractor meets the contract requirements?

NA X

Pending the hire of sub-contractors, not applicable

Not applicable at the time of the audit

3. Are all contracts, prior to project closure, verified and updated?

1. Documents related to purchases and hiring

C Records related to each procurement of harware and personnel available with the department

Adequate control over the processes

72

SL. No. 36: Learning from the Implementation of the Act


Identification

Document

Result

[C/N/X]


Comments

Findings

1. Does the originating organisation collate, store, update and retrieve information from the implementation of the Act?

MIS: http://lokseva.gov.in

C On a regular basis data is being collected, collated, analysed and used for action. At the state level access to different intiatives in different districts allows comparative analyses.

The dashboard for immediate action at different levels of accountability and analyses and follow-up action are remarkable

2. Are reviews performed of performance, highlighting experience from the implementation and is the citizen/customer involved?

1. Various documents

C Experience is constantly being distilled and performance reviewed. As of now the citizen is involved only in an indirect fashion: as an input provider during surveys; not as an assessor of performance

Adequate internal reviews and learning; lack of Social Audit involving citizens



73

6. CONCLUSIONS

6.1 The study began with a set of criteria for evaluation, outlined in the attached Terms of Reference.

6.2 Set out below are the conclusions from the Findings and observations state above in detail in Section 5

of this report

6.3 RELEVANCE OF THE ACT:

The Act is a very, very relevant one for the reason that it addresses some of the needs of the citizen.

Providing guarantee of service in areas such as inclusion in the Below Poverty Line, various pensions

(disabled, old age, widow), compensation in case of death/physical harm, etc affect the poorest of the

poor in a positive manner. Issues such as Income certificates, driver‟s license, copy of land record,

electricity and water connection affect the lower and middle classes. It is also the case that increasingly,

as people rise out of poverty, they will need these services to ensure that they do not slip back into

poverty. The odd one out appears to be the case of arms license; however, this have a salutory effect on

the law and order situation of a district, even though this author is not quite sure of its relevance in anti-

poverty, human-rights based services.

6.4 TRANSPARENCY, ACCOUNTABILITY AND TIMELINESS:

Of the three areas the strongest is Timeliness with a significant majority, 99% according to data from the

MIS, and about 80% according to sample surveys, suggesting that services are being rendered on time.

The efforts of the government on the issue of transparency are commendable. This is going to be a

tough area as government efforts may alone not suffice. Increasing awareness should lead to a feeling

of empowerment; this may take time and may also need the support of civil society actors who appear to

be conspicuous by their miniscule presence in ensuring such a rights-based Act gets implemented in

letter and spirit. The third dimension of Accountability defies common intuition; one would expect that a

number of those applicants whose services have been denied or delayed would take up cudgels against

the erring officers. However, a counter-intuitive reason could go as follows – as evidenced by the

consultant in states other than Madhya Pradesh: it is indeed a great relief that the Act has brought in

accountability to deliver service; people are willing to condone delays in the context of greater

transparency and guarantee. It also is a great relief that arbitrary denial is now almost unheard; rejection

of application (for various reasons – incomplete application, lack of supporting documents, etc) is a

significantly large proportion of those who have not got their services, NOT DENIAL OF SERVICE per

se. And put together – rejection of application and denial of service – is a miniscule proportion of the total

number of applicants who have had their services rendered.

6.5 Impact of the implementation of the Act on EFFICIENCY and ADMINISTRATIVE REFORMS:

As discussed in detail in the Section 5.a on evaluation, not only efficiency but effectiveness has also

gone up in the administration with regard to the delivery of the notified services. That more departments

have come under the banner of the Act goes to prove that more sections of the government are willing to

test their efficiency against the stringent norms set out by the Act and Rules. Change in the way

departments deal with service delivery – as for instance the new circulars clearly explicating the details

of service and how they should be delivered – will go a long way in improving administration‟s efficiency.

As the Lok Sewa Kendras are yet to be put in place through the PPP mode, it is premature to conclude if

Administrative Reforms would take a broader and different route successfully; this only the future can

tell.

