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Contents 1.
Introduction
1 - 28
2.
E-Governance and Good Governance: A Conceptual Analysis
3.
E-Governance: Country Experiences
4.
E-Governance in India: State Experiences
135 - 158
5.
Profile of E-Governance Study Area: Case of Orissa
159 - 181
6.
E-Governance in Orissa: Deep Focus
182 - 206
7.
A Summing Up
207 - 230
8.
Appendices
231 - 273
Selected Bibliography
274 - 287
29 -79 80 - 134
"This page is Intentionally Left Blank"
Learning Objectives 1.1.
The Start
1.2.
Objectives of Study
1.3.
Methods of Study
1.4.
Review of Literature
1.5.
Plan of Study
1.6.
Hypotheses
1.7.
Utility of Study
1.8.
Limitations of Study
2
E-Governance
1.1 The Start Information sharing is vital for Governments putting into practice any form of E-Governance. As such much talked terms in 21 st century are E-Governance and Information and Communication Technologies (lCT). Information and Communication Technology has unleashed a revolution today, and there is hardly any field left, not touched by it. As the fashion has become a trend, the lUxury has also become a necessity. For the development of the masses, ICT should be exploited fully in every field of governance of a country, resulting into e-governance . In fact adding Ie' as a prefix to 'governance' changes the way of governance of a country. The advent of globalization has given birth to the concept of 'good governance'. The ultimate good of the people is viewed as the theme of good governance. There are number of ways for achieving good governance, and e-governance is one of them. In other words, e-governance is a vehicle of good governance. Before fishing deep into the water, it would be better to have a glimpse on the conceptual part of good governance and e-governance . The term governance refers to the way government carries out its work. Like most things, governance can be good or bad, effective or ineffective. Good governance embodies such qualities as accountability, responsiveness, transparency, and efficiency. It assumes a government's ability to maintain social peace, guarantee law and order, promote or create conditions necessary for economic growth, and ensure a minimum level of social security. In short, governance is the way government uses its authority to provide services, make laws and enforce them. On the other hand, good, governance is the effective implementation of policy and provision of services that are responsive to citizen needs. GO?d governance pleads for maximum happiness for majority of citizens of a country. Citizens' welfare has been the corner stone of the governmental policies, since time immemorial. If the governance of a country does not satisfy the basic needs of maximum number of citizens, then we may term it as mal-governance. Governance has been variously defined as the management of society by the people, or as the exercise of authority to manage a country's affairs and resources. It is to be noted, however, that there has hardly been a consensus as to its core meaning, and as to how it could be applied in practice. The term does not yet possess a standard meaning!, nor has its meaning remained constant in the decade or so of its being accorded a central place in donor frameworks for development. The lack of specificity in the meaning of the term "governance" becomes apparent when we examine its historical evolution. The concept achieved prominence in donor discourse around 1990, after the end of the Cold War. The World Bank was the first major donor institution to adopt the concept of good governance as 1.
Presently, there are two distinct streams of discourse on good governance: donor and academic. Academic discourse which deals mainly with the way in which power and authority relations are structured in different contexts, whereas donor directed discourse focuses more on State structures designed to ensure accountability, due processes of law, and related safeguards . Academic discourse is directed mainly towards better understanding of institutional linkages between the State, civil society and the private sector; donor-driven discourse is oriented towards enhancing policy effectiveness.
Introduction
3
a condition for lending to developing countries. In the beginning, the focus was rather apolitical and was stressed more on the improvement in the quality of public sector management. By the mid-1990s, international donors' conceptions of good governance had expanded to include the notions of transparency, accountability, and participation. In addition, a new dimension was stipulated, namely, predictability. This last element was introduced in the light of the financial crises in the latter part of the 1990s, which led to a call for improvements in corporate governance and stability of international financial markets 2 • In the future, therefore, new elements could be added (and old ones dropped?) from the definition of good governance. At least three major features can be identified, in the current trend 3 . First, good governance is predicated upon mutually supportive and cooperative relationships between government, civil society, and the private sector, the nature of relationships among these three groups of actors, and the need to strengthen viable mechanisms to facilitate interactions, and assume critical importance. Second, good governance is defined as possession of all, or some combination of, the following elements: participation, transparency in decision-making, accountability, rule of law, and predictability. Third, good governance is normative in conception. The values that provide the underpinning for governance are the values postulated by the defining actors and institutions. This last point deserves special consideration. If donorconceptualized standards of good governance were insisted upon, it would imply an insistence that western-derived standards of conduct be adopted in non-western politico-cultural contexts 4 • The World Bank Document on Sub-Saharan Africa in 1989 viewed good governance as an efficient public service, reliable judicial system and an administrative system with full public accountability. Good government depends on an ability to exercise power, and to make good decisions over time, across a spectrum of economic, social, environmental and other areas. This is linked with the government's capacity for knowledge, mediation, resource alloe-ation, implementation and maintenance of key relationships. There are many ways to define governance and good governance. However, there seems to be a general consensus that key factors includeS: 2
3 4 S
There are currently three domains at which good governance is addressed: The first is the national domain, which covers all of the standard elements of a political, economic and administrative nature. The second is the global domain, which refers to all of those elements intrOduced by the process of globalization, including the regulation of global public goods and economic stability in capital flows. The third is directed at the corporate community. The recent rise of corporate social responsibility or good corporate governance in some developed countries reflects continuous interaction of non-market based institutions and the private sector in the economic setting of scarcity. The initiatives taken by the World Business Council for Sustainable Development (WBCSD) and others, adapting the codes of conduct in the field of global environmental problems are examples in this instance. The concept of corporate social responsibility thus can be interpreted as an attempt to transcend social dilemmas, which arise when choices made by profit-maximizing firms yield outcomes that are socially undesirable, or as an attempt to reconcile the private sector's profit maximization motives and the public interest. Udo E. Simonies (Ed), Defining Good Governance [Available at http://skylla.wz-berlin.dej Ibid. http://www.gdrc.org/u-gov/doc-oecd_ggov.html
The Conceptual Competition is On,
4
E-Governance ~
Technical and managerial competence
~
Organizational capacity
~
Reliability, predictability and the rule of law
~
Accountability
~
Transparency and open information systems
~
Participation
Technical and managerial competence of civil servants is an obvious factor of good governance. This may be less of a constraint than it used to be, as access to education has improved, but rapid changes require ongoing development of skills. Good governance has to be built ob the quality of organizations so that development is based on this rather than simply relying only on political will, personai will of a strong leader and State power, which may not be sustainable over the longer term. Having skilled staff is not sufficient if the government organizations do not have the capacity to make good use of these skills. Capacity of government organizations is a key factor in the proviSion of many important services to businesses and the public, and in creating conditions for economic progress and social cohesion. The organizational structure and management systems of government have been reformed in many OECD countries. The problem was often seen as excessive centralisation, inflexibility and lack of efficiency. The key response to this has been to provide managers and staff with more autonomy in operational issues in return fo; more accountability for performance. In other countries the problem may be a lack of regularity and discipline in the administration, often with associated corruption. In such situations the response typically will need to focus on strengthening the basic management systems of government, involving to a certain extent increased bureaucratisation. The rule of law refers to the institutional process of setting, interpreting and implementing laws and other regulations. It means that decisions taken by government must be founded in law and those private firms and individuals are protected from arbitrary decisions. Reliability requires governance that is free from distortionary incentives - through corruption, nepotism, patronage or capture by narrow private interest groups; guarantees property and personal rights; and achieves some sort of social stability. This provides a degree of reliability and predictability that is essential for firms and individuals to take good decisions. Reliability and predictability do not mean that the more specific the regulations are the better. Excessive specification can lead to rigidities and risk of selective application of regulations. Interpretation and effective implementation of individual regulations requires a degree of discretion. This discretion can be counterbalanced by administrative procedure legislation and external reviews of decisions (appeal mechanisms, judicial review, ombudsmen etc.). Reliability and predictability require certain degree of political stability. Governments need to be able to make credible commitments and persuade the private sector that decisions will not ultimately be reversed due to political uncertainty. While this is not
Introduction
5
necessarily related to a particular political system in the short term, over the longer term democracy enhances stability by giving a voice to citizens to express their preferences through an open competition. Accountability can be both an end in itself - representing democratic values and a means towards the development of more efficient and effective organizations. Politicians and public servants are given enormous power through the laws and regulations they implement, resources they control and the organizations they manage. Accountability is a key way to ensure that this power is used appropriately and in accordance with the public interest. Accountability requires clarity about who is accountable to whom for what and that civil servants, organizations and politicians are held accountable for their decisions and performance. Accountability can be strengthened through formal reporting requirements and external scrutiny (such as an independent Audit Office, Ombudsmen, etc.). Democratic accountability, as represented by accountability of ministers to parliament and the parliament to voters, can be seen as objective in itself, but it also strengthens accountability in general. Many DECO countries are strengthening accountability through more focus on accountability for performance as opposed to limiting accountability to regularity of decisions. Transparency is an important aspect of good governance, and transparent decision-making is critical for the private sector to make sound decisions and investments. Accountability and the rule of law require openness and good information so higher levels of administration, external reviewers and the general public can verify performance and compliance to law. Governments have access to a vast amount of important information. Dissemination of this information through transparency and open information systems can provide specific information that firms and individuals need to have to be able to make good decisions. Capital markets depend for example on information openness. Participation can involve consultation in the development of policies and decision-making, elections and other democratic processes. Participation gives governments' access to important information about the needs and priorities of individuals, communities and private businesses. Governments that involve the public will be in a better position to make good decisions, and decisions will enjoy more support once taken. While there may not be direct links between democracy and every aspect of good governance, clearly accountability, transparency and participation are. reinforced by democracy, and themselves are factors in support of democratic quality. As pointed earlier, transparency and open information system is an important aspect of good governance, and it can be achieved through the introduction of ICT into the governance process-giving a novel version of governance called as e-governance. E-governance will not only establish transparency but also boosts accountability and peoples' participation, the other aspects of good governance. In the age of digital economy, introduction of E-Governance is the key to making information technology (IT) relevant to ordinary citizens. E-Governance is a culture, which changes how citizens relate t<:> governments as much as it changes how citizens relate to each other. It brings forth redefinition of needs and responsibilities. E-governance, meaning 'electronic governance', has evolved as an information-age model of governance that seeks to realise processes and structures for harnessing the potentialities of information and communication technologies (ICTs) at various levels of government and
6
E-Governance
the public sector and beyond, for the purpose of enhancing good governance 6 • According to Riley (2001), "e-governance is the commitment to utilize appropriate technologies to enhance governmental relationships, both internal and external, in order to advance democratic expression, human dignity and autonomy, support economic development and encourage the fair and efficient delivery of services"7. The main objective of e-governance is to facilitate the process of governance so that all the three parties - government, citizens, and businesses will be benefited. Though it is a fact to be reckoned with that the opportunities created by the e-governance are endless, but it is also to be admitted that implementing and maintaining e-governance successfully is not an easy task. The main benefits of e-governance are cost reduction and efficiency gains, quality of service delivery to businesses and customers, ensuring transparency and accountability, capacity building of the government, improvement in decision-making qualitatively, establishment of network community etc. E-governance aims to establish a SMART government, i.e., Simple, Moral, Accountable, Responsive, and Time related. Generally four issues act like hurdles in the successful implementation of e-governance projects. Firstly, appropriate technology is the most important issue in the successful implementation of e-governance. Technology, which is relevant today, may not be more useful tomorrow. Hence, technological upgradation is a must. Again, the technology must be flexible enough so that it can be adjusted easily with the growing needs of the people and the required services delivery. Most developing countries are lacking in proper technology and technologically skilled workers. Thus, a digital divide is created between developing and developed countries. Secondly, funding is a decisive determinant in e-governance. Lack of adequate fund contributes to the technological issue further. But developmental aid agencies and developed countries are now-a-days providing money for establishing and maintaining e-governance facilities. Thirdly, management issue needs to be addressed for implementing e-governance. In this aspect, management of change is the most important one. It requires a fundamental change in the government decision-making management. The other requirements are maintenance of electronic records, mandatory changes in legal provisions etc. Fourthly, socio-cultural issue is to be addressed carefully for e-governance implementation as it needs change in the mindset of the people. Awareness programs by means of active public-private partnerships can bring a vital change, making the ground suitable for implementation of e-governance. E-governance refers to leT enabled route to good governance, but the journey is a tedious one. The main steps for this journey include designing a policy framework, building
6
(i) Bedi, K., Singh, P.J. and Srivastava, S. 2001. government@net: New governance opportunities for India. New ~ Delhi: Sage.
(ii) Holmes, D. 2001. eGov: eBusiness Strategies for Government. London: Nicholas Brealey. (iii)Okot-Uma, R.W. 2000. Electronic Governance: Re-inventing Good Governance, London,U.K., Commonwealth Secretariat. 7
Riley, T.B. 2001. "Electronic Governance in Context". Electronic Governance and Electronic Democracy: Living and Working in the Connected World. Canada: The Commonwealth Centre for Electronic Governance
Introduction
7
up ICT infrastructure, widespread awareness among people and commitment among decisionmakers, identification of priority areas etc. Samir Sachdeva of NISG, Hyderabad has recommended twenty five steps for successful e-governance 8 . The magnum opus of the twenty five steps lie in the fact that it starts with an understanding on governance by looking into the vision and objectives of various governments. It highlights the role of leadership in driving the e-governance projects. The authors have taken the State of Orissa as a case to conclude how far e-governance has contributed to good governance. In spite of some God gifted natural resources, Orissa is a poor State in India. Called as the abode of Lord Jagannath, the State was once upon a time full of glory and prosperity. Under the powerful reign of Keshari and Ganga dynasty, the political boundary of Orissa had been stretched from Ganga to Godavari. Culturally Orissa is also very rich. The Oriya sculpture works had earned fame outside India. The temple architecture has really non parallel. To cite a few, Konark temple, Lingaraj temple, Rajarani temple etc. are all exquisite pieces of life in stones. Going to the pages of history of freedom movement of India, one can find Orissa as an eyewitness to many events. The glory of ancient Orissa was vanished during the time of medieval Muslim rulers and again during the Britishers. The modern Orissa was created during 1936 as a separate linguistic province. At present Orissa comprises of 30 districts having 36.80 million people (2001 census. As 85% of its population lives in the rural areas depending upon agriculture, the governance of the country is naturally shifted towards the welfare of the mass poor. Hence, good governance in Orissa means simply for the upliftment of the masses which live in villages with sustainable agriculture and general well being. In this regard e-governance has been fabricated for the above mentioned objectives of good governance in Orissa. No doubt e-governance is a great help to achieve good governance. Hence, as a proof of it the researcher focuses the rate of success on a global basis and gradually narrowing down to India and finally to the State of Orissa. The most eye catching performances of e-governance initiatives can be seen in United States (US). The three principles of e-governance in US are citizen centric, result centric and market centric. These principles are integrated to evolve goals of government reform. All information about government services can be accessed from the portal firstgov.gov. Through the American e-governance system citizens can file their taxes, take benefit of loan services, access health information, etc. E-training, e-clearance, e-payroll, e-travel etc. are the famous e-governance initiatives of US. Even in US, democratic processes are facilitated by means of ICT, resulting into the concept of e-democracy. It includes the other related political concepts like e-voting, e-forum, e-campaign etc. In UK, e-governance can be seen widely even at the grass root level. The UK government portal direct.gov brings together an increasing number of online government services. If a person needs more information, the site gives access to government directories, 8
Sachdeva, S. 2006. "Twenty Five Steps to Successful e-Governance". {Available at http://www.topics.developmentgateway.orgj
8
E-Governance
as well as links to relevant third parties who can offer additional trusted advice and support. Turning now to the situation in Australia in terms of the take-up of e-government, the researcher is able to report to that, as in many OECD countries, Australian governments at all levels have assiduously taken up e-government initiatives offered by modern information technology developments. As early as the mid 1990s, most governments in Australia had formal poliCies promoting the provision of online information services by their respective agencies. In all jurisdictions, these have followed the common path of development that we have seen in comparable countries elsewhere. From the initial stages of provision of static information representing largely reformatted materials that were normally distributed in print, government websites have become much more dynamic, offering not only constantly changing and configurable versions of information derived from databases, but also interactive services through which citizens can transact business with the government. Australian e-governance initiatives have specific commitments. It aims to deliver all appropriate commonwealth services electronically on the internet. In New Zealand, the government response to the challenges of e-Government has been encapsulated in the e-Government Strategy. The strategy, which reflects the unique New Zealand public management system, clearly sets out the three drivers for the e-Government programme: Convenience and satisfaction - Servic.es provided anytime, anyhow, anywhere, Integration and efficiency - Services that are customer-centric 'and effiCient, Participation - Strengthening citizens' participation in government9 • From a number of ways, e-governance plans in New Zealand can be praised. The Government Shared Network (GSN) enables all government agencies to share information at higher speeds in less cost. The public sector intranet provides a single point accessible by all public servants where they can share information with their colleagues. Governmental procurement is also done on line. Qualitatively, Canada excels every country in terms of performance of e-governance. Governments in Canada, whether local or federal focus on what citizens actually want in the way of e-services, not what the government thinks they want. Government online (GOl) in Canada is a government wide initiative to use ICT to enhance Canada's access to improved and integrated services anytime, anywhere and in the official language of their choice. In Italy, there are 20 basic public services (12 for citizens and 8 for businesses), which have been provided electronically as a part of Italian e-governance initiatives. Income tax declaration, achieving personal documents (passport, driving license), car registration, birth certificates, etc. are the important services delivered through e-governance. Norway's efforts to become a leader in the use of ICT in government have been supported by a high level of internet penetration in Norwegian society and a burgeoning information society. The web portal government.no provides public information from the Norwegian government and its ministries. The citizen web portal my page brings together public services in one place and can be customized according to the users' needs. In UAE, Dubai Vision 2010 is trying to transfer the oil economy of Dubai to knowledge economy. Dubai Vision 2010 has launched various initiatives like Dubai Internet City, Dubai e-Government, Tejari.com etc. Dubai 9
McPhail, H. 2006. "e-Government in New Zealand". e-gov. February.Vol.lI, Issue 2. {Available at http://www.egovonline.netipdf/feb06.pdf]
Introduction
9
e-Government has embarked on several synergistic tools implementation projects (ePay, askDubai, mDubai etc.). Among the developing nations, China's investment in e-governance is amazing. The goal of using e-governance for purposes of transforming the ability of the government to actually govern is clearly revealed from the e-governance initiatives. From 1993 itself, e-governance initiatives have been undertaken in a planned manner. The Chinese e-governance initiatives have been implanted under three tiers. Tier one is aimed towards improving data gathering and dissemination in critical areas of governance. While tier two applies information networks to economic reform, tier three specifies the sectors for e-governance application. Under tier one; the major initiatives are Golden Sea (Jinhai Gongcheng), Golden Bridge (Jinqiao Gongcheng) etc. Golden Taxation (Jinshui Gongcheng), a two tier project enables the goven',ing bodies to access, analyse, and supervise information of value added tax payers and their use of the value added tax receipts preventing tax evasion. It also aims to make local tax bureaus more accountable. Similarly, Golden Trade (Jinmao Gongcheng), a three tier project promotes e-commerce by establishing a regulatory framework for e-business development and intellectual property system. The various Golden Projects are meant to establish the operational backbone for propelling China into the new information economy. Bangladesh e-governance has received attention in National ICT Policy in 2002. The major e-governance initiatives in Bangladesh are e-governance in Ministry of Religious Affairs, Rajshahi City Corporation, and Bangladesh Bank etc. The Hajj website of Ministry of Religious Affairs is one of the most successful e-governance initiatives. The modus operandi of this project is based upon a partnership model consisting of government, private sector and academia. Malaysia has undertaken a number of measures ~ ensure that ICT playa vital role. Malaysia's e-governance programme aims at reinventing how the government works as well as improving the quality of interactions with citizens and businesses through improved connectivity. The pilot projects of e-procurement, Generic Office Environment (GOE), Electronic Labour Exchange System (ELX) have also given satisfactory results. It is interesting to note that a small country but an attractive tourism hub Mauritius has also acquired commendable progress in the field of e-governance. Computerization of activities of the courts, digital court recording system, computerization of competition section, computerization of passport and immigration services, computerization of pay research bureau are some of the e-governance initiatives in the country. In the implementation of e-governance projects, the stakeholders are varied and include Ministries, Departments and other external agents depending on the project. The Latin American country Mexico has initiated a number of initiatives that have placed it on the map of e-governance. The goal of the Mexico On Line is to diminish the distance between the citizen and the government by involving the former in the public decision-making in 2417 digital broadcasting channel. Another project is that of the federal register of transactions that is carried out by departments and various entities within the public sector. The e-Mexico national system has its main target to offer access to a series of contents and applications in the matter of education, health, commerce, tourism, government services and other community services, in order to contribute to quality of life as well as offering more opportunities to companies. Another Latin American country Brazil has started its e-governance expedition in 2000. A best e-governance initiative regarding interact and
10
E-Governance
transact services is the Federal Tax Authority Portal. It enables on line submission of different tax returns as well as tax payments, as it provides access to databases with taxpayer information. In spite of financial bottlenecks, African country Mozambique has also chalked out her e-governance strategy. The alleviation of poverty through the implementation and use of ICTs is one of the strategies of the Mozambican government. Mozambican e-government (MOZ-EG) delivers to every citizen in every area of governance, every sector of the economy, and at every level of the society, the right to access, process, and apply all the information necessary for each to achieve their fullest potential. The concept of e-governance has its origins in India during the seventies with a focus on development of in-house government applications in the areas of defense, economic monitoring, planning and the deployment of IT to manage data intensive functions related to elections, census, tax administration etc. The efforts of the National Informatics Center (NIC) to connect all the district headquarters during the eighties was a very significant development. From the early nineties, IT technologies were supplemented by ICT technologies to extend its use for wider sectoral applications with policy emphasis on reaching out to rural areas and taking in greater inputs from NGOs and private sector as well. There has been an increasing involvement of international donor agencies under the framework of e-governance for development to catalyze the development of e-governance laws and technologies in developing countries. While the emphasis has been primarily on automation and computerization, State governments have also endeavored to use ICT tools into connectivity, networking, setting up systems for processing information and delivering services. At a micro "level, this has ranged from IT automation in individual departments, electronic file handling and workflow systems, access to entitlements, public grievance systems, service delivery for high volume routine transactions such as payment of bills, tax dues to meet poverty alleviation goals through the promotion of entrepreneurial models and provision of market information. The thrust has varied across initiatives, with some focusing on enabling the citizen - State interface for various government services, and others focusing on bettering livelihoods. Every State government has taken the initiative to form an IT task force to outline IT policy document for the State and the citizen charters have started appearing on government websites 10 • To help its citizens gain one-stop access to Government information and services in a secure way, and to provide better, more efficient, transparent and responsive services, Government of Andhra Pradesh (GoAP) has embarked on several e-governance initiative. ComputerAided Administration of Registration Department (CARD) in Andhra Pradesh is one of the earliest e-governance initiatives. CARD project was conceptualized to computerize all the activities and procedures of the Registration Department. E-seva is another ambitious initiative through which services like payment of telephone bills, electricity bills, taxes, issuance of certificates, railway reservations are delivered. The emergence of e-seva benefited both the GoAP as well as the citizens. Karnataka is the e-governance leader of India. Bhoomi is the most important among all the initiatives of Karnataka. The project provides farmers with 10
http://www. eivc. org/uni/Upioads/admin/egovernancepaper.pdf
Introduction
11
instant access to important land records, which would have otherwise taken them months and even years to obtain. Due to the success of Bhoomi farmers now feel secure and manipulation of their land records by the rich zamindars has become a matter of the past. Khajane is another project where the treasuries in Karnataka are connected to a central server at the State secretariat through a satellite based VSAT system. The project has streamlined the entire payment system and all payments can now be tracked and monitored through the computerized system. Khajane aims to bring about a more transparent and accountable system of financial transactions and also discipline in operations and management, resulting into efficiency. FRIENDS project of Kerala work 1217 and have improved the delivery of services and imperfect systems through the use of IT and treat citizens as valuable customers who pay for the new st:;rvices. E-shringhla project of Kerala collects information from various government departments regarding the schemes and programs being implemented by them relating to common citizens and hosting the details on the web portal. Recognizing the worthiness of e-governance, Maharashtra has implemented Wide Area Network (WAN) which links the districts. Sarita is an e-registration experiment under e-governance initiatives of the Maharashtra government. The benefits from this initiative have been manifold. It has helped the citizens, by providing simple, speedy and reliable registration process and build consistency and uniformity in the process. Another project Wama Wired Vii/age was launched as a first wired village pilot with a joint effort of Government of India, Government of Maharashtra, and a sugar co-operative society. It aims to establish a rural network connecting 70 villages of Kolhapur and Sang Ii districts with a computer network. The system includes web based and intranet based applications. In Uttar Pradesh, IT policy 2004 has created a pool fund for e-governance to be established with contribution from the government, public sectors, and co-operative organizations. The State has created UP Wide Area Network (UPNET) for voice, data and video transmission and dissemination. The e-governance project Lokvani aims to establish single window system to access various government services and information at the doorstep of villagers. The entire expenditure for this project is managed by a special budget of the government. It raises social awareness regarding matters of development, government schemes, public utilities and other problems which are deeply related to the democratic rights of the people. The Gyandoot project of Madhya Pradesh is our pride in the field of e-governance as it has won the prestigious Stockholm Challenge Award in 2000. Started in the Dhar district, it is now in service in 30 districts of the State. The Gyandoot model has not only used the community participation in planning, execution and management but also created a new thinking regarding private and community funding in the establishment of community networks in India. The network established the acceptability of user charges by the villagers, functionality of Community Information Centers (CICs) and the operational viability of Will technology. Another project e-choupal aims to provide Indian farmers ready to crop specific real time information and customized knowledge in their native language. E-choupal is improving the farmers' decisionmaking ability, by helping them to better align their farm output to the projected demand in Indian and international markets. After developing the new IT policy in 2003, Government of West Bengal has set up e-governance counters at high populated rather backward areas.
12
E-Governance
These are referred to as information kiosks. Through such kiosks people at remote locations can access the Government to Citizen (G2C) interface. West Bengal State Wide Area Network (WBSWAN) provides connectivity of data, voice, and video communication facilities from State switching centre to all district headquarters. It is true that the southern States of India have taken advanced initiatives in the field of e-governance. But Orissa, in spite of many bottlenecks is trying to compete with them in terms of success in e-governance initiatives. Accordingly, e-governance road map has already been proposed with three components vision, strategy, and blueprint. E-governance vision of Orissa is to establish a networked government for greater transparency and accountability in delivery of public services to facilitate moral and material progress of all citizens. The e-governance strategy outlines the initiatives to be undertaken and defines an internally set of options to lead to realization of State's e-governance vision. The e-governance blue print identifies the institutional, capacity building and reengineering framework with core policies, infrastructure and applications. E-shishu initiative of Orissa Primary Education Program Authority is a successful e-governance initiative. Through the components of Child Tracking System (CTS) and Intervention Monitoring and Information System (IMIS), project e-shishu aims at tracking each child whether in school or out of school of the State of Orissa by demographic attributes. With the help of National Institute of Smart Government (NISG), NIC, Price Waterhouse Coopers, e-procurement system has also been implemented. The most innovative e-governance initiative has been implemented in the department of panchayatiraj. With the help of priasoft and ruralsoft sea changes has been occurred in the face of panchayat of Orissa, leading to e-panchayat. It can be safely assumed that all the e-governance initiatives in the State are meant for achieving good governance. Finally, it can be concluded that, production dimension of e-governance has been embraced really quickly by many States but its informating aspect is being neglected even in the cradles of democracy. Seemingly, the true essence of e-governance is yet to be grasped well even by the champions. Electronic governance depends on the use of information technology (IT) by the general population. The cyber-pessimists, however, believe that the use of IT in governance may worsen inequality in access to government services due to the lack of an adequate infrastructure, unequal ownership of computers, language constraints, and so on. There is also a concern that e-governance may dis-empower citizens by individualizing them, eroding their common bonds and endangering their privacy. Anyway, e-governance promises a lot to better the service providing functions. It also augurs well for democracy as it has the makings of enhancing people's participation through widespread internet access. But the fear of digital-divide, that is, discrimination between the information rich and the information poor has made the situation rather complex. If the digital divide is negotiated well, e-governance - because of its extensive facilitating dimensions - has every chance to make the world a better place to live in. The bottom line is that meteoric advancement of information technology has left us with no other option but to accept and absorb its varied ramifications. But, it will be a fallacy to think that e-governance is a mecha~ism
Introduction
13
to facilitate service provisions only. It is, in fact, a lot more than that. Its true significance lies in the proposition that it would pave the way for making people's choices more extensive and sophisticated, enhance people's participation in the spectrum of State policy making thereby giving democracy a better foundation.
1.2. Objectives of Study For analyzing the e-governance initiatives as vehicle of good governance in the State of Orissa, the main objectives of the study are: ~
To find out howe-governance is helpful in achieving good governance;
~
To analyse the concept of good governance;
~
To provide content analysis of e-governance;
~
To portray a picture on the opportunities and challenges of e-governance;
~
To have a beneficiary analysis of e-governance in global, Indian and State perspective.
1.3 Methods of Study For pursuing the work, the authors have used the library method and interactive method of study. Mainly the library method is used for collecting the secondary data. Different journals, magazines, reports and relevant books are used in this method. The help of ICT has also been taken in collecting the secondary data in this survey, which is interestingly on the application of ICTs. The authors have also interacted with the villagers of Khurda and Bhubaneswar block of Khurda district of Orissa. The views of the villagers are the primary data of this whole work.
1.4. Review of Literature Now care has been taken to put a review of literature on the subject of good governance and e-governance. The World Bank Document, 1992 titled Governance and Development is the magnum opus regarding the concept of governance and good governance. The document defines governance as the manner in which power is exercised in the management of a country's economic and social resources for development ". Similarly another World Bank Document, 1989 on Sub-Saharan Africa defined good governance as a public service that is efficient, a judicial system that is reliable, and an administration that is accountable to the 11
Governance and Development. 1992. Washington D.C: The World Bank.
14
E-Governance
public 12 . The GECD Document links good governance with participatory development, human rights and democratization 13. The Annual Issue, 1997 of Indian Journal of Public Administration (lJPA) is specifically based on good governance. In that journal the article titled 'Conceptualizing Good Governance' by Mohit Bhattacharya gave background conditions of the good governance concept in the contemporary western aid overseas development policies 14 . The characteristics of good governance have been beautifully described at the www.unescao.org. The characteristics are participatory, consensus oriented, accountable, transparent, responsive, effective and efficient, equitable and inclusive, and the rule of law 15 . M. Doornbos (1995) in his article "State Formation Processes under External Supervision: Reflections on Good Governance", in the book Aid and Political Conditionality has given a beautiful analysis of good governance. He has opined that with the rationales of good governance aid would be effectively used to achieve the objective of reducing poverty16. In Journal of the Humanities and Social Sciences, Doornbos has postulated the key aims of the World Bank's designing a good governance approach1? The six dimensions of governance are well focused by D. Kaufman, A. Kraay and M. Mastruzzi 18 . The IMF concept of Q{>od governance has been focused in 1997. In that document titled Good Governance: The IMF's Role, IMF clearly told how poor governance affects the macroeconomic performance 19 . B. Thirkell-White in European Journal of Development Research has critically analyzed the role of IMF for good governance. Specifically he has studied the IMF's response to the financial crises in the 1990s in Korea and I ndonesia and criticized the IMF's good governance policy as applied to middle income countries 20 • The book titled Promoting Good Governance: Principles, Practices and Perspectives give a vivid picture about the public and private sector partnership in achieving good governance 21 . On the concept of e-government and e-governance, books, journals, websites has been referred massively. To start with website of Inter-American Development Bank has made a clear distinction between e-government and e-governance. While e-government is defined as a mere delivery of government services and information to the public using electronic means, e-governance allows direct participation 12
Sub-Saharan Africa: From Crisis to Sustainable Growth: A Long Term Perspective Study. 1989. Washington D.C: The World Bank.
13
Final Report of the Ad hoc Working Group on Participatory Development and Good Governance. 1997. Part 1. Paris: OECD.
14
Bhattacharya, M. 1997. "Conceptualizing Good Governance". Indian Journal of Public Administration. Annual Issue. New Delhi, pp. 290-291.
15
http://www. unescap. org/pddlprs/ProjectA ctivities/Ongoinglgg/governance. asp
16
Doornbos, M. 1995. "State Formation Processes under External Supervision: Reflections on Good Governance". In stoke, O. (Ed.). 1995. Aid and political conditionality. London: Frank Casso
17
Doornbos, M. 2004. "Good governance: The pliability of a policy concept". Trames. 8 (4), pp. 372-87.
18
Kaufmann, D., Kraay, A. and Mastruzzi, M. 2005. Governance Matters IV: Governance indicators for 1998-2004 Washington, D.C: The World Bank. Good governance: The IMF's Role. 1997. Washington D. C: IMF. Thirkell-White, B. 2003. "The IMF, good governance and middle-income countries". European Journal of Development Research. 15 (1), pp. 99-125. Agere, S. 2000. Promoting Good Governance: PrinCiples, Practices and Perspectives. London: Commonwealth Secretariat.
19 20 21
Introduction
15
of constituents in government activities 22 . William Sheridan and Thomas B. Riley in their article "Comparing E-government Vs. E-governance", has also focused on the differences between the two concepts. They told that, e-government is actually a narrower discipline dealing with the development of online services to the citizen, but on the other hand e-governance is a wider concept that defines and assesses the impacts of technologies on the practice and administration of governments and their relationships between the public servants and the wider society 23. Both e-government and e-governance are dealt with in a number of good literatures. Tapscott (1996), Gartner (2000), Abramson and Means (2001) and Fraga (2002) have all described e-governmentle-governance in their own word, but all agrees to the application of ICT to the broader field of the society24 . Okot-Uma (2001) argues that the emergence of new ICTs has the potential to positively change processes of governance. The rapid development, deployment and proliferation of ICTs, thus, may herald new opportunities for growth and development in countries around the world. It is, therefore, important to understand the possible role that ICTs may play in societal development, and, in particular, to understand the possible inter linkages between ICTs and the newly emerging concept of 'e-governance'. I n this context, Okot-Uma (2001) suggests that e-governance incorporates all those processes and structures by means of which the new information and communication technologies can be deployed by government to enable the following 25 : ~
administration of government and delivery of services to the public (electronic government);
~
informing, vote-enabling, representation-enabling, consulting and involving the citizenry in, among others, broad consensus-making in society in matters pertinent to decision-making in political, social an economic priorities in government (electronic democracy);
~
transacting business with its 'supply chain', namely, partners, clients and the markets (electronic business).
By contrast, Millard (2003) argues that e-governance is not just about putting government services online and improving their delivery, but also constitutes a set of technology mediated 22
www.iadb.org
23
Sheridan, W. and Riley, T. B. 2006. "Comparing E-government Vs. E-governance".
[Available atwww. electronicgov.netj 24
(i) Abramson,A.M. and Means, E.G. 2001. E-Government. Price Waterhouse Coopers Endowment: Rowman and Littlefield Publishers Inc.
24
(ii) Fraga, E. 2002. "Trends in E-Government: How to Plan, Design, Secure and Measure E-Government". Government Management Information Sciences Conference. Santa Fe. New Mexico.
24
(iii)www.gartner.com
24
(iv)Tapscott, D. 1995. The Digital Economy. New York: McGraw-Hili.
25
Okot-Uma, R. W. 2001. Electronic governance: Re-inventing good governance. London: Commonwealth Secretariat.
16
E-Governance
processes that could change the broader interactions between citizens and government26 • Hence, in the same vein, e-governance refers to governance processes in which information and communication technology playa significant role, and a number of writers argue that the role of ICT in governance could include improving standards of governance products and services currently provided, providing new governance services and products, enhancing participation of people in provision of governance products and services, and bringing new sections of society under the governance sphere (including those who are more likeable to remain excluded namely the poor, the illiterate, the differently able, indigenous people, and the migrants and displaced people). Odendaal (2003) and Riley (2003) have opined that, the route to e-governance is only newly emerging, as governments and citizens around the world experiment with, and learn to exploit, new media and new information technologies 27 • With regard to the political process, writers such as Thompson (1999) have suggested that some aspects of interactive technologies bring about change because they weaken the fictionalization that plagues political systems28 • The interactive nature of ICTs, plus its ability to speed-up information, has the potential to make governance function better than it currently does. Further, new ICTs enhance governance by overcoming geographical distance, promoting ideological variety, opening citizens to more diverse viewpoints, and encouraging deliberation (Thompson 1999). However, others claim that the relationships between ICT and governance is not just one underpinned by technology and capacity (Odendaal 2003; Rakodi 2001; Cloete 2002), but that it is also influenced by less predictable elements such as social pressures, community activism and capacity within local government areas of jurisdiction29 • In this context, Rakodi (2001) claims that e-governance is about the interaction between State and civil society in all its guises, and not just including rules, regulations and systems that make up government. He claims further that underlying forces that would determine the relationship between ICT and governance (e.g. how well do ICTs accommodate the processes necessary to achieve inclusive and democratic governance?) are contextual as well as determined by larger policy imperatives. Borja and Castells (1996) similarly argue that this relationship is underpinned by technological, cultural, economic and institutional processes30 , leading Odendaal (2003) to argue that economic development, policy priorities and 26
Millard, J. 2003. "The (r)e-balancing of Government". The European Journal for the Informatics Professional. IV. pp. 48-51.
27
(i) Odendaal, N. 2003. "Information and Communication Technology and Local Governance: Understanding the Difference between Cities in Developed and Emerging Economies". Computers, Environment and Urban Systems. 27, pp. 585-607. (ii) Riley, T. B. 2003. "E-government vs. E-governance: Examining the Differences in a Changing Public Sector Climate". Report No.4. Intemational tracking survey report 03, pp.1-29.
27
fA vailable at http://www.electronicgov.netipubslresearch_papersltracking03/lntlTrackRptMay03n04j 28 29 29 30
Thompson, D. 1999. "James Madison on Cyberdemocracy". In Elaine, K. and Joseph, N. (Ed.). Democracy.Com? Governance in a networked world. NH: Hollis Publishing Company, pp. 35-42. (i) Rakodi, C. 2001. "Urban governance and poverty - addressing needs, asserting claims: An Editorial Introduction". International Planning Studies. 6, pp. 343-356. (ii) Cloete, F. 2002. "Capacity building for sustainable local governance in South Africa". In Wooldridge, D. (Ed.). Emocratising local government: The South African experiment. Cape Town: UCT Press. Borja, J. and Castells, M. 1996. Local and Global: Management of Cities in the Information Age. London: Earthscan.
Introduction
17
technological development will, in combination, most certainly determine the capacity of ICTs to incorporate governance processes. M. Backus (2001) has focused on the four phase e-governance model, proposed by Gartner, an international e-business research consultancy firm. The four phases are information, interaction, transaction and transformation 31 . The same literature has also described the process of visioning, strategy, and implementation for successful e-governance projects. K.D.Mishra (2002) in a weekly publication described the issues coming in the implementation of e-governance 32 • He has highlighted four issues technology, management, funding, and socio-cultural in his whole article. The funding issue has also bee highlighted well by The ICFAI Journal of Infrastructure (2006). In that journal P. Sinha has suggested three models for financing the e-governance infrastructure. In the first model governments can look after the portals and websites. In the second model government can collaborate with IT majors and finally in the third model tells about the publicprivate partnership for the infrastructural finances 33 • The authors are quite proud enough to have a book on 'good governance and e-governance', before carrying out this research. In that book, various steps in e-governance has been captured lucidly34. The various steps are like development of a high level awareness and commitment, evolving policy framework, building ICT infrastructure etc. Samir Sachdeva has also suggested twenty five steps for successful e-governance, which is available on the website 35 • He has insisted upon such steps mainly from the perspective of developing nations like India. He has also elaborated the need for integration between various stakeholders of e-governance. Regarding the opportunities and challenges of e-governance, The Electronic Journal on Information Systems in Developing Nations (EJISDC) is really a good source. In one of its volume, Valentina Ndou (2004) has directly focused on challenges and opportunities of e-governance in the context of developing countries 36 • The main opportunities according to her are: ~
Cost reduction and efficiency gains
~
Quality of service delivery to businesses and customers
~
Transparency, anticorruption, accountability
~
Increase the capacity of government
~
Network and community creation
31
Backus, M. 2001. "E-Governance and Developing Countries: Introduction and Examples". Research Report.
32
Mishra, K.D. 2002. "Electronic Governance". Employment News. Vol. XXVII. No.6, pp.1-2.
33
Sinha, P. 2006. "E-Governance Projects and Infrastructure Issues". The ICFAI Joumal of Infrastructure. March, pp.42-45.
34
Pani, N., Mishra, S.S. and Sahu, B.S. 2004. Modem Systems of Governance: Good Governance Vs. E-Governance. New Delhi: Anrnol Publications. Sachdeva, S. 2006. op.cit. Ndou, V. 2004. "E-Government for Developing Countries: Opportunities and Challenges", The Electronic Journal on Information Systems in Developing Countries. 18 (1).
35 36
18
E-Governance ~
Improve the quality of decision-making
~
Promote use of ICT in other sectors of the society
Scores of literatures are available on the opportunities of e-governance. Authors like G. AI-Kibsi et.aJ37, M.Lin et.aJ38, etc. have all highlighted on this. AI-Kibsi et.al has opined that putting services online substantially decreases the processing costs of many activities compared with the manual way of handling operations. M.Lin et.al has taken the example of Beijing's Business e-Park, which applies the latest computer and internet technologies to improve the efficiency and responsiveness of government. If businesses choose to use this system, they can reduce the time required for gaining approval for specific applications from 2-3 months to few days. The OECD Document also opines that e-governance improves the quality of decision-making 39 • The OECD argues that the strengthening relationship between government and citizens could improve the quality of services by allowing government to tap wider sources of information. Valentina Ndou (2004) has also mentioned the challenges to e-governance as: ~
ICT infrastructure (e-readiness, computer literacy, telecommunication equipment)
~
Policy issues (legislation)
~
Human capital development and life long learn'ing (skills, capabilities, education, learning)
~
Change management (culture, resistance to change)
~
Partnership and collaboration (public/private partnership, community and network creation)
~
Strategy (vision, mission)
~
Leadership role (motivate, involve, influence, support)
S. Bhatnagar and N.Vyas (2001) has taken the example of Gyandoot project in highlighting ICT infrastructure challenge 40 • Similarly, E. Granados and M.E. Masilungan (2001) has taken 37
AI-Kibsi, G., De Boer, K., Mourshed, M, and Rea, P.R. 2001. Putting Citizens Online, Not In-line. The McKinseyQuarterly.2. [Available at http://www.mckinseyquarterly.com/article_page.asp?tk=: 1004:andarticlenum= 1004]
38
Lin, M., Zhu, R. and Hachigian, N. 2001, Beijing's Business E-Park. Washington, D.C: The World Bank.
39
[A vailable at http://www1.worldbank.org/publicsector/egov/zhongguancun_cs.htm] Engaging Citizens in Policy-Making: Information, Consultation and Policy Participation. 2001. Puma Policy Brief No. 10. Paris: OECD,
40
Bhatnagar, S. and Vyas, N. 2001. Gyandoot: Community-Owned Rural Intemet Kiosks. Washington, D.C: The World Bank. [Available at http://www1.worldbank.orglpublicsectorlegovlgyandootcs.htm]
19
Introduction
the example of e-procurement system of Philippines for highlighting the policy issue as a challenge to e-governance 41 • Regarding the global experiences of e-governance, the researcher has taken the help of trust worthy sources like government websites, government reports, journals, news paper etc. The governmental portal firstgov.govand www.usa.govare the sources of e-governance initiatives. In www.usa.gove-governance structure of US has been highlighted. The structure is based upon three relationships - Government to Citizen, Government to Business, and Government to Government. Similarly www.direct.gov.uk, the governmental portal o.f UK is the source of UK's e-governance initiatives. The portal has described three aims of e-governance initiatives in UK as: " ~
Make government information widely and freely available
~
Make information publicly accessible and helpful to citizen's charter principles
~
Encourage open and transparent government
Australian e-governance is well reflected in the governmental document42 • The said document defines the opportunities and challenges of the information economy and Australia's response to that. The governmental website www.agimo.gov.auhas mentioned the four areas of e-governmental activities as: ~
Meeting user's needs
~
Establishing connected service delivery
~
Achieving value for money
~
Enhancing public sector capability
The strategic aims of New Zealand's e-government programme have been highlighted in the portal www.e.govt.nz. The services offered by New Zealand e-government are reflected in the governmental portal Www.govt.nz. The said portal mentions about online authentication, public sector intranet, government shared network etc. For e-governance in Canada, many web sources have been cited. Accenture has ranked Canada as first in e-governance implementation 43 • Government On-Line (Gal) is a government wide initiative to use ICT to 41 42
43
Granados, E. and Masilungan, M.E. 2001. Philippines Pilot E-Procurement System. Washington, D.C: The World Bank. [Available at http://www1. worldbank. orglpublicsectorlegovlphilippines_eproc.htmJ Australia's Strategic Framework for the Information Economy 2004-2006: Opportunities and Challenges for the Information Age. 2004. Department of Communications, Information Technology and the Arts. Government of Australia. [Available at http://www.dcita.gov.aul_dataiassetslpdCfilel20457INew_SFIE_July_2004_final.pdf] www.egovmonitor.org
20
E-Governance
enhance Canada's access to improved and integrated services. The major services offered by the Canadian GOl are: ~
Business Start-up
~
Corporations Directorate Electronic Filing
~
Statement of employment expenses
~
Statement of employment insurance benefits
~
Election and revocation of an election to use the quick method of accounting
The website www.ec.europa.eu has been referred for e-governance initiatives in Italy and Norway. As a part of Italian e-governance initiatives, 20 basic public services have been provided electronically. Out of such 20 services, 12 are for citizens and 8 for businesses. Income tax declaration, personal document, certificates (birth, marriage) request and delivery are some of the public services provided through electronically. Similarly, among business category, public procurement, and custom declaration are important services delivered electronically. In Norway the foundation stone for e-governance has been laid in National IT policy in 198244 , which is available at www.ec.europa.eu. The same website also tells that the first plan to use ICT as a tool for public reform was initiated in 2000 and the first version of the 'eNorway' plan for ICT policy was released by the Ministry of Trade and Industry. In 2007 itself new web portal www.government.nohasbeenlaunched.Fore-governanceinDubai.asingle document45 is pregnant with enough data. Okan Geray and Salem AI Shair, the authors of that document envisioned the Dubai e-governance initiatives, thus transferring Dubai from Oil economy to information economy. The goals of Dubai e-government initiative are well documented. Dubai e-Government inaugurated its official portal www.dubai.aein 2001. Today individuals can pay their utility bills, inquire and pay their traffic and parking fines, register their vehicles, book properties on line through the government departments. A number of literatures are available for Chinese e-governance. J.S.l Yong (2003) has pOinted out that, China invests huge amount of money one e-governance initiatives, which grows around 40% per yeaf"6. The history of Chinese e-governance march has been referred from the book written by E. Feigenbaum (2003)47 and M.Franda (2002)48. An article written by R. Kluver 44
Decentralization and Efficiency of Electronic Administrative Processes in the Public Administration. 1982. Report No.12. Ministry of Labour and Government Administration. Government of Norway.
45
Geray, O. and Shair, S. A. 2006. Dubai e-Government Initiative: Concept, Achievements and the Future Pillars of Success. Dubai e-Government. Yong, J.S.L. 2003. E-government in Asia: Enabling Public Service innovation in the 21st Century. Singapore: Times Editions. Feigenbaum, E. 2003. China's techno-warriors: national security and strategic competition from the
46 47 48
nuclear to the information age. Stanford: Stanford University Press. Franda, M. 2002. China and India Online: Information Technology, Politics, and Diplomacy in the World's Two Largest Nations. Lanham, MD: Rowman and Littlefield.
Introduction
21
(2005)49 in Journal of Public Policy gives a detailed picture of Chinese e-governance initiatives. All the projects are called as 'Golden Projects'. R. Kulver50 , Lovelock et.aP', Lovelock and Ure 52 Lovelock, P. and Yong53 have grouped the projects into three tiers. The first tier was composed of four major projects, including the Golden Bridge project, designed to tame China's raging inflation and ballooning credit by providing basic information about the ongoing economic activities to central and local governments for the purposes of planning and coordination, to foster the sharing of information resources in the economy, and to facilitate macro-level control. One of the most neglected projects on this first tier, at least by scholars, is the' golden sea' project, which was aimed at creating an information system linking top governmental leaders, which would provide them direct access to all institutions, organizations, and offices under the direct control of the Central Committee 54 • The research study conducted by Bangladesh Enterprise Institute on e-governance seems to be a good source on e-governance in Bangladesh55. The research document has categorized the successful, semi successful and failed initiatives in Bangladesh. The evolution of e-governance in Bangladesh has also been well described. The factors for failure and suggestions for future have been analyzed in that document. In addition to the strategiC recommendations, the document has suggested specific action initiatives for the government that include:
49
~
Create incentive for championing ICT
~
Allow revenue budget for recruitment of ICT human resource in government offices
~
Establish a maintenance team which can be shared by different offices
~
Build Internet kiosks around the country
~
Establish an e-procurement system in Bangladesh
~
Create one-stop government portal
~
Develop a scheme for nationallD
~
Crea.te online payment gateway Kluver, R. 2005. "The Architecture of Control: a Chinese Strategy for e-Governance". Journal of Public Policy. 25 (1), pp.75-97.
50
Ibid.
51
LovelOCk, P., petrazzine. B., Clark, T. and Petrazzini, J. 1996. China's Golden Projects: Reengineering
The National Economy. [Available at http://www.asiacase.com/ecatalog/NO_FILTERS/page-EC_DEVT529579.html] 52
LovelOCk, P. and Ure, J. 2004. "E-Government in China". In Mishra, S. S. and Mukhe~ee, A. 2007. (Ed.).
53
Yon'). J.S.L. 2003. Op.cit.
54
Ibic'.
E-GtJvernance in Developing Nations. Hyderabad: ICFAI University Press.
55
Study of e-Government in Bangladesh. 2004. Bangladesh Enterprise Institute. [Available at http://www.bei-bd.org/docs/egov1.pdf]
22
E-Governance ~
Introduce cyber laws
~
Set up an e-government Resource Center
Regarding the e-governance in Malaysia, the researcher has referred the portal of UNESC056. The portal mentions numerous programs undertaken by Malaysia like 'Medan Infodesa', 'Internet Desa', 'Pondok Harmoni' etc. The implementation of e-governance has taken a holistic approach encompassing elements such as applications, networks, security, process reengineering, management of change, skills and knowledge etc. The UNESCO portal also throws light on e-governance of Mauritius57 . The government is paving the way to an e-governance through numerous projects. Such projects are Government on the Internet which is a portal to all Ministries/Departments. As for example the 'trade net' project has been operational since 1994 under the Ministry of Finance. This system deals with electronic authorization by customs for delivery of goods, electronic declaration and processing of bills of entry and the transfer of containers. The UNESCO portal is a source of Mexican e-governance also. The e-Mexico national system has as its main target to offer access to a series of contents and applications in the matter of education, health, commerce, tourism, government services and other community services. A number of websites and literatures have been followed for Brazilian e-governance. Tadao Takahashi (2000)58 gives a detailed background about Brazilian e-governance. He has exposed actions towards the strengthening of the economy through the usage of ICT and the expansion of its access to the population. The Brazilian government portal 59 has posted the electronic taxation (e-Tax) procedures. The most important aspect of Brazilian e-governance is that, voting is made through ICT leading to e-democracy. Data regarding e-voting of Brazil has also been down loaded from another web portal 60 . Literature regarding Mozambique e-governance is meager. The researcher has edited volume titled E-Governance in Deve/oping Nations, and in that book, an article regarding Mozambique e-government seems to be a good source 61 . The Mozambican e-governance strategy is characterized by being business driven and citizen centric. MOZEG is a flagship project of Mozambique for the development of the people, ultimately contributing to good governance. There is no dearth of literature on e-governance in India. The researcher is dependent on good number of journals and books for this. Besides that some governmental documents and websites have also been referred for discussing e-governance in Indian context. Researcher's earlier published book titled Modern Systems of Governance: Good Governance 56 57
http://portal.unesco.org/ci/en/files/3044/10274053474E_governance_study_fuIUext. doc/_ Toc14840 170
58
Takahashi, T. 2000.
59
www.e.gov.br
www.portal.unesco.orglcilenlfilesl30441102740534 74E_governance_study_fuIUext. doc/_ Toc 14840 183 Sociedade da Informat;lJ.o no Brasil- Livro Verde. Vol 1. Ministerio da Ci6ncia e Tecnologia.
60
www.tse.gov.br
61
Macome, E. and Macueve, G.A. 2005. "E-Government for Mozambique: Challenges and Opportunities". In Mishra, S. S. and Mukherjee, A. (Ed.). E-Governance in Developing Nations. Hyderabad: ICFAI University Press, pp.167-
188.
Introduction
23
Vs E-Governance has given vivid picture about e-governance initiatives in India leading to good governance62 . E-governance initiatives in States like Karnataka, Andhra Pradesh, Kerala, Maharashtra etc are focused lucidly in the book. But as e-governance is a dynamic area, the researcher has referred some other journals and books for up to date data. Dillip Dasgupta (2006)63 has given an evolutionary background of e-governance in India. He has also reflected upon National E-Governance Action Plan (NeGP). NeGP seeks to lay the foundation and provide the impetus for long term growth of e-governance within the country. Major components of NeGP have been formulated by Frost and Sullivan and are available in the article of Dillip Oasgupta. The major components are core policies, core infrastructure, support infrastructure, organization and structure etc. Coming to the State performances in e-governance, the researcher has relied upon government reports and websites. Government of Andhra Pradesh (GoAP) has embarked on several e-governance initiatives to leverage the tools of ICT in serving its citizens, which are beautifully mentioned in the governmental document titled as Vision of E-Government in Andhra Pradesh 64 , which is available in UN website. Computer Aided Administration of Registration Department (CARD) is an old project implemented in India. Regarding CARD, Pradip Sinha's article 65 focuses on goals, objectives and benefits of CARD. CARD project is now prevalent in whole Andhra Pradesh. E-seva project has been referred directly from the website 66 . The main purpose of e-seva is to serve the common man and it is found so in the Metropolitan cities. E-seva builds on the success of the TWINS pilot project launched in 1999 and about TWINS Pradip Sinha's article in The ICFAI Journal of Infrastructure throws sufficient light. In the World Bank website 67 , e-procurement, an e-governance initiative of Andhra Pradesh has been mentioned. The entire e-procurement process has been designed to avoid human interface, i.e., supplier and buyer interaction during pre bidding and post bidding stages. To bring in transparency in e-procurement, tender documents containing all details are hosted on the website. For e-governance in Karnataka, the sources referred are websites, news paper, journal etc. For Bangalore One (B1), e-procurement the researcher has referred the website of National Institute of Smart Government (NISG)68. Created on the lines of e-seva of Andhra Pradesh B1 have service centers throughout the city of Bangalore. The main objective of e-procurement in Karnataka to reform the tendering process for procurement of goods, services and works in the public sector. For 'Bhoomi' project of Karnataka, the researcher has referred the news-paper and journal. Hindustan Times has focused on the main features of 'Bhoomi' projecf69 • It is a fully 62
Pani, N., Mishra, S.S., and Sahu, B.S. 2004. Modern System of Governance: Good Governance vs. E-governance. New Delhi: Anmol.
63
Dasgupta, D. 2006. "E-Governance in India". Global CEO, ICFAI University Press.
64
Vision of E-Government in Andhra Pradesh. 2002. Department of Information Technology and Communications. Government of Andhra Pradesh. [Available at http://unpan1.un.orglintradocigroups/publicidocuments/APCITYI UNPAN005031.pdf]
65
Sinha, P. 2006. "E-governance Projects and Infrastructure Issues". The ICFAI Journal of Infrastructure.
66 67
www.esevaonline.com www.worldbank.org/WBSITEIEXTERNAUTOPICS
68
http://www.nisg.org/docs_pdfs_ppts/docs/NISG_Brochure_Single_750k.pdf
69
Savant S. 2003. "E-Government in Action". April 7. Hindustan Times. [Available at www.hindustantimes.comj
24
E-Governance
automated system to carry out mutations on land records data. Similarly supply and demandside stakeholders in 'Bhoomi' project have been figured beautifully in The ICFAI journal of Infrastructure7o. T. T. Sreekumar in his article 'Civil Society and The State-led Initiatives in ICTs: The Case of Kerala' has given an overview about preparatory work of the government regarding e-governance 71 . One of the successful projects of Kerala is FRIENDS. Regarding this initiative, literatures are also abundant. The researcher has referred the magazine projects and Profits72. The FRIENDS project has improved the delivery of services and imperfect systems through the use of IT ant treats citizens as valuable customers who pay for the new services. Information regarding e-shringhla project of Kerala has been brought from the website 73 . E-shringhla is related with the application involved in setting up a one-stop, webenabled portal for information and services relating to the government-citizen interface. Yojana, the journal published by Publications Division 74 has been referred for 'Sarita', an e-governance initiative in Maharashtra. It is an e-registration experiment. Besides transparency and accountability, speed and zero pendency are the benefits of 'Sarita'. The official website7S of UNDP's Asia-Pacific Development Information Program (APDIP) is praise worthy source of e-governance initiatives in Indian States. The website has been referred for 'Warna Wired Village', an e-governance initiative of Maharashtra and 'TARAhaat' project of Uttar Pradesh. The 'Warna Wired Village' project was launched by the IT Task Force of the prime Minister's Office to demonstrate the use of ICT to accelerate socio-economic development of a cluster of villages around Warna in Maharashtra. 'TARAhaat' is a gateway that connects the village user to information, social services, entertainment, and also to various markets through a network of franchised cyber centres. The 'Lokvani' project of Uttar Pradesh has been referred from the journal Yojana 76. The project establishes a single window system to access various government services and information at the door step of villagers. The project has created social awareness, a must for good governance regarding matters of development, government schemes, public utilities and other problems. Madhya Pradesh's achievement in e-governance can be found out from the government website of the State77 • The official website of APDlp78 has also mentioned about the e-governance initiatives of Madhya Pradesh. The site mainly highlights two initiatives called 'E-choupal' and 'Gyandoot'. E-choupal helps farmers realize larger harvests by providing them with the latest weather reports and best farming practices. The information is retrieved from the internet and available in local languages. "Gyandoot' is a web based intranet services provider. The four pillars of 'Gyandoot' community network are 70
Sinha, P. 2006. op.cit.
71
Sreekumar, T. T. 2002. Civil Society and The State-led Initiatives in ICTs: The case of Kerala.
72
[Available at http://www.Hmahd.ernet.inlegovlifipldec2002larticle2.htm] Sinha, P. and Anand, A. 2005. we-Governance Projects in India"'. Projects and Profit. ICFAI University Press.
73
www.egov4dev.org!eshringhla.htm
74 75 76
Yojana. 2005. Publication Division. August. Vo1.49. New Delhi, pp.76-n. www.apdip.net Singh, H.S. 2005. "Lokvani: Empowering People". Yojana. Vo1.49. New Delhi: Publications Division, pp.72-74.
n
www.mp.nic.in www.apdip.net
78
Introduction
25
people, content, services, and server. "Gyandoot' is an international accolade winner project, hence numerous literature are available on this area. Centre for Electronic Governance (11M, Ahmedabad) has made a cost benefit evaluation study of "Gyandoot'79. Simone Cecchini and Monica Raina (2005, 2007) in their article80 have found that service satisfaction is quite high, but usage is low, and Gyandoot is not reaching the poorest people. They conclude that much of the potential benefits of e-government are not being realized. The official website of West Bengal GovernmentB 1 , is a good source for e-governance initiatives in West Bengal. The Government of West Bengal has set up e-governance counters in locations of the State where density of population is high with high degree of backwardness. West Bengal state wide Area Network (WBSWAN) is the backbone network of e-governance in Bengal and data regarding this has been retrieve::l from the website als0 82 • The website of the Orissa GovernmentB3 has provided a good insight regarding the history of Orissa. Orissa had a distinct identity as Kalinga, Odra, and Utkal in the past. The ancient State rose to prominence under Kaharvela, a great conqueror and patron of Jainism. The web literature also provides knowledge about cultural glory of Orissa. Orissa State Gazetteer84 has been referred by the researcher frequently while discussing the administrative, social and economic aspects of Orissa. The said document depicts a beautiful picture about the creation of Orissa as a separate province. The state of affairs of Orissa during the period of Britishers provides necessary inputs regarding the role of Orissa during freedom movement. Geography of Orissa has also been pictured in that document. The Economic Survey of Orissa presents the status of the state's economy as well as its strength and weaknesses based on a review of the development performance of the state. The official website of Orissa Computer Application Centre (OCAC)85 is a store house regarding e-governance initiatives in the state. The said website is the only reliable source for e-governance vision, e-governance strategy, and e-governance blueprint. "E-shishu', an e-governance initiative has also been described in that site. "E-shishu' aims at tracking each child whether in school or out of school of the State of Orissa by demographic attributes, education status, financial status. The other notable initiatives like "Bhulekh', "Bhasa' etc are described in another website 86 • For "GRAMSAT' project the researcher has referred an article of C. Pati (2001) in Orissa Re vie w . The State has gone a step further in augmenting e-governance with the
'
79
Gyandoot: Rural Cybercafes on Intranet Dhar, Madhya Pradesh, India: A Cost Benefit Evaluation Study. 2002. Centre for Electronic Govemance. Indian Institute of Management, Ahmedabad. [Available at http://www.iimahd.ernet.in/egov/documents/gyandoot-evaluation.pdf]
80
Cecchini, S. and Raina, M. 2005. "Electronic Govemment and the Rural Poor: The Case of Gyandoot". Information Technologies and International Development. Massachusetts: MIT.
81 82 83 84
www.wbgov.com www.webel-india.com/wbswan.html www.orissa.gov.inlintro.htm Orissa State Gazetteer. Vol I. Gazetteers Unit. Department of Revenue. Govemment of Orissa.
85 86 87
www.ocac.in www.egovonline.net Pati, C. 2001. "GRAMSAT Training Programme". Orissa Review. Bhubaneswar.
26
E-Governance
launching of the GRAMSAT project. Orissa is famous for implementing e-governance in Panchayati Raj Department and regarding this data has been accessed from the official website of the government88 •
1.5. Plan of Study The whole gamut of study is divided into seven chapters. The 1st chapter which is the introductory one deals with the idea of concept of good governance and e-governance and also howe-governance leads to achieve good governance. It subsequently deals with hypothesis, objectives, review of literature etc. The 2nd chapter is mainly concerned with the analysis of the concept of good governance and e-governance. It tries to distinguish between government and good governance and then between e-government and e-governance. The concept of good governance has been analyzed lucidly in the context of World Bank and IMF. While discussing the concepts, objectives and components of governance, the researcher has also discussed the models of e-governance implementation. The various steps for e-governance, its opportunities and challenges are also discussed in this chapter. The 3rd chapter goes deep into the history and socio-economic profile of the State Orissa where e-governance as a vehicle of good governance has been studied. The history, geography, and socio-economic conditions are defined in this chapter. The 4th chapter throws lights upon global experiences of good governance. The developing, developed and least developed countries are taken as examples. The countries discussed here by touching all the continents. The 5th chapter focuses on e-governance initiatives in India. By doing so, the researcher has taken the States from north, south, east and west for discussion. The famous e-governance initiatives of India like E-seva, Gyandoot, E-choupal, FRIENDS, Lokavani etc has been discussed in this chapter. The 6th chapter deals exclusively with e-governance in Orissa. Before going to deep, e-governance vision, strategy and blueprint are discussed first. Then the efforts of the State regarding the use of leT in delivery of services have been discussed at a length. The researcher throws light upon how far e-governance initiatives in the State have become able to achieve good governa,nce. The interaction with the beneficiaries is also a part of this chapter. " 88
www.orissagov.nic.in
Introduction
27
The ]lh chapter or last chapter is the concluding part of this study, which describes the role of e-governance in achieving good governance. The loopholes and the researcher's view are also a part of this chapter.
1.6 Hypotheses ~j "'._=•.. 1
~
,
".~ _ _ _. L »
.» _
~~.
A number of hypotheses have been taken to examine the focus and impact of E-governance on common people. They are: ~
Majority of the e-governance beneficiaries in Orissa are literate.
~
Opinion is divided as to e-governance has failed to serve the aspirations of the poor.
~
Majority of the people has never listened about e-governance.
~
E-governance means a just computerization of the governance system.
~
E-governance reduces corruption in administration.
~
E-governance has made the delivery of services easier.
~
People are not satisfied with the technology based administration.
~
E-governance has failed to reduce the crimes in the State.
~
E-governance has changed the mindset of the administrators.
~
E-governance can be more successful if participation of the beneficiaries is ensured.
~
E-governance has no role in solving the social problems like communalism, casteism etc.
~
Overall e-governance can bring good governance.
1.7 Utility of Study Benefits of the study are far reaching. Among the States of India, Orissa has a peculiar face. The State is full with natural resources. But it is a matter of irony that many people are afflicted with poverty. Man made calamities has combined with natural calamities to put the governance of the State in disarray. The State had a glory past, recharging the memory at every time that past glory could also be restored. For this globalization has brought immense opportunities. The introduction of ICT has transferred the whole world into a global village. With the use of ICT, the delivery of services has become easier and hassle free. E-governance is nothing, but this ICT enabled governance. Can such e-governance provide good governance to the people? In this background this study has analyzed the realization of the goal 'good
28
E-Governance
governance' through 'e-governance' in the State of Orissa. While doing so, this study has tried to identify the bottlenecks in e-governance initiatives in Orissa and prescribes the course of actions in hindering the hindrances on the way to good governance.
1.8 Limitations of Study Specifically, time and money has made the authors disabled in preparing this volume. E-governance is a dynamic area and there is a deluge of information regarding various initiatives. As a result, the authors are in an awkward position how to handle a large number of data. Many beneficiaries of e-governance in the State are illiterate; hence their response to my questions is also not satisfactory. In spite of busy working life, the authors have surveyed two blocks of one district of the State. Due to lack of time, no doubt the study has become narrowed. Due to paucity of time also cost benefit analysis of all the e-governance initiatives of Orissa could not be done.
Summary This part is the introductory one dealing with the idea of concept of good governance and e-governance and also howe-governance leads to ach ieve good governance . It subsequently deals with hypothesis, objectives, review of literature etc.
ClCJD
Learning Objectives 2.1.
Government, Governance, and Good Governance 2.1.1. Government and Governance 2.1.2. Good Governance: What it is?
2.2.
E-Goverment and E-Governance 2.2.1. E-Government and E-Governance: The Concepts 2.2.2. E-Governance: Objectives 2.2.3. E-Governance: Components 2.2.4. E-Governance: Application Domains 2.2.5. E-Governance: A Four Phase Model 2.2.6. Implementing E-governance 2.2.7. E-governance: Various Steps 2.2.8. E-governance: Opportunities and Challenges
E-Governance
30
In the science of administration , whether public or private, the basic things are efficiency, economy, and effectiveness. These can be achieved only through good governance. Good governance means maximum benefit for maximum number of people in a society. With the rapid expansion of public administration, people's expectations are continuously increasing. So it is a challenge for every government to provide good governance to her citizens. Then, what is this good governance? And, how it can be achieved? In fact good governance has a number of parameters. Good governance is the destination point for every government, and a number of vehicles run to that destination point. E-governance is being one of them. Here, another question comes to our inquisitive mind, that, what is e-governance? To find answers for above mentioned questions, a conceptual clarity regarding good governance and e-governance is necessary. This chapter is divided into two broad sections on good governance and e-governance.
2.1. Government, Governance, and Good Governance
~: "
Good governance is a concept that has recently come into regular use in political science, public administration, and more particularly development management. It appears alongside such concepts and terms as democracy, civil society, popular participation, human rights, and, social and sustainable development. In the 1990s, both the terms governance and good governance are highlighted by the World Bank.
Government and Governance Governance has wider meaning and implications than those of the term 'Government'89. Government refers to the machinery and institutional arrangements of exercising the sovereign power, whereas, governance means the process as well as the result of making authoritative decisions for the benefit of the society90. Government's foremost job is to focus society on achieving the public interest, while governance is a way of describing the links between government and its broader environment - political, social, and administrative. Governance is the process through which decisions are made and implemented. So policy formulation and its execution are chief parts of governance. Since governance is the process of decisionmaking and the process by which decisions are implemented, an analysis of governance focuses on the formal and informal actors involved in decision-making and implementing the decisions. Government is one of the actors in governance. Other actors involved in governance vary depending on the level of government. The fundamental differences between government and governance are mentioned in Exhibit 2.1 .
89 90
Mukhopadhyay, A. 1997. "Reinventing Government for Good Governance". Indian Journal of Public Administration. Annual Issue, P.281 . Pani, N., Mishra, S.S. and Sahu, B.S. 2004. Modem System of Governance: Good Governance vs. E-governance. New Delhi : Anmol, P.S.
E-Governance and Good Governance: A Conceptual Analysis
Government
Governance
Superstructure
Functionality
Decisions
Process
Rules
Goals
Rules
Performance
Implementation
Coordination
Outputs
Outcomes
31
Exhibit 2.1. Government vs. Governance
Conceptually, governance is not new. It is as old as human civilization. But in 1990's, the term came into prominence due to the political and economic changes that marked the decade. In 1989, the concept of governance was for the first time highlighted in a World Bank Document on Sub-Saharan Africa. The document has identified four key dimensions of governance91 • They are: ~
Public Sector Management
~
Accountability
~
Legal Framework for Development
~
Information and Transparency
The Bank Document on Sub-Saharan Africa had this to say92: "Improving governance would begin with an assessment of the institutional environment which determines the patrimonial profile of the country, high when all other factors are absent and low when they are present." In 1992, the World Bank Document, 'Governance, and Development' defined governance93 as the manner in which power is exercised in the management of a country's economic and social resources for development. The above mentioned two documents of World Bank are in fact, the bible of good governance, about which more discussion will be made in the analysis of good governance.
91
Sub-Saharan Africa: From Crisis to Sustainable Growth: A Long term Perspective Study. 1989. Washington, D.C: The World Bank.
92 93
Sub-Saharan Africa: From Crisis to Sustainable Growth: A Long term Perspective Study. 1989. op. cit. Govemance and Development. 1992. Washington, D.C: The World Bank.
32
E-Governance
Good Governance: What it is? On the background conditions of the good governance concept, it is pointed out that contemporary western aid overseas development policies have three defining features 94 . First, the aim of aid has been to promote open market friendly and competitive economies. This policy was embodied in the new conditionality of structural adjustment lending, developed in the 1980's. Later in the 1990's, two further features have been added to structural adjustment. These are support for democratization, and improvement of human rights records, which has come to be called as 'good governance'. Development assistance to the third world countries in the post cold war era has thus been subjected to the new politics of good governance. As mentioned earlier, the concept had its origin in the World Bank Document on Sub-Saharan Africa in 1989. The Document defined good governance 95 as a, "public service that is efficient, a judicial system that is reliable, and an administration that is accountable to the public." From its lending experience in many developing countries, the bank came to realized that, good governance is central to creating and sustaining an environment which fosters strong and equitable development, and it is an essential complement to sound economic policies. Three distinct aspects are identified in this conceptualization 96 , which are: }>
The form of political regime.
}>
The process by which authority is exercised in the management of a country's economic and social resources.
}>
The capacity of governments to design, formulate, and implement policies.
A first hand experience helped World Bank Document to describe the problems of governance vividly. For instance, despite technical soundness, programme and projects have failed to produce desired results, laws are not enforced properly, and there are often delays in implementation. Against this background of mal-governance, the conditions of good governance are carefully spelt out in The World Bank Document (1992)97, which sums up: "Governance is a continuum and not necessarily non-directional. It does not automatically improve overtime. It is a plant that needs care. Citizens need to demand good governance. Their ability to do so is enhanced by literacy, education, and employment opportunities. Governments need to prove responsive to those demands."
95
Bhattacharya, M. 1997. "Conceptualizing Good Governance". Indian Journal of Public Administration. Annual Issue, pp.290-291. Sub-Saharan Africa: From Crisis to Sustainable Growth: A Long term Perspective Study. 1989. op. cit.
96
Governance and Development. 1992. op. cit.
97
Ibid.
94
E-Governance and Good Governance: A Conceptual Analysis
33
Good governance is associated with efficient and effective administration in a democratic framework98 • It is equivalent to purposive and development oriented administration, which is committed to improvement in quality of life of the people. It implies high level of organizational effectiveness. Pai Panandiker sees good governance 99 as it pertains to a nation State which handles its people to lead a peaceful, orderly, reasonable, prosperous, and participatory life. Vivek Chopra defines good governance 100 as unambiguously identifying the basic values of society and pursuing these. Then it is clear that, good governance has been defined sometimes in terms of goals, sometimes in terms of means, sometimes left entirely to democratic choice of goals and sometimes with preordained goals. Good governance is not just valued in itself. It is believed to lead to development. The OECD Document 101 links good governance with participatory development, human rights, and democratization. But not withstanding the conceptual veracity, it is clear that good governance provides a framework within which political, social, and economic priorities are based on a broad consensus in society and that the voices of the poorest and most vulnerable are heard in the decision-making processes. In addition, good governance has major implications for equity, poverty, and quality of life. So briefly, good governance may be defined as comprising the processes and structures that guide political and socio-economic relationships, with particular references to, 'commitment to democratic values, norms and practices, trusted services and just and honest business'.
Characteristics of Good Governance102 Good governance has eight major characteristics. It is partiCipatory, consensus oriented, accountable, transparent, responsive, effective and efficient, equitable and inclusive and follows the rule of law. It assures that corruption is minimized, the views of minorities are taken into account and that the voices of the most vulnerable in society are heard in decisionmaking. It is also responsive to the present and future needs of society.
98 99 100 101
102
Asmerom, H.K., Borgman, K. and Hopee, R. 1995. "Good govemance, and Decentralization in Post Colonial State". Indian Journal of Public Administration. 41 (4), P.736. Sengupta, B. 1996. India: The Problem of Governance. New Delhi: Konark, P.12. Kashyap, S.C. 1997. (Ed.). Crime, Corruption, and Good Governance. New Delhi: Uppal, P.113. Final Report of the Adhoc Working Group on Participatory Development and Good Governance. 1997. Part 1. Paris: OECD. http://www. unescap. org/pddlprslProjectActivities/Ongoing!gg!governance.asp
34
E-Governance
Consensus oriented
Accountable Transparent
Participatory GOOD GOVERNANCE Follows the rule of law
Responsive
efficient
Equitable and inclusive
Exhibit 2.2. Characteristics of good governance
Participation Participation by both men and women is a key cornerstone of good governance. Participation could be either direct or through legitimate intermediate institutions or representatives. It is important to point out that representative democracy does not necessarily mean that the concerns of the most vulnerable in society would be taken into consideration in decision-making. Participation needs to be informed and organized. This means freedom of association and expression on the one hand and an organized civil society on the other hand.
Rule of law Good governance requires fair legal frameworks that are enforced impartially. It also requires full protection of human rights, particularly those of minorities. Impartial enforcement of laws requires an independent judiciary and an impartial and incorruptible pOlice force.
Transparency Transparency means that decisions taken and their enforcement are done in a manner that follows rules and regulations. It also means that information is freely available and directly accessible to those who will be affected by such decisions and their enforcement. It also means that enough information is provided and that it is provided in easily understandable forms and media.
Responsiveness Good governance requires that institutions and processes try to serve all stakeholders within a reasonable timeframe.
E-Governance and Good Governance: A Conceptual Analysis
35
Consensus oriented There are several actors and as many view points in a given society. Good governance requires mediation of the different interests in society to reach a broad consensus in society on what is in the best interest of the whole community and how this can be achieved. It also requires a broad and long-term perspective on what is needed for sustainable human development and how to achieve the goals of such development. This can only result from an understanding of the historical, cultural and social contexts of a given society or community.
Equity and inclusiveness A society's well being depends on ensuring that all its members feel that they have a stake in it and do not feel excluded from the mainstream of society. This requires all groups, but particularly the most vulnerable, have opportunities to improve or maintain their well being.
Effectiveness and efficiency Good governance means that processes and institutions produce results that meet the needs of society while making the best use of resources at their disposal. The concept of efficiency in the context of good governance also covers the sustainable use of natural resources and the protection of the environment.