6.6 IMPACT ON CITIZENS AND GOVERNMENT STAFF:

As the impact survey results show, while service delivery has improved – a signal change for citizens,

there is good scope to further increase impact through better awareness- an awareness that can

empower citizens. The staff overall have been happy and believe that they can achieve what had not

been done in the past – guarantee services, even if they are the risk of incurring penalties. These came

through in the interviews the consultant conducted and in the details of the surveys, especially in Phase

– II.

74

6.7 SUSTAINABILITY:

All services notified thus far have to be delivered by the government or on its behalf by a third party.

Given the successful implementation at a minimal cost, and the new plan to utilize a PPP mode and user

fee there is hardly any doubt that this Act and its implementation will be sustainable.

6.8 OVERALL IMPACT ON GOVERNANCE:

The Overall impact on the governance scenario in the state is considerable. The fact that the top political

executive and the bureucracy of the state take interest in the results of this Act and its implementation

has sent signals that reformed governance is both a politically useful idea as also an image changer for

the bureaucracy.

A vast potential exists in the new concept of Lok Sewa Kendras. Earlier attempts at such kind of service

provision were largely project-centric, or economic service-centric (payment of electricity or telephone

bills, etc)- not service centric. If executed well, this may well be a game changer in service provision in

the state and possibly in the country.

The overall impact of the MP Guarantee of Public service Delivery Act and its implementation has been

truly path-breaking. In arguably the most unprecendented way in India state after state has followed suit

in passing legislation – albeit with different names and different notified services. There are, at last count,

11 states [including Madhya Pradesh – which have already legislated and at least 3 more that are on the

verge of passing similar legislation.

From the consultants discussions with different state governments it is apparent that a health

competition has been set by the Government of Madhya Pradesh. Current debates in the development

sector in this particular area revolve around which state has the best Act?; the best set of services?;

maximum number of services?; who has the best software to monitor and review progress? Etc.

It is also noteworthy that the Government of Madhya Pradesh took the first intiative, with support from

UNDP India, to organize a national consultation. In addition, they not only participated but actively

shared their experiences – good and indifferent – in a civil society organized Seminar on Right to Public

Services [quoted above in Section 2] for participants from other states to decide how they may want to

proceed.

But for the unforseen Force Majure, it will be more than reasonable to expect a changed face of public

service delivery in this country in the coming years.

75

7. RECOMMENDATIONS

7.1 ON TRANSPARENCY:

It will be premature to stop the concerted efforts of the GoMP. GoMP should find ways and means of engaging the Local Self Governments and Civil

Society – especially some of the voluntary associations – to continue spread awareness not only of the Act but also of a rights-based approach to

governance.

7.2 ON EFFICIENCY:

Greater use of ICT – either through its own offices or through the PPP mode – will increase efficiency and transparency of operations. On line

applications not only serve to reduce the physical interface between the citizen and government staff – and therefore increasing the possibility of rent

seekers and touts – it also reduces the cost even to a poor citizen. A recent example in a single block of a neighbouring state is worth emulating: due to

a sustained campaign even poor people are applying now on-line through the internet by using common service centres (CSCs). The payment to the CSC

is a pittance compared to transport costs! The concept of Digital Notarization has great potential and should be implemented at the earliest. This is a

potential candidate for replication by other states.

7.3 ACCOUNTABILITY:

The current thrust is excessively focused on the penal provisions. A reward scheme, as is provided by a similar Act in the state of Delhi, would go a long

way in promoting a more balanced management approach to guarantees.

7.4 CAPACITY BUILDING:

A strong focus on the Act and its features, as also on the specific aspects of individual services, has enabled the GoMP to develop and deliver specialized

training to vast numbers of people [close to about 10,000 as gleaned from the website http//:loksewa.gov.in]. This, however, is only a necessary

condition for good service delivery. To complete the picture and ensure sufficient conditions are met, continuous training and action research need to

be conducted by GoMP on a „Culture for Excellence in Service Delivery. This should be one of the government‟s immediate prior ities.

7.5 LOK SEWA KENDRAS:

It would be ideal for GoMP to document from the beginning the entire process – from the conception to the delivery stage – of this mode of service

delivery. It can provide useful lessons to all.