Accountability Accountability is a key requirement of good governance. Not only governmental institutions but also the private sector and civil society organizations must be accountable to the public and to their institutional stakeholders. Who is accountable to whom varies depending on whether decisions or actions taken are internal or external to an organization or institution. In general an organization or an institution is accountable to those who wi!! be affected by its decisions or actions. Accountability cannot be enforced without transparency and the rule of law.
The World Bank and Good Governance As a condition for lending development assistance, the Bank requires the recipient government to show effective performance and to promote further reforms. The rationale is that with good governance - that is, combating corruption, nepotism, bureaucracy, and mismanagement - and maintaining transparency, accountability, and proper procedures, aid would be effectively used to achieve the objective of reducing povertyl°3 103
Doornbos, M. 1995. "State formation processes under external supervision: Reflections on good governance".!n Stokke, O. 1995. Aid and political conditionality. London: Frank Casso
36
E-Governance
Traditionally, the Bank has not considered political issues in determining whether to undertake aid programs in the recipient State, for under their traditional mandates, the World Bank and the International Monetary Fund are to remain apolitical, not involved in considering governance issues. The World Bank's core mandate under its Articles of Agreement does not encompass governance reform unrelated to its economic growth agenda. As the Bank's general counsel Ibrahim Shihata Stated 104, the Bank can promote legal and civil service reform and transparency and accountability in budgetary discipline and fiscal management in pursuance of that agenda. Public sector reform aimed at efficiency and economic growth remained the Bank policy and practice until a shift took place in the 1990s following a 1989 Bank report that blamed a "crisis of governance" in Sub-Saharan African for a lack of effective use of development aid in the region 105 . A World Bank Staff Paper in 1991 identified external agencies as "potentially key political players capable of exerting considerable influence in promoting good or bad governance. In raising the shortcomings of a country's governance, external agencies are calling into question its government's performance"106.Thus, good governance appeared on the World Bank's agenda; one of the themes of the Bank's 1991 Annual Development Economic Conference was "Good Governance" (World Bank 1992b)107. On the relationship between development and governance, the Bank conceptualized governance to indicate the manner in which power and authority are exercised for development "in the management of a country's economic and social resources"108. Also, as former chief economist of the Bank Joseph Stiglitz acknowledged in 1999, a shift toward broader objectives, entitling more instruments, than was the case earlier, occurred with a change of views about development in the World Bank as well as in the development community109. A United Nations Conference on Trade and Development (UNCTAD) discussion paper suggested that the new mandate regarding governance "arrived at a moment when growing doubts regarding the purpose and effectiveness of the IFls seemed to threaten their funding and even their continued existence"110. Since the early 1990s, the Bank has actively engaged in governancerelated programs and projects. To illustrate, between 1996 and 2000, the Bank initiated significant governance reform in the public sector in at least fifty countries, while its governancerelated initiatives numbered more than six hundred in ninety-five countries 111 .
104
Shihata, I. 1991. The World Bank in a changing world: Selected essays. Dordrecht: Martinus Nijhoff.
105 106
Sub-Saharan Africa: From Crisis to Sustainable Growth: A Long term Perspective Study. 1989. op. cit. Landell-Mills, P. and Serageldin, I. 1991. "Governance and the external factor". World Bank Annual Conference on Development Economics. Washington, D. C: The World Bank.
107 108
Proceedings of the World Bank annual conference on Development Economics 1991. 1992. Washington, D. C: The World Bank. Sub-Saharan Africa: From Crisis to Sustainable Growth: A Long term Perspective Study. 1989. loc. cit.
109 110
Stiglitz, J. 1999. "The World Bank at the millennium". Economic Journal. 109 (F), pp. 577-97. Kapur, D. and Webb, R. 2000. "Governance-related conditionalities of the international financial institutions".
111
G-24 Discussion Paper,Series 6. New York: United Nations Conference on Trade and Development. Update on the IBRD's financial capacity. 2000. World Bank Document DCI200()'07iRev.1, April 10. Washington, D. C: The World Bank.
E-Governance and Good Governance: A Conceptual Analysis
37
Although the Bank presents the broader objectives mentioned by Stiglitz (1999) in economic terms, they cannot be separated from political aspects. As an illustration, the Bank, acting as the secretariat for a consortium of several donor countries that set political conditions for providing aid, conveyed those conditions to the aid recipient countries and monitored their implementation as we1l 112 . And the Bank's governance discourse reflects the tension between economic and political aspects of governance without at the same time providing precise criteria by which to define good governance and thus to evaluate a recipient country for the appropriate conditions for allocation of aid. As a starting point for the discussion here, a comment from the authors of the Bank's Staff Paper is appropriate: Governance may be taken as denoting how people are ruled and how the affairs of a State are administered and regulated. It refers to a nation's system of politics and how this functions in relation to public administration and law. Thus, the concept of governance goes beyond that of "government" to include a political dimension, with the focus on the structures of the State and its institutions as they relate to public administration and law, the Bank as the external agency prescribes these conditions purportedly to ensure transparency, accountability, and good management practices 113. Doornbos postulated that given the World Bank's orientation, one of the key aims of the Bank's designing a good governance approach "appears to have been the creation, in developing country contexts, of State-market relationships that have been characteristic for Western neo-liberal systems."114 He found the end of the cold war to have been a propitious time for the Bank to open the door for imposing internally directed political conditionalities. These are to be contrasted with externally directed conditionalities that do not address internal State structures. Internally directed conditionalities, on the other hand, address the structuring and operation of the aid recipient country's institutions, and are aimed at rolling back the State systems - unwieldy structures and operations of State institutions - of many developing countries 115 .The World Bank's emphasis has been on the economic dimensions of good governance and the State's capacity to effectively use the development assistance. It also continued to reiterate its apolitical approach to governance reform in the allocation of development aid by focusing on efficiency in public administration, rule of law, and transparency and accountability notions of governance as the major elements to ensure economic growth and development. Consequently, it did not explicitly question how legitimate the government and its power structures are, what the decision-making process is, how public policy is formulated and implemented, or how equitable the economic system is. In its 1997 Development Report, however, the Bank did refer to citizen participation and the role of the State as pertinent governance factors having a bearing on development11s . After a few years' experience with implementing the good governance agenda, it became apparent to 112
Gibbon, P. 1993. "TheWorld Bank and the new politics of aid". In Sorensen, G. 1993. (Ed.). Political conditionality. London: Frank Casso
113 114
Landell-Mills, P. and Serageldin, I. 1991. op. cit. Doornbos, M. 2004. "Good governance: The pliability of a policy concept". Trames. 8 (4), pp. 372-87.
115 116
Ibid. Martinussen, J. 1998. "Challenges and opportunities in Danish development co-operation". In Heurlin, B. and Moutritzen, H. (Ed.). Danish foreign policy yearbook 1998. Copenhagen: Danish Institute of International Affairs.
38
E-Governance
the Bank that socio-cultural and political contexts in the recipient countries and not the Western donors' preferences primarily shape the agenda. Although the recipient governments paid lip service to conditionalities for promoting transparency and political reform, little change in fact occurred because of resistance from entrenched socioeconomic and political interests 117 • Democracy, multi-partyism, and prescribed changes in aid-receiving countries' policy structures and processes are cases in point118. Acknowledging that conditionalities have failed to induce reforms and good governance in the recipient countries, the World Bank and the donors have increasingly shifted their focus from conditionality to selectivity in allocating aid. A 1998 World Bank report assessing aid Stated that the governments better able to use aid are those with good economic performance l19 . The report thus recommended that aid be linked with performance and targeted to countries with effective institutions and sound policies. Subsequently, David Dollar, the main author of the Bank report, collaborating with other Bank researchers, conducted a case study of ten Sub-Saharan African countries and reaffirmed his earlier finding that conditionalities had not succeeded in inducing policy changes 120. Another World Bank study likewise posited that since "corruption can significantly impair aid effectiveness," the Bank has learned to allocate aid taking into account corruption in the recipient country121. Consequently, the World Bank and several donor countries have shifted their focus from attempting to induce good governance in a recipient country by providing aid and attaching political conditionalities to requiring performance and good governance as a prerequisite from a recipient government. To illustrate, Anne Krueger, a former Bank vice president who subsequently became IMF's deputy managing director, said that the Bank "will need to differentiate carefully between countries where reforms are serious and stand a reasonable prospect of success and those in which window dressing is used as a means of seeking additional funding"122. Aid policies of the Dutch government123 and the U.S. government124 reflect this policy shift. Another recent apt example is the Norwegian ambassador's announcement in July 2005 that Norway had suspended $4 million in aid to the Ugandan government for its "mishandling the transition to multiparty democracy, stifling opposition parties, failing to combat corruption 117
(i) Bayart, J.F. 1993. The State in Africa: The politics olthe belly. London: Longman (ii) Harrison, G. 1999. ''Clean-ups, conditionality and adjustment: Why institutions matter?" Mozambique.Review
of African Political Econom. 26, pp. 323-34. (iii) Doornbos, M. 2004. op.cit.
118 119
Ibid. Assessing aid. What works, what doesn't, and why? 1998. The World Bank. New York: Oxford University Press.
120
Devarajan, S., Dollar, D. and Holgren, T. 2001. Aid and reform in Africa: Lessons from ten case studies. Washington, D. C: The World Bank. Collier, P. and Dollar, D. 2001. Development effectiveness: What have we leamt? Washington, D. C: The World Bank. Krueger, A. 1998. "Whither the World Bank and the IMF?" Journal of Economic Literature. 36, pp. 1983-2020.
121 122
123 124
Afrika Nottite. 2000. The Hague: Netherlands Ministry of Foreign Affairs. National security strategy of the United States of America. 2002. National Security Council. Washington, D. C: NSC.
E-Governance and Good Governance: A Conceptual Analysis
39
and abusing human rights." The President of Uganda's spokesman called the move "unfair"125. A critic of this policy, Jan Pronk has observed, "Policy improvement and better governance should not be seen as preconditions for development aid, but also as development objectives themselves"126. Also, as there is no consensus about the contents of good governance, and hence no universally accepted objective standards to decide what government, political, and administrative practices qualify as good governance, there is validity to the criticism that the allocation of aid might be made on political grounds and simply justified under the rubric of good governance 127 Graham Harrison asserted that although the World Bank shows primary concern with economic efficiency, economic growth, and administrative reforms, its governance agenda is "subject to political and ideological influence and how governance reform can have a variety of effects on power relations"128. After extensively studying the Bank's interventions in Sub-Saharan Africa, Harrison concluded that the Bank has a liberal worldview, which it has imposed on African States in promoting governance reforms through its interventions - lending and technical assistance 129 . It is worth noting that African States have been the subject of the bulk of Bank-funded governance reform. Harrison attributed this new liberal worldview, steeped in a combination of Western culture and history and American political thought, to shape the Bank's strategy of reducing the capacity and scope of the recipient State for public action 130. Harrison suggested that the World Bank theory of political change stems from the Bank's belief that those responsible for change in the recipient State act with rational choice, that the State should intervene as little as possible in the economy, that incentives for State agents will work, and that the State should act as a market complementing institution 131. He found this liberal-capitalist worldview at odds with the worldview and the theory of political change in Tanzania and Uganda, the countries he studies. Contrasting these divergent theories, he concluded that both the earlier class-based theory of the African State and the subsequent theory relying upon a network of clientelism based in ethnic-social relations are steeped in cultural traditions and history and are not comprehended by the Bank, which doggedly pursues governance reforms it considers appropriate. These prescribed reforms, he suggested, cannot succeed, for, although the African States make cosmetic changes in response to the Bank demands, not much in fact changes 132 . In a study released in May 2005, The World Bank presented the latest update of its aggregate governance indicators for 2004 for 209 countries and territories, designed to measure the following six dimensions of governance 133 : 125 126
Norway freezes aid to press government. 2005. International Herald Tribune. July 20, p. 4. Pronk, J. 2001. "Aid as a catalyst". Development and Change. 32 (4), pp. 611-29.
127
Doornbos, M. 2004.
128
Harrison, G. 2005. "TheWorld Bank, governance and theories of political action in Africa". British Journal of Politics and International Relations. 7 (2), pp. 240-60.
129
Ibid.
130
Ibid.
op.cit.
131
Ibid.
132 133
Ibid Kaufmann, D., Kraay, A. and Mastruzzi, M. 2005. Governance Matters IV: Governance indicators for 199&2004. Washington, D. C: The World Bank.
40
E- Governance ~
Voice and accountability
~
Political stability and violence
~
Government effectiveness
~
Regulatory quality
~
Rule of law
~
Control of corruption
The study documents that "there is little evidence of any trends - for better or worse - in global averages of governance"134. It argues that based upon existing evidence "most of the correlation between governance and per capita income reflects causation from the former to the latter," and that mis-governance in a country or region leads to low incomes 135. Based upon the past experience and current trends, for governance reforms to succeed, the history and culture of the recipient country matter the most and must be given top priority. The World Bank, in applying its own conceptualization of good governance and seemingly not showing enough sensitivity to these issues in the developing States, may not be able to succeed in achieving the results it seeks.
IMF and Good Governance The IMF was established to act as a forum to facilitate international monetary cooperation and to regulate monetary relationships. However, the traditional IMF role as international coordinator and regulator on monetary issues among States came under heavy pressure because of a combination of the rise of capital flows and a breakdown of international exchange rate obligations. In the 1980s the number of developing countries seeking assistance grew, the World BankllMF intrusions into States' policies grew, and hence the number of SAPs became the norm and the scope of conditionality expanded. IFls imposed severe austerity measures. The IMF had initially gotten involved in capital account issues because of its role in addressing the debt crisis but subsequently began justifying conditionality under the rationale that in inducing capital flows and thus enhancing market confidence, it was acting as a catalyst l36 • During the late 1980s, a backlash began against the SAPs in developing countries, and by the mid-1990s according to one estimate, more than half of IMF programs were failing implementation 137. Despite the research findings that conditionality does not work, 134
Ibid.
135
Ibid
136
Thirkell-White, B. 2003. "The IMF, good governance and middle-income countries". European Joumal of Development Research. 15 (1), pp. 99-125.
137
Killick, T. 1995. IMF programmes in developing countries. London: Routledge and Overseas Development Institute.
E-Governance and Good Governance: A Conceptual Analysis
41
its expansion during the course of the 1990s is striking, as the share of programs with structural conditions and the average number of conditions per program increased significantly during that period - programs with structural conditions increased from 60 to 100 per cent from 1989 to 1999, and the average number of structural conditions per program increased from three to twelve 138. Two factors are primarily responsible for the Fund's governance agenda: "the rise of capital account openness and ... the difficult political consequences of its adoption of structural adjustment in the 1980s"139. Those driving the agenda were financial technocrats - financial ministers and central bankers in developed as well as developing States and Non Governmental Organizations (NGOs) in developed States 140. It was not, however, until 1997 that the IMF fully articulated its governance policy. Although the policy guidelines announced then were couched in economic terms, there were strong political undertones. After explicitly stating that the IMF should focus on the improvement and support of "the development and maintenance of a transparent and stable economic and regulatory environment"141, the document provides the rationale for the Fund's concern with governance issues: "Poor governance would have a significant current or potential impact on macroeconomic performance in the short and medium term and on the ability of the government credibly to pursue policies aimed at external viability"142. Thirkell-White (2003), who studied the IMF's response to the financial crises in the 1990s in Korea and Indonesia, criticized the Fund's governance policy as applied to middle-income countries on two grounds: first, the policy was being steered by the IMF's Executive Board with unbridled discretion to make decisions no longer controlled by a rules-based framework, and second, the decisions did not necessarily reflect the primacy of the needs or interests of those the IMF purported to help but rather of Western countries and Western NGOs that were far less affected by those decisions 143. He argued that both economic and political forces are driving the Fund's governance. Financial technocrats in the Fund and the financial elites in government ministries and banks in the countries that the Fund assists lead the economic forces; and the liberal and democratic agenda is driven by political concerns and potentially addresses the criticism in the West that traditionally the Fund has been too narrowly focused on macroeconomic considerations in the formulation and implementation of its aid policies 144 . As in the World Bank, there is tension between the Fund's economic and political governance agendas, especially when the Fund's goals on governance are not clearly defined and articulated. It should be noted that the Fund's economic governance agenda is concerned 138
(i) Kapur, D. and Webb, R. 2000.op. cit. (ii) Santiso, C. 2001. "Good governance and aid effectiveness: The World Bank and conditionality". Georgetow Public Policy Review. 7 (1), pp. 1-22.
139
Thirkell-White, B. 2003. loc. cit.
140 141
Ibid. Good governance: The IMF's Role. 1997. Washington, D. C: IMF.
142 143
Ibid. Thirkell-White, B. 2003. op. cit.
144
Ibid
42
E-Governance
with traditional economic management and the political governance agenda is aimed aL enhancing market confidence. Thirkell-White raised a question of principle by suggesting that the Fund's major proposed reforms in Korea-enhancing corporate transparency, accountability, and competition; and disciplining and structuring the huge industrial conglomerates, the chaebols, to favour small business - cannot be justified as interventions in pursuance of the Fund's traditional technocratic and politically neutral mandate, even though at the heart of the crisis was the lack of market confidence. These were interventions dovetailing President Kim Dae Jung's political agenda, and the Korean people adopted them not as measures devised to enhance economic efficiency but to further nationalism and democracy145. Similar was the case in Indonesia, which was suffering reversal of market confidence caused primarily by corruption and nepotism and poor governance by the Suharto regime. This had led to the financial crisis. The IMF's siructural reform measures aimed at the prevalent corruption and bank mismanagement did not work. Subsequently, the Suharto government agreed to IMF prescriptions for governance reform, including new bankruptcy, consumer, and corporate governance laws, capital and current account liberalization, modification of several subsidies, ending cartels and monopolies, and independent audits of government departments and State-owned enterprises 146 . However, the program was not effectively implemented and hence did not succeed in establishing market confidence. According to some critics, the Fund should have directly addressed Indonesia's debt burden, which it failed to do initially147. It did, however, belatedly take measures to provide the needed debt relief. Others saw the problem as mainly politicaP48. IMF intervention, seeking to end corruption and nepotism, the main reasons for Suharto's downfall, could perhaps be seen as the Fund's positive role in Indonesia 149 . What is noteworthy is that on the economic front IMF's intervention in Indonesia was a failure. If the governance agenda brought about a political change in the government, however, questions then arise about the Fund's political authority to do so, and especially its decision-making mechanisms in striking a balance between democracy on one hand and markets and liberal economics on the other. It may be argued that without meaningful participation of the recipient country's political leadership, the Fund's decisions on macroeconomic management may not garner the political receptivity essential for the success of the Fund's governance agenda. Thirkell-White's observation is apt: Transparent administration sounds positive from a political point of view but, in the hands of economists, can slip from a means of accountability (transparency about decision-making procedures) to a requirement for "predictable" policymaking that takes away government discretion. The most benign form of that is central bank 145
Thirkell-White, B. 2003. op. cit.
146 147
Memorandum of economic and financial policies. 1998. January 15. Jakarta: Government of Indonesia. Radelet, S. and Sachs, J. 1998. The East Asian financial crisis: Diagnosis, remedies, prospects. Cambridge, MA: Harvard Institute for Economic Development.
148
Haggard, S. 2000. The political economy of the Asian financial crisis. Washington, DC: Institute for International Economics.
149
Thirkell-White, B. 2003. loc. cit.
E-Governance and Good Governance: A Conceptual Analysis
43
independence but the agenda rapidly broadens to include, for example, ideas like a fiscal constitution to limit government spending. It is transparency over country's economic policy, or transparency for developing country citizens or a free source of data for the markets? Concern with the "rule of law" can similarly be subverted to outlaw land reform and ethnic redistribution of wealth or, with an economic focus, can divert judicial resources from grass roots justice to training judges for the commercial courts 150. In a nutshell, unlike the Fund's current practice, decision-making at the Fund about the direction of its governance agenda in each country must be responsive to the country' cultural and political traditions, preferences, and sensitivities. Notwithstanding the conceptual veracity of good governance, it is to be admitted that, government needs to be responsive towards the need of the people. People also expect the governmental systems to be accountable to them and transparency should be maintained in the delivery of services. Exhibit 2.3 shows no bribing of officials, which may
Exhibit 2.3. No Bribing as Good Governance
distort the philosophy of good governance. The emergence of new information and communication technologies has all the attributes of imparting added value to the processes that give identity, form, and relationship which characterize good governance. This has given birth to a new term, i.e. e-governance. E-governance can ensure transparency, efficiency, quick service delivery etc., which, all are hallmarks of good governance. So e-governance aims toward re-inventing good governance. '0
2.2. E-Government and E-Governance: The Concept ",' Electronic governance or E-governance is defined as a delivery of government services and information to the public using electronic means. It is the application of Information and 150
Thirkell-White, B. 2003. op. cit.
44
E-Governance
Commun ication Technologies (ICT) to the process of administration . It does not mean computerization of the total administrative system. It means a fundamental change in the operation of the government. E-governance is beyond the scope of E-government. While E-government is defined as delivery of government services and information to the public using electronic means, E-governance allows citizens direct participation of constituents in political activities going beyond government and includes E-democracy, E-voting etc. So, the concept of E-governance will cover government, citizen's active participation, political parties, pressure groups, and parliament and judiciary functions . The main differences between E-government and E-governance are mentioned in the Exhibit 2.4. E-Goverment
E-Governance
Electronic service Delivery
Electronic Consultation
Electronic Work Flow
Electronic Controllership
Electronic Voting
Electronic Engagement
Electronic Productivity
Networked Societal Guidance Exhibit 2.4. E-Government
VS .
E-Governance
The Inter-American Development Bank has made a clear distinction between E-government and E-governance 151 . The former is transactions based on more rudimentary interactions and the latter is focused on citizen involvement in decision-making . While E-government is defined as a mere delivery of government services and information to the public using electronic means, E-governance allows direct partiCipation of constituents in government activities. E-governance is beyond the scope of E-government. Blake Harris (2000) summarizes E-governance as follows 152 : E-governance is not just about government website and e-mail. It is not just about service delivery over the Internet. It is not just about digital access to government information or electronic payments. It will change how citizens relate to governments as much as it changes how citizens relate to each other. It will bring forth new concepts of citizenship, both in terms of needs and responsibilities. E-governance will allow citizens to communicate with government, participate in the governments' policy-making and citizens to communicate each other. The e-governance will truly allow citizens to participate in the government decision-making process, reflect their true needs and welfare by utilizing e-government as a tool. E-government and E-governance can be defined as two very distinct terms. E-governance is a broader topic that deals with the whole spectrum of the relationship and 151 152
www.iadb.org Harris, B. 2000. E-govemance. [Available at http://www.iadb.org]
E-Governance and Good Governance: A Conceptual Analysis
45
networks within government regarding the usage and application of ICTs. E-government is actually a narrower discipline dealing with the development of online services to the citizen, more the 'e' on any particular government services - such as e-tax, e-health, e-procurement, and e-transportation. E-governance is a wider concept that defines and assesses the impacts technologies are having on the practice and administration of governments and the relationships between public servants and the wider society, such as dealings with the elected bodies or outside groups such as non-profit organizations, NGOs, CSOs, and private sector corporate entities. E-governance encompasses a series of necessary steps for government agencies to develop and administer to ensure successful implementation of E-government services to the public at large. 153 E-government is an institutional approach to jurisdictional political operations. E-governance is a procedural approach to co-operative administrative relations, Le. the encompassing of basic and standard procedures within the confines of public administration 154. The 'E' part of both E-government and E-governance stands for the electronic platform or infrastructure that enables and supports the networking of public policy development and deployment. As public expects more and more in terms of service coverage and customization, while at the same time expecting to pay less and less for such services in terms of unit costs. This consideration is behind the decision to put an increasing proportion of government documents online. Electronic distribution places the cost of paper and printing on the consumer rather than the supplier, and in the case of government documents, this accounts for the biggest share of the price of making these documents available. It takes far less time and person-hours to design and post an electronic document than to print and mail out the same information. Electronic forms are also promised on lower costs and more convenience. Many jurisdictions enable driver's licenses to be applied for, or renewed on line. Use of such things as publicly provided recreational facilities can also be booked (reservations) and paid for (user fees) via government internet websites. Students are now filling up forms appearing examination online. So the exchange of information between governments and various segments of the public similarly occurs increasingly by way of electronic forms. The final frontier of E-government is the attempt at extending 'E-democracy I155. Voting has been conducted online, and will likely be extended once the design of the user interface has been rendered more users friendly and security of the information has achieved more credibility. Sometimes a term Ie-democracy' is used in place of 'e-governance'. But e-democracy should be distinguished from e-governance. E-governance is the delivery of government services to the citizens through ICT. On the other hand, e-democracy is to enhance the
w. and
153
Sheridan,
154 155
[Available at www. electronicgov.netj Ibid. Sheridan, W. and Riley, T. B. 2006. "Comparing E-government Vs. E-governance".
Riley, T. B. 2006. "Comparing E-government Vs. E-governance".
[Available at www. e/ectronicgov.netj
46
E-Governance
political processes through ICT. The common thing between both the terms is ICT, but there are some fundamental differences, given in the Exhibit 2.5. E-Governance
E-Democrac}l
1. Strategies to put government online for
1. It deals with Policies to expand democratic participation focusing on - E-voting
- Information provision
- E-consultation
- Service delivery - Development programs
- E-participation - E-forum - E-campaign
2. It treats users as Consumer-Citizens
2. It treats users as Citizens
Exhibit 2.5. E-Governance vs. E-Democracy
E-government as a sub set of broader set E-governance is never sidetracked in this whole discussion. Rather both the terms are used alternatively in this whole book. The researcher opines that as it is a mUlti-dimensional and complex concept, it requires a broad definition and understanding in order to be able to design and implement a successful strategy. Exhibit 2.6 provides a wonderful conglomeration of important definitions of E-governmenV E-governance. Abramson and Means (2001 )156: E-government can be defined as th electronic interaction (transaction and information exchange) between the government, the public (citizens and businesses) and employees.
2
Fraga (2002)157: E-government is the transformation of public sector internal and external relationships through enabled operations, ICT in or improve:Government service delivery; constituency partiCipation; society
156
Abramson, A.M. and Means, E.G. 2001. E-Govemment. Price Waterhouse Coopers Endowment the Business of Government: Rowman and Littlefield Publishers Inc.
157
Fraga, E. 2002. ''Trends in E-Government: How to Plan, Design, Secure and Measure E-Government". Govemment Management Information Sciences Conference. Santa Fe. New Mexico.
E-Governance and Good Governance: A Conceptual Analysis
47
3
Gartner (2000)158: E-government is the continuous optimization of service delivery, constituency participation, and governance by transforming internal and external relationships through technology, the internet, and new media.
4
Tapscott (1996)159: E-government is an internet worked government which links new technology with legal systems internally and in turn links such government information infrastructure externally with everything digital and with everybody - the tax payer, suppliers, business customers, voters andevery other institution in the society.
5
Texas Department of Information Resources (200-1 )160: E-government is defined as govemment activities that take place over electronic communications among all levels of government, citizens and the business community including: acquiring and providing products and services, placing and receiving orders, providing and obtaining information and completing financial transactions.
6
UNPA and ASPA (2001 )161: E-governance is the public sector's use of the most innovative information and communications technologies like the internet - to deliver to all citizens improved services, reliable information and greater knowledge in order to facilitate access to the governing process and encourage deeper citizen participation.
7
World Bank (2001 )162: E-government is the government owned or operated systems of ICT that transform relations with citizens, the private sector and! or other government agencies so as to promote citizen's empowerment, improve service delivery, strengthen accountability, increase transparency or improve government efficiency Exhibit 2.6. E-GovernmentiE-Governance: Definitions
Even though the concept of E-governance is, in principle applicable to all types of governance including corporate governance, the present discussion is focused on responsibilities of a politically elected body (Government) entrusted with the administration of a society (Citizens). The essence of E-governance is the communication between the 'Governing' and the 'Governed' and the test of 'Good Governance' in a harmoniously living society. The system of E-Governance is supported by five major pillars (5 Cs), i.e.
158 159 160
www.gartner.com Tapscott, D. 1995. The Digital Economy. New York: McGraw-Hili. Electronic Government: StrategiC Plan. 2001. Department of Information Resources. State of Texas.
161
Benchmarking e-government: A Global Perspective. 2001. UNPA and ASPA.
162
[Available at http://unpan1.un.orglintradoc/groups/publicldocuments/un/unpan003984.pdf 1 Issue Note: E-Government and the World Bank. 2001. Washington, D.C: The World Bank.
E-Governance
48 ~
Computers
~
Connectivity
~
Content
~
Consumers
~
Confidence Building
Computers in this context refer to all the hardware and software requirements of governance. Connectivity refers to all the information carrier systems, band width etc. Content refers to the information that is exchanged between the consumers of the system and consumers refer to all human and human substitute systems that access and use the content in the E-governance system. Confidence building refers to such those measures, that help the citizens develop a confidence in the E-governance and encourages them to take to the E-transformation. It is in this context that law has a part to play along with education.
E-Governance: Objective The objective of e-governance is to support and simplify governance for all parties government, citizens and businesses. The use of ICTs can connect all three parties and support processes and activities. In other words, the e-governance uses electronic means to support and stimulate good governance. Therefore the objectives of e-governance are similar to the objectives of good governance. Good governance can be seen as an exercise of economic, political, and administrative authority to better manage affairs of a country at all levels, national and local. It is useful here to present objectives for e-democracy and e-government 163• The two main objectives of e-democracy are:
163
~
To provide citizens access to information and knowledge about the political process, about services and about choices available
~
To make possible the transition from passive information access to active citizen partiCipation by: ~
Informing the citizen;
~
Representing the citizen;
~
Encouraging the citizen to vote;
Backus, M. 2001. "E-Governance and Developing Countries: Introduction and Examples", Research Report.
E-Governance and Good Governance: A Conceptual Analysis ~
Consulting the citizen;and
~
Involving the citizen.
49
Regarding e-government, the distinction is made between the objectives for internally focused processes (operations) and objectives for externally focused services. The external objective ofe-government is to satisfactorily fulfill the public's needs and expectations on the front-office side, by simplifying their interaction with various online services. The use of ICTs in government operations facilitates speedy, transparent, accountable, efficient and effective interaction with the public, citizens, business and other agencies. In the back-office, the internal objective of e-government in government operations is to facilitate a speedy, transparent, accountable, efficient and effective process for performing government's administrative activities. Significant cost savings (per transaction) in government operations can be the result. It can be concluded that e-governance is more than just a Government website on the Internet. Political, social, economic and technological aspects determine e-governance.
E-Governance: Components Whether it is e-governance or e-government, the concept establishes relationships between different components as mentioned in Exhibit 2.7.
~
Central Government
Citizen
~ ~
G2G
~ G2B
Business NGOs Civil Society
'-------'---'
Exhibit 2.7. Interactions between components of E-governance (Source:
Backus, M. 2001. "E-Governance and Developing Countries: Introduction and Examples", Research Report)
» Government to Government (G2G), » Government to Business (G2B),
» Government to Citizens (G2C), and » Government to Civil Society organizations (G2CS)
50
E-Governance
Government to Government refers to the relationship between governmental organizations, as for example national, State, and local governmental organizations, or with other foreign government organizations. Governments depend on other levels of government within the State to effectively deliver services and allocate responsibilities 164. In order to realize a single access point, collaboration, and cooperation among different governmental departments and agencies is need of the hour. Online communication and cooperation allows government agencies and departments to share databases, resources , pool , skills, and capabilities, enhancing the efficiency and effectiveness of processes . So online will help to bring the system in line. Government to Business consists of the electronic interactions between government agencies and private businesses. It allows e-transaction initiatives such as e-procurement and the development of an electronic marketplace for government l65 . Companies everywhere are conducting business to-business e-commerce in order to lower their costs and improve inventory control. The opportunity-to conduct online transactions with government reduces red tape and administrative stagnancy and simplifies regulatory processes, therefore helping businesses to become more competitive . The delivery of integrated, single-window public services creates opportunities for businesses and government to partner together for establishing a web presence faster and cheaper. Government to Citizen deals with the relationship between government and citizens . E-Government allows government agencies to talk, listen, relate and promotes unending communication with its citizens, supporting, in this way, accountability, democracy and improvements to public services. A broad array of interactions can be developed ranging from the delivery of services and the provision of welfare and health benefits to regulatory and compliance oriented Iicensing l 66 • G2C allows customers to access government information and services instantly, conveniently, from everywhere, by use of multiple channels (PC, Web TV, mobile phone, or wireless device). It also enables and reinforces their participation in local community life (send an e-mail or contribute to an online discussion forum). Government to civil society organizations encompasses a broad range of activities. It includes government's relationship with PVOs, NGOs, CBUs etc.As civil society organizations try to have a visible foot print in the socio-economic field; they always maintain a continuous dialogue with the government. E-governance facilitates such activities. Through the application of ICT the civil society organizations influence the socio-economic policy of the government.
164
Riley, B.T. 2001 . Electronic Governance and Electronic Democracy: Living and Working in the Connected World. Vo1.2. Brisbane: Commonwealth Centre for Electronic Governance.
165
Fang, Z. 2002. "E-Government in Digital Era : Concept, Practice and Development". Intemational Journal of the Computer, the Internet, and Management. 10 (2) . Riley, B.T. 2001 . op. cit.
166
E-Governance and Good Governance: A Conceptual Analysis
51
E-Governance: Application Domains The full exploitation and implementation of these complex webs of inter-relationships requires three main application domains for e-governance 167, which are : ~
E-administration - for automation and computerization of administrative tasks and for realization of strategic connections among internal processes , departments, and functions.
~
E-citizens and e-Services - to realize connections and interrelationships among governments and citizens and to deliver automated services.
~
E-society - to enable relationships and interactions beyond boundaries, among public agencies, private sector, and civil community in general.
These three application domains should be considered as overlapping and e-government can be found in the overlapping area of these three application domains, demonstrating the complexities and heterogeneities needed to be handled for assuring its success . A reference is made in Exhibit 2.8 given below.
Exhibit 2.8. Application Domains (Source:
Ndou, Valentina. 2004. "E-Government for Developing Countries: Opportunities and Challenges". The Electronic Journal on Information Systems in Developing Countries. Vo1.18 . No.1)
E-Governance: A Four Phase Model As mentioned before, E-governance is more than a government website on the Internet. What are the opportunities and possibilities of e-governance in the future, and what services 167
Heeks, R. 2001 . "Understanding e-Governance for Development". [Available at http://www.iimahd.ernet.inlegovlifip/dec2001Iarticle3.htm]
52
E-Governance
are delivered at this moment? Gartner, an international e-business research consultancy firm, has formulated a four-phase e-governance model 168 . This e-governance model can serve as a reference for governments to position where a project fits in the overall evolution of an e-governance strategy. In most cases, governments start with the delivery of online information, but soon public demand and internal efficiency ask for more complex services. Of course this change will take effect gradually; some services will be online earlier than other services. In some cases, the public demand is the driving force; in other cases cost saving aspects for the government are leading. According to Gartner, e-governance will mature according the four-phase e-governance maturity model. These phases have been defined based on experiences with e-commerce and e-governance in Europe and other Western regions.
E-Governance Maturity ModeP69 ~
Early 90's
~
Mid 90's
~
Present
~
Future
~
~ ~
~
Information (1St Phase)
~
Presence
Interaction (2 nd Phase)
~
Intake process
Transaction (3 rd Phase)
~
Complete transaction
Transformation (4thPhase)
~
Integration and organizational changes
In each of the four phases, as given below in Exhibit 2.9, the delivery of online services and use of ICTs in government operations serve one or more of the aspects of e-governance, i.e., democracy, government, business. Increasing value to Citizen/Business
Increasing '-----------------------1~complexity
Exhibit 2.9. E-Governance Maturity Model
(Source:
168 169
Backus, M. 2001. "E-Governance and Developing Countries: Introduction and Examples", Research Report)
Backus, M. 2001. op.cit. Ibid.
E-Governance and Good Governance: A Conceptual Analysis
53
The model does not mean that all institutions have to go through all phases and all at the same time. It all depends on where the advantages are highest. Another remark must be made. This model shows four phases for different e-governance (e-democracy and e-government) solutions. The assumption is made that the government has already defined an overall vision and e-policy.
Phase 1: Information In the first phase, e-governance means providing the external public (G2C and G2B) with relevant information through the web. The format of the first government websites is similar to that of a brochure or leaflet. The value to the public is that government information is publicly accessible; processes are described and thus become more transparent, which improves democracy and service. Internally (G2G) the government can also disseminate information with static electronic means, such as the Internet. This phase is all about information, i.e. from a single page presence website to a site with all relevant government information available to the public, in order to improve transparency in democracy. Exhibit 2.10 is given below for appreciation.
Phase 2: Interaction
Examples of information that Government wishes to disseminate
~ ~ ~ ~ ~
~ ~
~ ~
Examples of information that Government may make available
~ ~ ~ ~ ~
~ ~
press notIces consultation papers policies white papers news health and safety advice benefits and entitlements applicable regulations recruitment advertisement and their results geographical data demographic data economic data information collected information generated routinely value added services business yellow pages
54
E-Governance
Examples of information that Governmentis required to supply
~ ~
~ ~
~ ~
~
performance indicators environmental indicators audited accounts personal data internal policy documents correspondence management reports
Exhibit 2.10. Examples of Government Information
In the second phase, the interaction between government and the citizens (G2C and G2B) is stimulated with various applications. People can ask questions via e-mail, use search engines for information and are able to download all sorts of forms and documents. These functionalities save time. In fact the complete intake of applications can be done online 24/7. Normally, this would have only been possible at a counter during opening hours. Internally (G2G) government organizations use Local Area Networks (LAN), intranets and e-mail to communicate and exchange data. The bottom line is that more efficiency and effectiveness is achieved because a large part of the intake process is done online. However, you still have to go to the office to finalise the transactions, by paying a fee, handing over evidence or signing papers. The use of electronic c.ommunications tools speed up the internal government processes.
Phase 3: Transaction With phase three, the complexity of the technology is increasing, but customer (G2C and G2B) value will also be higher. Complete transactions can be done without going to an office. Examples of online services are filing income tax, filing property tax, extending/renewal of licenses, visa alld passports and online voting. Phase three is mainly complex because of security and personalization issues e.g., digital (electronic) signatures are necessary to enable legal transfer of services. On the business side the government is starting with e-procurement applications. In this phase, internal (G2G) processes have to be redesigned to provide good service. Government needs to create new laws and legislation that will enable paperless transactions with legal certification. The bottom line is that now the complete process is online, including payments, digital signatures etc. This saves time, paper and money.