7.6 REACHING THE UNREACHED;

An idea shared, although unofficially, is worth taking up with all resources. This is one where all that an applicant needs to do is walk up to the service

delivery counter and state the details. The details will be captured in a computer (voice and/or data) through an operator, application accepted and

acknowledgement generated. In a context where many citizens are still illiterate, this idea if put to practice will eliminate a lot of asymmetry in the

power equation between the citizen and the state.

76

8. A NOTE ON INCLUSION AND RIGHT TO SERVICES

The concept of guarantee of public services immediately brings to the fore if all sections of society are included.

As reflected in the choice of notified services, the MP Guarantee of Public Service delivery Act 2010 covers a lot of ground.

As mentioned elsewhere, many services are explicitly targeted at the weaker sections and it bodes well for inclusion.

The principal caveat to inclusion and right to services, not only in Madhya Pradesh but also in the country, is that while guarantees of the nature

provided under this, and similar Acts, are successful, it still leaves out complicated services on essential services in education and health.

It would be worthwhile for the GoMP to look into this aspect of inclusiveness as part of its guarantees in public service delivery.

77

9. ANNEXURES

78

Title of the Study: Evaluation and Management Audit of the Madhya Pradesh Lok Sewaon Ke Pradan Ki Guarantee Adhiniyam, 2010 (Madhya Pradesh Guarantee of Public Service Delivery Act, 2010).

1. Evaluation Purpose:

1.1. The Government of Madhya Pradesh, after about 15 months of implementation of the above Act, desires an independent evaluation of the implementation of the Act.

1.2. This evaluation of the Act and its implementation is to get an independent view of the promulgation of the Act, the services rendered, and their relevance. This independent evaluation is deemed necessary at this point of time, as the Government of Madhya Pradesh desires to know the impact and introduce changes where necessary.

1.3. This report should be useful first and foremost to the residents of Madhya Pradesh in getting the service efficiently and secondly to the Government of Madhya Pradesh to improve the service delivery system.

2. Objectives

2.1.1. The objectives of the Evaluation are to study if the principle components of the Act –

Transparency, Accountability and Timeliness - have been achieved and if so to what extent.

2.1.2. The study will cover the Implementation modalities of the Act and issues arising thereof.

2.1.3. The study will make suggestions to strengthen the Government of Madhya Pradesh‟s attempts in achieving its objectives in relation to the Act.

3. Context

School of Good

Governance and

Policy Analysis (An

Autonomous Institute of

Government of

Madhya Pradesh)

ANNEXURE 9.a Terms of Reference

For

Evaluation and

Management Audit of

Madhya Pradesh

Guarantee of Public

Service Delivery Act,

2010

79

3.1. Madhya Pradesh is the second largest state in terms of geographical area and sixth largest

state by population in India. The population of Madhya Pradesh is 72.59 million (2011 census), and the population density is 196 people per square kilometer. More than 75% of state population resides in villages whose main occupation is agriculture. The literacy rate is 63.70%.

3.2. The Government of Madhya Pradesh implements, various social welfare as well as development-related schemes and programmes through 57 functional departments having their own administrative setup in 50 Districts.

3.3. The State considers delivery of effective and efficient services to its citizen is the foremost challenge. It was felt that notwithstanding various initiatives of the Government like the citizens charter, the citizens do not get the services from the responsible government officials in time limits prescribed. The problem is more acute in rural areas particularly affecting weaker sections and women.

3.4. There appeared to be general lack of accountability accentuated by casual attitude of some of the field functionaries. The inability of the citizen to assert, their ignorance of the procedures were adding to the problem.

3.5. Therefore, the Government of Madhya Pradesh passed the “Madhya Pradesh Lok Sevaon ke Pradan ki Guarantee Adhiniyam 2010” (Madhya Pradesh Guarantee of Public Service Delivery Act, 2010) in August 2010 and implemented from 25th September 2010. This land mark legislation provides

3.5.1. Statuary justifiable right to the eligible citizen to obtain notified services within stipulated time frame, from the designated officers, who are made legally duty bound to provide the service to entitled applicant.

3.5.2. In case designated officer fails to provide service, a two tier grievance redressal mechanism in the form of first appeal and second appeal.

3.5.3. Imposition of penalty on the errant officials and compensation to the aggrieved applicant who may have been wrongfully denied the service.

3.5.4. To implement above design of the act, it is made mandatory that every applicant gets a receipt of the application for a notified service, indicating the date by which the service will be delivered and in case the service is not provided by the date indicated in the receipt by the designated officer, redressal mechanism may be set in motion.

3.5.5. This initiative is a major paradigm shift in the policy regime of citizen charter which was a mere intent of the government to a right based delivery, akin to shifting an item from directive principal of the state policy to the area of fundamental right.

4. Scope of the Study 4.1. The study will cover the following areas:

4.1.1. The process adopted in passing the legislation. 4.1.2. The legal provisions related to Transparency, Accountability and Timeliness. 4.1.3. The choice of notified services. 4.1.4. The extent of implementation.

4.2. The study will cover the entire gamut of services notified under the Act. 4.3. The study will be based largely on the data derived from the MIS created specifically for

monitoring the implementation of the Act and other secondary sources. 4.4. Where feasible, the consultant will make 1 or 2 field visits. 4.5. Where feasible, the consultant will use his/her prior information / knowledge.

5. Criteria for Evaluation 5.1 Relevance: Given the context of the issues and the problem statement is the Act relevant? 5.2 Has the implementation of the Act brought in effectiveness in addressing the issues of

transparency, accountability and timeliness? 5.3 Has the implementation been efficient and has reformed administrative processes? 5.4 What has been the impact of the Act and its implementation on the citizens and the

government staff? 5.5 Are the Act and its implementation sustainable? If not, what steps need to be taken to make

them so? 5.6 What has been the impact of the Act on the overall governance environment in the state

and/or country?

6. Evaluation Details

80

The Consultant will provide a set of detailed evaluation questions related to the objectives, scope and criteria set out above and take the Government of Madhya Pradesh‟s approval at the commencement of the study.

7. Methodology 7.1 This evaluation is a quick one - and given the time and resource constraints, as also the

strength of the available MIS data base – and will be based primarily on the primary and secondary data available with the Government of Madhya Pradesh. Where feasible 1 or 2 field visits can be undertaken

7.2 The Act has ensured that data captured from the field offices are fairly rigorous, and comprehensive. The consultant will analyze the data that is available and all data available with the government will be made open to the consultant without any qualifications.

7.3 As mentioned in 7.1 above the consultant could undertake a field study to triangulate data available in the MIS on a random basis.

7.4 The methodology is limited by the fact that it is restricted to primary and secondary data already available with one stakeholder – the government, and has provided a limited scope of triangulation through field visits. This is offset by the fact that the objective of the study is to quickly assess the status of implementation and suggest recommendations for the future on 3 dimensions [transparency, accountability and timeliness] which are possible with the data available.

7.5 The evaluation will have to follow international norms and should conform to the highest ethical standards.

8. Work Plan and Budget The Consultant will provide a work plan and budget taking into consideration the

a) Objectives and scope of the study. b) Urgency of the study. c) The limited resources available with the School of Good Governance and Policy

Analysis for this purpose. .

81

ANNEXURE 9.b

LIST OF PERSONS INTERVIEWED

SL. NO. NAME DESIGNATION

1. Iqbal Singh Bains Principal Secretary, PSM Department, GoMP

2. Manohar Dubey Deputy Secretary, PSM Department, GoMP

3. Akhilesh Argal Director-Governance, School of Good

Governance and Policy Analysis

4. Rajesh Batham Director- Knowledge Management School of

Good Governance and Policy Analysis

5. C B Singh District Collector, Vidisha District

6. P L Paldekar Sub Divisional Magistrate, Vidisha District

7. Kaushik S.E. , M. P Vidyut Board

8. Sharma Divisional Engineer, Vidisha Divisional Centre,

MP Vidyut Board

9. Budhalia Assistant Engineer, Vidisha Division, MP Vidyut

Board

10. Deepak Saxena Additional Collector, Bhopal Collectorate

11. Ashish Pathak O-I-C, Samadhan Centre, Bhopal Collectorate

12. Kiran Gupta Tehsildar, Bhopal Tehsil

13. R G Sharama Retd. Tehsildar, Bhopal Tehsil

14. About 35 District Managers in a Group Discussion Mode

15. About 20 citizens and applicants in Bhopal and Vidisha who would remain

anonymous

ANNEXURE 9.c

LIST OF DOCUMENTS CONSULTED

Document/Circular/Minutes of

the Meeting

Reference No. [where applicable] Period:

Date/Month/Year

1.Act Act No. 24 of 2010 Published in the State Gazette on 18 August 2010

82

2.Rules Rules 2010 Published in the State Gazette on 17 September 2010

3. Instructions F- 5/3/2010/53/1 17 September 2010

4. Circulars on Notice Boards, Training, etc

F- 5/3/2010/53/1 17 September 2010

5.Government Order regarding the creation of the Public Service Management (PSM) Department

FA 1-13-2010 ONE (1) Pubished in the State Gazette on 6 September 2010

6. Documents related to creation of infrastructure for RTS Counters

The cabinet of GoMP has decided on 13 February 2012 to provide cost of building of RTS counter and run them on PPP model. Budgetary provisions are being made. instructions are in preparation stage.

7. Document related to use of MIS created by MP NIC

429/2011/../61 (to District Collectors)

12 July 2011

633/2011/PSM/61 (for registration on-line of application details)

20 September 2011

8. Documents regarding revision of circulars‟ language and bringing in clarity

742/2011/61/PSM 29 October 2011

9. Any instructions/circulars on HOW TO DELIVER WITHIN TIME? Could even be by individual departments

52 circulars by 16 departments for all 52 services have been issued.

Based on Workshops held between 2-5 November 2011

10. Document/note reg. Lok Sewa Week announcement

567/2011/PSM/61 27 August 2011

571/2011/PSM/61 27 August 2011

585/2011/61/PSM 03 September 2011

11. Note/Document reg. Digital Notarization

Draft material as yet finalized Discussed on 25 February as part of the discussion on Lok Sewa Kendras

12. GO/DO on creation of District Managers Positions

447/61/PSM/61 14 July 2011

661/61/PSM/2011 3 October 2011

13. GO/DO or Circular on Coordination Mechanism

FA 1-13-2010 ONE (1) Pubished in the State Gazette on 6 September 2010

14. Note on Proposed Lok Sewa Kendra (addressed to District Collectors)

425/PSM/61 11 July 2011

667/642/2011/PSM/61 10 October 2011

15. Minutes of Meetings: Reviews by CM and/or PSM on Implementation of the Act

557/2011/61/PSM (Review by the Chief Minister)

19 August 2011

603/2011/61/PSM (visit of Chief Secretary to Districts to review implementation)

12 September 2011

16. Compendium on Citizens‟ Charters

COMPENDIUM Circa 2001

17. Procurement Orders for a) Computers & accessories b) Hiring of staff [Dist. Mgr.s] c) Any other

546/PSM/61 19/08/2011

18. Proceedings of the National Consultation held in December 2011

Document February 2012

19. Assembly proceedings on the Act : 2010

Vol 7. No. 9 29 July 2010

Vol. 7 No.10 30 July 2010

83

Vol. 9 No.24 1 April 2011

Vol. 11 No. 4 24 November 2011

Vol. 11 No.10 2 December 2011

20. Assembly proceedings on the Amendment of the Act a) to take suo moto action on services delayed

Vol. 11 No.10 2 December 2011

21. Note on Cabinet approval of the proposed PPP for Lok Sewa Kendra

Pl See Sl.No. 6 above

84

ANNEXURE 9.d

Bio Data of the Evaluator

Name: Balasubramanyam Muralidharan

Profile

3 decades of experience in teaching, research, consultancy, advocacy & campaigns, and coordination

advice (for the United Nations at the country level) in corporate and social sectors. Expertise in Human

Resource Management, Governance, Service Delivery, Capacity Building and M&E. Focused on MDGs-

related work (Good Governance, Livelihoods, Health, Education and Citizen Engagement) in the past

decade.