Phase 4: Transformation The fourth phase is the transformation phase in which all information systems are integrated and the public can get G2C and G2B services at one (virtual) counter. One single point of contact for all services is the ultimate goal. The complex aspect in reaching this goal is mainly on the internal side, e.g. the necessity to drastically change culture, processes and responsibilities within the government institution (G2G). Government employees in different departments have to work together in a smooth and seamless way. In this phase cost savings, efficiency and customer satisfaction are reaching highest possible levels. For details Exhibit 2.11 is placed below.
E-Governance and Good Governance: A Conceptual Analysis
55
Overview E-Governance Solutions: Phases 1
Information
External: G2C
External:G2B
Internal: G2G
1. Local/Departmental/ National information
1. Business information
1. Knowledge base (static intranet)
2. Organisational structure
2. Addresses, opening hours,employees, telephones
2. Knowledge management (LAN)
3. Addresses, opening hours, employees telephone numbers
3. Laws, rules and regulations
4. Laws, rules and regulations 5. Petitions 6. Government glossary 7. News
2
Interaction
1. Downloading forms on websites
1. Downloading forms on websites
2. Submitting forms
2. Submitting forms
3. Online help with filling in forms (permits, birth death certificates)
3. Online help with filling in forms (permits)
4. Intake processes for permits etc. 5. E-mail 6. Newsletters 7. Discussion groups 8. Polls and questionnaires 9. Personalised pages 1a.Notification
web
4. Intake processes for permits etc.
1. E-mail 2. Interactive knowledge databases 3. Complaint handling tools
56
E-Governance
3
Transaction
1. License applications/ renewals 2. Renewing car tags, vehicle registration
1. License applications and renewals via website 2. Payment of taxes
1. Inter-governmental transactions
3. Procurement
3. Personal accounts (my tax,my fines, my licenses etc.)
4. Payment of (property) taxes
5. Payment of tickets and fines 6. Paying utility bills 7. Registering and voting online 4 Transformation
1. Personalised website with integrated personal account for all services
1. Personalised website with integrated business account for all services
1. Database integration
Exhibit 2.11. Overview E-Governance Solutions for each Phase
Implementing E-Governance Approach 170 The first step towards e-governance solutions and the delivery of services as mentioned in the e-governance model combine short -term results and long-term goals. This sub section investigates how a long-term e-policy, or vision, can be formulated and what short term steps, or projects, have to be taken. The relation between long-term and short-term is crucial. Only if projects are in alignment with a long-term vision, success will be secured. The e-governance model presented can serve as a reference for governments to position where a project fits in the overall evolution of an e-governance strategy. An e-governance strategy is necessary to achieve the desired goal. In other words, the goal is the ambition level of the government regarding democracy, government and business aspects of e-governance. The model assumes that governments have defined an leT and e-governance vision (policy), which 170
Backus, M. 2001. op.cit.
E-Governance and Good Governance: A Conceptual Analysis
57
describes the ambition level for each aspect. Only a few Western countries have a clear vision of e-governance . In most developing countries including India, the first step will be to investigate what the ambition level is . The model also assumes that all necessary infrastructures, tele communications and Internet access are available. In most developed countries this is the case, but different in developing countries . The strategy should also deal with these boundary conditions and constraints . Projects will only have a structural value for development when embedded in a vision and supported by a strategy. Andersen Consulting has defined an approach to implement e-governance projects: Think big, start small and scale fast (Exhibit 2.12). Thinking big is required to set the overall vision and objectives of e-governance. Starting small is essential to create instant success and keep a positive driving force, both internally as externally. Scaling fast is only possible with a profound strategy that secures that all necessary resources are available in time, that bottlenecks are known and taken care of, and that project planning and phasing is aligned with the overall vision and objectives. e-governance Deployment r-~~--------~~----~~~~~
Vision
Strategy Resources Organisation
SMART PROJECT
Exhibit 2.12. Approach to implement E-Governance (Andersen Consulting, 2000) (Source:
Backus, M. 2001. "E-Governance and Developing Countries: Introduction and Examples", Research Report)
Metaphor for E-governance Deployment: Building a House171 The process of visioning, strategy and implementation (projects) is crucial for successful implementation. Exhibit 2.13 above shows the metaphor of building a house. First, the stakeholders must set a commonly accepted goal for the overall project. This goal needs to fulfill the expectations and needs of the end-users. In the situation of constructing a house, the needs of the future house owner determine aspects such as the size, cost, and number 171
Backus, M. 2001 . op.cit.
E-Governance
58
visioning
( I I I I I I
","
"....."',
"i
I I I I
I I
!.-------.,)
Strategy - Planingl phasing -Budget - Resources -Cepen dencies
DD
Projects
~ K
~
I
Exhibit 2.13. Metaphor of e-governance deployment: Building a house
(Source:
Backus, M. 2001 . "E-Governance and Developing Countries: Introduction and Examples", Research Report)
of windows and location of the house. Defining projects can be the next step; each project should contribute to the final goal. Finally, the strategy determines aspects such as the planning of the construction, constraints and boundary conditions. A good strategy enables that project goals contribute to achieving the overall objective.
Vision: E-governance Policy Before starting with projects a commonly accepted vision is required . What is the goal that should be achieved with e-governance implementations? What focus point is taken: customer satisfaction, internal efficiency, increased democracy? Necessarily one has to have an overarching vision for the future in order to define a roadmap to move ahead. The government must take a modest attempt to define a'vision' for the State. The major components of the vision goals are: ~
Mission Statement to position government in e-governance concept
~
Ambition level of e-governance
~
Long term goals (internal and external focus)
~
Global budgets
~
Information technology and knowledge
Strategy: Framework for Action The strategy consists of plans that translate the vision into practical projects. A good strategy is crucial to keep the speed in the reform and implementation process, e.g. budgets must be available, time consuming legal transformations should be initiated and quick results
E-Governance and Good Governance: A Conceptual Analysis
59
must be achieved and communicated to government's customers. In the construction metaphor the chosen strategy is the 'cement between the building blocks. Strategies should include developing world class IT infrastructure, including broadband digital connectivity. It also should focus on education and research institutions to ensure a pool of highly skilled and qualified personnel for the IT industry while improving the overall quality of human resources. Segmented budget plans, marketing communication plans and partnerships are also other important parts of the strategies.
Projects: Action Projects in the field of e-governance should each have a goal that supports the overall objective of e-governance. In the metaphor of the house construction, projects are the building blocks that altogether form the vision, or house. Each project contributes to the realisation of a phase in the strategy. In complex situations it is normal to test a project (partly) in a pilot. If the pilot is successful, by meeting the set objectives, the implementation will be expanded. If not successful, adjustments have to be made, or the implementation must be cancelled. To measure the success of a pilot project it is important to define projects that are SMART: simple, measurable, accountable, realistic and time-related.
Implementation of E-governance: Some Issues Mere following of e-governance projects will not give adequate success, if the issues are not addressed side by side. The major issues that need to be addressed are: ~
Technology Issues
~
Management Issues
~
Funding Issues
~
Socio-Cultural Issues
Technology Issues Technology is moving very fast. Today, we have new channels like kiosks, interactive TV, internet, and call centres to provide services to the citizens. Technology development, particularly ICT, is the panacea for developmental problems. It is considered to be the most important invention since that of the semi-conductor. Both the developed and developing countries are trying to utilize it. But at the end, developing countries are lagging behind, thereby exposing the !echnological gap. Technological issues of e-governance include software, hardware, infrastructure, telecom, IT-skilled people, and safety and security issues. Base on these, technology can be treated as both strengths and weaknesses, providing
60
E-Governance
opportunities and threats respectively. A SWOT analysis of the technological aspects of e-governance has been made in Exhibit 2.14 below. The analysis will help to know the particular opportunities and threats.
TECHNOLOGICAL ASPECTS OF E-GOVERNANCE Strengths
Weaknesses
~
World wide extensive network
~
Skewed regional growth of network
~
Internet as a driving factor
~
Shortage of IT skilled people
~
Easy, equal and instant access
~
High cost of internet
~
A powerful means of electronic publishing and dissemination
~
Heterogeneous data
~
Lack of IT standards
~
Leapfrogging possible
~
~
Fast and inexpensive mode of Global multimedia communication
Less security and confidentiality of communication
~
Problem of authenticity, quality and ownership of materials, data and information
~
Cost of software license
~
Copyright, IPR and legal issue
~
Cut costs and improves efficiency
~
Flexibility and adaptability
~
Empower employees and stimulates Innovation in organiation
~
Progressively dynamic and changing
Threats
Opportunities ~
Electronic and joined up government
~
Hacking through 'Trojan Horses'
~
Single point services are accessible 24/7
~
Frequent viruses attack
~
Second hand hardware available
~
Cyber traffic jam
~
Government secure internet for cross departmental co-ordination
~
Abuse of systems for undesirable and unethical purpose
~
Decentralization of corporate offices
~
Division between 'info-rich' and 'info-poor'
~
Virtual offices and corporations
~
Increased health risk for operators
~
Networking and information super highways
~
Rapid technological change itself
~
Learning opportunities
~
E-waste
~
E-democracy Exhibit 2.14. Technological Aspects of E-Governance: A SWOT Analysis
E-Governance and Good Governance: A Conceptual Analysis
61
On the basis of above mentioned SWOT Analysis, a number of steps are to be taken to address the following technological issues 172: ~
Identifying functional areas in government organizations which need to be taken up for e-governance objectives.
~
Making out the appropriate hardware platforms and software application packages for cost effective delivery of public services.
~
Recognizing this knowledge repository widely available through appropriate demo mechanisms.
~
Providing the data to public, i.e. accessibility and retrieval of data by public on public places through information kiosks at shopping centre, post offices, railway station, libraries, PCOs etc.
~
Availability of cyber laws to the public as early as possible so that the IT systems and information documents stored in the system will have legal validity.
~
Standardisation in all areas like data, encoding, application logic, user interfaces, and data dictionaries.
~
Computerization, regular updating of data, and databases in local languages need to be effectively focused.
Management Issues The issues of management of change which would have to be quite rapid at times, is the other most fundamental issue needs to be addressed in implementing e-governance. This Involves 173
:
~
Delivery of public services like utilities, rural and urban development schemes through TV, kiosks, internet, and other information technology based mediums would necessitate procedural and legal changes in the decision and delivery making processes as well as in the institutions
~
Fundamental changes in the government decision management.
172
Mishra, K.D. 2002. "Electronic Governance". Employment News. Vol.XXVl1. No.6, pp.1-2.
173
Ibid.
62
E-Governance ~
Changes in the decision-making process in terms of decision-making levels and delegation of authority.
~
Mandatory Changes in legal provisions for giving effect to the technology objectives.
~
Training of the personnel.
~
Maintaining large number of records which may -be created in geographically distributed data centre or repositories.
The amount of information being gathered and handled by government is expected to grow up substantially once e-governance is introduced. Endowing with necessary security, projecting privacy, offering appropriate access control policies, ensuring that the system supports adequate audit requirements would be some of the other management issues, related with e-governance implementation.
Funding Issues Lack of adequate funding has become the major hurdle now on the way, to have proper infrastructure facilities for e-governance. Having the e-governance projects to cater to the needs of the citizens is one thing and to provide better reach to those e-governance projects is another. It needs a big investment. Now the question arises, how these e-governance projects are financed and what are the ways of financing which can transform the way of livings. There cannot be a straightforward and single model. This must be flexible enough where both the private and public parties should get themselves involve in it. There are various models that could be adopted: ~
Option 1: The governments could run the portals and websites themselves 174•
~
Option 2: They could collaborate in various ways with various IT majors such as TCS,Wipro,lnfosys, Satyam etc., where there is direct financial and operational contribution from the private partner. Even vernacular websites could have private sector participation 175.
~
Option 3: They could bid out various processes on BOT (Build, Own and Operate) and BOOT (Build, Own, Operate and Transfer) to the private sector, in a strictly transparent manner176 •
174
Sinha, P. 2006. "E-Governance Projects and Infrastructure Issues". The ICFAI Journal of Infrastructure. March, pp.42-45.
175
Ibid.
176
Ibid.
E-Governance and Good Governance: A Conceptual Analysis
63
Each of these approaches has its own positive and negative impacts. In general, they vary from high control and low effiCiency (Option 1) to low control and high efficiency (Option 3). The financial aspect also has to be considered. The difficult part here is to decide how much tolerance is to be given to the private sector, when it comes to handling public information. The issue is complicated and needs a great deal of involvement of all parties concerned to arrive at a set of regulations for the same. Another criterion would be the sensitivity of the information involved and the financial, political or social gains to be had, if such information is manipulated. The concept of Public Private Participation (PPP) is the new mantra of today which has a great potential to make the system 9fficient if it is executed effectively. While private sector helps in meeting the customer needs by technological up gradation, the public sector keeps a watch on data privacy and making the service delivery mechanism based on customer needs. But in PPP model, the transparency and the political will are the prerequisites; otherwise, the project and day-to-day activity may also be affected. Thus, the government must be accountable in such cases as private sector has the profit-making mindset behind investing a huge sum of money. PPP can be implemented G2G (Government to Government), G2C (Government to Customer) and information e-governance projects and the selection of partners may be done based on pre-defined and pre-qualification criteria. The PPP models in e-governance are: BOO Model (BUild, Own and Operate), BOOT Model (Build, Own, Operate and Transfer) and ASP Model (Application Service Provider) etc.
Socio-Cultural Issues Culture is a diffuse term, and there are ongoing discussions on what it includes. A definition is "the system of shared beliefs, values, customs, behaviors, and artifacts that the members of society use to cope with their world and with one another and that are transmitted from generation to generation through learning"177. In this manner, the attributes within sociocultural factors are seen as building blocks of the culture. Religion, traditions, language, gender, and government and politics are seen as most important to consider in e-governance projects. Some regions and people are known for historically being early adapters of new technology. In Southeast Asia; this has been evident, today visible in masterpieces from the Anchor Watt in Cambodia, to the scholarly literature in Indonesia. These both demonstrate how the inhabitants were early adapters of modern technology. Through their ways of thinking and building this is visible, which was revolutionary for the present time 178 • Such trends can 177
Uofman. 2004. "The culture concept".
178
[Available athttp://www.umanitoba.calfacu/tieslarts/anthropo/ogylcourses/1221modu/e1/eu/ture.htm/] Day, T. and Reynolds, C. J. 2000. "Cosmologies, Truth Regimes, and the State in Southeast Asia". Modern Asian Studies. 34(1), pp. 1-55.
E-Governance
64
also be transferred to how people welcome computer-based technology. Another aspect of tradition is the awareness level of new technology. This is a complex issue, influenced by other attributes such as language, gender, country location, and education. Language must be studied to make sure that the technology introduced will be userfriendly to the receivers. If low levels of English skills, other alternatives should be considered. One is to convert the software to the local language. Local language, together with extensive use of graphical user interface based on symbols, are two solutions to the language barriers. Religion has an important role i"n culture, and influences peoples' attitudes. These attitudes might affect how people view modern technology and development. For instance, animists may have a different understanding of technological development, than a Buddhist, or a Christian. Religious beliefs are influenced by other socio-cultural factors in a society. The gender disparity is important in ICT developing projects. The UN places great emphasize on ensuring gender equality in education. How the government rules a country and the 'priorities they have, plays a vital role in promoting new technology to the country. Through education, ICT action plans and self initiated projects, the government makes public its visions and priorities. In addition, they have power to control and influence foreign development projects. This indicates the important role a government has in promoting sustainable development. One thing that has to be realized is that only computerization of office operations would not achieve e-governance. The Central and State Departments have to reorient their systems and procedures before they are ready to interact through electronic documents. Further, the mindset of employees and citizens or end users has to be changed. Again, a strong networking of the various government department and organisations with the effective communication channels need to be evolved.
E-Governance: Various Steps E-governance refers to Information and Communication Technology (lCT) enabled route to better governance. ICT is now being recognized as a key factor to move towards more efficient, responsive, accountable and effective governance. As an evolutionary process, the journey towards e-governance is a tedious one. There are two options 179 for the transformation. process:
179
Pani, N., Mishra, S.S. and Sahu, B.S. 2004. op. cit., pp.120·122
E-Govemance and Good Govemance: A Conceptual Analysis
65
Option I: Map the IT structure over the existing administrative set up and consolidate it further. This is the easiest and known route and has better degree of acceptability by the system. Option II: It suggests thinking the unthinkable and reform the government space. This requires re-engineering of processes and is relatively a difficult and radical path. It may face resistance from the system.
The journey towards e-governance would be guided by the options selected from the above two choices. Irrespective of. the course of action chosen for the e-governance process, it has been observed, based on experience, that there are definite steps in the process, each of which needs to be addressed, to reach the desired goal. The various steps180 are like: ~
Development of a high level awareness and commitment among decision-makers that will carry forward e-governance.
~
Study of government space.
~
dentification of priority areas and conduct a detailed study for each priority area.
~
Assessment of existing status of computerization.
~
Evolve policy framework.
~
Building up ICT infrastructure and human capacities.
~
Standardization of the format for contenVdate.
~
Information generation and consolidation.
~
Backend computerization.
~
Integration of backend applications.
~
Application of such integration across organizations, establishing G2B, G2G, and G2C interfaces.
~
Sustenance and strengthening the efforts.
Samir Sachdeva of National Institute of Smart Government (NISG), Hyderabad has elaborated twenty five steps181 to successful e-governance. He analyzes the various essentials 180 181
Pani, N., Mishra, S.S. and Sahu, B.S. 2004. op. cit., pp-120-122 Sachdeva, S. 2006. "Twenty Five Steps to Successful e-Governance". [Available at http://www.topics.developmentgateway.org]
66
E-Governance
for successes of e-governance mainly from the prospective of developing nations and as India is a developing nation; his concept of twenty five steps is really praise worthy. His paper emphasizes that the first step towards e-governance is understanding governance. It looks into Vision and Objectives of various successful countries and suggests guidelines for same. It suggests that an e-governance Roadmap must answer the questions of what, when, who and how for e-governance implementation. It further suggests a strategy for identification and prioritization of the key initiatives. It highlights the role of leadership in driving the e-governance projects. The paper underlines an institutional framework for successful implementation. The paper also suggests the importance of Process Reforms before computerization. It identifies that some processes need to be eliminated or reformed rather than automated. In areas of legal reforms it looks into international laws like IT Act, e-governance Act, Right to Information Act, Government Paperwork Elimination Act, Right to Privacy Act and importance of each in success of e-governance. Apart from Institutional Capacity Building the paper identifies the need of Human capacity Building and how the awareness campaigns like Workshops, Seminars and Trainings can play an important role. It also identifies content as a king in any e-governance project. The paper looks into cost benefit analysis of e-governance and also how Governments can actually evaluate that. It also suggests that as far as finances are concerned efforts should be to evolve sustainable business model preferably with a private partner. The most important part of his paper is that, it looks ir,to the evolving service delivery paradigm because of e-governance. It highlights how the paradigm has shifted from output based approach to outcome based approach. It further elaborates the need for integration between various stakeholders of e-governance. It highlights the importance of content in the e-governance Space. It further looks into building National Information Infrastructure (Nil) which may constitute Networks, Data Centers, and Access Points. It also highlights importance of issues like architecture, privacy and security for e-governance. Need for Universal Accessibility, People's Participation, Communication Campaigns are further highlighted in this paper. It further highlights interventions like Change Management, Project Evaluation and Feedback Mechanism. Last but not the least the paper suggests that from e-Gov we have to evolve to i-Gov, i.e., Integrated Government. In short, Samir Sachdeva has identified twenty five steps towards successful e-governance. The steps as identified are as under182 :
182
~
Understanding Governance
~
Definition of Vision and Strategic Objectives
~
Formulation of e-governance Roadmap
~
Leadership for e-governance
~
Institutional Framework for e-governance Sachdeva, S. 2006. op. cit.
E-Governance and Good Governance: A Conceptual AnalysIs ~
Government Process Re-engineering
~
Legal Reforms
~
Human Capacity Building
~
Cost Benefit Analysis
~
Sustainable Business Model
~
Service Delivery Paradigm
~
Collaboration for e-governance
~
E-Content
~
Building National Information Infrastructure
~
E-governance Technology Architecture
~
Privacy and Security
~
People's Participation/Civic Engagement
~
Universal Accessibility
~
Awareness and Communication Strategy
~
E-governance Program Management
~
E-governance Application Development
~
Change Management in Government
~
Evaluating e-governance Projects
~
Continuous Feedback
~
Integrated Services
67
To conclude, a critical pre-condition in successful e-governance for development is to put e-governance in the agenda and make it totally operationally. All the working e-readiness in the world is of limited value if there is no vision to give direction to e-governance. For that reason, it is pre-requisite to develop a high level of awareness and commitment, so that the e-governance process is successfully steered to meet its ultimate objectives.
E-Governance: Opportunities and Challenges E-Governance: Opportunities Benefits assured by use and application of e-governance in developing countries are the same as those in developed countries. The differences between these two groups could
68
E-Governance
result from the fact that many potential benefits of e-governance are not reaped by developing countries as consequence of their limited use of e-governance. The main opportunities 183 of e-governance are:
»
Cost reduction and efficiency gains
»
Quality of service delivery to businesses and customers
»
Transparency, anticorruption, accountability
»
Increase the capacity of government
»
Network and community creation
»
Improve the quality of decision-making
»
Promote use of ICT in other sectors of the society
Cost Reduction and Efficiency Gains Researchers 184agree that ICT has considerable potential to contribute to efficiency gains and cost reductions for private organizations. Furthermore, these benefits constitute a major aspect of e-governance initiatives. Putting services online substantially decreases the processing costs of many activities compared with the manual way of handling operations. For example, it costs the US Inland Revenue Service $1.60 to process a paper tax form, but only $0.40 to process an electronic form 185 • The appropriate application of ICT may possibly reduce the number of inefficiencies in processes by allowing file and data sharing across government departments, thereby contributing to the elimination of mistakes from manual procedures, reducing the required time for transactions. Efficiency is also attained by streamlining internal processes, by enabling faster and more informed decision-making, and by speeding up transaction processing. As for example In Beijing's Business e-Park, there is a new system that applies the latest computer and Internet technologies to improve the efficiency and responsiveness of government. If businesses choose to use this system, they can reduce the time required for gaining approval for specific applications from 2-3 months 183
Ndou, V.2004. "E-Government for Developing Countries: Opportunities and Challenges". The Electronic Journal on Information Systems in Developing Countries. 18 (1).
184
(i) Tapscott, D. 1995. Op. cit.
(ii) Amit, R. and Zott, C. 2001. "Value Creation in e-Business". Strategic Management Joumal. 22, pp. 493-520. (iii) Malhotra, Y. 2001. Enabling Next Generation e-Business Architectures: Balancing Integration and Flexibility
for Managing Business Transformation. Intel Corporation: Portland, OR. 185
AI-Kibsi, G., De Boer, K., Mourshed, M. and Rea, P.R. 2001. "Putting Citizens Online,Not In-line". The McKinsey Quarterly. 2. [Available athttp://www.mckinseyquarterly.com/article_page.asp?tk=: 1004:andarticlenum= 1004]
E-Governance and Good Governance: A Conceptual Analysis
69
to few days. Moreover, data can now be submitted on line, greatly increasing the quality of service for customers 186.
Quality of Service Delivery to Businesses and Customers In the traditional model of public service delivery, the procedures are long,' time consuming and lack transparency. A business that wishes to obtain a license or a permit has to fill out a number of application forms, has to visit a number of different offices and spend a considerable amount of time. If a citizen wishes to be issued with a certificate or any other official document, he or she will have to travel to the central government office, go to different offices and spend a lot of time for a simple service. The consequences are high costs and citizen and business dissatisfaction. An e-governance initiative, on the other hand, which puts government services online, thereby reducing the bureaucracy, offers round the clock accessibility, fast and convenient transactions, and obviously enhances the quality of services, in terms of time, content and accessibility. As for example, In Bahia, Brazil, Citizen Assistance Service Centres have been created offering over 500 separate services. These centres are placed in shopping malls or other public places, and people going to shop can simultaneously apply for different public services such as getting an identification card, looking for a new job, getting a passport, and checking on their retirement eligibility. Customer satisfaction studies revealed that over 89% of citizens evaluated the service centers as excellent l87 • Thus, the quality of services is ensured by the reduced time that users spend on getting official documents, waiting and queuing to get documents, traveling, as well as more customized products and services, error free documents, and 24*7*365 accessibility.
Transparency, Anti-corruption and Accountability E-governance helps to increase the transparency in decision-making processes. In many cases e-governance offers opportunities for citizens to directly partiCipate in decision-making, by allowing them to provide their own ideas and suggestions in forums and on-line communities. If we'bsites are designed carefully and openly, they can be valuable resources for transparency as citizens, businesses and other stakeholders should be able to see political and governmental information, rules and policies. Previously, it was often necessary to go directly to governmental offices to obtain information, but now this information should be available on the web. The availability of a diversity of publications regarding the activities of the public administration, as well as economic and legislative aspects, increases the tra{lsparency too. As for example, The Central Vigilance Commission (CVC) in India started an. i-Ritiative to create a website with the objective of reducing corruption and increasing transparency by sharing a large amount 186
Lin, M., Zhu, R. and Hachigian, N. 2001. Beijing's Business E-Park. Washington, D.C: The World Bank. [Available athttp://www1.worldbank.org/publicsector/egov/zhongguancun_cs.htm]
187
Rinne, J., Benvinda, A., Lage, T. and Andrade, E. 2001. Citizen Service Centres in Bahia. Washington, D. C: The World Bank. [available at http://www1.worldbank.org/publicsector/egov/bahiaSAC.htm]
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E-Governance
of information related to corruption with citizens. The CVC website communicates directly with the public through messages and speeches to bolster confidence in the institution, informs the public about its efforts in fighting corruption, and makes public the names of officers from the elite administrative and revenue services against whom investigations have been ordered or penalties imposed for corruption. Members of the public are highly encouraged (mainly by rewards) to make their complaints and to provide information against a public servant about taking of bribes in order for the commission to undertake the necessary anticorruption actions to eliminate bribery and to increase the transparency of rules, procedures and service delivery188.
Increase the Capacity of Government The use of ICT for the reorganization of internal administration transactions, communications, and inter-relationships and for easy information flow and transfer offers considerable opportunity to increase government capacity. Intranets allow different departments to share databases of common customers and to pool skills and capacities of their members for problem solving. These facilities in turn will pledge faster information flow and transfer, quicker and cheaper provision of goods and services, faster and better decisionmaking processes, and unplugged paper bottlenecks. Knowledge based or expert systems help to create a more responsive and guideline based process. This approach assures benefits for businesses, which become both consumers of government services and providers of goods and services to the government. It also assures benefits to the government itself through reduced costs and spending, which could require lower taxes to finance. As for example, The Time Saver Centre in Sao Paulo, Brazil, brings together multiple services in a single location. Its objective is to deliver services more quickly and to increase the satisfaction level of its citizens. A person requiring a service, on reaching the appropriate agency, can register in the computerized tracking system and receive an electronic ticket, which indicates the services desired and the estimated waiting time. They can receive at the same time different services that traditionally were separated such as vehicle registration, driver's license, identification card, unemployment insurance etc. A customer satisfaction survey conducted in 2000 for five centres reveals that 94% of respondents evaluate services as "excellenf' or "good". This case demonstrates the remarkable improvements that can be realiz~d in service delivery189.
Network and Community Creation ICT creates both pressures and opportunities for network creation and community building. As argued before, an e-governance initiative requires a complex web of interrelationships 188 189
Bhatnagar, S. 2001. Central Vigilance Commission Website: A Bold Anticorruption Experiment. Washington, D.C: The World Bank. [Available at http://www1.worldbank.org!publicsector/egov/cvc_cs.htmj Rinne, J., Nogueira, D., Agune, R. and Agune, L. 2001. Sao Paulo's '7imeSaver" Centres. Washington, D.C: The World Bank. [Available at http://www1. world~ank.org!publicsectorlegovlpoupa.tempo.htmj
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among government, customers, businesses, employees and other governmental agencies. Moreover, the very nature and function of e-governance require a network approach to put together skills, technologies, information and knowledge that span the boundaries of different governmental agencies. It is generally impossible to find all of them in one single governmental agency. The need for learning and training, for example, requires a partnership between government agencies/departments and universities or research institutions. The provision of integrated services at one contact point requires the cooperation and collaboration of different departments and agencies, horizontal and vertical integration, and therefore the creation of a large and diversified network of relationships. The successful use and diffusion of ICTs in the public sector involves a collective, multidisciplinary and dynamic learning process 190 . Moreover, the realization of electronic transactions triggers network creation among private companies, financial institutions, telecommunication and ISPs. On the other hand, an e-governance initiative enables community creation, giving citizens and businesses the possibility to participate in forums, and in decision-making processes, contributing actively to different political and governmental discussions. As for example, Columbia's government portal is the entry point to every government agency website in the country, allowing citizens to search for and consult government information and to e-mail government representatives either to complain about problems or to make suggestions. A specific unit, the Government online Network, composed of eight people trained in the technology of government portals, was created for realizing Columbia's website and for advising, supporting, training and monitoring the remainder federal government. Financial support was provided by the UNDP, while the technology and experience were provided primarily by a partnership with two private companies: Gov Works Latin America/Taillon and Arthur Andersen 191 .
Improve the Quality of Decision-Making Community creation, forums, continuous interaction and communication between Government and its citizens contribute further to the decision-making process. By means of active participation in political and government discussions, citizens can contribute their own ideas, and share their knowledge and information. This will in turn lead to building trust in government and improving the relationships between the government and the governed. The OECD argues that the strengthening relationship between government and citizens could improve the quality of services by allowing government to tap wider sources of information, perspectives and solutions to meet the challenges of policy making under conditions of increased complexity192". Considering citizens as governmental customers, listening and understanding to their needs and requirements, is essential for a better decision-making 190
Mansell, R. and Wehn. U. 1998. Knowledge Societies: Information Technology for Sustainable Development. Oxford: Oxford University Press.
191
Porrua, M., Rinne, J. and Serrano, A. 2001. Colombia's Government Portal. Washington, D.C: The World Bank. [Available at http://www1. worldbank. org/publicsectorlegov/colombiaportaL cs. htmJ Engaging Citizens in Policy-Making: Information, Consultation and Policy Participation. 2001. Puma Policy Brief No. 10. Paris: OECD.
192
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E-Governance
process. The appropriate use of shared data and information by all governmental agencies and departments offers the possibility to make quick decisions thus to serve the community be~~owever improvements in the speed and quality of decision-making depend greatly on thEnaLiJ~Ingness of governments to be empowered with new information, the capability of staff to process the large amount of information, the prevailing cultural values as well as the motivation of governments to shift from a hierarchical public administration model to a flexible, less centralized model. As for example, The CRISTAL initiative of Argentina's government was launched in order to disseminate information regarding the use of public funds, including information about the amounts of money for different programs, financial and employment data, public debt account including terms, guarantees, interest costs, and the outstanding tax and customs obligations of private companies. Its primary goal is to inform customers! citizens, to disseminate content and information, empowering customers to exercise more control over their political representatives. In their website they also provided a specific section where users can send their questions, comments and suggestions for further improvements. Their feedback allows the government to adjust the content and information, to customize the information and to reorganize itself around customers' needs and requirements 193•
Promote Use of leT in Other Sectors of the Society Contin.uous interaction and communication between government and its stakeholders contributes to the creation of awareness about the potential contribution of ICT to local community activities. In this way, e-governance plays a vital role, not only in facilitating marketled initiatives but also in initiating the process of capability building and in coordinating the actions of a ~arge number of interested stakeholders 194• In fact, one of the main benefits of an . e-governance initiative consists of the promotion of ICT use in other sQctors. In order for e-governance staff to interac.r transact and communicate electronically with businesses, citizens and other stakeholders, it is necessary to mandate the use of ICT tools and applications. For a G2B electronic transaction to occur, the business itself needs to make use of electronic equipment. On the other hand, financial institutions have to create secure and reliable methods for electronic transactions. The development of new technological and management capacities required for e-governance functionality encourage the development in turn of new training courses and modules in schools and universities trying to supply the required skills and capabilities to the market. As for example, In India, the Gyandoot project is a G2C intranet project which offers numerous benefits to the region, to citizens and to the community in. general. The goal of the project has been to establish community owned technologically innovative and sustainable information kiosks in a poverty-stricken rural area of Madhya Pradesh. The benefits assured by this intranet system have increased the awareness of ICT importance and have spin off other IT initiatives and programs, such as: the creation of new private ICT training institutions; a high level of student enrolment - about 60%; parliament 193 194
Radics, A.G. 2001. Cristal: A Tool for Transparent Government in Argentina. Washington, D.C: The World Bank. [Available at http://www1.woridbank.org!publicsectorlegovlcristaLcs.htmJ Mansell, R. and Wehn. U. 1998. op.cit.
E-Governance and Good Governance: A Conceptual Analysis
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has allocated resources to set up other kiosks in schools and to develop new models for e-education; Indira Gandhi National Open University has opened a study center for undergraduate and postgraduate courses on computer applications; the government has instituted a cash award to motivate ICT projects195.
E-Governance: Challenges While it is evident that e-governance and ICTs, in general, are powerful drivers of wealth creation and growth, there remain many challenges which hamper the exploration and exploitation of its opportunities. The multidimensionality and complexity of e-governance initiatives implies the existence of a wide variety of challenges and barriers to its implementation and management. The main challenges 196 identified for e-governance development and implementation are: ~
ICT infrastructure (e-readiness, computer literacy, telecommunication equipment)
~
Policy issues (legislation)
~
Human capital development and life long learning (skills, capabilities, education, learning)
~
Change management (culture, resistance to change)
~
Partnership and collaboration (public/private partnership, community and network creation)
~
Strategy (vision, mission)
~
Leadership role (motivate, involve, influence, support)
ICT Infrastructure ICT infrastructure is recognised to be one of the main challenges for e-governance. Internet working is required to enable appropriate sharing of information and open up new channels for communication and delivery of new services 197 . For a transition to electronic government, an architecture, that is, a guiding set of principles, models and standards, is needed. Many developing countries suffer from the digital divide, and they are not able to deploy the appropriate ICT infrastructure for e-governance deployment. The digital divide 195
Bhatnagar, S. and Vyas, N. 2001. Gyandoot: Community-Owned Rural Internet Kiosks. Washington, D.C: The World Bank. [Available at http://www1.worldbank.org/publicsectorlegovlgyandootcs.htm]
196 197
Ndou, V. 2004. op.cit. Tapscott, D. 1995. Op. cit.
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E-Governance
between richer countries and developing ones is large with high-income economies having 416 personal computers per 1,000 people and low-income economies only 6 per 1,000198 . The development of basic infrastructure to capture the advantages of new technologies and communications tools is essential for implementing e-governance. Different access methods, such as remote access by cellular phones, satellite receivers, kiosks, etc., need to be taken into consideration by governments in order that all members of society can be served irrespective of their physical and financial capabilities. However, an ICT infrastructure does not consist simply of telecommunications and computer equipment. E-readiness and ICT literacy are also necessary in order for people to be able to use and benefit from e-governance applications. Having the education, freedom and desire to access information is critical to e-governance efficacy. Presumably, the higher the level of human development, the more likely citizens will be inclined to accept and use e-governance services. For example, In the Gyandoot project, the poor infrastructure facilities constituted one of the major problems encountered in developing and implementing the project. Local rural telephones infrastructure did not operate with optical fiber cable, and in consequence there were initially significant reliability problems. This caused a decrease in the motivational level of kiosk managers to participate in the project. Substantial problems were encountered with literacy and skills to use new technological tools and applications. To ensure the success and the sustainability of the project, the Indian telecommunications department undertook actions to upgrade the level and quality of connections, as well as study alternative solutions (such as wireless applications) to cover those zones where telephones were not available. In addition, some basic training was provided to people who were directly engaged in management and maintenance of kiosks 199 •
Policy Issues Processing of e-governance principles and functions requires a range of new rules, policies, laws and legislative changes to address electronic activities including electronic signatures, electronic archiving, and freedom of information, data protection, computer crime, intellectual property rights and copyright issues. Dealing with e-governance means signing a contract or a digital agreement, which has to be protected and recognized by a formalized law, which protect and secure these kinds of activities or processes. In many developing countries, e-business and e-governance laws are not yet available. Establishing protections and legal reforms will be needed to ensure, among other. things, the privacy, security and legal recognition of electronic interactions and electronic signatures. Hence, governments all over the world need to tackle the design and development of a public key infrastructure, which will guarantee secure transactions between organizations and individuals. As for
198 199
World Development Indicators. 2003. Washington, D.C: The World Bank. [Available at http://www.worldbank.org/datalwdi20031] Bhatnagar, S. and Vyas, N. 2001. op. cit.
E-Governance and Good Governance: A Conceptual Analysis
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example, In the e-procurement system initiative in the Philippines, which aimed to streamline the purchase of goods and services for a large number of government departments and agencies, a number of actions were undertaken to change the legal framework and to issue new rules and policies that govern and regulate electronic commerce and interactions. An executive order was issued which provided legal guidelines about how to conduct electronic business, and how to advertise and post bids or notices in the new electronic system. In addition, an e-Commerce law was promulgated, in order to give legal protection to electronic documents2OO •
Human Capital Development and Life Long Learning A major challenge of an e-governance initiative is the lack of ICT skills in the public sector. This is a particular problem in developing countries, where the chronic lack of qualified staff and inadequate human resources training has been a problem for years201 • The availability of appropriate skills is central for successful e-governance implementation. E-governance requires hybrid human capacities: technological, commercial and management. Technical skills for installation, maintenance, designing and implementation of ICT infrastructure, as well as skills for using and managing online processes, functions and customers, are necessary. To address human capital development issues, knowledge management initiatives are required focusing on staff training, seminars, workshops in order to create the basic skills for e-governance handling. As for example In Beijing's Business e-Park initiative, a key step in project implementation was the education programme. Firstly government officers learnt to do their jobs more quickly and efficiently. It was also important to educate government leaders, as they were responsible to explain what e-governance is and what its benefits will be for the community. Ultimately, basic computer and Internet training were provided to government staff and public users of the e-governance system 202 • In general, in almost all cases the focus on training and education programs was a paramount phase for the assurance of project endurance. However, the human capability development doesn't end up with the acquisition and achievement of basic initial skills. Instead, lifelong learning is an essential prerequisite as the rate of change increases and new technologies, practices and competitive models emerge. The full economic benefits of IT depend on a process of social experimentation and learning, which is still at an early stage 203 •
200
Granados, E. and Masilungan, M.E. 2001. Philippines Pilot E-Procurement System. Washington, D.C: The World Bank. [Available at http://WWW1.worldbank.org/publicsectorlegovlphilippines_eproc.htm]
201
Benchmarking e-govemment: A Global Perspective. 2001. UNPA and ASPA. [Available at http://unpan1.un.orglintradoc/groups/public/documents/un/unpan003984.pdf]
202
Lin, M., Zhu, R. and Hachigian, N. 2001. Beijing's Business E-Park. Washington, D.C: The World Bank.
203
[Available at http://www1.worldbank.org/publicsectorlegovlzhongguancun_cs.htm] Freeman, C. and Soete, L. 1994. Work for All or Mass Unemployment: Computerised Technical Change into the 21st Century. London: Pinter Publishers.
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Change Management Change management issues must be addressed as new work practices, new ways of processing and performing tasks are introduced. E-governance correctly designed doesn't simply save costs and improve service quality; instead it revolutionizes and reinvents the government processes and functions. Change management can be divided into two subconcepts: Change Management Approach and Management of Resistance to Change. Change management approach refers to the change management procedures established within organizations. Delisi identifies culture as the primary driver of strategic organizational change 204 • Being aware of an organization's culture is already a big step towards a higher capacity to change 205 . Hierarchy is the most traditional of cultural values of a government bureaucracy, in many ways its defining feature. In particular, intranets and the sharing of information throughout organizations can challenge hierarchies and can only really benefit an organization that develops a more networked approach; ICT is distinguished by its network characteFo6 • Employeerecistance to change is still the biggest barrier to successful change. Employees fear changes in general and ICT applications in particular as they believe that ICT would replace them and so cause job losses. Moreover, it is very difficult in a short time to turn off traditional methods of working and learn new ones. Addressing resistance successfully means ensuring the existence of incentives for employees to learn and change and the establishment of well-structured plans that embrace employee participation throughout all stages of a change process. As for example, It is relevant to mention here the experience in India of the Vijayawada Online Information Center (VOICE). The main objective of this initiative was to realize an electronic system which enables the delivery of municipal services such as building approvals, status certificates, and handles the collection of different types of taxes. Resistance to change from public staff was one of the major problems encountered in this endeavor. The revenue department staffs were those who caused most problems as they stood to lose the income received from bribes. Some staff feared job losses, some others were reluctant to learn and use the new technology and new work practices. Several meetings and performance reviews were organized to persuade staff to become accountable . and to motivate them for better performance 207 .
Partnership and Collaboration Collaboration and cooperation at local, regional and national levels, as well as between public and private organisations, are important elements in the e-governance development 204
Delisi, P.S. 1990. "Lessons from the Steel Axe: Culture, Technology and Organisation Change". Sloan Management Review. 32 (1), pp. 83-93.
205
Hassard, J. and Sharifi, S. 1989. ·Corporate Culture and Strategic Change". Journal of General Management. 15 (2), pp. 4-19.
206
Citizen and Government in the Information Society: The Need for Institutional Innovation. 2001. Dutoh ICT and Government Advisory Committee. The Hague: Dutch Ministry of the Interior and Kingdom Relations. Kumar, A. and Bhatnagar, S. 2001. VOICE: Online Delivery of Municipal Services in Vijaywada, India. Washington, D.C: The World Bank. [Available at htlp:I/WWW1.worldbank.orgipublicsectorlegovlvoice_cs.htmJ
207
E-Governance and Good Governance: A Conceptual Analysis
77
process. Nevertheless, collaboration and cooperation are not simple to realize. Governments often exhibit considerable resistance to open and transparent systems as they try to preserve their authority, power and hierarchical status. Citizens distrust their governments, especially where there has been a history of dictatorship, political instability or large-scale corruption. To ensure that the public and stakeholders will be partners in the e-governance effort, it is important to try to build trust in government. Collaboration between the private (assuming that there is a private sector) and public sectors is needed too, in order to provide resources, skills and capabilities that the government lacks. As for example, the ICT private sector is able to support government with technical skills and infrastructure; meanwhile, universities will provide the required staff, learning and training courses for government staff and citizens, and other governmental departments and agencies can contribute in data and information flow and knowledge sharing for problem solving of similar tasks or processes and so on. A 'new' development model is emerging that focuses on partnership among stakeholders in the knowledge-based development program 208 . As for example, The initiative of the State of Andhra Pradesh in India to computerize the 1,124 administrative units, called mandals, in order to realize online delivery of services, required strong coordination and collaboration between various departments. Different databases were handled and managed by different departments, one from the revenue department, one from the national informatics department, another from the social welfare department. These departments were geographically spread over an area of 275,000 sq. kms, but the timeless delivery of services required the instant collaboration, communication and interaction between them209.
The Strategy One of the main challenges for an e-governance project is the establishment of an appropriate and context tailored strategy. Every project or initiative needs to be rooted in a very careful, analytical and dynamic strategy. This seems to be a very difficult task, requiring a focus on many aspects and processes, a holistic vision, long-term focus and objectives. Many public institutions limit their activities to a simple transfer of their information and services online without taking into consideration the re-engineering process needed to grasp the full benefits. The government must have a clear strategy to overcome the barriers to change. Part of the strategy is to engage in a rigorous assessment of the current situation, the reality on the ground and the inventory of projects, articulate costs, impacts and benefits of programme as well as continuously monitor and evaluate the project upgrading. Borrowing a lesson from the private sector, e-governance must be customer-driven and service oriented, meeting the needs of citizens and improving the quality of life. This means that a vision of e-governance implies providing greater access to information as well as better, more equal 208 209
Talero, E. and Gaudette, P. 1996. Harnessing Information for Development: A Proposal for a World Bank Group Vision and S!rategy. Washington D. C: The World Bank. Bhatnagar, S. 2001. Mandals Online in Andhra Pradesh. Washington, D.C: The World Bank. [Available at http://www1.worldbank.org/publicsectorlegovlapmandalscs.htm]
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services and procedures for public and businesses. Even when e-governance projects seek to improve internal government processes, the end goal should be making government serve citizens better. This means recognizing the diverse roles that citizens can playas partners, taxpayers, constituents, employers, employees, students, investors and lobbyists. As for example, a critical point for the initiative of the government of Colombia to realize an e-governance portal was the definition of strategy and actions to be pursued. Initially the government created a specific unit to develop the strategy, objectives, and plan for actions and afterwards to assist and monitor the work progress. A 'Connectivity Agenda' was formulated which specifies the key objectives of the initiative, the strategic framework for subsequent actions, and different projects to undertake. The Agenda established an action framework that guided any plan in Colombia related to ICT development and electronic applications, thus allowing a rational and coordinated investment effort210.
Leadership - The Driving Force The public sector presents unique challeng for leadership. Changing and hazy visions confuse expectations for reforms and leaders211. Leadership is one of the main driving forces of every new and innovative project or initiative. Since e-governance is a complex process, accompanied by high costs, risks and challenges, public organizations are generally resistant to the initiation of change. A leading player (organization, institution), which is able to understand the real costs and benefits of the project, to motivate, influence, include and support other organizations and institutions, is required. Leadership is necessary before, during and after project implementation. Before the project is initiated, leadership is needed in order to explain the concept, the model and create awareness; during the project, leadership is needed to manage change and support the project; and after the project, it is needed to pledge the required flexibility and adaptability of the initiative. Top leadership involvement and clear lines of accountability for making management improvements are critical to overcoming organizations' natural resistance to change, marshalling the resources needed to improve management, and building and maintaining the organization wide commitment to new ways of doing government212. As for example, Chile's government e-procurement System initiative was seen as a technocratic solution. As a consequence, the pledge of strong political support and top leadership was a critical issue. The political support through exposure in the press outlining the benefits of the initiative in terms of transparency, efficiency and e-commerce capacity was sought as vital by organizing staff. Further leadership and support was provided by lobbying political parties, interest groups, private sector advocates and information technology companies213. 210
Porrua, M., Rinne, J. and Serrano, A. 2001. op. cit.
211
Engaging Citizens in Policy-Making: Information, Consultation and Policy Participation. 2001. op. cit.
212
McClure, D.L. 2001. Electronic Government: Challenges Must Be Addressed with Effective Leadt;rship and Management. GAO-01-959T. Testimony before the Senate Committee on Governmental Affairs, on behalf of the U.S. General Accounting Office. [Available at http://www.gao.gov/new.itemsld01959t.pdf]
213
Orre9O, C., Osorio, C. and Mardones, R. 2000. Chile's Govemment Procurement System. Washington, D.C: The World Bank. [Available at http://www1.wortdbank.orgipublicsectorlegovleprocuremenCchile.htmJ
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Summary This part is mainly concerned with the analysis of the concept of good governance and e-governance. It tries to distinguish between government and good governance and then between e-government and e-governance. The concept of good governance has been analyzed lucidly in the context of World Bank and IMF. While discussing the concepts, objectives and components of e-governance , the researcher has also discussed the models of e-governance implementation. The various steps for e-governance, its opportunities and challenges are also discussed in this chapter.
Review Questions 1.
What is Good Governance? Discuss its characteristics.
2.
"Good Governance is not just valued in itself. It is believed to lead development." Comment.
3.
Examine relationship between Good Governance and E-governance.
4.
'E Governance is road to Good Governance' -
5.
Analyse the concept of E-Governance with suitable examples.
6.
Discuss the domain and models of E-Governance.
7.
Examine the technological aspects of E-Governance.
8.
Examine the pressing challenges of E-Governance.
Examine.
ClCJCl
Learning Objectives 3.t
US
3.2.
UK
3.3.
Australia
3.4.
New Zeland
3.5.
Canada
3.6.
Italy
3.7.
Norway
3.8.
Dubai
3.9.
China
3.10.
Bangladesh
3.11 .
Malaysia
3.12.
Mauritius
3.13.
Mexico
3.14.
Brazil
3.15.
Mozambique
81
E-Governance: Country Experiences
Concomitantly, few available country experiences as to e-governance are presented here for a full-fledged analysis. To start with, e-governance is ubiquitous irrespective of the development status of the country. 'All that glitters is not gold', likewise, e-governance projects of all countries are also not successful. In this new information economy, no country can maintain aloofness from e-governance. Success or failure of e-governance projects contribute to the digital divide. Developefjtcountries are getting tremendous success from e-governance, but not the developing countries. But success is a journey, not a destination which is app./icable to every country whether developed or developing. Every government attempts continuously to bring maximum benefit and happiness to majority of its citizens. If the government takes the course of electronic means in delivery of public services, then no wonder, it becomes easier. This effort of the government is called as e-governance, which is now more or less omnipresent. But the success or failure of e-governance worldwide has created a digital divide. This chapter portrays e-governance initiatives in a global scale including developed, developing, and least developed countries.
=-
3.1:- United State -
<
,.
No doubt US is a global leader in e-governance. The US president has already announced a proposal to provide a single interface of all government information and services through unified portal to be named as 'firstgov.gov'.The country has outlined a management agenda for making government more focused on citizens and results, which includes expanding horizon of e-governance. This government reform is mainly guided by 3 principles - citizen centered, results oriented and market based. These principles are integrated to evolve goals of , government reform, which are highlighted in management agenda. They are: ~
Strategic management of human capital.
~
Budget and performance integration.
~
Com~etitive
~
Expanded use of internet and computer resources to provide government services.
~
Improved financial management.
sourcing.
Towards the later part of 2002, E-government Act was also signed aiming to ensure strong leadership of the information technology activities of Federal agencies. E-governance structure of US is based upon three relationships. They are: 1. Government to Citizen 114 : The Government to Citizen Initiatives provides one-stop, online access to information and services to citizens. One of the initiatives Govbenefits.gov 214
www.usa.gov
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E-Governance
has referred more than 2 million visitors to benefit programs-loans facility provides enhanced loan services to Americans.Recreation.gov has created a new centralized national recreation reservation system. Through the project IRS Free File, millions of Americans file their taxes on line for free. 2. Government to Business115: The Government to Business Initiatives are committed to help business interact efficiently and effectively with the Federal government. Business has got tremendous benefit through a series of one-~top portals, such as Regulations.gov and Export.gov. Information about laws and regulations related with business can be accessed through Business.gov. Another project Consolidated Health Informatics (CHI) has been initiated to allow health information to be shared securely across different organizations. 3. Government to Government216 : The Government to Government is aimed towards collaboration between levels of government, empowering State ~nd local governments to become more citizens friendly. The initiatives are Geospatial One-Stop, Disaster Management, SAFECOM, E-Vital, and Grants.gov. Geospatial One-Stop's web portal, 'GeoData.gov' makes easier to all levels of government to access geospatial information in a faster and inexpensive way. Disaster Management provides federal, State, and local emergency manager's online access to disaster management related inform~tion, planning, and response tools. Even in 'firstgov.gov' one can find information regarding people missed or perished in hurricane Katrina and Rita. Government's focus on hurricane relief is also mentioned in this site. SAFECOM serves as a very broad programme to help local, tribal, State and federal public safety agencies improve public safety response through advanced wireless communications. The E-vital initiative has established common electronic processes for fe~eral and State agencies to collect, process, analyze, verify, and share death record information. Through Grants.gov federal grant customers can apply for grants through a single window. ,
Besides the above mentioned initiatives for internal efficiency and effectiveness E-Training, E-Clearance, E-Payroll, E-Travel, E-Records has also been followed. The Enterprise Human Resource Integration (EHRI) is providing HR managers with a data warehouse and workforce planning and analysis capabilities such that trends for retirement, promotions, and reassignment can be accurately and efficiently forecasted. E-Authentication initiative provides a uniform process for establishing electronic identity and eliminates the need for each initiative to develop a redundant solution for the verification of identity and electronic signatures.
215
Ibid.
216
Ibid.
'1'
E-Governance: Country Experiences
83
3.2. United Kingdom UK Government has also taken remarkable steps for e-governance. It has initiated direct.gov.uk for the online service delivery to the citizens. 'Direct.gov' brings together the widest range of public service information and services online. Produced by the Central Office of Information, 'direct.gov' provides information from across UK Government departments on topics ranging from travel safety and parental leave to special educational needs and local NHS services. The site also brings together an increasing number of online government services to make your life easier - from booking a driving test and taxing your car to renewing your passport or applying for a student loan. one can browse by audience group, such as disabled people, young people, britons living abroad, over 50s, carers and parents, or you can search by topic, including money, tax and benefits, employment, travel and transport, health and well-being, education and learning and motoring. If a person needs more information, the site gives access to government directories, as well as links to relevant third parties who can offer additional trusted advice and support. Even a foreigner can apply for British Nationality on line. In 1998 National Grid for Learning (NGFL) was started, a focal pOint for learning on the internet. The e-governance initiatives217 in UK are aiming to: ~
Make government information widely and freely available
~
Make information publicly accessible and helpful to citizen's charter principles
~
Encourage open and transparent government
The political constituents of UK like England, Wales, Scotland and Northern Ireland has also taken remarkable initiatives in providing e-services to the citizens. The local authorities are also not excluded from the scope of e-governance in UK .Not only are local authorities seeking to understand what citizens want in terms of e-government, but they are also trying to provide e-information and e-services in ways that meets their needs. Much has been made of the "digital divide" - of the potential for technology to reinforce social exclusion by making it harder for some people to access services and participate in democracy. Many people cannot afford computers (and other IT equipment), do not know how to use them, are intimidated by them, or prefer other ways of talking to their council. But there is the potential to overcome these obstacles - by providing a range of e-enabled service channels, alongside access to internet technology and skills for all those who want them. E-governance has the potential to increase the speed and efficiency of internal local authority processes by allowing local authorities to rethink and improve the way the 'back office' works. A survey suggests that almost three-quarters (74%) of local authorities have in place some sort of procedure to measure changes in the efficiency of their internal processes that may have arisen due to e-government. 217
www.direct.gov.uk
84
E-Governance
Apart from that Local authorities seem to recognize that e-government has far reaching implications for the way they operate and how they achieve their organizational objectives. It reveals that e-government is often reflected in a number of different local plans and strategies, suggesting that local authorities consider e-government to be a tool for facilitating the achievement of a variety of objectives and targets. Local authorities obviously recognize the importance of having strong leadership to drive forward the implementation of e-government, as almost all local authorities have a senior officer e-champion and an elected member e-champion.
3.3. Australia Australia's performance in e-governance is also noteworthy. It has established a separate office of e-government. The mission'of the Office of e-Government, which was established in February 2003, is to transform how Government does business through leadership and collaboration in the use of Information and Communications Technology to ~
Improve Internal Efficiency -Improved processes within and between agencies leading to lower costs and improved services;
~
Transform Service Delivery - More personalized and accessible services that are easy for the community to use; and
~
Engage the Community - Easier interaction so that people can understand and contribute to Government.
The key objectives of the Office of e-Government are to:
Transform ~
Change existing structures and processes
~
Facilitate culture change in Government
Lead ~
Envision the future of Government
~
Communicate the e-government vision
~
Guide the way and empower agencies
E-Governance: Country Experiences
85
Collaborate ~
Recognize and promote interdependency and collective responsibility within Government
~
Participate with agencies to engage citizens in the process of transforming service delivery
~
Promote the concept of Government as a learning organization - improve knowledge/ build on information, share information and don't reinvent the wheel.
Information and Communications Technology (ICT) is transforming the way government in Australia, operates and the pace of change will only increase over the next few years. ICT advances can provide better service delivery, while at the same time improving efficiency and reducing the costs of government. Effectively harnessing ICT to achieve this goal is a significant challenge. The 2006 e-Government Strategy, "Responsive Government·A New Service Agenda," outlines how the Australian Government will meet this challenge. The broad agenda was set in 2002 in the initial e-government strategy, Better Services Better Government, which mapped out the move toward more comprehensive and integrated use of new technologies for government information, service delivery and administration. In 2004, the government released its information economy policy document, Australia's Strategic Framework for the Information Economy 2004-2006. It outlines a whole of government approach to maintaining Australia's position as a leading information economy including a key strategic priority to 'raise Australian public sector productivity, collaboration and accessibility through the effective use of information, knowledge and ICT'. It is timely for this ambitious strategy to elaborate on that priority and chart how the government will build on progress in e-government to date and move forward towards the vision of a connected and responsive government by 2010. Activities will be in four main areas 218 :
218
~
Meeting users' needs
~
Establishing connected service delivery
~
Achieving value for money
~
Enhancing public sector capability.
http://www.agimo.gov.aulgovemmentJe-govemmencstrategy
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E-Governance
Considerable work has already been done, with much of the ICT infrastructure and basic online services already in place and many on-the-ground successes. We are now moving into an era where the pace of change will accelerate through technology enabled transformation of the business of government. The Special Minister of State, through the Australian Government Information Management Office (AGIMO), will oversee and coordinate implementation of this strategy and track progress towards the 2010 target, in consultation with the Secretaries' Committee on ICT (SCICT) and the Chief Information Officer Committee (CIOC). The Minister will also liaise with the States and territories through the Online and Communications Council (OCC) to ensure a fully national approach. The benefits will not only be more efficient services for both government and anyone interacting with government-implementing connected government will realise better services and better government, in other words, responsive government. Australia has done more than most developed countries to address the need to identify, collect, store and preserve online publications and organizational records. Both National Library of Australia and National Archives of Australia have earned international. reputations for their initiatives. Australian e-governance initiatives have specific commitments. It aims to deliver all appropriate Commonwealth services electronically on the internet. It aims to establish electronic payment as the normal means for commonwealth payments and establish a governmentwide intranet for secure online communication.
3.4. New Zea-Iand In New Zealand, e-governance has developed rapidly since the 1990s. In 2001, the work of the new unit resulted in the publication by the government of New Zealand's first e-governance Strategy. This document defined the strategic aims of New Zealand's e-government programme, with the vision of establishing New Zealand as "a world leader in e-government". The e-governance programme and the E-government Unit were formally established 1 July 2000. The two main reasons for the establishment of the programme were t0219 :
219
~
ensure that the public sector was able to make best use of information and technology to improve its service delivery, internal performance and overall capability; and
~
facilitate the necessary organization changes, development of networks and relationships for the above to occur. http://www.e.govt.nzlarchive/about-egovtlprogramme
E-Governance: Country Experiences
87
In June 2005, the E-government Unit was integrated into the State Services Commission Services offered by New Zealand E-Government include the following: ~Procurement in government provide ways for government agencies to collaborate in buying goods and services through syndicated procurement, adoption of best practice processes and sharing knowledge. Government agencies can use a 'shared workspace' developed for procurement practitioners. This workspace provides a variety of purchasing related information, including current and future SP opportunities, procurement training courses, 'lessons learnt' from other agencies, procurement policy and operational help and contract advice, and links to other procurement related sites220 .
~Government
Shared Network: The Government Shared Network (GSN) is a new network that will enable government agencies to share information at higher speeds and more cost effectively. The shared network will improve the delivery of information and services to the New Zealand public. Key features 221 of the shared network: ~
A secure fiber-optic network connecting government agencies in Wellington
~
A Wide Area Network (WAN) connecting government agency sites anywhere in New Zealand on a secure voice and data capable network.
~
Services delivered on the shared network including internet access, IP telephony, secure remote access, and offsite data storage.
~Onllne authentication: The Allof-government Authentication Programme began in 2000 with the aim of determining what Government could do to help people more conveniently and securely authenticating themselves when transacting with government agencies using the Internet. To use some government services, you need to verify who you are. You also need to know that you are dealing with a real government agency. The process of verifying who you are and establishing the authenticity of the agency is called 'authentication'. In recent years, the State Services Commission has been working with a range of public interest groups and agencies to examine what online authentication might mean for people and government agencies dealing online with each other. The focus has been on determining an approach that allows individuals to have confidence when they transact online with New Zealand government agencies. In April 2002, this work resulted in the Government approving a set of policy and implementation principles for authentication. The principles were the basis for the four conceptual models that were developed in late 2002 to represent the possible ways to achieve a consistent approach to online authentication. These models were analyzed to determine the implications of each approach and feedback was also sought via a public
220
WWW;govt.nz
221
Ibid.
88
E-Governance
consultation. This led to a decision by the Government in June 2003 to proceed with designing an all-of-government authentication solution. With input from a range of groups and individuals, the E-government Unit, determined how such a solution might work and considered the various implications that it may give rise t0 222 . >Public Sector Intranet: The Public Sector Intranet (psLgovt.nz) aims to provide a single point, accessible by all public servants, where they can share information with their colleagues. It makes it easy for people to find information they need for their work, and make contacts in other agencies. It enables a sense of community, shared interests, and crossagency cooperation 223 • The New Zealand Government has allocated more than $53 million in 2006 to create a digital future accessible to all the citizens. As part of the country's Digital Strategy programme, New Zealand plans to spend $10.5 billion for information and communications technology (ICT) over the next five years. One of the key objectives of the Strategy is to ensure New Zealand remain in the top three of OECD countries for broadband uptake by 2010224 • Overall New Zealand e-governance initiatives require the government to create the environment where others- the private sector, communities and individuals can make the most of e-technology. The e-governance goals of New Zealand are: >
By 2007, information and communication technologies will be integral to the delivery of government information, services and processes.
>
By 2010, the operation of government will be transformed as government agencies and their partners use technology to provide user-centred information and services and achieve joint outcomes.
>
By 2020, people's engagement with the government will have been transformed, as increasing and innovative use is made of the opportunities offered by network technologies
3.5. Canada
.-
For the fifth year in a row (2000-05), Accenture, the international consulting firm, has ranked Canada as first in e-governance implementation 225 • There are many factors at play that have led to Canada being a world leader in e-service .delivery.
222 223
wwwaovt.nz www.govt.nz
224 • http://www.digitaIQQPortunitv.org/articlelvievrI1114411111074
225
http://www.egovmonitor.com/nQdeIl.09
E-Governance: Country Experiences
89
One of the most successful factors was the top political and public service leadership and support. From 1997 onwards, the former Prime Minister made speeches on the importance of e-governance, as did Ministers. This initiative has been on the political agenda from an early stage. It was followed up with sufficient funding over the years with the programme being made a government wide priority in the speech from the throne at the October 1999 opening of Parliament. Within the public service a Committee of Deputy Ministers, (TIMS The Telecommunications and Informatics Management Subcommittee), were assigned the responsibility of ensuring the government's promise on e-governance was kept. This leadership from the top echelons of the political system and the public administration set the climate for the eventual evolution of a multitude of projects and eventual success. An important factor in the Canadian government leadership is that it allowed for proper funding for e-governance programmes to evolve to implementation. There were many other important steps taken and followed to bring the Canadian e-governance initiatives to the top ranking in the world. The officials responsible for e-governance, and what became the Government Online (GOl) initiative, looked at the delivery of services by taking an all-government approach to e-service delivery. What this means is that services were organised by category and not delivered on a department-by-department basis. The Canadian government's focus has been on what citizens actually want in the way of e-services - not what the Government thinks they want. This has been accomplished by a combination of professional polling of the public and the results of focus groups conducted across the country. The Government did not make assumptions on what services were needed by the public and spent considerable resources getting to know what the public wanted. It also formed a GOLAdvisory Committee of prominent citizens, business people and academics to advise Ministers on implementing the Government Online initiative. Michael Turner, Assistant Deputy Minister of the Information Technology Services Branch, Public Works and Government Services Canada, says that the government followed up this approach "with the regular use of g unique Canadian outcomes analysis approach called 'Citizens First' in the case of individuals and families, and 'Taking Care of Business' in the case of companies", which used further surveys against the Common Measurement Tool that the government officials responsible for GOl have developed. With lhis tool the government has been able to measure client expectations, priorities and actual percentage satisfaction with government services at all levels of government, and track how that is changing. A target of 2005 was set for the delivery of online government services with all Chief Information Officers (CIO) in individual departments required to submit plans to bring the services of their particular departments online by this deadline. Departments laid out their plans and how targets would be met and submitted their plans to Treasury Board Secretariat. The departments were then held accountable for meeting their targets on their announced plans and t~ese were then publicly posted on their vVebsites. Cros.s cutting multi-department
90
E-Governance
,committees were set up to coordinate various aspects of the programme with a Committee of Deputy Ministers, approving major investments for the programs submitted and tracking progress. A factor of going online was that departments were encouraged to re-engineer their business processes. This is an affirmation of the basic tenet that the advent of information and communication technologies has changed the way we operate as individuals and organizations, whether it be government, large corporations, academic institutions, NGOs, small business operations, entrepreneurs or individuals. The Canadian government had a good grasp on the changing culture and acted accordingly in developing new and modern "best practices" to ensure success of their programs. One of the most important factors in their success in the development of Government Online (GOl) was that new money was invested in four areas: ~
Development of policy, technical standards (e.g. "Common look and Feel"), legislation, and privacy requirements
~
Development of measurement tools and a communications/promotion program
~
Development of departmental staff to enable them to work in the new online services environments and interfaces with clients
~
Development of common technology infrastructure such as Digital certificates and common networks.
The Government of Canada avoided failures in e-governance implementation in many other countries through strong leadership from the top, working cooperatively across government through committees, setting the right priorities, determining public needs and public wants and ensuring sufficient personnel and funds to get the job done. Failures were recognized early on and corrections made. The next evolution from e-governance is going to be to 'Service Transformation' which will involve not just programme re-engineering but taking into account all the new technologies evolving into society and also the realities of the needs of people in the offline world. The government is also working towards the development of 'Service Canada' sites where, says Michael Turner, "a broad range of citizen services can be obtained from knowledgeable front line service workers, supported by the cross channel systems." Business is also in the loop and a series of integrated federal/provincial Canada Business Centres in each province is now moving into more provision of integrated, cross channel services. Government Online (GOl) is a government-wide initiative to use information and communication technology to enhance Canadians' access to improved and integrated services, anytime, anywhere and in the official language of their choice. Overall 130 of the most commonly used services are available online, and online transactions now account for 30 per cent of all transactions. GOl has been a catalyst for transforming government services and improving multi-channel service delivery. It represents the continuous and collective effort of all participants to develop horizontal and integrated solutions involving the three
E-Governance: Country Experiences
91
levels of government. The significant and increasing use of online services by citizens and businesses today demonstrates the success of the initiative, as do independent assessments that have ranked Canada number one in the world for the last five years for e-government. Major services offered by the Canadian Government Online by title:
Business Registration Online The Business Registration Online (BRO) service is designed so that businesses can conveniently register themselves for Canada Customs and Revenue Agency, Nova Scotia and Ontario programs at one time. Format: Online Transmission
Request for a Business Number (RC1) The Business Number (BN) initiative provides the Canadian government with a common identification system for business clients. This initiative integrates four separate account numbers into one. Format: Printable Form (Adobe Acrobat)
Corporations Directorate Electronic Filing Federal incorporation provides enhanced name protection and increased recognition abroad. Format: Online Transmission
Human Resources Management Record of Employment Laser Print. The ROE is the single most important document in Employment Insurance (EI). The information on the ROE determines if a person qualifies for EI benefits, the benefit rate and the duration of benefits. Format: Software
Declarations of Conditions of Employment (T2200) You will have to complete Form T2200 if you are deducting employment expenses. Format: Printable Form (Adobe Acrobat)
92
E-Governance
Statement of Employment Insurance Benefits (T4E) Use form T4E to declare your Employment Insurance benefits. Format: Printable Form (Adobe Acrobat)
Statement of employment expenses (T777) Use form T777 to calculate your. allowable employment expenses. Format: Printable Form (Adobe Acrobat)
Publications on Industries Order Form Human resource analyses of specific industries with an emphasis on the implication of business trends and technological change. Format: Online Transmission
Exporting Canadian Automated Export Declaration. This program gives registered exporters and agents the opportunity to report goods electronically to the Federal Government of Canada instead of via the paper-based reporting method. Format: Software
Program for Export Market Development (PEMD) Financial assistance to companies to develop new export markets on a cost-shared basis. Format: Printable Forms (Adobe Acrobat)
Application for Import I Export Permit (EXT-1466) When requesting an import or export permit, applicants should complete form EXT-14'66. Format: Printable 1;orm (Adobe Acrobat)
E-Governance: Country Experiences
93
Feedback Form for Trade and Investment Barrier The Department of Foreign Affairs and International Trade (DFAIT) wants to know about major market access irritants Canadian business people may be facing in foreign markets. Format: Online Transmission
Importing Canada Customs Invoice (CI1). Required for shipments to Canada valued at $1,600 or more. Format: Printable Form (Adobe Acrobat)
Canada Customs Coding Form (B3) Monthly summary of total duties and taxes, consolidated nationally, regionally, by port, or by carrier. Format: Printable Form (Adobe Acrobat)
North American Free Trade Agreement - Certificate of Origin (B232) For use in shipping between Canada, Mexico and the U.S. Required for freight to be treated under NAFTA provisions. Format: Printable Form (Adobe Acrobat)
Application for Import I Export Permit (EXT-1466) When requesting an import or export permit, applicants should complete form EXT-1466. Format: Printable Form (Adobe Acrobat)
Innovation I Research and Development I Technology Electronic Services at the Canadian Intellectual Property Office CIPO now offers electronic services to clients, applications and certain other documents for patents, trade-marks, copyrights, industrial designs and integrated circuit topographies. Format: Online Transmission
94
E-Governance
Scientific Research and Experimental Development (SR&ED) Tax Credit Forms The Scientific Research and Experimental Development SR&ED Program provides tax incentives to Canadian businesses that conduct SR&ED in Canada. Format: Printable Form (Adobe Acrobat)
Supplier Registration Information The Supplier Registration Information (SRI) site is a database of registered suppliers interested in doing business with the federal government. Format: Printable Form (Adobe Acrobat)
Claim for Progress Payment (PWGSC-TPSGC 1111) Contractors submit claims for progress/advance payments on "Claim for Progress Payment" form. Format: Printable Form (Adobe Acrobat)
Financing Search for Sources of Financing. Search the Sources of Financing database for a wide spectrum of financial providers in your region that might address your particular business needs. Format: Online Transmission
Tax Request for a Business Number (RC1). The Business Number initiative provides the Canadian government with a common identification system for business clients. This initiative integrates four separate account numbers into one. Format: Printable Form (Adobe Acrobat)
Election for GST I HST Reporting Period (GST20) This form includes information about how to change your goods and services taxi harmonized sales tax (GST/HST) reporting period. Format: Printable Form (Adobe Acrobat)
E-Governance: Country Experiences
95
Election and Revocation of an Election to use the Quick Method of Accounting (GST74) Use this form if you want to use the Quick Method of accounting or stop using this method. Format: Printable Form (Adobe Acrobat)
Direct Deposit Request (Non-Personalized) (GST469) Use this form to have your GST/HST refunds and rebates deposited directly into your account, to change information about direct deposit, or to stop direct deposit. Format: Printable Form (Adobe AC:'obat)
Business Consent Form (RC59) Use this form to consent to the release of confidential information about your Business Number (BN) account(s) to the representative named in the form, or to cancel consent for an existing representative. Format: Printable Form (Adobe Acrobat)
3.6. Italy Great changes are taking place in Italy in the relationship between citizens, suppliers and Public Administration. In order to ease the administrative function, the Italian Public Administration is progressively evolving towards a decentralized model (devolution). In fact, one of the major goals of the e-governance plan is a reform of the Public Administration by means of innovation services, transparent government actions and citizens participation in the decision-making processes. According to several important results achieved, we can say that the first digitalized phase of public administration has ended and that it involved basic infrastructure development, greater spreading of information teChnology, the introduction of new service supply channels to citizens and a new e-procurement legislative framework. The next goal will be fully mature online services, with a high level of interaction among them, and a complete and widespread public servic~s evolution. The Italian government has also started new actions aimed at fostering the use of e-governance services226 . ICT have always been considered key not only for automation of public services and, in so doing, for the increase of efficiency and effectiveness of public procedures, but also to facilitate the simplification as well as the transparency of the relationship between Public Administration and Citizens. The extent to strengthen the use of ICT in public services has 226
http://www.items.fr//MG/pdf/summa.Y_speech_deCbufa/o_session_5.pdf
96
E-Governance
acquired, in Italy, juridical validity thanks to the e-Government Code (eGC), which came into force on 1st January 2006227 • The eGC is part of an overall strategy that, in the words of the Prime Minister, "is designed to transform the Public Administration from a handicap to a strength for our competitiveness in the world economy". Essentially, the E-Government Code aims to free Italians from numerous, out-of-date bureaucratic procedures. With the E-Government Code, Italy has become one of the first countries in the world to adopt a "highway code" which government offices will follow as the country undergoes technological modernisation 228 • The eGC represents a unique code, which, unifying all the several existing Statements, along with defining new ones, will work as a "digital Constitution" for all public operators in the field of ICT. Through its more than 70 articles, the eGC States all the rights/duties, principles, and perspectives for Italian Citizens in the information society. The Code represents the overarching result of two years of digital reform policy of the Italian Ministry for Innovation and Technologies, and it is the output of several working sessions spent with experts coming from Universities, industrial sector, professional categories, and civil associations. The eGC regulates the Public Connectivity System (PCS), which is the network built among all Italian public bodies, inside and outside national borders, and manages the rules and regulations for the information flow system through the PCS. The eGC makes operational one of the 5 mission Statements of the electoral program of the Italian Government, which is the reorganization of public procedures and the digitalization of Public Administration through 229 : ~
The introduction of new rights for Citizens and the definition of the new juridical framework for the relationships between Citizens and Public Administration;
~
The identification of new ICT instruments and tools for simplifying public procedures;
~
The establishment of the basis for an efficient federalism;
~
The enhancing of efficiency and effectiveness of public procedure as well as the quality of public services.
There are 20 basic public services (12 for citizens and 8 for businesses), which have been provided electroni~ally, as a part of Italian e-governance initiatives. The 12 services 230 for citizens are as follows:
227
http://unpan1.un.org/intradoc/groups/publicldocuments/UNPANIUNPAN023595.pdf
228 229
Ibid http://unpan 1. un. orglintradoclgroupslpublicldocuments/UNPA N/UNPA N023595.pdf
230
http://ec.europa.eu/idabc/en/document/6744/401
E-Governance: Country Experiences
97
1.
Income Tax Declaration: The service allows users to make income tax declarations and payments online
2.
Job Searches by Labour Offices: The responsibility for job search services has recently been decentralised from the central level (Ministry of Labour) to the Regions and Provinces. Job offerings are managed by the local offices of labour (Centri per I'impiego). The Italian Government has developed a Labour Portal (Borsa dellavoro online). The portal is based on the Labour Information System (Servizio informativo del Lavoro - SIL), linking all private and public actors of the labour market. It offers an online job search service. Citizens who are registered on the regional sub-portals can directly answer job offers online and can possibly be contacted by companies looking for staff.
3.
Social Security Contributions
~
Unemployment Benefits: Users can obtain information, download, fill in and submit unemployment benefits forms online.
~
Child allowances: Italian workers submit their applications for child allowances directly to their employers (the form is available on the INPS website). The employers then submit the requests to the INPS using the available online services. The INPS pays child allowances to employers, who include them directly into the pay packet of the concerned worker
~
Medical costs (reimbursement or direct settlement): This service is not relevant for Italy. Citizens do not have to request for reimbursement of medical costs. The National Health Service (SSN) is administered by the Regions and is free at the point of delivery. Citizens pay, in some case, a contribution (ticket) for care directly at the cash desk of the health organizations (hospitals, local health agencies, pharmacies, etc.), which is not refundable.
~
Student grants: Student grants are managed by Regional Organizations for the Right to Study (Aziende regionali per if diritto al/o stUdio) for students in the local Universities. Downloadable forms and other services are available on the Universities' websites.
4.
Personal Documents
~
Passport: Information on passport application process and download of request form that can be filled on screen. The submission of forms and the passport delivery is made at local police stations.
~
Driving License: Information only. The request and delivery of driving licenses is made at local offices of the Ministry of Infrastructure and Transport.
98
E-Governance
5.
Car Registration: Car registration is provided directly by the car dealers, which are connected by a private network to the Ministry ofTransport and the Public Car Register (PRA). The network includes about 6.000 desk points across the country. All the desk pOints are connected to the procedures for car registration by a unified online access point (Sportel/o telematico cooperante).