Areas of Expertise:

1. Policy Advice 2. Advocacy 3. Campaigns 4. Mass Communication 5. Capacity Building and Continuous Improvement 6. Training, consulting and research

Experience

Proprietor FEINBROTH Consulting and an independent Consultant (july 2010- till date) and Advisor,

Centre for Organization Development, Hyderabd (Septmember 2011 – till date)

Sole Proprietor of FEINBROTH Consulting and an Independent Consultant. A major part of my consulting is

now as the Technical Lead and Expert Panel Member (Governance) of GTAST (Governance Technical

Assistance Support Team). On retainership with Deloitte Touche Tomahtsu to assist the DfID, India funded Bihar Governance and Administrative Reforms Program. I provide the technical expertise to GTAST and to the Government of Bihar on a 17-days-a-month basis with Deloitte. The broad outputs of the Mission are improved quality of Human Resource Management, improved accountability and quality of performance of focal departments, institutional development & better monitoring of grievances, and strengthened district level administration and service delivery.

Was the principal consultant advising the Government of Bihar on the Bihar Right to Public Services

Act, 2011 that gurantees transparency, accountability and timely service for the 50 notified services

across 10 departments. Current focal departments include General Administration, Human Resource Development, Transport, Commercial Taxes and Registration. Home, Scheduled Castes and Scheduled Tribes and Food & Consumer Protection (especially Public Distribution System) departments. The program has completed 3 years (September 2008-August 2011) and has begun its second phase in September 2011. New departments expected to come in the ambit of the Mission are Industries, Agriculture, Tourism and Labour. My role is two fold: one, to advise on the program performance and suggest changes if necessary; and two, to advise on the content of various initiatives and liaise with departments, where necessary. Conducted an independent Review (Mid-term) of the FAO India Annual Work Plan for 2010-11. The work consisted of developing a framework for review as also of the actual status as of October 2010 vis-à-vis Plan for 2010-11. Suggested a simple mechanism of monitoring and review of AWPs. I advise the Center for Organization Development on its strategic thrust as also deliver lectures and take up consulting work in collaboration. In September I delivered a series of 3 lectures to Senior Government Officials from Afghanistan on Governance, Service Delivery and Aid Effectiveness, especially in a post-conflict country.

85

UN COORDINATION ADVISOR, UN RESIDENT COORDINATOR’S OFFICE, DELHI 2007-2010

I was the Head of the United Nations Resident Coordinator's (UNRC) Office. My job profile was to support the UNRC and the UN Country Team on coordinated delivery of UN's operational activities in the area of development. The tasks included advice on harmonization with national priorities, support to national priorities, joint advocacy and resource mobilization, joint programs and activities, and mass communication on MDGs. I would state the following as highlights of my work during my 3 years stint with the UN. These related to policy and program advice and advocacy, and more importantly on a personal style of 'head in the sky, and feet on the ground':

1. Design and roll out of a Government of India-UN Joint Program on Convergence at the district

level. The India UNDAF Outcome 3 to which this is linked, has the objective of districts being on track to achieve MDGs, through Convergence of Government Resources. The idea was to ensure that the then policies, plans and schemes produce results. And this by joint stakeholder efforts rather than by supporting a UN or a NGO 'Pilot' or 'Model'. The architecture was to work with 'through' the government system and create a virtuous circle of 'plan-budget-implement-monitor-feedback-planning-...' with the involvement of the main stakeholders. It is now a Joint Program signed on to by 11 UN entities, the Government of India (National Planning Commission) and 7 State Governments. It is now operational in 35 backward districts. The Program aims at improving results on the ground based on existing policies, while simultaneously advocating changes in policy based on feedback from the 'last mile'.

2. Designed and led a Regional Initiative of UNICEF, UNESCO, and UNDP on Local Service Delivery to achieve MDGs in the education sector. The innovation in design was to include, apart from a scholarly study, a 'Education Rights Rally' facilitated by the National Conference of Dalit Organizations (NACDOR) in 4 districts (two each in Rajasthan and Uttar Pradesh) to look at issues of inclusion and 'retention in school' of excluded groups, especially dalit girls. The interim results have convinced the Member, Planning Commission to request us to make a presentation on the findings. The meeting is scheduled for 30th December, 2009 (tomorrow).

3. Sensitized the Indian middle classes that MDGs are about rights not charity: I was the key UN staff

in design and delivery of a Music Reality Show on MDGs: Mission Ustaad. Four sets of singers composed original songs around MDG themes and were judged by an eminent jury (including the Oscar award winner A R Rahman). The show was aired on a 9X channel. The UN in India now have the rights to use the original songs for non-profit 'broadcast'.

4. Advised and Supervised the work on UN joint advocacy with elected representatives at the national and provincial levels on key issues of the region: livelihoods, nutrition, infant and maternal health, etc. This work in India is carried out with knowledge partnerships with the Offices of the Speakers of the National Parliament and State Legislatures.

5. Facilitated the formulation of the M&E Framework for India UNDAF 2008-12 and supported the independent consultant Mr. Thomas Winderl in carrying out the training and completion of M&E Framework for UNDAF Thematic Clusters.

Regional MDGs Advisor, South Asia Oxfam GB, Delhi (2005-2007)

The responsibility was for Oxfam's campaign and advocacy on MDGs and Essential Services (Education and Health) in Afghanistan, Bangladesh, India, Nepal, Pakistan, and Sri Lanka. While the main focus was on availability, access, and affordability to basic education and health, in a rights-based perspective, was also in-charge of the right to livelihoods. Key achievements: 1. Supported a civil society initiative to 'measure' the performance of the government vis-a-vis its promises

and helped found a network called the Wada Na Todo Abhiyan [Keep Your Promises Campaign] with

over 3000 civil society organizations as members. This network supports MDGs and is a key partner of the Global Call for Action Against Poverty.

2. Nine-is-Mine Campaign and Advocacy: A civil society led initiative of children and celebrities to make the Government of India deliver on its promise of allocating 9 percent of GDP for Education and Health (6% for education and 3% for Health). Facebook: http://www.facebook.com/groups/nineismine/

3. Provided the architecture for an Education Sector study in Afghanistan (including on budget and harmonization of resources), supported the Nepal and Bangladesh Oxfam GB Offices on formulation of an Essential Services campaign

4. Provided expert inputs for the Oxfam regional report on education and health: 'Serve the

Essentials' (a report on education and health in South Asia).

86

Several capacities ending as Professor, Governance and Public Policy Area, Administrative Staff

College of India (ASCI), Hyderabad (1983-2005)

Worked in several capacities at the ASCI. Beginning with research and consulting on organized labour, I graduated to Human Resource Management, and then to the essential services sectors. 1. Was a team member that facilitated the Government of Kerala finalize its Service Delivery Policy. 2. Following this, was asked to be the Leader of a team that supported the Modernizing Government Program, Government of Kerala in developing Service Delivery Plans for about 2800 Front-line service delivering institutions including schools, health centres, welfare institutions and local governments. As part of this assignment suggested (and was accepted by the government of Kerala) that issues related to Quality, Human Resources, Facilities and Service Delivery standards be studied independently. 3. Developed the evaluation framework for the Service Delivery Project; suggested the terms of reference and methodology for an independent evaluation, and supported CSES, Kochi in conducting the studies (Baseline and Endline) on Service Delivery and Institutional capability (in terms of infrastructure, human resource and capacity).

• I led two teams on WATSAN in the rural areas (for the governments of Uttar Pradesh and Karnataka,

funded by the World Bank). The first one for Uttar Pradesh was on Organizational Development Exercise

(ODE) and the one for Karnataka was on Institutional Assessment.

• I had worked on several consulting and training assignments for some of the premier public and public

sector corporations, state governments and NGOs in the areas of capacity building, HR Management and

Strategy/General Management.

RESEARCH AND PUBLICATIONS:

• Published an article (with Dr. B Bowonder and T Miyake) on “Predicting the Future: Lessons from Evolutionary Theory” in Technological Forecasting and Social Change, 1999, Vol. 62, Nos. 1&2

Published an article (with Dr. B Bowonder and T Miyake) on “Forecasting Technological Change: Insights from Theories of Evolution” in the “Interdisciplinary Science Reviews”, 1999, Vol. 24, No.4

Published an article (Mr. A K Rao) on “Corporate Governance – A people-centred perspective” in the ASCI Journal of Management, 1998, Vol. 27, No. 1&2

Paper on “The Changed Context and Employment”, published in the proceedings of the AMDISA Seminar on “Redeployment Strategies”, 1994, AMDISA-FES, Hyderabad

UNPUBLISHED NOTES/ESSAYS

1. Health and Education for All[India specific]: for Oxfam GB

2. Public Service Delivery: for Government of Kerala

Education

Sl. No.