6.
Application for Building Permission: Applications and requests are handled by local authorities. Some municipalities provide information on the planning application process on their websites.
7.
Declaration to the Police: The crime reporting service Denuncia vi @ Web ('Report a crime vi@ the web') enables the public to report lost or stolen property online. It is currently on trial in a number of areas, and will be extended gradually across the entire country. The aim of the service is to simplify procedures for filing crime reports, and to ensure a policing service that best meets citizens' needs.
8.
Public Libraries: Launched in March 2005, the 'Cultural Internet' portal provides users with access to the catalogues of 2300 Italian libraries - offering a total of about 15 million documents - through a single, integrated platform. Users can search catalogues, find out in real-time whether a specific document is available, obtain information about the library, and make an electronic reservation. The service is based on the National Library Service (Servizio Bibliotecario Nazionale - SBN), a network managed by the Italian Ministry of Cultural Heritage in cooperation with Regions and Universities. The portal was developed in the framework of the Italian Digital Library and the Cultural Tourism Network initiatives. A similar project is being developed for school libraries, in order to offer online access to 350,000 documents from 500 libraries
9
Certificates (birth, marriage) Request and Delivery: The national eServices strategy aims at reducing the use of certificates in relationships between citizens and government. A decree form 2000 (DPR 445/2000) specifies that certificates are not required anymore for administrative proceedings, and gives citizens the possibility to use self-produced declarations (autocertificazione) to substitute official certificates. Each administration can verify data declared by a citizen directly with the local administration involved.
10.
Enrolment in Higher Education: Information and online application system for preregistration on the UNlverso (Towards University) website, provided by the Ministry of Education and the Inter-University Consortium CINECA.
11.
Announcement of moving (change of address): Change of address notifications are handled by individual local authorities.
E-Governance: Country Experiences
12.
99
Health-related services (e.g. appointments for hospitals): Health services are under the responsibility of the regions, but are financed by central government (Ministry of health). Appointments for care are managed directly by the local health agencies (Aziende sanitarie loeali - ASL) and by hospitals. Local unified reservation centres (Centri unifieati di prenotazione -CUP) are available for citizens by telephone and via Internet. Several major hospitals provide for a direct reservation service online on their website (e.g. San Raffaele Institute of Milan, Cardarelli Hospital of Naples, etc.).
The 8 services 131 for business are as follows:
231
~
Social contributions for employees: Online submission and payment of contributions for employees (Invio DM1 0).
~
Corporation Tax: declaration/notification: Online information and services for companies and professionals (including corporate tax declaration and payment).
~
VAT: declaration, notification: Online declaration and payment of VAT
~
Registration of a new company: The Chambers of Commerce are responsible for the Italian Businesses Register. The "Telemaco" application uses electronic filing to process the registration of an organization in the Italian Businesses Register using digital signature and electronic payment systems. It also allows communications concerning the change in businesses status (ex: address, balance, etc.) and offers the possibility to verify progress status online and easy payment for electronic registrations
~
Submission of data to statistical offices: The ISTAT website offers the possibility to download statistical questionnaires. In addition, the "In Data" website allows the collection of statistical data online. The website offers the possibility to submit data on main economic indicators on business sector electronically.
~
Customs declaration: Fully transactional online system for customs operations.
~
Environment-related permits: Environment-related permits are managed by different administrations. Most Municipalities have set up a unified access pOint to request all permits related to business activities (Sportello unieo delle attivita produttive - SUAP; or Sportello unieo delle imprese - SUI), including environment-related permits
~
Public procurement The portal Aequisti in Rete (Public Procurement Online) provides access to a fully functional e-procurement platform operated by CONSIP, a company owned by the Ministry of Finance and that acts as an internal government consultancy http://ec.europa.eu/idabc/en/document/6745/401
E-Governance
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for IT and e-procurement projects. The aim of the e-procurement platform is to improve public procurement and efficiency. The platform facilitates the use of three main tools for public e-procurement: electronic shops, reversed online auctions, and marketplace. Furthermore, the platform provides information on e-procurement activities as well as newsletters, best practice cases and community on e-procurement. The system can be used by central administrations as well as local administrations. For each service, the sophistication stage reached is indicated, with reference to the maximum stage possible for the service. ~
Stage 1 - Information: online information about public services
~
Stage 2 - Interaction: downloading of forms
~
Stage 3 - Two-way interaction: processing of forms, including authentication
~
Stage 4 - Transaction: full case handling, decision and delivery (payment)
3.7. Norway Norway has long been active in using Information and Communication Technology (lCT), which has provided an important tool for achieving gains in government efficiency, for improving the quality of public services and for modernising government. Norway's efforts to become a leader in the use of ICT in government have been supported by a high level of Internet penetration in Norwegian society and a burgeoning information society. The main driver for ICT use was, and remains, internal efficiency through automation of administrative processes. The Ministry of Labour and Government Administration developed the first national IT policy in 1982 and presented it to the Storting (National Assembly) under the title: "Decentralisation and Efficiency of Electronic Administrative Processes in the Public Administration" (Report NO. 12, 1982-1983)232. Four years later, concern over the development of a coordinated policy/strategy led to the official report "Computer Policy in Central Government in the 1990s" (NOU 1988:40). Infrastructure development was boosted by the programme: "National Infrastructure for Electronic Common Data Handling" (19881992), which set out a framework for standardisation, electronic data exchange and information resource management. Despite these, central government had played a limited role in developing ICT for its own use until late 1990s. Instead, ICT had been developed more or less autonomously by agencies, which have used it mainly to support their own internal administration and/or service delivery processes and to achieve technical goals, including output efficiency. Nonetheless, over the past 30 years, public sector reform has been a main driver of the development of e-governance. 232
http://ec.europa.eu/idabc/en/document/6758/407
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One of the early moves in this direction was the "National Infrastructure for IT" programme in 1990-92, aiming in easier and efficient information exchange between public administrators and businesses or citizens. This developed into various programmes carried out between 1999-2001 concerning electronic data exchange and reporting. These laid down the requirements for electronic handling of administrative processes. Previous objectives to make all official documents available in the government website were fulfilled in 1996 through the Odin website, which became the permanent government website after 1997. Norway's first government information policy was adopted in 1993 as a set of goals and principles for information and communication activities in public administration. The policy had limited impact on the development of e-governance services however and was later revised 233 . In 1996, the Public Administration Network project was initiated by the government and the Association of Local and Regional Authorities, with a view to establishing a secure, trustworthy and effective communications infrastructure for the Norwegian public sector. The project was ended in 2001 with the change of government. On a different note, the KOSTRA (Municipality-State-Reporting) project for reporting to the State, which started in 1995, has become fully operational since July 2002234 • The first comprehensive plan for cross-sector leT co-ordination in the public sector was produced in 1999 and central government co-ordination reached its peak in 2001 . A change· in government then returned the focus to a decentralising agenda and the e-governance co-ordination role of the centre was greatly curtailed. Nevertheless, the first plan to use leT as a tool for public reform was initiated by the Ministry of Labour and Government Administration in 2000 and officially presented in 2001. At the same year (2000) the first version of the 'eNorway' plan (version 1.0) for leT policy was released by the Ministry of Trade and Industry. Set as a continually updated rolling plan, the second version "eNorway 2.0" was published in December 2000, followed by "eNorway 3.0" in the next year235 . The strategy "Step by Step - Programme for Innovation and Modernisation in the Public Sector" is introduced by the Ministry of Labour and Government Administration. One of the proposed reforms is "2417 Public Administration" aiming to provide constant availability of public information and services. The policy follow-up work is to be terminated later in the same year after a change of government. Another development is the law on electronic signatures coming into force. It contains detailed provisions for electronic identification of person~ and gives qualified electronic signatures equal status to traditional signatures for administration purposes. The 'eNorway 2005' action plan on e-governance and digital services was released in 2002 followed by the Strategy for Electronic Content and the action plan for Simplifying Norway236. 233
http://ec.europa.eulidabclenldocumentl6758/407
234 235
Ibid. http://ec.europa.eu/idabclenldocumentl6758/407
236
Ibid.
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E-Governance
To better inform and help patients, their families and health personnel in regard to the patient's free choice of hospital, the Norwegian Ministry of Health launches, in May 2003, a unique information service on the Internet called "Free Hospital Choice". In the same year, the Altinn project is created as a net-based solution for reporting financial data from businesses to the Tax Directorate, the BmnneJysund Register Centre of Legal Entities and Statistics Norway237. In June 2005, the 'eNorway 2009' action plan for a digital society heralds a process of major renewal and redefinition of electronic public services and government. It is based on three priorities 238 : ~
the individual in the digital Norway
~
innovation and growth in business and industry
~
a coordinated and user-adapted public sector
Towards the later part of 2006, The Norwegian Government released the White Paper "An Information Society for All" to the Storting (Parliament) (Report No. 17 (2006-2007)). The present white paper is broad in scope. It deals with several major topics and invites debate on key choices of direction and challenges for Norwegian society. It addresses topics concerning skills and digital inclusion and homes in on a trend in which the preference should be for universally designed solutions. This dictates the need for reform and efficiency improvements in public administration based on effective and standardised technical solutions ~hat are accessible to the users as and when they themselves require them. The whitepaper also focuses on business development and increased ICT research. It deals with personal data protection issues associated with ICT usage and with national security concerns associated with a common electronic infrastructure to which public authorities, business and industry and the majority of individuals are connected. The government has many objectives and ambitions for societal development such as those laid down in the Government's political platform. The Citizen Web Portal 'MyPage' was launched which brings together public services in one place and can be customized according to the users' needs. It facilitates a dialogue with public authorities and makes it easier to find the services each individual might be looking for, without having any prior knowledge of which municipal or government office is responsible. 'Mypage' offers two different types of services, the register and the transaction services. Register services enable citizens to review the information various agencies have on them in their registers. Transaction services allow users to carry out an actual service linked to an agency or local authority. On 12 February 2007, the new web portal government was launched. This new portal provides public information from the Norwegian government and its ministries. All web addresses accessed from the previous web portal Odin, will now be redirected via government.no. The website itself has been thoroughly remade and improved to make it easier to find relevant government information. It is based on advanced technology featuring far better accessibility and a structure adjusted to meet the interests and terms of the public. For the first time, all ministries will have front pages in the Sami language in addition to the 237
Ibid.
238
http://ec.europa.eu/idabc/en/documentl6758/407
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two official Norwegian languages Bokmal and Nynorsk, as well as English. All basic information will be available in each language. Consideration is made for the special needs of the visually impaired and dyslectics. Synthetic speech is available in Bokmal ann Norwegian as well as in English239.
3.8. Dubai Dubai is currently establishing itself as a strong emerging economy with a proven record of sustained economic growth rates 240. One of the key pillars in this success is the strategic positioning of Dubai as a leading regional hub. His Highness Sheikh Mohammad Bin Rashid AI Maktoum, Vice-President and Prime Minister of the UAE and Ruler of Dubai, has formulated a strategic development plan, namely Dubai Vision 2010241 , which aims to diversify Dubai's economy away from the oil/energy industry and which is conducive to attracting investments. Dubai Vision 2010 aims to establish a knowledge-based economy by leveraging on tourism, IT, media, trade and services as the pivotal industries. Dubai is currently seeking to consolidate its achievements by improving its legal structures and promoting an institutional culture to ensure sustainable growth in various industries. Concomitantly, Dubai is upgrading its infrastructure and improving its public/government services. Dubai, as a leading business hub in the New Economy, has launched various initiatives to adopt a knowledge economy and to utilize Information and Communication Technology (lCT) as a key enabler (e.g. Dubai Internet City, Dubai e-Government, Tejari.com, Dubai Media City, Knowledge Village ... ). ICT plays a major role in improving effectiveness and efficiency of services in public and private organizations in Dubai. In trying to achieve its vision of becoming a leading business hub as a diversified and modern city, Dubai Government decided to simplify its regulations and services provisioning by leveraging on ICT and modern technology. Consequently, Dubai Government announced a major strategic initiative called "Dubai e-Government" in year 2000. The main goals 242 of Dubai e-Government initiative can be summarized as follows: ~
To simplify and streamline Government services by utilizing technology as a key enabler
~
To achieve a customer centric approach for Government services provisioning by increasing effectiveness and efficiency
~
To innovate new Government services and join-up existing Government services by exploiting new potentials arising from e-Government
~
To modernize and standardize internal Government processes regarding procurement, finance and accounting and human resources
239 240
http://ec.europa.eulidabc/en/documenti6758/407 Oubai GOP registered a record 16.7 percent growth. 2005. Press Release 1/312005. UAE.
241 242
His Highness Sheikh Mohammed bin Rashid AI Maktoum. 2001. Duba; Vis;on 2010. UAE. Geray, O. and shair, S. A. 2006. "Oubai eGovemment Initiative: Concept, Achievements and the Future Pillars of Success·, Duba; eGovernment.
104
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One of the key pillars of success in Dubai e-Government has been the achievement of an appropriate balance between centralization and decentralization. In large scale complex initiatives like ubai e-Government, which encompasses various government agencies, there is always an inherent challenge for governance and organization. Strategic concerns require integration; however organizational cultures favor autonomy. Hence, striking a good balance between integration and autonomy requires a prudent combination of centralization and decentralization. Dubai Government Departments are the owners and providers of government services (government services are Dubai Government Departments' core business) and will remain so in the future as well. However, there are certain common aspects of electronic services which are independent of Government Departments, e.g. electronic authentication, electronic authorization, electronic payment, mobile services infrastructure platform, customer care services platform, etc). Such common aspects are utilized by all the Dubai Government Departments in providing their electronic services (e-Services). Dubai e-Government has embarked on several synergistic tools implementation projects successfully in the past 3 years. This approach has allowed Dubai e-Government to capture the benefits of synergistic tools early on during the implementation phase. Exhibit 3.1 illustrates some of the synergistic tools currently implemented in Dubai e-Government. Synergistic Tool
Brief Description
ePay
Refers to the centralized electronic payment service of the Dubai Government (Government Payment Gateway). It includes multiple payment types (e.g. credit cards, eDirham, direct debit, etc) and reconciliation and settlement processes.
askDubai
Refers to centralized customer care services to augment government eServices through various channels such as call centre, Internet chat, e-mail and fax. Aims to provide a single point of contact per channel for all the government services.
mDubai
Refers to push and pull mobile messaging services provided over a unified platform for all the government entities.
Sync
Refers to the centralized service that enables exchange of data and information among the government entities in a workflow fashion. It is used to enable seamless transactions through exchange of data and information.
eHost
Refers to the centralized synergistic tool that enables government entities to host their own web sites and portals in the shared infrastructure of Dubai e-Government. It also provides a sophisticated Content Management System with various tools to be utilized by government entities. Exhibit 3.1. Synergistic Tools Implemented in Dubai e-Government
(Source:
Geray, Okan and shair, Salem AI. 2006. "Dubai e-Government Initiative: Concept, Achievements and the Future Pillars of Success", Dubai e-Government)
E-Governance: Country Experiences
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Dubai Government Departments have embarked on a major transformation of their services from the initiative announcement time of year 2000. Dubai eGovernment inaugurated its official portal www.dubaLae in October 2001 which coincided with the target of 18 month deadline for delivering essential services. Government Departments have worked intensely in recent years to e-enable their services. Today, individuals can pay their utility bills, inquire and pay their traffic and parking fines, register their vehicles, renew their health cards, book properties, reserve hotels and inquire flight departures and arrivals online through the services provided by Dubai Government Departments. Similarly, businesses can inquire business directory information, issue certificates of origin, obtain no objection, food and health certificates, obtain medical permits, lease an industrial land and register real estate in DubaL Similarly the uptake of synergistic services has also been extensive in Dubai Government. In a period of 18 months, starting from the beginning of 2005 to the end of mid-2006, nearly 31 million Dirhams was paid electronically to various government departments through more than 63 thousand transactions; nearly 240 thousand telephone calls were handled by the unified customer call centre of Dubai Government during the same period; similarly nearly 4 million SMS messages were handled by the Government Departments in the same period. These statistics clearly indicate that the adoption of synergistic services has been substantial within a short period of time. Dubai e-Government is currently in the process of transforming traditional paper based Government commercial and legal transactions into the electronic medium (e-enablement). However, a legal basis is essential for this transformation to be legally valid as well. Dubai Government has enacted the Electronic Transactions and Commerce Law in 2002243 • This law has rendered electronic transactions and electronic commerce legally valid in Dubai paving the way for e-business and e-governance in the future.
3.9. China China's massive investment in its e-government initiatives is on a scale without precedent among developing nations. The amount of money spent by the government at all levels for various e-government initiatives is somewhere around one trillion Yuan (around $121 billion US), and the annual budget for e-government is estimated to be growing at around 40 % per year244. Although this is a small figure in absolute terms, in reference to the investments by other developing nations it is enormous. China's move towards e-governance is compatible not only with China's reform movement dating to 1978, but actually is consistent with the policies of the Peoples' Republic at least since the founding of the State in 1949. China's government has always viewed advanced technology as a measure of national greatness, and imperative to establish China's status
243 244
Electronic Transactions and Commerce Law NO.2I2002. 2001. Dubai Government. Dubai. UAE. Yong, J.S.L. 2003. E-govemment in Asia: Enabling Public Service innovation in the 21st Century. Singapore: Times Editions.
106
E-Governance
as a preeminent power245. With this emphasis on the economic goals of communication technology came a radically important shift in the ideological purposes of communication that characterized the Chinese nation but one decade earlier. Beginning in the early 1990s, the Chinese government embarked on an ambitious plan to not only implement information technology, but also to become a global leader in the industry. This initiative has included a number of separate processes, including telecommunications reform, regulatory reform, and the complete reorganization of relevant governmental bodies246 by the late 1990s, though, the government was clearly focused on enhancing the infrastructure so as to prepare the way for greater economic expansion. The Ninth 5-year plan for economic development emphasized a series of 'golden projects' to modernize the IT infrastructure and support the IT industry247. Moreover, China announced that it would spend US $120 billion upgrading its telecom and electronic communication sectors. The expectation was that the IT sector would double within a 4-year period, and add 7% to the country's gross domestic product 148 . In spite of the overwhelming investment that China was making in building infrastructure, it seemed that only business analysts were impressed. Academics tended to focus solely on the way in which China attempted to control the internet at the individual user level. A survey of the published literature on China and the Internet concluded that an overwhelming number of studies sought to analyse the government's attempt to control the internet over Internet dissidents and cybercitizen's use of the resources of the web 249 . Behind China's e-governmental initiatives, there is a belief that technology will provide an antidote to the traumas of transformation the nation is undergoing, including governmental corruption, deteriorating social relations, and social and political unrest. This is also revealed by former Chinese Premier Zhu Rongji, who argued that the focus of the initiatives was not on the 'e', but rather on the 'government,' 'to improve the transformation of government in terms of management systems, management values, management patterns, and management methods'250. In other words, Premier Zhu saw in e-government not the improvement of existing management capabilities, but rather an overall transformation. This transformation is specifically not comparable to that of a developed, functioning bureaucracy into a seamless 245
(i) Feigenbaum, E. 2003. China's techno-warriors: national security and strategic competition from the nuclear to the information age. Stanford: Stanford University Press. (ii) Franda, M. 2002. China and India Online: Information Technology, Politics, and Diplomacy in the World's Two Largest Nations. Lanham, MD: Rowman and Littlefield.
246
Mueller, M. and Tan, Z. 1997. China in the Information Age: Telecommunications and the Dilemma
247
248 249 250
Of Reform. Westport: Praeger. Kraemer, K. and Dedrick, J. 2001. Creating a computer industry giant: China's industrial policies and Outcomes in the 1990s. Irvine, California: Center for Research on Information Technology and Organizations. [Available at http://www.crito.uci.edu/gitlpublications/pdflchina-jun-01.pdf] Kluver, R. 2005. "The Architecture of Control: a Chinese Strategy for e-Governance". Journal of Public Policy. 25 (1), Pp.75-97. Kluver, R. and Chen, Y. 2003. "The Internet in China: Breaching disciplinary borders in academic research". May. Paper presented at the International Communication Association. San Diego, CA. Zhang, Y. and Gao, H. 2003. "An analysis of the macro-benefits of China's e-government". January 10. China Economic Times. [Available at http://online-edu.org/article/article/2755.html]
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government interface, but rather the transformation of a non-functional bureaucratic system into a modern, fully functional system. It is clear from Premier Zhu's comments that China expects e-governance to change not just procedures and processes, but 'values and patterns,' in other words, to impose order where there was none. Of course, at differing levels of government, there are different requirements for the e-government network. At the central level, governing bodies are to regulate and establish policy, as well as supervise the implementation of the policies in the provincial and municipal levels. In addition, they need to collect, categorize, and analyse statistics information from the lower levels, thus accumulating real-life data as references for further policy making. The functions of the provincial and municipal governments are to supervise the enterprises of different industries. Finally, at the local level, governing bodies are to employe-government to oversee matters concerning the citizens, and to provide the people with information, guidance and services. The goal of using e-governance for purposes of transforming the ability of the government to actually govern is also revealed by a close examination of the e-governance initiatives that have been unveiled 2s1 • Exhibit 3.2 is a summary of key e-government projects, and illustrates the diverse areas of State governance that are addressed by the initiatives. Thus far, the Chinese government has implemented two primary initiatives to establish its e-government network; the first is a series of 'Golden' projects, while the second is the Government Online project. The first large-scale efforts involved a number of ambitious 'Golden' Projects, so named because all have 'golden' in the name. Project name
Launching Year
Description
To improve data gathering and dissemination in critical areas of governance.
Tier One
1. jinhai gongcheng Golden Sea
1993
To provide an integrated data and information system for the Central Economic and Financial Leading Group in macro-control over economic activities. Also called Golden Macro. This project is seldom publicly discussed.
2. jinqiao gongcheng Golden Bridge
1993
The first national public economic information network aimed to link government agencies with State-owned enterprises and the public.
3. jinguan gongcheng Golden Customs
1993
To network foreign trade and economic statistics, and to shift to'l ards online transmission of forms and documents and to create an integrated data
251
Kluver, R. 2005. op.cit.
108
E-Governance
communications system connecting foreign trade companies, banks, and the customs and tax authorities, so as to strengthen the authorities' macro-level adjustment and surveillance. 4. jinka gongcheng Golden Card
1995
To issue 200 million cards of various kinds in 10 years, so as to create a unified payment clearance system, allowing wide use of credit and debit cards, to facilitate e-commerce. It also plans to establish a national banking exchange system, to improve finance laws implementation and regulation, and to normalize the financing order, to intensify macro-level surveillance, and improve decision-making process. To apply information networks to economic reform
TierTwo 1. jinzhi gongcheng Golden Intelligence
1994
To realize resources sharing, research exchanges, and scientific and technological cooperation worldwide.
2. jinshui gongcheng Golden Taxation
1994
To enable the governing bodies to access, analyse, and supervise information of value-added tax payers and their use of the value-added tax receipts, preventing tax evasion. It also aims to make local tax bureaus more accountable byelectronically connecting their value-added tax records to the SAT, to facilitate Customs officers' data checking for illegal activity, and to fight against corruption within the taxation administrative system.
3. jindun gongcheng
1998
To integrate information technology within the public security system and the national crime databases, and to provide information support to the public security work within 5 years.
Golden Shield
Tier Three
Sector Specific applications of e-governance
1. jinwei gongcheng Golden Health 2. jinnong gongcheng Golden Agriculture
To optimize medical care services nationwide, and to set up a national long-distance medical information transmission network. 1994
To accelerate the informatization progress in rural areas and in the agricultural industry, and to set up a comprehensive information system to bring convenience and efficiency in agricultural management and services.
109
E-Governance: Country Experiences
2002
To track financial information and electronic data in financing, banking, tariff, and Customs administrations, to supervise the reliability and legitimacy of the fiscal income and expenditure, to standardize management, to disclose corruption, and to fight against criminal activities.
4. jinqi gongcheng Golden Enterprises
1998
To informatize the country's commodity circulation system. The construction of internal networks among China's 12,000 large- and medium-size enterprises, and their interconnection according to different circles of business.
5. jin lu" gongcheng
2001
To informatize the tourism industry, to develop e-commerce within the industry, to help the tourism products and services enter the global market.
2001
To build a database to exploit the information resources into the water conservancy system.
7. jincai gongcheng Golden Finance
2002
A national finance management information system, aimed to enhance the rationalization and standardization of finance distribution, and to improve the efficiency in financial management and in utility of fiscal incomes, thus realizing better management of the national revenue.
8. Jinmaogongcheng
1998
To promote e-commerce by establishing a regulatory framework for e-business development and intellectual property system.
3. jinshen gongcheng Golden Auditing
Golden Tourism
6. jinshuigongcheng Golden Water
GoldenTrade Project
Exhibit 3.2. E-governance Projects in China (Source:
Kluver, R. 2005. "The Architecture of Control: a Chinese Strategy for e-Governance", Journal of Public Policy. 25 (1). Cambridge University Press.)
Following Lovelock et a1 252 , Lovelock and Ure253 , and Yong 254 , these projects can be grouped into three tiers for the purposes of categorization, but the Chinese government 252
253 254
Lovelock, P. Petrazzine, B., Clark, T. and Petrazzini, J. 1996. China's Golden Projects: ReengineeringThe National Economy. [Available at http://www.asiacase.com/ecatalog/NO_FILTERS/page-EC_DEVT529579.html] Lovelock, P. and Ure. J. 2004. "E-Government in China". In Mishra, S. S. and Mukhe~ee, A. 2007. (Ed.). E-Governance in Developing Nations. Ictai University Press. Yong, J.S.L. 2003. E-government in Asia: Enabling Public Service innovation in the 21st Century. Singapore: Times Editions.
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E-Governance
does not group them in this way. The first tier was composed of four major projects, including the Golden Bridge project, designed to tame China's raging inflation and ballooning credit by providing basic information about the ongoing economic activities to central and local governments for the purposes of planning and coordination, to foster the sharing of information resources in the economy, and to facilitate macro-level control. One of the most neglected projects on this first tier, at least by scholars, is the' golden sea' project, which was aimed at creating an information system linking top governmental leaders, which would provide them direct access to all institutions, organizations, and offices under the direct control of the Central Committee255 . The various Golden Projects are meant to establish the operational backbone for propelling China into the new information economy. Once these infrastructural foundations had been successfully initiated and gained momentum, the central government announced a new - albeit similar - game plan, founded upon three specific projects256: Government Online, Enterprise Online and Family Online. ~
Government Online - a broad effort encouraging government agencies to utilize information technologies, to interconnect, and to disseminate information across the populace.
~
Enterprise Online - to encourage industries to aggressively adopt the full use of available Internet technologies, and to provide a greater degree of transparency.
~
Family Online - to encourage increased use of network resources by families across China, including those in rural areas, and to bring the populace at large onto the government's new communications platform.
When the golden projects are considered in their entirety, it is clear that the priority of the central government is not necessarily the transformation of citizen state interactions, but rather the transformation of intra-governmental processes, especially to provide a means of oversight and surveillance of enterprises and other government entities, as well as individual citizens. The first tier of projects all are comprised of projects designed to strengthen the ability of the central government to collect better data for policy-making purposes. Similarly, the second tier of projects is focused on harnessing IT to accelerate economic growth and reform. It is not until the third tier of projects that the projects become more oriented towards benefiting some entity other than the central government, and even these are primarily designed around commercial or industrial sectors. The Golden Taxation project, which began in 1995, is but one example. The Golden Taxation project was composed of four subsystems, including a system of administering value-added receipts by adding digital codes and electronic information storage in the receipts printing, receipt authentication by decoding, a computer 255
Yong, J.S.L. 2003. op. cit.
256
LovelOCk, P. and Ure, J. 2004. op.cit.
E-Governance: Country Experiences
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comparison of receipt information and dealers declaration, and the re-authentication of the problematic receipts 257 • What this means is that in order to prevent tax fraud among enterprises such as restaurants, the central government provides individually identifiable receipts to each merchant, who are then responsible for passing them on to consumers. Consumers are induced to always ask for these receipts, as they are necessary for tax deductions, and even to enter contests. Because each receipt is individually identifiable, there is no way for merchants to forge them. Since they receive the receipts from the government and are accountable for them, the enterprises are also forced to comply with proper accounting procedures, thus making it theoretically impossible to have hidden income. In summary, China's e-governance project, both in purpose and in design, is oriented primarily towards strengthening central government control over other governmental entities, enterprises, and citizens. This is verified by governmental directives concerning the projects, as well as by an analysis of the projects that have been launched.
3.10. Bangladesh Bangladesh is a small country of just 35 years old, as it was released from the clutch of Pakistan in 1971.From the beginning, it adopted socialist economy. As a result, after independence, most of the key industries in Bangladesh were owned and controlled by the government. This had an unfavorable impact on the country's telecommunication industry because of inefficient management by the Bangladesh Telegraph and Telephone Board (BTTB). In 2002, Bangladesh's telephone penetration was much lower than that of its neighbors India, Pakistan, and Sri Lanka. There is heavy concentration of telephone lines in urban areas, and Internet access through dial-up services is very expensive. However, a number of positive developments have emerged with the mobile telephony sector witnessing operation of some private operators. Again, the liberalization of the fixed telephony sector has allowed private operators to gain entry in this sector. Emergence of a large number of internet service providers has resulted in an immensely competitive situation. For carrying Internet traffic, fiber optic cables have been placed through large areas of the country. There are also efforts to connect Bangladesh to the Global Information Superhighway via underwater submarine cables. Reduction of BTTB charges has also been initiated. The setting up of a national Internet backbone for carrying domestic Internet traffic is also being discussed by the policy makers. All the 64 districts in Bangladesh can now access Dial-up internet services made available by the BTTB. Besides, the Bangladesh Telecommunication Regulatory Commission (BTRC) has been set up with the objective of encouraging liberalization, competition and also to enhance efficiency of the telecommunication industry.
257
Jiangxi, J.2002. Five questions on the Golden Taxation Project. April 10. Taxation Bureau. [Available at http://www.jjzstax.comIXWGG/jsgcww.htmj
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E-Governance has received considerable attention in the National ICT Policy of 2002. An ICT Task Force has been created fOr achieving the targets proposed by the ICT Policy. A "Support to ICT Task Force (SICT)" program was initiated in 2003 by the Ministry of Planning. The basic objective of this program was to help the ICT Task Force in carrying out different ICT projects. The SICT program has various objectives which include creation of an alternative communication network in the form of video-conferencing, helping to bring about better communication between citizens and police, making available electronic delivery of key citizen services, enhancing the employment and income-generating ability of the citizens and increasing the efficiency, transparency and accountability of government through applications of ICT. Measures are also being taken by the Ministry of Science and Information and Communications Technology (MSICT) for improvement of the computerization and internal networking of the various government offices. There are four e-governance initiatives258 in Bangladesh treated as highly successful one. They can be discussed under four headings: 1. Ministry of Religious Affairs: As Bangladesh is a Muslim country, a considerable mass of people visit Saudi Arabia every year to perform Hajj. So an interactive website for Hajjis has been developed by the Ministry of Religious Affairs (MORA).This is an e-government initiative, called as Online Hajj Information Management, started in 2002. Details of individual Hajji and information about their respective flight can be searched on this website. Besides, it facilitates sending and receiving messages from individual pilgrim and also enables users to get access to death bulletins, flight particulars etc. This venture has been successful because of improved quality of services rendered to citizens, service coverage around the world, increased efficiency of government, transparency, decline in corruption, less exploitation of the public, public-private-academia partnership model, financially sustainable model, and making ICT popular among the common people. Efficiency of this venture can be further enhanced if the government retains control over data for prevention of security breach. The other steps for developing this initiative includes, frequent utilization of the Hajj Management MIS by government officials, designing a Bengali version of the website, introducing a more comprehensible and searchable, database-driven agent list and by making available printable versions of all relevant application forms. The Hajj website is eulogized as one of the most successful e-government initiatives in Bangladesh. This initiative is not a financial burden on the government. The most important aspect of this project is that, it is based upon a partnership model, having government, 258
Study of e-Government in Bangladesh. 2004. Bangladesh Enterprise Institute. [Available at http://www.bei-bd.org!docslegov1.pdfj
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private sector, Sind academia. The private firm, engaged in this partnership is Hatil IT, which updates and maintains the website. From the academia side, Institute of ICT (IICT) of the Bangladesh University of Engineering Technology (BUET) has developed the website and also cares for other technical aspects. Training of officials and timely funding also played crucial roles in the success of this project. 2. Department of Roads and Highways: Under the Ministry of Communication, an interactive website has been launched by the Department of Roads and Highways (RHO), which controls majority of the expenditure on the country's physical infrastructure. This e-government initiative was started as a pre-condition of funding from World Bank. Under this initiative, information about the department, its zonal operations, and data on contractors, tenders and schedules of rates can be accessed from the website. Private sectors, common people, government agencies, and aid giving institutions are the beneficiaries of this project. The reasons behind the success of this venture are increased efficiency of the government, faster decision-making, provision of better quality of services to businesses and citizens, enhanced transparency and lesser scope for corruption. This venture's efficiency can be further increased by obtaining support from top level bureaucracy, by external pressure, by generating popular demand for services rendered by the RHD website, by offering financial incentive to the employees, by including the project in revenue budget, by generating revenue-earning model for sustainability and by re-training and re-allocation of government officials and staff. External pressure here means, the preconditions imposed by World Bank and other donor agencies. By strong campaign, popular awareness can be created among the citizens, who can take the project in the path of glory. Actions should be taken to generate revenues from this project, so that financial sustainability can be maintained 3. Rajshahi City Corporation: An electronic birth registration system (EBRS) is a novel e-government initiative taken by the Rajshahi City Corporation (RCC), with the support from UNICEF and Local Division of the Ministry of Local Government. Under th!5 system, Citizens are provided with an identity card with the help of which they can get access to a number of services, including education and health care. This project encouraged the people to register births, as it ensured some social benefits. The factors responsible for this project's success include improved quality of services rendered to citizens, RCC's internal efficiency, helps provided by the EBRS in keeping track of each child registered under the system, decline in scope for corruption, facilitating decisionmaking at the national level and enhanced transparency. Prior to EBRS, birth registration process was a time taking process, making people indignant. But with the advent of EBRS, a remarkable change has been occurred. The system also facilitates in fixing an immunization date for every child. Not only immunization, EBRS also keeps track of every registered child
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regarding theirs school enrolment status. Like earlier described successful e-government initiatives, there is less scope for corruption and greater accountability in the EBRS system. The most important aspect of this project is that, the civil society played a decisive role in making it a grand success. More success can be poured in, if RCC can achieve self-sufficiency in financial aspects. This can be done by charging nominal user-fees to meet the maintenance cost. Again EBRS's horizon should be extended to the Ward Commissioner level. Decentralization of the operations of Ward Commissioner level through EBRS is the need of the hour, for further success. 4. Bangladesh Bank: Automation of internal processes in Bangladesh Bank is another successful example of e-government initiative. In terms of computerization, Bangladesh bank. is much ahead of any other bank. Automation of several processes has been undertaken by Bangladesh Bank. The important automated processes are export receipts; import payments; scheduled bank deposits and advances; co-operative bank assets and liabilities; salary Statement of own employees including provident fund etc. Besides, it has also developed a website that is extremely informative and dynamic. It has succeeded because of internal efficiency brought about by computerization providing better quality of services and information available to citizens. This initiative has also proved that efficient leadership and availability of skilled man power are essential ingredients for the success of e-government initiatives.
3.11. Malaysia Malaysia has embarked on a number of measures to ensure that information and communication technologies (ICTs) playa vital role in that society. The nation was selected as one of the case studies in the prestigious Report of the Digital Opportunity Initiative1. The Report notes Malaysia's comprehensive policies that are being developed to encourage ICT use in various sectors of the economy, as well as to accelerate the growth of the ICT sector. Trade and investment poliCies, such as financial and non-financial incentives, a fair trade system, and import and export duties, promote local and foreign investment. With the privatization of the government telecommunications department in 1987, and the formation of the National Telecommunications Policy (NTP) in 1994, the market has now been fully liberalized. The Malaysian Government's Master Plan for the telecommunications industry provides guidelines for competition, interconnection charges, tariff rates and network development. At the end of 1995, all operators signed interconnection agreements with Telekom Malaysia to provide seamless communication regardless of carrier, though most carriers have not signed agreements among themselves 259 • The computer and ~oftware markets have also been fully deregulated, though restrictions exist on participation in government bids, and there are equity requirements for setting up 259
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manufacturing facilities. These barriers do not pose an insurmountable barrier to competition, but encourage the establishment of joint ventures and local distributorships with Malaysian companies Malaysia has made a concerted effort to provide relevant content to technology users through a number of specific initiatives; for example, Agritani is developing a- portal that serves agriculture communities, including farmers, agriculture agencies, consultants, and agriculture service providers; and Cybercare enables orphanage communities in Malaysia to share news, barter goods, train volunteers and increase administrative efficiency. The necessity for a strong ICT infrastructure has been recognized by Malaysia who has built up its capability in ICTs to improve its capacities in every field of business, industry and life in general. Currently Malaysia is in full gear to meet the challenge of globalization by enhancing the nation's competitiveness, through the infusion of knowledge in all productionbased industries and steering toward a knowledge-based economy. One key initiative aimed at fast tracking Malaysia into the information age is the Multimedia Super Corridor. Two smart cities have been developed within this corridor, namely Putrajaya and Cyberjaya. The MSC envisions the harnessing of multimedia to help spearhead economic development for Malaysia to achieve developed nation status by the year 2020. The address describes the hard and soft infrastructure that has been put into place. The Malaysian Government has also undertaken numerous programmes to reduce the digital divide, such as260 ;
260
~
The "Medan Infodesa" programme which provides training and hardware to rural communities by the Ministry of Rural Development
~
The "Internet Desa" programme by the Ministry of Energy, Communication and Multimedia which involves supplying of computers to provide free Internet access to rural communities
~
The K3P (Kumpulan 3 P - Pendengaar, Penonton, Pembaca) programme initiated by the Ministry of Information, which has set up centres called "Pondok Harmoni", equipped with PCs and Internet access
~
Setting up of e-Services kiosks at both community and public areas
~
Provision of government services via Interactive Voice Response (IVR) which can be accessible through telephones
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Malaysia's e-governance programme aims at reinventing how the Government works as well as improving the quality of interactions with citizens and businesses through improved connectivity, better access to information and services, high quality services and better processes and systems of the six e-Government pilot projects being implemented, four of them have gone 'live' at their respective pilot agencies. These include the Project Monitoring System (PMS), e-Procurement, Generic Office Environment (GOE) and the services projects. The Human Resource Management Information System (HRMIS) and the Electronic Labour Exchange System or ELX are currently under development and will be rolled out in the near future 261 . The implementation of e-governance has taken a holistic approach encompassing elements such as applications, networks, security, process reengineering, operations and support, change management, and skills and knowledge. In moving forward into the future, four guiding principles have been identified namely: collaboration between the public and private sectors, sharing of data and information, customer satisfaction and information and data security262. There are currently 6 pilot applications, multiple websites and on multiple platforms. In the future, more and more services will be included in the Government e-Services portal and there will be greater sharing of data and information through the adoption of concepts such as single point of data entry, data integration and single sign on. An issue faced is whether the Government should standardize on the use of a single platform or product for the whole of Government or whether to allow the current use and adoption of heterogeneous platforms/ products as long as they can inter-operate with each other. Another issue concerns the implementation of the second wave of e-governance applications which should have started two years ago but have been delayed due to delays in the implementation of the first wave of applications. While the e-Government programme is being implemented, Government computerization continues in other agencies263 . A service provider has been appointed to provide wide area connectivity to all agencies implementing e-governance via an intranet called the E-Governance*Net. The issue facing the Government is that many agencies have already implemented their own networks using the services of other providers. Migration of agencies to the new Federal Government Administrative Centre in Putrajaya has compounded the complexity of the communications issue as these agencies require connectivity to other agencies within Putrajaya and to the outside world. There will therefore be gradual migration of agencies to the E-Governance*Net, a more cost effective implementation approach to developing application systems which are more 'bandwidth' friendly, and the use of new communication and network technologies. 261 262
http://portal. unesco. orglcilenlfi/esl304411 0274053474E_governance_study_fuIUext. docl_ Toc 14840 170 Ibid.
263
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Regarding the issue of security, Government has established an IT Security Policy as well as adoption of smartcards and the public key infrastructure. In the future, more awareness, enforcement and standardization activities will be carried out. In the reengineering of processes, current e-governance applications have implemented automation and streamlining of current processes which may result in new roles and responsibilities for certain personnel. In the future, applications will be built with more customer focus, departing from function-based type of processes. This will entail the elimination of boundaries, restructuring of organizations, establishment and adoption of common procedures with continuous improvement embedded. As ministries and agencies move to Putrajaya and as more and more agencies implement e-Government applications, there is invariably an increasing need to share resources. The Government is in the process of establishing a Shared Services Outfit or SSO which provides centralized facilities such as Help Desk, Command and Data Centre, Networks and Enterprise Systems Management. The major challenge lies in getting buy-in from agencies willing to share resources as well as in utilizing the services that will be offered by the SSO. The future points to greater IT coordination and support with upgrade policies, service contracts or service level agreements (SLAs) with service providers, and maintenance procedures. One of the biggest perceived challenges faced in implementing e-governance is the 'people' problem - that is, in getting their buy-in, support and commitment. As such, implementation of each of the e-Government application is inevitably linked to a. cohesive change management programme involving its three main tenets namely transition management, communication management and benefits realization. The future success of e-governance lies in the ability to sustain change where success is measured and a change in mindset/culture has occurred. Finally in the area of skills and knowledge, Government has established dedicated project' teams to implement the various applications with the consortia appointed. However, it has been found that transfer of technology from the consortia to the Government team members has not happened as desired. This situation is at times attributed to the non-availability of the technology recipients, and the fact that the consortia may be too focused on getting their applications finished on time.
3.12. Mauritius The way to e-governance was initiated in 1996 with the Government on the Internet project which had as its main objectives to put all Ministries on the web. The websites of these Ministries consist of information on the aims, objectives and services provided by the Ministry to the public. Most of the Ministries provide regular updates concerning new acts, publications
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and events. Despite the lack of interactivity on these sites, the access rate to these sites has been increasing with time. The Government is paving the way to an e-governance through numerous projects already undertaken. Such projects are Government on the Internet which is a portal to all Ministries/Department websites initiated in 1996 and to date each Ministry has a regularly updated website. The Contributions Network Project implemented under the Ministry of Finance, comprises the setting up of an electronic one-stop shop for all payments and contributions of the private sector to Government. The electronic submission of Income Tax and VAT returns is operational since May 2000. The Tradenet project has been operational since 1994 under the Ministry of Finance. This system deals with the electronic authorization by customs for delivery of goods, the electronic submission of sea manifest by shipping agents, electronic declaration and processing of bills of entry and the transfer of containers. The Government Data Centre (GDC) aims at creating a "Connected Governmenf' through which public sector will communicate and work together more effectively and where services will be delivered to the public and private sector electronically in a timely manner. The GDC will have the responsibility of implementing electronic delivery of government services. In the long term, a full fledged GDC will offer the following services to public sector institutions from a central location wherever possible: Internet Access, E-mail, e-Government Services, Government Call Centre, Help desk for technical support, Intranet Services, Server Co-location facilities, Consultancy Services, Web Design and Development Services. Other projects are the Electronic Transfer of Deeds, while e-mail for the civil service, electronic procurement and electronic processing of permits are examples of future projects. A list of major projects which are operational and those which are being implemented are mentioned in Exhibit 3.3. Ministry/Department
1. Judicial,Supreme Court, Headquarters
Project Description
Operational since
Computerization of follow-up of cases lodged Sep.1994 till delivery of judgements. Retrieval of past judgments by using Zyindex Text retrieval system
2. Judicial, Supreme Court, Digital Court Recording System. Computeri- Jun. 1999 zation of Court Hearings (Recording and retrieval Headquarters of Court Hearings at Supreme Court)
3. Judicial-New Court House Computerization of activities of the Intermediate, June2000 Industrial and District Courts 4. National Assembly, Reporting Section
Computerization of the Reporters' section and Nov. 1998 the library so as to enable members of Parliament to access previous National Assembly's Debates.
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5. Publicand Disciplined Forces Service Commissions
Computerization of Competition Section
6. Electoral Commissioner's Office
Computerization of Register of Electors, Staff Dec.1992 Management and Election
7. Locai Govt.Service Comm.
Computerization of Competition and Feb. 1999 Implementation Sections
8. Prime Minister's Office, Police Department
Computerization of Passports and Jun. 1992 Immigration Services
9. Prime Minister's Office, Police Department
Computerization of records of people filed Jun. 1997 at Anti Drug Smuggling Unit
10. Prime Minister's Office, Police Department, Central CID
Computerization of management of Feb. 1999 fingerprints and criminal records at Central CID(AFIS)
11. Prime Minister's Office, Pay Research Bureau
Computerization of the Pay Research Dec. 1998 Bureau
12. Prime Minister's Office, Meteorological Services
Computerization of the weather forecasting Dec. 1997 division.
~3. Prime Minister's Office, Home Affairs Division
Computerization of Residence Permits, Dec. 1999 Citizenship and Visas, Property Restriction Act and Registry sections. Link to Passport and Immigration Office
14. Ministry of Finance
Contribution Network Project. This May 2000 comprises the setting up of an electronic one-stop shop for all payments and contributions of the private sector to Government. The electronic submission of Income Tax and VAT returns is operational May 2000. This will be extended to cater for contributions to NPS/NPF/IVTB
15. Ministry of Finance, Customs and Excise Department
TRADENET
Mar. 1995
July 1994
Phase I Electronic authorization by customs for delivery of goods Phase II - Electronic submission of sea Jan. 1995 manifest by shipping agents
I
120
E-Governance
Phase 111- 'Customs Management System' July 1997 Electronic declaration and processing of bills of entry Phase IV - Transfer of containers
July 2000
16. Ministry of Finance, Income Computerization of activities of the Income Dec. 1999 Tax Department Tax Department 17. Ministry of Finance, VAT Computerization of new Value-Added Tax Sep.1998 (VAT) system department 18. Ministry of Finance, Revenue Electronic link with revenue collection Jun. 2000 departments - VAT, Income Tax and Customs Authority 19. Ministry of Finance, Accountant General
On-line system for Pension, Passage, Aug. 1999 Mission, Vote control, Financial Accounting and District cashier systems.
This project consists of the implementation Nov. 1998 20. Ministry of Industry, Commerce and International of an industrial database, a registry system, a stock system and a finance system Trade 21. Ministry of Agriculture, Food Computerization of Personnel and Stores Technology and Natural Resources
Nov. 1998
22. Ministry of Social Security Computerization of the contributions Branch 1993 and National Solidarity, - contribution from employers/calculation of (Reviewed in 1999) Senior Citizen Welfare and pension points Reform Institutions 23. Ministry of Social Security Computerization of Stores, Registry, July 1994 and National Solidarity, Personnel, Finance and Detainee Information Senior Citizen Welfare and System Reform Institutions.Mauritius Prisons Service 24. Ministry of Social Security Computerization of retirement, widows, Dec. 1997 and National Solidarity, invalids, orphans penSions, industrial injury Senior Citizen Welfare and and Medical Unit Reform Institutions 25. Ministry of Local Government, Rodrigues and Rural
Computerization of central administration at Dec. 1999 Rodrigues (Stores, Registry, Payroll and Personnel, Administration, Finance)
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and Urban Development. Rodrigues Administration 26. Ministry of Public Infrastructure, Land Transport and Shipping -Central Stores and Plaine Lauzun Mechanical Workshop
Upgrade of stores computer system
27. Ministry for Civil Service Affairs and Administrative Reform
Civil Service Human Resource Management System. Phase I: Creation of Personnel Central System at the Ministry - Query of data and General Service Staff
Dec. 1999
28. Ministry of Labour and Industrial Relations. Work Permit Division
Computerization of the activities of Work Permit Division
July2000
29. Ministry of Foreign Affairs and Regional Cooperation
Computerization of Registry, Personnel and Administration
Feb. 2000
30. Ministry of Health and Quality of Life - Central Supplies Division
Computerization of stores activities
Jul. 1994
31. Ministry of Health and Quality of Life - Jawaharlal Nehru Hospital
Integrated hospital and patient care system. Computerization of a" the sections at Jawaharlal Nehru Hospital
Feb. 1996
32. Ministry of Health and Quality of Life - Central Health Laboratory
All the sections of the Central Health Laboratory have been computerized. This involves recording of requests as well as results of tests.
July 1998
33. Ministry of Economic Development, Financial Services and Corporate Affairs
Computerization of license, cash, companies, partnerships, trusts, offshore and search procedures
Sep.1997
34. Ministry of Economic Setting up of a Local Area Network system Development, Financial with Statistical Information Database at Central Services and Corporate Statistical Office Headquarters Affairs
Dec. 1997
Mar. 1997 (Fort Georges) Apr. 2000 (Plaine Lauzun)
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E-Governance
35. Ministry of Housing and Cartography Modernization Project. Installation April 1997 Lands of specialized equipment (Digitisers, plotters, powerful computers) mainly for the production of high quality maps and plans 36.Ministry of Housing and Computerization of Administrative and Archives Mar. 2000 Lands modules 37. Ministry of Youth and Computerization of allocated stores of Ministry. April1999 Sports 38. Ministry of Youth and Computerization of youth, sports and July 2000 administrative sections Sports (Source:
Exhibit 3.3. Major E-governance Projects in Mauritius. http://portal.unesco.org/ci/en/files/3044/1 027405347 4E_governance_study _fuIUext.doc/ _Toc14840183)
In addition to this, Government has furthermore laid stress on the e-Government issue by its commitment to lead the way by bringing its services closer to businesses and the people by implementing the concept of one-stop non-stop delivery channel. A number of e-governance projects are under implementation stage (Exhibit 3.4). It will further leverage / on existing infrastructure by setting up information kiosks in public areas including a modernized postal service to offer customized and value-added e-services. In the implementation of e-governance projects the stakeholders are varied and include Ministries, Departments and other external agents depending em the project. The private sector, professional associations or NGOs are involved and examples of this partnership can be seen in the projects such as the Servihoo Portal which has as its objective to be the portal for the Republic of Mauritius, is a Telecom Plus initiative and provides personal email hosting, interactive chat, electronic greeting cards, e-commerce sales, forums, polls and guest book, another initiative is the Virtual Mauritius which is an e-commerce platform to sell services including online shipping, real eState, insurance and entertainment and another initiative is the Virtual Appeal Clip managed by an NGO called SPES and it depicts skills training using ICT to create a new generation creative and productive workforce from the marginalized illiterate kids at risk to themselves and to society. The implementation of this online activity has also brought about a number of lessons. It is clear that in the implementation of projects the commitment of top level people and that of users, standardization for better interconnectivity and practical security guidelines and poliCies to ensure a seamless but secure e-Government system together with collaboration among the players for information sharing are critical enablers of e-Government. On the other side of the coin are the issues that needed to be dealt with and for Mauritius these were managing the change especially with the users, ensuring that the commitment from top level people remained constant at all stages of the project, dealing with the legal changes to enable computerization and enhance standards for future integration and upgrades.
E-Governance: Country Experiences
Ministry/Department
123
Project Name
Project Description
Judicial- Supreme Court
remand Video Link -extension to Rodrigues
Use of video-conferencing for imp lementing remand/bail and case hearing video link between the New Court House, Prison Departments and Rodrigues District Court
Judicia 1- Supreme Court
Computerized Database
Legal
Computerized library system for judgements and legislation
Judicial- New Court House
Digital Court Recording System
Extension of Digital Court Recording System (DCRS) to Intermediate, Industrial and all District Courts including Rodrigues
Prime Minister's Office, Cabinet Office
Setting up of a Local Area Network
Implementation of Text Retrieval System for retrieval of Cabinet decisions Registry System
Prime Minister's Office, Police Dept.
Computerization of Admi nistrative Functions
Computerization of Administrative Functions (Personnel/Stores Personnel Emolument)
Prime Minister's Office, Police Dept.
AFIS Phase 2
Connection of remote Police Divisions and Police Stations to Crime Records Office
Prime Minister's Office, Civil Status Division
Computerization of the Civil Status Division
Computerization of registration of birth, marriage and death at the Civil Status Division. It will eventually become the Central Population Database
Ministry of Finance, Registrar General Department
Computerization ProjectPhase 1
Computerization of Case Hypothecaire System
Ministry of Finance, Registrar General Department
Computerization ProjectPhase 2
Conversion of existing land records (From Registers and Repertories and deeds) into digital, electronic transfer (EDI) of new notarial and other deeds to the Land Registry
Ministry of Finance, Customs and Excise Department
On-line Replication
On-line data replication between live server and backup server
124
E-Governance
Ministry of Industry, Commerce and International Trade
Computerization of Import and Export Divisions
The electronic issue of Import permits and Export permits are being computerized. To be in line with TradeNet System Phase V.
Ministry of Agriculture, Food Technology and Natural Resources
Computerization of livestock
Computerization of Livestock Techni cal System, Services and Control and Regulatory
Ministry of Social Security, National Solidarity and Senior Citizen Welfare and Reform Institutions
Computerization of the Local Offices
Computerization of the different activities of the Local Offices Registration of claims for basic and contributory pensions Registration of claims for social aids, check with previous claims to eventually make payments. Activities of the welfare section. Activities of visiting section.
Ministry of Public Infrastructure, Land Transport and Shipping. National Transport Authority
Computerization of the National Transport Authority
Computerization of Registration, Licensing and Carrier and Cashier and Motor Vehicle Licence Sections of the National Transport Authorit
Ministry for Civil Service Affairs and Administrative Reform
Civil Service Human Resource Management System
Replication of Personnel System at Ministries/Departments
Ministry of Health and Quality of Life
Integrated Healthcare Management System
Computerization of Ministry of Health and Quality of Life. Upgrade of system at Jawaharlal Nehru Hospital and replication at Sir Seewoosagur Ramgoolam National Hospital.
Ministry of Health and Quality of Life
Computerization of Area Health Centres
Implementation of an integrated system for the activities of Area Health Centres
Ministry of Housing and Lands
Computerization Projectfor Ministry
State Land and Lease System, Planning Application Monitoring System, Land Acquisition System and Revenue System
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Ministry of Information Technology and Telecommunications
Government Information Infrastructure
Setting up of a common information infrastructure for Government organizations
Ministry of Information Technology and Telecommunications.Postal Services
Computerization of Postal Services
Computerization of Counter Services and Post Office Savings Bank (POSB)
Exhibit 3.4. E-governance Projects Under Implementation. (Source:
http://portal.unesco.org/ci/Elnlfiles/3044/1 027405347 4E_governance_study-fuIUext.docl _Toc14840183)
3.13. Mexico The Public Sector in Mexico faces issues similar to those faced by other public sectors around the world and these are issues of transparency, lean government, deregulation, private-public partnerships, efficiency, e-governance, etc. In addressing these issues, e-Government is seen as a tool for the development of a better public sector for Mexico. The Government of Mexico has initiated a number of initiatives that have placed it on the map of e-governance. Some notable projects relate to access to government information. The pilot project Mexico On Line is developed by the President's Office. Its goal is to diminish the distance between the citizen and the government by involving the former in the public decision-making with a 24 hours a day 7 days a week digital broadcasting channel, working interactively with Internet users, crossing the country's geographic boundaries and allowing every connected Mexican in the world to be in touch with his/her Government. This channel is only the first step in a long-term Citizen's Participation Plan, which eventually will intensify online consultations. The creators of Mexico On Line aim to break the old paradigms about the citizengovernment relationship. By using the new technologies they seek to foster a democratic participative culture, where citizens can express their opinion, ask questions and solve their problems relating to governance/government. To date, there has been a provision of information, interactive facilities and routing of citizen concerns to the appropriate authorities. In the future, the service seeks to enhance its credibility, introduce opinion polling and provide consultation for public policy formulation.
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E-Governance
The broadcasting channel can be found in the President's Web page which also downloads free software for its use. At present the channel provides three main features264 :
>-
Live broadcasting of the programme "Mexico en LInea" (a "phone-in" discussion programme).
>-
Broadcasting of the President's Programme.
~
The radio programme transmitted by the President every Saturday is broadcast on this channel at the same time.
>-
24-hour Channel.
>-
The remaining transmission time is dedicated to Mexican music and public campaigns supporting the federal government's programmes.
Another initiative is direct access to laws, regulations, official documents and government programmes, electronic systems for the procurement of Government, a social security system and the use of information technology in the educational sector. The Mexican Government also intends developing further the use of IT systems in order to improve the quality of service provided to citizens, carrying out studies to establish norms and standards for the application of IT in the provision of services to the citizen. The new tax administration system is one such programme available on the Internet, whose objective is to modernise and strengthen tax administration, ensuring that tax collection is carried out in an opportune and effective way. Another project is that of the federal register of transactions which is a project developed by SEDOCAM and which incorporates the various transactions that are carried out by departments and various entities within the Public Sector. SEP has also developed a system, Tele-SEP, which consists of a system of transactions and services, public directories and general educational material contained in one database and also accessed by one telephone number or through the Internet. The Ministries of the Federal Public Administration all have an Internet site that describes the services offered to the citizens, the organizational structure, directory of the principal civil servants and the most important activities carried out. A large majority of local governments have a website which is used to consult information related to the different economic activities of the different governments, their industry, tourist attractions as well as State information. The Government of Nuevo Leon State is directly incorporating the concept of e-Government. It is now offering the electronic payment of motor taxes and it is announcing that in this year the payment of house taxes, commercial taxes, water services, driving license renewals and 264
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general citizens' enquiries will be available through the Internet. The Mexican City Government better known as the Federal District provides not only information but also uses the benefits of commercial electronic banking to pay motor taxes and performs opinion polls about governance issues. There are also some relevant cases of online consultation at the local level. A pilot project of online consultation is being conducted in Estado de Mexico (State of Mexico, http:/ /gem.edomexico.gob.mx/portalgem/sectores.htm). The State government designed a Participation Programme for the Modernization of Fiscal Law for the year 2002, with the purpose of receiving by the Internet comments, suggestions and proposals for a legal reform at State and country levels. Another consultation process is the Consultation Forum for the Creation of a State Attorney for the Protection of the Environment. Inputs will be received by the Internet and through other media. All citizens are invited to participate, as well as environmental organizations, universities and society in general. On the private and NGO sector side there are a number of websites that focus attention on Mexican Political, Social, Economic and Government Issues the most common of which are those related to the media. The website of the biggest Mexican Telephone Company, Telmex, shows the main political and government news and presents a daily opinion poll about what they consider the relevant issue of the day. The second largest biggest TV Mexican Company, Television Azteca, also has a similar website to the former one. The Mexican government has adopted an ambitious plan to reduce the digital divide that exists in the country through the development of a national system called e-Mexico that will allow the greatest possible part of the population to have access to ICTs (http://www. e-mexico.gob.mx). The purpose of this initiative is to enable citizens to communicate among themselves, with their government and with the rest of the world 265 • The e-Mexico national system has as its main target to offer access to a series of contents and applications in the matter of education, health, commerce, tourism, government services and other community services, in order to contribute to quality of life as well as offering more opportunities to companies and promoting faster and more equitable development for all regions and communities, especially the most needy areas. The e-Mexico national system will provide sufficient telecommunications bandwidth to small communities to allow simultaneous Internet access for a minimum number of computer terminals in each community, as well as additional telephone lines so as to provide higher quality telecommunication services at lower prices. In the first phase of this project, 2400 265
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communities will be covered, to which in a second phase 10,000 points of presence will be added 266 . Although the Federal Government is providing leadership and substantial economic support for the project, e-Mexico is a grid of distribution and information in which ministries, schools, libraries, researchers and individuals as well as private operators are participating. It is intended as an integrating project of technological and operator convergence, linking existing public and private networks to generate synergy and advantages to benefit society.
3.14. Brazil The e-governance appeared in the Brazilian Federal Government's agenda in 2000, and soon was implemented as a program coordinated by an inter-ministerial committee. This committee was conceived by the Civil House of the Republic Presidency, and was denominated the Work Group in Information Technology (GTTI). It was responsible for investigating and proposing policies, directives and patterns regarding new electronic forms of interaction. The actions of the GTTI were combined with the ideas proposed by the Information Society program (Sociedade da Informa98.o), as described in the Green Book267 • This program, created in 1999, has been coordinated by the Ministry of Science and Technology. The Green Book exposes actions towards the strengthening of the economy through the usage of ICT and the expansion of its access to the population. Those actions strive for connecting the government with the business sector and the scientific and technological society. In October, 2000, the e-Government's Executive Committee (CEGE) was established, and presided over by the Chief Minister of the Civil House. Its responsibilities are to formulate policies, establish directives, coordinate and articulate actions for implementing the e-governance; in such a way to provide services and information to the citizens. This committee created four Thematic Groups in charge of researching and proposing ideas for the development the e-Government program. The current policy of effective e-governance in Brazil was formalized by the document The Electronic Government's Policy in Brazil268 , emitted by the Secretary of Logistics and Information Technology of the Planning, Budget and Administration Ministry (SLTI), in August 2001. The SLTI started assuring technicaladministrative support and to supervise CEGE, interacting with its coordinators. In September 2002, a preliminary study269 exposing the directives, actions, institutional modifications and projects that integrate the e-Government program, displaying the goals and results reached was presented. The final version 270 was presented in December 2002, exposing its 266
Ibid.
267 268
Tadao T. 2000. Sociedade da Informat;aO no Brasil - Livro Verde. vol 1. Ministerio da Ciencia e Tecnologia. MP.2001. Polftica do Governo Eletronico no Brasil. Ministerio do Planejamento Oryamento e Gestao, Secretaria de Logistica e Tecnologia da Informacao. BRASIL. 2002. Dois Anos de Governo Eletronico: Balanco Preliminar. Comite Executivo do Governo Eletronico. September. BRASIL. 2002. Dois Anos de Governo Eletronico: Balant;o de Realizat;oes e Desafios Futuros. Comite Executivo do Governo Eletronico.
269 270
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improvements and its limitations. The 4 Work Groups were substituted, in October 29th 2003, by 8 Technical Committees. One of its goals was to better organize the inventory over the use of ICT inside the government. In May 4th 2004, the Technical Committees' coordinators were finally designated. And, in July 8th 2004, the SLTI also established an Electronic Government Department (DGE)271. Regarding online applications, the Brazilian government has a main page for Services and Information (http://www.e.gov.br).aninitiative of the federal government, carried out by the Ministry of Planning, Organization and Management. It provides access to the Brazilian government by a subject or by department, offering 800 online services. A best practice regarding interact and transact services is the Federal Tax Authority portal ReceitaNet (receita.fazenda.gov.br). It enables online submission of different tax returns as well as tax payments, as it provides access to databases with taxpayer information. The electronic tender system (e-Tender) is available at the ComprasNet portal (www.comprasnet.gov.br).ltis a sophisticated service that reflects the intentions of private and corporate citizens for online procurement used by more than one thousand federal government procurement units. The available electronic taxation (e-Tax) procedures are listed in the Brazilian Government Portal for Information and Services272 . Electronic voting (e-Voting) was introduced, in Brazil, in 1996 and was the first country in the world to have fully electronic elections. The election for the current Brazilian President was held completely by electronic means, having 115 million voters in 406,000 electronic voting pOints273. The voting mechanism employs Direct Recording Electronic (DRE) machines, providing facilities to handicapped people. There still remain some questions about the security of the electronic voting system, but no case of fraud has yet been uncovered274. An important initiative, towards the system's interoperability, is the e-governance Interoperability Patterns (e-PING)275project, in its 1.5 version. The architecture sets data patterns for sharing digital data, defining pOlicies and technical specifications so that different systems can generate and share information in real time. Also, it establishes interaction conditions of the Federal Government with the powers and government spheres and with the society in general. The most important resource, being carried out by SLTI, regarding system optimization and network system's integration in the Federal Government sphere is the Integration and Intelligence System in Government Information (i3-Gov)276. It will allow the interconnection of data, information and processes from 8 structured systems of the government. Among them are information related to governmental acquisitions, civil servants 271
http://www.govemoeletronico.gov.br/govemoeletronico/publicacao/noticia.wsp?tmp.noticia=565
272 273 274
http://www.e.gov.br/Servlnfo/Servlnfo.asp?GdGrupo= 16andldGrupo= 16andNoGrupo=Fisco http://www.tse.gov.br/ http://www.waseda.jp/assoc-cioacademy/pdf/dasilva.pdf
275 276
http://www.tse.gov.br/ http://www.govemoeletronico.gov.br/
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E-Governance
data and budgeting. According to the Activities Report of the Ministry of Planning, Budget and Management, the i3-Gov prototypes were finalized in 2005, and the infrastructure should be in operation in 2006. The information, in the i3-Gov scope, will be interconnected using the e-PING specifications. In terms of human resources development, the Federal Government has established the Integrated System for Administration of General Services (SIASG) Virtual School (escolasiasg.comprasnet.gov.br), to capacitate managers to operate the SIASG according to specific areas related to the e-Government issue. This system, whose central normative organ is the SLTI, consists of a set of tools for managing the systemic functioning of the activities regarding the General Services System (SISG), such as materials management, administrative communications and procurements and contracts. It is disseminated among all ministries, autarchies and foundations. Another initiative was the creation of the "Introduction to IT Management" course by Uniprev (www.uniprev.gov.br). the Corporative University of the Social Providence, in order to approach the e-Government thematic and qualify civil servants. The electronic signature and digital certification platform, ICP-Brasjl277, created by the Information Technology Institute (ITI), is an important strategy towards the promotion of e-Government. It provides a set of techniques, practices and procedures, to be implemented by the organizations, in order to establish a digital certification system based on public keys. Another important resource is the National Program of Support to the Administrative and Fiscal Administration of the Brazilian Municipal districts (PNAFM)278 that focuses in the Brazilian municipalities' administrative adaptation in order to implement new technologies toward a fiscal transparency.
3.15. Mozambique With the vision to offer better services to the citizens and business communities, the government of Mozambique is presently involved in public sector reform. It is under these circumstances that the e-governance strategy appears. This strategy is still in the process of development, in which the complete draft was developed last year. The alleviation of poverty through the implementation and use of ICTs is one of the strategies of the Mozambican government. This strategy was launched through the creation, first of the Nation's Vision and Strategy in which the road for development entail difficulties that are expressed in terms of weaknesses to overcome, threats and constraints to defeat, and strengths and opportunities to take advantage of, so that the Vision may materialize and second the ICT Policy. The Mozambican ICT Policy was approved in 2000, setting education, human resources development, health, universal access, infrastructure, and governance as priorities. Its main 277 278
http://www.icpbrasil.gov.brl http::llwww.fazenda.gov.brlucplpnafm
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objective is to contribute to poverty reduction in the country through promotion of ICT as an enabler for development in all areas. According to Rowan 279 , many developing countries put emphasis on infrastructure policy development, neglecting dimensions of human resources development and information content issue, but the government of Mozambique knew, when creating the ICT policy that it wanted to use ICT to support its poverty reduction activities. Hence, efforts to support awareness building, capacity and the creation of an enabling environment would underpin the policy development. Consequently, the policy sets out challenging goals for the long-term future, stating that the ICTs shall:
>-
Contribute to the eradication of absolute poverty and improve the lives of Mozambican citizens;
>-
Fight against illiteracy and accelerate the development of human resources;
>-
Provide universal access to information and world-wide knowledge;
>-
Raise the efficacy and efficiency of the public and private services;
>-
Improve governance and public administration;
>-
Create a legal and business environment favorable to the production and dissemination of ICTs;
>-
Make Mozambique a producer and not only a consumer of ICT; and
>-
Lift Mozambique to the level of being a relevant, active and competitive partner in the Global Information Society and the world economy.
There was clear interest and recognition that the completion of the ICT policy was not the end of the process. Rather, it had to be translated into an action plan that could orient implementation. Therefore, in early 2001, efforts turned to drafting an Implementation Strategy. In 2002, it was approved. It is a key reference point for people and organizations interested in the use of ICTs for development in Mozambique. It provides a history of what has been done, introduces the policy framework and identifies projects that may be used as entry • points for support280 • Rowan 281 in her description of how the ICT policy in Mozambique was developed underscores that the strategy document of commitment and action exists, but now, the
279
Rowan, M. 2003. "Lessons Learned from Mozambique's ICT Policy Process". IORC. [Availableathttp://web.idrc.ca/ uploads/userS/10684959791Lessons_Learned_from_Mozambique's_/CT_Policy_Process.doc]
280
Rowan, M. 2003. "Lessons Learned from Mozambique's ICT Policy Process". IORC. [Available at http:// web.idrc.ca/uploads/userS/10684959791Lessons_Learned_from_Mozambique's_ICT_Policy_Process.doc] Ibid.
281
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E-Governance
government must follow the words. Meanwhile, the largest obstacle lies in how the implementation is, or have to be, to make the ICTs provide information that meet Mozambicans' real needs, and how to set up a monitoring system which will adequately measure the progress intended. Consequently in 2004, it submitted and approved the e-governance strategy in Mozambique. The strategy of MOZ-EG defines programmes through which new ICT can support the implementation of the Programme of the Government of Mozambique and the PARPA. Projects in the priority areas of the ICT Policy are proposed for the short, medium and long term. The Mozambican e-governance strategy is characterized by being business driven and citizencentric. The factors that will contribute to the success for its implementation in summary282 are: ~
MOZ-EG provides the framework for coordination of initiatives and the integration of data and information services.
~
MOZ-EG focuses on internal exchange of data/information and external delivery of services to citizens and businesses.
~
MOZ-EG enables multi-stakeholder donor collaboration for increased transparency and good governance, thereby addressing corruption.
~
MOZ-EG evaluates the policy and regulatory framework for a phased improvement of service delivery using open, scalable and sustainable technologies.
~
MOZ-EG enables Mozambique to fully integrate and partiCipate in the global supply ./ of products, services, information and knowledge.
MOZ-EG will deliver to every Mozambican in every area of governance, every sector of the economy, and at every level of society, the right to access, process and apply all the information necessary for each to achieve their fullest potential as a knowledgeable individual, a responsible citizen and global competitor. Concretization of MOZ-EG will be done through flagship projects that are, innovations proposed for the development of MOZ-EG283.
282
Madome, E. and Macueve, G.A. 2005. "E-Govemment for Mozambique: Challenges and Opportunities". In Mishra, S. S. and Mukhe~ee, A. 2007. (Ed.). E-Govemance in Developing Nations. Hyderabad:olcfai University Press, pp.167-188.
283
John K. J., Macome, E., Selvanathan, P. and Svendesn J. 2004. "An E-Government Strategy for Mozambique". Maputo. Mozambique.
E-Governance: Country Experiences
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E-Government Readiness E-Government readiness Chart pertaining to the year 2004 is presented below. This is taken from e-gov journal, January-February 2005.
e-Goverment Readiness
0.9132 0.9047 0.8852 0.8741 0.8575 0.8377 0.8369 0.8340 0.8239 0.8178
026 0.7873 0.7811 14
Keland
0.7699
15
Switzerland
0.7538
16
Bel ium
0.7525
17
Austria
0.7487
18
Japan
0.7260
19
Ireland
0.7058
20
Estonia
0.7029
Malta
0.6877
Chile
0.6835
Israel
0.6805
24
0.6687
25
0.6600 0.7798
e-gov January-February 2005 [Compiled from United Nations Global e-Goverment Readiness Report 2004J
World average
0.4127
134
Timor-Leste
E- Governance
0.0463
174
169
-5
Summary The present chapter throws lights upon global experiences of e-governance. The developing , developed and least developed countries are taken as examples. The countries discussed here by touching all the continents
Learning Objectives 4.1.
The E-Governance Evolution: Brief Background
4.2.
E-Governance: Andhra Pradesh
4.3.
E-Governance: Karnataka
4.4.
E-Governance: Kerala
4.5.
E-Governance: Maharashtra
4.6.
E-Governance: Uttar Pradesh
4.7.
E-Governance: Madhya Pradesh
4.8.
E-Governance: West Bengal
4.9
E-Governance: Gujarat
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E-Governance
E-Governance in India has emerged as a focus area in recent times. Some of the success stories in this field have also received wide publicity. While most of the achievements are praiseworthy, they appear to be more effort centered in nature rather than result-centric. The good news is that the governments, both at the center and at the States, in India have started according e-governance initiatives the seriousness it deserves and have been endeavoring continuously to provide citizen services in a more efficient manner. The Government of India is attaching high priority to the task of capacity building in the area of providing digital governance to the people. A number of Mission Mode Projects are currently being undertaken; there is a visible competition among the government departments to get their acts together.
4.1. E-Governance Evolution: Brief Background India started experimenting with e-governance with an inward focus. In the 1970s, computer experts concentrated on the development of various in-house applications which inter-linked defense establishments, created efficient databases for monitoring the economy, and also covered electoral roll maintenance, population surveys etc. The 1980s saw the interconnection of all district headquarters in which the National Informatics Center played a stellar role. Till then, these initiatives were more at the instance of individual visionaries . rather than representing a coordinated effort. ICT technologies began to be deployed in the early 1990s with greater policy emphasis on reaching out to rural people and on involving NGOs and private sector in understanding the target segments' needs. We are, therefore, seeing the results in improved connectivity, networking, ease of access, and scaling up of capabilities. With the advent of broadband convergence, things have shown a distinct improvement. Yet, much remains to be done. These unfinished tasks are being addressed in the National E-Governance Action Plan (2003-2007). NeGP seeks to lay the foundation and provide the impetus for long-term growth of e-governance within the country284. The following Chart (Exhibit 4.1) presents the details of the major components and Mission Mode Projects of NeGP in India in the period, 2003-07. Despite ambitious targets fixed under the National E-governance Plan, India has still to travel a long way since it suffers from severe infrastructure inadequacies, and a large part of its rural population suffers from many deprivations and problems such as not having access to electricity and communication facilities, lack of IT training, illiteracy and language barriers. The UNDP e-Readiness Index for 2005 ranks India at the 87th place with a total score of 0.4001 in 2005; more alarmingly, India slipped by one place from the 86th place in 2004, while Maldives and Sri Lanka consolidated their positions from 78th to 77th and from 96th to 94th respectively in the same period. However, India's achievements are by no means to be discounted. The same report ranks India at 33rd under Web assessment with a web measure index of 0.5827 which is 284
Dasgupta, D. 2006. "E-Governance in India". November. Global CEO, Hyderabad: ICFAI University Press, pp.25-28.
E-Governance in India: State Experiences
137
higher than those of Malaysia, Venezuela and Ukraine, all ranked 34. This is an indication that India is fortifying its e-governance offerings to provide better access and inclusion. Only 26% of the countries in the world, numbering 46, offer facilities for online payment for any public service; India occupies the 33,d position offering several such facilities and the numbers are steadily increasing 285 . In Custom and Excise Department, Government of India 98% of export and 90-95% of import documentation have been computerized . At Mumbai, Delhi and Chennai, there is a system of Electronic filing through ICEGATE. Even , 80% of Service Tax returns are electronically processed 286 . In Indian railway, e-governance initiatives are quite
~teG6vernment
Key: EDI- Electronic Data Interchange MCA 21 is an e-Governance intiative by the Ministry of Company Affairs for easy interaction between the citizens and the Ministry, entling services such as only payments Source: Frost & Sulivan Exhibit 4.1. Major Components of NeGP 285 286
www.UDdpora Das, S.R. and Chandrasekhar, R. "Capacity Building for E-governance in India". [Available at http://www.apdip.netiprojects/e-governmenticapblg/cs/lndia_Chandrashekhar_Draft2.doc]
E-Governance
138
obvious. One can do reservation at anywhere from anywhere to anywhere . Similarly, there is also online information on railway reservation on internet. In the postal department, there is a system of direct e-card of monthly income scheme returns into the investor's accounts . Dematerialization of savings certificate (NSC) and Vikas Patras (KVP) offering full probability are examples of e-governance practices. In the Ministry of External Affairs (MEA) , information on passport is fully computerized . The above examples are a few from a long list of e-governance initiatives in India which is really exuberant one. To get a good picture about e-governance initiatives in India, it is necessary to go to the States where it has become a boom really.