Start Date

End Date

Educational Institution

City Country Education Level

Highest Degree/ Certificate

1 14.01.1995

31.01.1995

Association of Management Development Institution in South Asia (AMDISA)

Pune India Training/Workshop

A Consulting Skills workshop facilitated by top notch consultants from Canada. The basic thrust was on Situation Analysis, Problem Identification, Power Analysis in relation to feasible solutions, Alternate Solutions, Clearly articulated recommendations

2 15.05.1994

30.06.1994

Water Engineering Development Centre, Loughborough Institute of Technology

Loughborough

United Kingdom

Training/Workshop

87

Attended this as a Participant-Observer. I was a Member of Faculty at the Administrative Staff College of India, Hyderabad at that time. My duties were to provide inputs to the program, learn from western experience (Britain and France) and design and indigenize a course for Urban Public Health Officials

3 01.03.1989

28.02.1991

Faculty of Management Studies, Delhi University and University Grants Commission

Delhi India Towards Doctorate

I was a candidate for doctorate after having passed the National Eligibility Test

4 01.06.1978

31.05.1983

Birla Institute of Technology & Science

Pilani India Masters Degree

Highest

A 5-year Integrated Masters in Management Studies. The degree included first three years of education in science, engineering and technology, and the last two years in management. Apart from the regular fields of management i.e. strategy, finance, marketing, human resources and organization behaviour, etc, subjects covered included Dynamics of Social Change, Contemporary India, etc.

Skills

1. Excellent written and oral communication in English and Tamil; oral communication in Hindi

2. Designing and Leading seminars, workshops and training programs

3. Networking with government, private and civil society

4. Documentation and Presentations

5. Innovative thinking

Referrals

1. Mr. Salil Shetty, Secretary General, Amnesty International, 1 Esaton Street London, UK

2. Dr. [Ms]. Maxine Olson, Former UN Resident Coordinator and UNDP Resident Representative in India,

New York, USA

3. Dr. [Ms.] Karin Hulshof, UNICEF Representative in India, New Delhi

4. N C Saxena, IAS (Retd.), Member, National Advisory Council, India, New Delhi

88

ACKNOWLEDGEMENTS

I acknowledge with gratitude the Government of Madhya Pradesh for considering to contract the Centre for

Organization Development, Hyderabad to conduct this Evaluation and Audit Study. In particular, thanks are

due to Shri. Iqbal Singh Bains and Shri. Manohar Dubey for constantly challenging the assumptions of the

author based on his personal experience in other states of the India.

For his academic and hospitality support, as also his seamless coordination of the study, I gratefully

acknowledge Shri. Akhilesh Argal, Director, Governance, School of Good Governance and Policy Analysis,

Bhopal.

Thanks are due to Shri Rajesh Batham, Director, Knowledge Management and Shri V K Menon, School of

Good Governance and Policy Analysis, Bhopal who helped me in many ways in the conduct of the study.

Grateful acknowledgement is due to those officers and citizens who provided all their inputs in Bhopal

Collectorate and Vidisha District. In particular, I would like to thank the District Managers of Bhopal and

Vidisha , Shri. Lokesh Gupta and Amit Agarwal as also the District Programme Assistant in Vidisha , Ms.

Poonam.

Ms. Tina Mathur, Advisor, Public Policy, Centre for Organization Development, Hyderabad provided

invaluable support in preliminary analyses of various documents and of data generated from the MP MIS

specifically created to monitor the implementation of the MP Guarantee of Public Service Delivery Act 2010.

To all those persons mentioned in Table 9.b, a big thanks for spending considerable amount of time with me

and educating me.

To those whose names I may have missed listing here, sincere apologies and grateful acknowledgement of

all help.

B Muralidharan

Advisor Centre for Organization Development P.O. Cyberabad, Madhapur HYDERABAD-500081-INDIA

MP Guarantee of Public Service Delivery Act -2010 Some Photographs on Implementation – February 2012 – (c) Author

A Public Grievance Redressal Meeting in Progress – Vidisha District

Collectorate

The Reception in Bhopal

Lok Sewa Kendra

Front Office in Bhopal

Lok Sewa Kendra

A Notice Board in Bhopal

Lok Sewa Kendra