4.2. E-Governance: Andhra Pradesh Internet technology is empowering consumers to make personal choices on how they access and receive goods and services. This is leading to an increasing dependence on electronic business resulting in a realignment of virtually every sector and a variety of customercentered relationships between service providers and customers. Government is no exception to these phenomena. As public awareness and Internet usage increase, the demand for online Government interaction and simplified, standardized ways to access Government information and services becomes increasingly important. At the same time, the public must have confidence that their online communications with the Government are secure and their privacy protected. Therefore, to help its citizens gain one-stop access to Government information and services in a secure way, and to provide better, more efficient, transparent and responsive services, Government of Andhra Pradesh (GoAP) has embarked on several e-governance initiatives to leverage the tools of ICT (Information and Communication Technology) in serving its citizens 287. The Government of Andhra Pradesh cherishes the vision of establishing a Simple, Moral, Accountable, Responsive and Transparent Government SMART Government. E-Governance is one of the vehicles that can be gainfully used in reaching the goal of SMART governance.
Computer Aided Administration of Registration Department (CARD) CARD was one of the earliest projects of e-governance implemented in India. It was more of a computerized project rather than an e-government project, as it had no such grand agenda of transforming the government. Prior to the implementation of CARD project, the process of registering land deeds was manual. The processes in the registration department used to be a lengthy one which included the valuation of property, copying of documents into registers and the assessment of stamp duty, etc. Citizens had to visit the sub-registrar's office again and again and had to suffer harassment by corrupt government officials because of their laid-back attitude. They also used to ask for bribes for doing the registration work.
287
Vision of E-Government in Andhra Pradesh. 2002. Department of Information Technology and Communications. Government of Andhra Pradesh. [Available at
hffp:llunpan1.un.org/intradoclgroupslpublicldocumentsIAPCITYIUNPAN005031 . pd~
E-Governance in India: State Experiences
139
Moreover, in order to complete the complicated process of registration, citizens had to visit a number of government offices and private agencies. The various agencies which were involved in the registration process included the stamp vendors, document writers, and registration agents, to name a few. As a matter of fact, the registration process itself used to create lots of problems. The process was highly complicated and rigid, and was very confusing to understand even by the literate citizens. One of the most important steps in the registration process was the valuation of property, which was not at all transparent288 . Exhibit 4.2 gives a clear distinction between the time taken in doing a job manually and through the CARD Project. Service
Manual
CARD
Valuation of properties
1 hour
10 minutes
Saleof stamp paper
30 minutes
10 minutes
Document writing
Not available
30 minutes
Registration of the land deed
1-7 days
1 hour
Encumbrance certficate
1-5 days
10 minutes
Title Search
3 days
15 minutes
Certfied copies of documents
1-3 days
30minutes
Exhibit 4.2. Difference between the Time Taken in manual and CARD service (Source:
Sinha, Pradip. 2006. "E-governance Projects and Infrastructure Issues", The ICFAI Journal of Infrastructure, ICFAI University Press)
The Registration Department of the Government of Andhra Pradesh performs the functions of registration of deeds, valuation of immovable property, collection of revenue (stamp duty and registration fee), preservation of copies of documents, issuance of certified copies of documents, issue of encumbrance certificates and registration of societies, firms, marriages etc. The department has 387 Sub Registrar's Offices (SRO) in 23 districts of Andhra Pradesh. The gross revenue earned by the department is Rs.12 billion. The manual systems in all the activities caused long delays, red-tape and corrupt practices. The ComputerAided Administration of Registration Department (CARD) project was conceptualized to computerize all the activities and procedures of the Registration Department. A pilot study was conducted at two SROs in August-September, 1997. The project was started on 4 November 1998. Presently, the project covers the whole State of Andhra Pradesh289 • The objectives and goals of CARD are:
288 289
~
To simplify the registration procedure.
~
To enhance the speed, reliability and consistency of the system. Sinha, P. 2006. Op. Cit. http://www.apdip.netiresources/caselin04/view
140
E-Governance }>
To provide transparency in valuation.
}>
To replace copying/filing systems with imaging.
}>
To preserve documents on CDs.
}>
To automate all back-office functions.
}>
To enable a system that enables setting time and quality standards.
}>
To smoothen the government-citizen interface.
After the success of the two pilots, the project was scaled up in two phases. In the year 2000, the first phase was extended to 181 SRCs. In the year 2001, the second phase was extended to 249 SRCs. By the time of the study, all 387 SRCs were covered under the CARD project.
E-Seva Looking at 'service' from the citizens' pOint of view, the Government of Andhra Pradesh seeks to redefine citizen services through e-Seva, using State-of-the-art technologies. E-Seva builds on the success of the TWINS pilot project launched in Banjara Hills, Hyderabad, in December 199929 The main purpose of e-seva is to serve the common man and it is found so in the Metropolitan areas. It's trying to bring out the absolute equity in providing the services to both the rich and the poor simultaneously. The objectives of TWINS are listed in Exhibit 4.3.
°.
S.No.
Description
Service
1
Utilities BillfTax Payment
Electricity Bills Water and Sewerage Bills Property Tax
2
Certificates
Registration of Births Issue of Birth Certificates Registration of Death Issue of death Certificates Caste Certificates Encubrance Certificates
3
Permits/Licenses
Trade Licenses Issue of Learners Licenses Issue/renewal of driving licences [Non-Transport vehicles] Registration certificates of new vehicles
290
http://esevaonline.comlhtmlpages/abouteseva.htm
E-Governance in India: State Experiences
141
4
Information
Procedures of transportation departmarnt Details of building permits issued Market value assistance (Registration Depertment)
5
Facilitation
Change of address Transfer of ownership of non-transport vehicle Exhibit 4.3. Services offered through TWINS
(Source:
Sinha, Pradip. 2006. "E-governance Projects and Infrastructure Issues", The ICFAI Journal of Infrastructure, ICFAI University Press)
To the above mentioned list, some other services were added like payment of telephone bills, electricity bills, taxes; issuance of certificates; permits and licenses; road taxes and reservation of seats in State Road Transport Corporation buses and even railway reservations. Citizens were also allowed to pay their credit card bills and submit applications for mutual fund units through the centers of e-seva291 • the salient features of e-seva292are: ~
46 e-Seva centres (with 400 service counters) spread over the Twin Cities and Ranga Reddy District.
»
All service counters are facilitated with an electronic queuing system.
~
Operating from 8.00 am to 8.00 pm, on all working days and 9.00am to 3.00pm on holidays (Second Saturdays and Sundays).
~
'One-stop-shop' for over 66 G2C and B2C services.
~
No jurisdiction limits - any citizen in the twin cities can avail of the services at any of the 46 e-Seva service centres.
~
Online services: e-Forms, e-Filing, e-Payments.
~
Payments by cash/cheque/DD/credit card/Internet
Earlier, citizens had to face the inconvenience of interacting with several administrative departments to obtain a single service. Previously, they had to pay the bills of different public utilities at the respective government departments. For example, electricity bills at the Electricity Department, telephone bills at BSNL, municipal taxes at the Municipal Corporation and the 291 292
Sinha, P. 2006. Op. Cit. http://esevaonline.comlhtmlpages/abouteseva.htm
142
E-Governance
list goes on. The payment of bills was really a time consuming process for the citizens as 'e-seva' improved the situation by offering a one-stop payment mechanism of all such bills. These centers also made life easier for citizens by issuing trade licenses, birth and death certificates and so on. Through e-seva centers, citizens could pay their bills for 36 public services offered by the State Government at a single counter, and in some cases, even pay their bills online - the first of its kind facility in India. The grand success of the pilot project prompted the Government on thinking of not retracing this project to the twin cities only and further launched many more e-seva centers in many other cities in the State as well. The emergence of the e-seva project benefitted both the GoAP as well as the citizens. It's a win-win situation for both of them. It enabled the GoAP to provide services quickly at a low cost. Since the project introduced a new channel for interaction with the citizens, the volume of G2C services increased. The e-seva services were made available online recently through the Web portal www.esevaonline.com. The citizens of Hyderabad can now pay all their public utility bills as well as taxes online. The dynamic project has been appreciated by several foreign dignitaries, including the former US President Bill Clinton, and Microsoft's Chief Software Architect Bill Gates.
E-procurement The Government of Andhra Pradesh (GoAP) has implemented many statewide e-Government applications since the year 2000, when the Central Government of India enacted the IT Act of 2000 to provide legal recognition to electronic transactions. As a part of these initiatives, GoAP has set up an E-Procurement Market place, linking government departments, agencies and local bodies with their vendors. The main objectives of the e-Procurement initiative 293 are to:
293
>
reduce the time and cost of dOing business for both vendors and government;
>
realize better value for money spent through increased competition and the prevention of cartel formation;
>
standardize the procurement processes across government departments/agencies;
>
increase buying power through demand aggregation;
>
provide a single-stop shop for all procurements;
>
allow equal opportunity to all vendors;
>
bring transparency and ultimately reduce corruption.
www.worldbank.org/WBSITE/EXTERNAUTOPICS
E-Governance in India: State Experiences
143
Prior to the introduction of an e-Procurement platform, procurement in Government departments was carried out through a manual tendering process. The complete process required a long chain of internal authorizations and scrutiny (at times involving several departments), several visits by suppliers to departments, and the generation of reams of paper-based Statements and evaluations. The manual tender system was suffering from the following deficiencies294 : ~
Discrimination and delay in issue of tender schedules to suppliers
~
Cartel formation to suppress competition
~
Physical threats to bidders
~
Tender Boxes at Multiple locations
~
Tampering of tender files
~
Delays in finalization of tenders
~
Human interface at every stage
~
Lack of Transparency
The severe shortcomings in the manual tender system had an adverse effect on the reputation of Government departments. Delays in the finalization of suppliers for materials and services for government projects had crippling impacts on the completion of projects and delivery of services to the citizens. A cabinet SUb-committee on tender reforms instituted by GoAP in the year 2000 recommended the creation of an e-Procurement market place. This would facilitate online tendering based on Internet technology to provide 'any where any time' access to the bidders for participating in tendering 295 • Automation of the procurement transactions reduces human error, enhances the integrity of the data, brings in transparency to the Government procurements and facilitates standardization of processes. The entire e-Procurement process was designed to avoid human interface Le., supplier and buyer interaction during pre bidding and post bidding stages. The application ensures total anonymity of the participating suppliers, even to the buyers, until the bids are opened on the platform. The e-Procurement application provides automatic bid evaluation based on the evaluation parameters given to the system. These improved processes have eliminated subjectivity in receipt and evaluation of bids and has reduced corruption to a significant extent. To bring in transparency in e-Procurement, tender documents containing all details are hosted on the web site. The documents can be downloaded by the interested 294 295
www.worldbank.org/WBSlTEIEXTERNALaOPICS Ibid.
144
E-Governance
suppliers free of cost, from the day of publication of a tender. Suppliers are no more dependent on the officials for various details. At any time in the procurement cycle, any person associated with the transaction can check and know the status of the transaction. This saves time and effort involved in finding out the status of a purchase order, besides enabling better planning of inventory. At the outset, an effort was made to standardize the procurement processes and forms followed by various departments especially for public works tenders. Today, all the departments follow common tendering process and forms for works tenders. These processes have been re-engineered to further improve the efficiency and curtail subjectivity in tender evaluation on the part of the department users. A similar exercise is underway for products as well296.
4.3. E-Governance: Karnataka Karnataka is the leader in the field of e-governance in India. The Government of Karnataka believes that effective implementation of e-governance will take IT to the common man. The Government would like to be pro-active and responsive to all its citizens particularly the poor. Presently, computers are used in several departments and such decisions are taken in a decentralized manner. The departments are supported by Karnataka Government Computer Centre as well as the National Informatics Centre (NIC). In fact, the Government of Karnataka is a pioneering State that established Karnataka Government Computer Centre as early as 1971. A few important initiatives in the area of e-governance are:
Bangalore One (B1) Bangalore One (B1) is an initiative of Government of Karnataka (GoK), which aims to provide G2C and G2B services, in an efficient, reliable, transparent and integrated manner to the citizens of Bangalore, through a chain of computerized Integrated Citizen Service Centers and through multiple delivery channels like electronic kiosks, mobile phones and the Internet. Created on the lines of e-Seva in Andhra Pradesh, B1 will initially have 15 service centers spread across the city of Bangalore and will eventually be scaled up to 50 service centers297 •
Eprocurement The Government of Karnataka (GoK) is implementing e-Procurement primarily to enhance efficiency and introduce transparency in procurement activities. The focus of the project is on reforming the tendering process for procurement of goods, services and works in the public sector. GoK plans to adopt public-private-partnership (PPP) model for implementing e-procurement. In the pilot phase, e-procurement will be implemented in a few governmental organizations and will eventually be scaled up and implemented in all departments298 • 296 297 298
www.worldbank.org!WBSITEIEXTERNAUTOPICS http://www.njsg.org/docs pdfs pptsldocs/NISG Brochure Single 7SQk.pdf Ibid.
E-Governance in India: State Experiences
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Bhoomi 'Shoomi' is one of e-governance projects which has created a significant impact in the country.The 'Shoomi' project provides farmers with instant access to important land records, which would have otherwise taken them months and even years to obtain. The project also protected their land records from manipulation by corrupt government officials and their zamindars. The Government of Karnataka launched several e-governance initiatives. One of them is the 'Shoomi' project which earned widespread appreciation across the country. 'Shoomi' was a government-to-citizen (G2C) project - primarily targeted towards the farmers. Its main goal was to enable the farmers to easily access and obtain copies of their land records at an affordable price. The Government proposed to achieve this target through computerization of land records of the farmers in the State. The main highlights of Shoomi project are299 : ~
Fully automated systems to carry out mutations on land records data.
~
Fingerprint biometrics authentications to ensure foolproof authentication system and the concept of non-repudiation.
~
Facility to scan the field mutation order passed by the revenue authorities and the notice served on the public.
~
Land record center in each Taluk office for public interface.
~
Synchronizes with the regular fieldwork done by village accountants and the revenue inspector.
~
Provision for interfacing of Touch Screen Kiosk at the Taluk office.
'Bhoomi' won widespread appreciation within Karnataka among the farmers who are now assured of their tand and land records. They can now feel secure and manipulation of the records of their lands by the rich zamindars has become a matter of the past. Indeed,the farmers are very much satisfied with the 'Bhoomi' system. An overview of supply and demandside stakeholders in Bhoomi Project is shown in Exhibit 4.4. This shows how every stakeholder is connected with each other. The 'Bhoomi' project was a very good time-saving factor for the farmers. Earlier, farmers had to wait for up to 60 days to get the details about their land. If they had to make changes in the land records (mutations), it used to take them another 200 days to get the official confirmation. This lengthy process seriously affected farmers, who needed crop loans even for basic requirements such as purchasing seeds. With the implementation of the 'Shoomi' project, which brought along with it the computerized formats
299
Savant, S. 2003. "E-Govemment in Action". April 7. [Available at www.hindustantimes.com]
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- land records were obtained instantly and the mutations took much less time to get approval300 •
Supply-side Stakeholders
Demand-side Stakeholders
Revenue State Chief Minister State Cabinet Department Minister District Information Officer Banks (Team Leader) r--------t------, Seceretary of Other Revenue Village Commercial Department Accountant Leading Assistant Organizations Computer Commissione Operator (New VA) Courts
.-------------t-------------.
Deputy Commissione
National Agriculture R&D Board
Farmer Shiestodar Case worker
Technical Project Leader
Agriculture Department
Tehsildar
Revenue Inspector
~
Police Stations
Financial
_ _ _ _ _+-_ _ _ _....... Assistance Orgs.
Exhibit 4.4. Supply and Demand-side Stakeholders in Bhoomi Project
(Source:
Sinha, Pradip, 2006, "E-governance Projects and Infrastructure Issues", The ICFAI Journal of Infrastructure, ICFAI University Press)
Apart from helping the farmers, the 'Bhoomi' project also turned out to be a good source of revenue income for the government. The project also got enlisted among the few financially successful e-governance projects in India." 'Bhoomi' earned a widespread recognition, both in the country and abroad. It was also awarded with a silver medal by CAPAM (Commonwealth Association of Public Administration and Management) in September 2002. The project was also among the finalists in the 2002 Stockholm Challenge Award 301 •
Khajane It is the computerization of all the treasuries in the State of Karnataka and connecting them to a central server at the State secretariat through a satellite-based VSAT system. The system has been developed for the Karnataka State Treasury which pays salaries and pensions 300 301
Sinha, P. 2006. Op. Cit. Sinha, P.2oo6. Op. Cit.
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to government employees and to employees of aided educational institutions, statutory boards, various public sector enterprises and bank employees in the Indian State of Karnataka 302 • The Khajane project has streamlined the entire payment system, and all payments can now be tracked and monitored through the computerized system. The project involved intensive computerization of the treasury departments all over Karnataka. It provides regular updates regarding the State expenditure and receipts to the central server. The project has been developed by CMC Ltd which has also provided the department with facility management services303 • Khajane is a turnkey project for computerizing all the 220 treasuries in the State of Karnataka. All the treasuries in the State are connected via VSAT to a central server at the State Secretariat in Bangalore, and a disaster recovery centre at Dharwad, a large town in northern Karnataka. All the financial transactions in the State are computerised. Khajane aims to bring about a more transparent and accountable system of financial transactions and also discipline in operations and management, resulting in efficiency and cost savings for the government. This system eliminates duplication of data entry and maintenance of individual treasuries and enables uniform replication of modified data at the central server. Khajane monitors stocks for stamps and safe custody articles in the State. It also addresses pension payment details for treasury to retired Government staff and social welfare schemes started by the governmenf304.
4.4. E-Governance: Kerala Kerala is often credited with the formulation of an innovative information technology policy and is known for a powerful repository of educated human power, NRI presence and high connectivity. In Kerala, as a part of the Government's e-governance initiatives 34 Government Departments with high C2G interface have been identified. Nodal officers have been identified from each Department to oversee the computerization activities Departments. They have been provided training on implementation of the project. In areas of hardware procurement, software development and training, Total Solution Providers have been identified for each Department and specific guidelines have been issued by the Department of IT to all Departments/PSUs305 •
302
huo:llunpao 1. un. orq!jntradoc/groups/public/cIocumentS/UNPANIUNPANQ236D8.pdf
303
Ibid.
304 305
Ibid. Sreekumar, T. T. 2002. ·Civil Society and The State-led Initiatives in ICTs: The Case of Kerala".
[Available at http://www.iimahd.emetin/eaovJjfipldec2Q02/artjcle2.htm)
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Friends 'FRIENDS' stands for 'Fast, Reliable, Instant, Efficient, Network for Disbursement of Services. 'FRIENDS' has already been implemented in 14 districts of Kerala. They work 7 days a week, 12 hours a day. It has improved the delivery of services and imperfect systems through the use of IT and treats citizens as valuable customers who pay for the new services. Thus, making citizens access government services while paying bills and taxes and helping them obtain information from the government are the important activities of this e-Governance project. It is a win-win situation for citizens, staff members and governments. Citizens find the system corruption-free. Moreover, the transaction cost and time are drastically reduced. On the other side, staff members provide better service as they achieve a sense of fulfillment; and the government improves its image, thereby enhancing revenues due to better quality of services306 •
E-shringhla It is related with the application involved in setting up a one-stop, Web-enabled portal for information and services relating to the government-citizen interface. The application involved hosting the portal on a Web server with good connectivity and providing a set of information kiosks to access this information and services all over the State of Kerala in South India, thus creating an "e-shringhla" ("electronic chain") of information and e-governance. The project was undertaken by Keltron, the Kerala State Electronics Development Corporation Ltd., a public sector hardware manufacturer and provider of e-governance and other ICT solutions. E-shringhla involved collecting information from various government departments regarding the schemes and programmes being implemented by them relating to common citizens and hosting the details on the Web portal. Forms commonly used to apply for government services or assistance were made available for download. Further, the server was connected to back-office applications in the concerned departments, thus permitting online application in some cases, especially processes not requiring original or identification documents. The portal also enabled lOW-level e-commerce activity for products from rural areas, and specific interaction activities, e.g., counselling on agricultural practices or health practices, creation of rural discussion fora, etc307 •
4.5. E-Governance: Maharashtra The Government of Maharashtra recognizing connectivity as an important tool for successful e-governance has taken up several initiatives. The government has given for a district Wide Area Network (WAN) which links the districts. The government made obligatory 306
Sinha, P. and Anand, A. 2005. "e·Governance Projects in India". Projects and Profit Hyderabad: Icfai University Press.
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the use of e-mail between State head quarters and district level offices and trying to extend up to Taluka head quarters for a step in the direction of paperless office. With the commissioning of its dedicated communications network that covers the entire State, Maharashtra has taken one more step in the direction of total e- governance. The network will enable government departments to use e-mail and is estimated to save around Rs. 150 crore over the next five years against its installment cost of Rs. 27 crore. In the aftermath of a natural calamity, for example floods and earthquakes, the first hurdle faced by the government is lack of information as the tools of communications like telephone lines get affected. This delays the organization of rescue and relief work. So, online connectivity achieved by Maharashtra through its State-of-the-art dedicated communications network would effectively overcome this problem. Besides, it will now be possible for government departments to remain in contact through electronically, reducing the dependence on personnel movement and storing documents for a long time 308 •
Sarita 'Sarita' is an e-registration experiment under e-governance initiatives of Maharashtra Government. This was executed on the Public private participation model. Registration and Stamps Department is the highest revenue generating department for the State government contributing nearly 15% of the State's tax revenue. But the Department had a poor image due to poor client satisfaction. So it was decided to develop a simple, speedy and reliable registration process and build consistency and uniformity in the process. First, is the superficial change involving 'office look' ushering in a clean, green, and neat look to all the offices across the State. Suitable amenities were provided, within the existing space and financial constraints, for the citizens. Computerization can add speed and automation; it cannot correct the process itself. It was, therefore felt necessary to analyse the problems in the service delivery and then change the critical processes/procedures to put them in tune with the change objectives. The benefits from this initiative have been manifold. It has helped the citizens. Transparency and accountability are no mean virtues. Speed and zero pendency are added benefits309 •
Warna Wired Village The Warana Wired Village Project was launched by the IT Task Force of the Prime Minister's Office to demonstrate the use of ICT to accelerate socio-economic development of a cluster of 70 villages around Warana in the Kolhapur and Sangli districts of Maharashtra. The following aims and objectives were envisaged at the start of the project:
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To provide computerized facilitation booths in 70 villages, which are linked up to the central computer network at Warana Nagar.
~
To bring Warana Nagar on NICNET.
~
To increase the efficiency/productivity of the existing cooperative societies by providing State-of-the-art computer communication network and latest database technology.
~
To create a database of villagers on various socio-economic aspects.
~
To provide tele-education to both primary and higher educational institutes by developing IT centres at most populous points.
~
To establish GIS of 70 villages.
~
To create greater transparency in the functioning of the cooperative society
Warana Wired Village Project was launched as a first wired village pilot with a joint effort of Gol, Government of Maharashtra and a sugar cooperative. It was expected to wire 70 villages of Kolhapur and Sangli district of Maharashtra so as to establish a rural network connecting these villages with a computer network. Primarily, the project planned to provide IT facilities to sugarcane growers and members of the sugar cooperative societies. During the implementation of the project, various other services, like land records, prices of agricultural commodities in different markets and knowledge about various agricultural practices were provided. Some of the centres were linked with a VSAT and others were provided connectivity with dial-up modems. The system includes web-based and Intranet-based applications. The web-based applications are the agriculture produce market information system, agricultural schemes and crop technology information system, computer learning aids, village information systems, educational and vocational guidance systems, government documents and procedures systems, and computerization of the local cooperative market. Intranet-based systems include the wired management of sugarcane cultivation, land records, the computerization of the Warana Milk Dairy, and a Grievance Registration and Redressal System310.
4.6. E-Governance: Uttar Pradesh To take the benefits from ICT, the Government of Uttar Pradesh has embarked upon IT policy in 2004. The policy has created a Pool fund for e-Governance to be established with Contribution from the government, profit making State PSUs, co-operative institutions and other public sector organizations. The Pool fund shall be utilised for developing replicable and reusable models of e-Governance, IT innovations in administration, IT supported resource 310
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optimization, decision support systems, MIS, intranets and other applicable enabling technologies. The State has established backbone network UP Wide Area Network (UPNET) for voice, data and video transmission and dissemination. The network is being utilised for inter department connectivity, multi-user and multi-service facilities, video conferencing, file transfer facility, e-mail, online application processing, query and response. UPNET is enabling better communication, information sharing, and allowing people to work together more effectively resulting in cohesive administration. The UPNET is also extend to all Government Departments, State Secretariat, Divisions, Districts, Tehsils and Block Head Quarters. UPNET is expected provide mUlti-user multi-service facility and shall strengthen the current NIC infrastructure and existing intranets. The already existing I.T. infrastructure of the NIC will be optimally utilized. NIC is pursuing to provide high bandwidth based VSAT links so that government business can be transacted online, making e-governance clearly visible 311 •
Tarahaat TARAhaat (meaning star market place in Hindi) is a· gateway that connects the village user to information, social services, entertainment, and also to various markets, through a network of franchised cyber centres, customized in the language of their choice. TARAhaat covers all three components for rural connectivity: content, access and fulfilment. The TARAhaat.com mother portal, a growing repository of information on issues of sustainable development, furnishes content. Access is provided through a network of franchised local enterprises. Delivery of information, goods and services is provided by local courier services or franchised TARAvans. The pilot phase began in August 2000 in the districts of Bundelkhand, surrounding the city of Jhansi. TARAhaat has been conceived with the view that it has to be mastered and used by people with wide variations in literacy, language, financial liquidity and levels of understanding The project is implemented by an NGO called Development Alternatives, which has a staff of more than 400. It is a national not-for-profit organization working for 18 years on issues of sustainable development (equity, efficient management of resources, environmental conservation and empowerment) in the field, creating sustainable livelihoods (village industry, reforestation, water retaining structures, low energy buildings and materials, eco-friendly products and services). The other partners in the project are: Indira Gandhi National Open University, National Youth Cooperatives, Hindustan Lever Limited, Development Gateway (World Bank), Global System for Sustainable Development (MIT), Hughes Escorts Communications Ltd,People First, DESI Power Ltd, Excelsior Capital Management and James Martin and Co. The objective of the portal is to enable a flow of knowledge services and products to the vast rural base of users and consumers. These objectives - in particular, changing attitudes, 311
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informing the people, demolishing myths, developing human capacity, creating support groups, etc. - can be achieved by using IT as a tool for social development and empowerment. TARAhaat is a company dedicated to continuous innovation and product development. It creates its products and services in response to the needs of its customers. Its current products are focused on education, communication and e-governance. Its educational products, developed by TARAhaat's educational wing Taragyan, range from those that equip individuals with the skills needed to succeed in the job markets to those that enable them to compete in the global market place. Content such as law, governance, health and livelihoods are already available, and additional content is added every day. Commodities market information, listings of the local yellow pages, and information about products are also available. One of the largest revenue streams of TARAhaat is envisaged to be e-education. The portal has begun delivering a basic computing course that combines classroom teaching and hands - on computer practice (offline and online)312.
Lokavani An e-governance project, 'Iokavani' was launched in Sitapur district of Uttar Pradesh in November, 2004. The prevailing levels of social development not only cause great deprivation to large masses in Sitapur, but also constrict their human capabilities to benefit from the opportunities available to them. 'Lokavani' to a limited extent is improving the human capability of the people. The main objectives to achieve the e-governance vision 'Iokavani' are: ~
It was made clear from the beginning that this project must be financially viable if it has to sustain. So, a form of public-private-partnership was started. Kiosks were established by private persons.
~
Establish single window system to access various government services and information at the doorstep of villagers.
~
Increase the transparency and accountability of departments and reform governance of citizen's relief.
~
Giving practical shape to right to information Act, and also creating sustainable employment opportunities for the educated unemployed youth of district of Sitapur.
~
Reducing the cost of service delivery through reduced duplication of efforts by individuals and departments.
It is worth mentioning here that the entire expenditure for the 'Iokavani' network was managed without any special budget provision from the government. The success of 'Iokavani' 312
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network can not be judged by immediate results. It raises social awareness regarding matters of devetopment, Government schemes, public utilities, and other problems which are deeply related to the democratic rights of the people such as information about government's financial system. The value of technology can not be divorced from value of its application. 'Lokavani' is the harbinger of development in Uttar Pradesh and if handed properly, it can turn the State into 'Uttam Pradesh'313.
4.7. E-Governance: Madhya Pradesh Located in the very heart of India, Madhya Pradesh is making remarkable achievements in promoting IT in Govt. as well as P~~. areas which can include E-governance, Computerization in Govt. departments and various IT related activities for rural areas as well. The information technology revolution can secure considerable gains towards sustainable human development and can help Madhya Pradesh leapfrog its way to become a knowledge society. Information Technology can be used for socio-economic development of the State. It can also be used to improve the citizen-government interface and make it more efficient and effective. It can also help in making governance transparent. The Government of Madhya Pradesh has laid great emphasis on Computerization in Government departments, which are revenue earning, and the departments where there is a large public contact: The e-governance road map brings together the way forward for the State with respect to delivering the right service to its citizens in a better wa y314.
E-Choupal E-Choupal aims to provide Indian farmers ready access to crop-specific real-time information and customized knowledge in their native language. By doing so, ITC wants to improves the farmers' decision-making ability, thereby helping them to better align their farm output to the projected demand in Indian and international markets. E-Choupal, the Web-based initiative of lTC's International Business Division, offers the farmers of India all the information, products and services they need to enhance farm productivity improve farm-gate price realization and cut transaction costs. Farmers can access the latest local and global information on weather, scientific farming practices and market prices at the village itself through the Web portal- all in Hindi. E-Choupal also facilitates the supply of high quality farm inputs as well as the purchase of soybeans at the farmers' doorstep. ITC plans to operate such kiosks so that they can create an electronic stock exchange for the marketing of agricultural commodities through the use of ICTs.
313
Singh, H.S. 2005. "Lokvani: Empowering People". August. Yojana. Publications Division. Vol.49, pp.72-74.
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E-Choupals help farmers realize larger harvests by providing them with the latest weather reports and best farming practices. The information is retrieved from the Internet or caches on hard disks, and is made available in the relevant 10callanguages.Static content is installed on hard disk while setting up the Chou pals or is made available on CDs. The e-Choupals also offer other critical services such as soil-and water-testing, which can further help the farmers to enhance their yields. Apart from providing information on soya, the kiosks also have information about FMCGs and help the villagers buy various products such as motorbikes, bicycles, tractors, etc. Importantly, insurance is one of the common products that is being sold across the network. E-Choupals have a facility for providing life insurance policies, goods insurance and other policies to the villagers. This service has added an extra benefit to the villagers in terms of minimizing their cost on travel. The e-Choupal portals are based on Indian languages: Hindi, Marathi, Kannada, and Telugu. Through the e-Choupal portals, farmers can access the latest local and global information on weather, scientific farming practices, and market prices at the village level. E-Choupals also facilitate the supply of high quality farm inputs as well as purchases of produce at the farmers' doorstep 315.
Gyandoot The Gyandoot intranet community network was conceptualized on 1 January 2000, and installed and made operational within less than two months in the tribal dominated, povertystricken Dhar district in the Central Indian State of Madhya Pradesh. Gyandoot in Hindi means "purveyor of knowledge". The four pillars on which the Gyandoot community network was established were People, Content, Services and Server. The Gyandoot project was planned using finances from the community as well as from private enterprises. The database and the server were kept at the District council office. It was decided to create an intranet network with dial-up modem connectivity to rural kiosks. The selection of services to be provided on the network was decided on the basis of a participatory rural appraisal. The kiosks and telephone connections were selected at prominent places in the villages. The procurement of hardware was done by the village community and the managers for the kiosks were selected from the community, to work on a profit-sharing basis. The network has been described as a path-breaking e-governance and community network project. It has not only been effectively used for community participation in planning, execution and management but it has also created a new thinking regarding private and community funding in the establishment of community networks in India. It has been successfully proven as a viable business model. The network also established the acceptability of user charges by the villagers, functionality of Community Information Centres (CICs) and the operational viability of Will technology. There were some pitfalls. The computerization of land records took almost two years to become fully functional on the network. The major hindrances remained the management of government functionaries at the grassroots and lack of technical backup. The e-health services were marred due to poor support from the health department. The Web-based and intranet 315
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services could not be integrated. The network has been replicated in 30 districts in India. Gyandoot has won the prestigious Stockholm Challenge Award, 2000 and CSI National Award for Best IT Usage in India, 2000. The network has been adjudged a best practice by the UNDP, Asian Development Bank, International Monetary Fund, World Bank, Time Magazine, World Economic Forum, the Government of India and the Planning Commission of India316 .
4.8. E-Governance: West Bengal The State has developed the new IT policy in 2003 keeping in mind the enhanced opportunities that IT will unleash over the next decade in the field of e-governance. These opportunities will allow corporett' not only to create immense value, provide significant opportunities for talent development and employment, but also enhance efficiencies in governance and social service. Therefore, the core objective of the new IT policy is to allow different constituents within the State to leverage this opportunity. The e-governance initiatives in West Bengal are expected to help in massive industrialization drive in the State. Recently in May, 2007, Reliance Communications has won the e-governance project of the West Bengal government. Under this project, RCOM would set up 1,860 common service centers (CSC) across the State of West Bengal for providing various government 2 government (G2G), government 2 business (G2B), business 2 business (B2B) and business 2 consumer (B2C) services to the rural populace of the State on a build own and operate (BOO) modeJ317.
Information Kiosks The Government of West Bengal intends to set up e-Governance counters primarily in locations of the State where the high population density is not backed up by proper information infrastructure, through setting up number of licensed Kiosk's. These e-Governance counters are being referred to as information - kiosks. The ultimate objective is to establish a network of kiosks across the State so that citizen in underprivileged locations can also access the Government to Citizen (G2C) interface. The current Internet facility available in the State presently enables the proposed G2C services. However, in the future, kiosks providing specialised and customized citizen services pertaining to social and commercial initiatives are envisaged through a dedicated network318 .
Wbswan West Bengal State Wide Area Network (WBSWAN) is the backbone network for data, voice and video communication throughout the State of West Bengal and this Government Intranet, through which e-Governance activities of the Government of West Bengal are being 316 317 318
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undertaken, is based on IP (Internet Protocol) technology. Salient features of WBSWAN319 are: ~
WBSWAN network provides connectivity of Data, Voice and Video Communication facilities from State Switching Centre at Kolkata up to all District Headquarters as well as some important cities on 2 Mbps (E-1 link) leased line of BSNL.
~
All Block Headquarters will be connected with their District Headquarters on 64 Kbps Leased line up gradable to 22 Mbps bandwidth.
~
Selected Panchayats will be connected with their Block Headquarters during subsequent phases of expansion of WBSWAN.
~
State Capital as well as each District Headquarter have Video Conferencing, Multi conferencing facility through Multipoint Conferencing Unit (MCU) at Kolkata.
~
Provision for horizontal expansion for connectivity at all levels.
WBSWAN services and applications are 320 : ~
This Intranet is aimed at providing seamless connectivity among Government departments/ directorates as well as among the various offices of each departmenV directorate all over West Bengal.
~
Government Application Service Provider (ASP) project will be based on this network.
~
Improve the Government-Citizen and Government-Industry interface as well as efficient Intra-Government information flow resulting in effective, efficient and transparent administration.
Telemedicine The advances of Communication and Information Technology on one side and Medical Science and Biomedical engineering on the other side have opened up wide opportunities for improved health care. Telemedicine uses communication and information technology to provide health care when distance separates the patients and the doctors and can play a significant role to revolutionize the health care systems particularly in a developing country like India. Two Telemedicine Projects have already been implemented by Webel ECS Ltd. in collaboration with liT, Kharagpur at various Government Hospitals of the States of West Bengal and Tripura 321 . 319
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4.9 E -Governance in Gujarat "E-gram-vishwa-gram' Project: All Gujurat villages are e-connected under "E-gram-vishwa-gram' yojna in March 2008. Accordingly, each of 13693 village Panchayats are now broadband connected and every household can avail the advantage of information and Communication technology (ICT) . As such, this connectivity would make telemedicine, vetenary services, market linkage in agriculture and education easily accessible to the masses. Further the village people bodies will be able to communicate with one another with the help of Voice over Internet Protocol (VoIP) (Times of India: 24 March, 2008).
Summary The 4th chapter focuses on e-governance initiatives in India. By doing so, the authors have taken the States from north, south, east and west for discussion . The famous egovernance initiatives of India like E-seva, Gyandoot, E-choupal, FRIENDS, Lokavani etc has been discussed in this chapter.
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Review Questions 1. Briefly discuss the E-Governance experiences in Andhra Pradesh, Karnatak and Kerala. 2. Examine E-governance in Maharastra and Uttar Pradesh. 3. 'E-Governance in West Bengal and Gujurat is not up to the mark.' - Examine.
Learning Objectives 5.1 .
Socio-economic Profile of Orissa: Study Area
5.2.
Georaphy of Orissa
5.3.
Orissa: ASocio-economic Profile
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5.1: Socio Economic Profile of Orissa: Study Area Prior to.analyzing e-governance in Orissa it is matter of interest to present its demographic picture in brief. It is a fact that to be reckoned with that good governance is the ultimate end and e-governance acts as a facilitator regarding this . It is the ethical duty of every government or society to provide good governance to her citizens . The advent of Information and Communication Technology (ICT) helps the State to a great extent in achieving good governance. We frequently call this application of ICT as E-governance, which is a vehicle of good governance. To analyse the opportunities and challenges created by the e-governance in achieving good governance, the authors has taken a micro study of the State of Orissa. Orissa under the vibrant leadership of Mr. Naveen Pattanaik, has taken remarkable e-governance initiatives for the State. Various e-governance initiatives and the attitudinal perception of the people towards such initiatives has been analysed in a length in this book. Before that, this chapter endeavors to give a socio-economic profile of the State of Orissa for better understanding.
Orissa: It's Hist ory322 Orissa, a State of Bharat Varsa (India) had distinct identity as Kalinga, Odra, Utkal in the past, is located along the eastern coast of Peninsula. Its territory formed a part of the ancient Kalinga of Mahabharata fame. Ashok the Mauryan King of Magadha, invaded Kalinga in 261 BC and this event has gone down in history as the Great Kalinga war. Then the people of Kalinga offered a relentless and dauntless resistance, but they lost at last. How desperate was the battle, how bitterly was it fought and how terrible was the results, are known from Ashok's own descriptions. This is what he wrote about the Kalinga war in his thirteenth Rock Edict. The country of Kalinga was conquered when King Priyadarshan, beloved of the Gods had been anointed eight years. One hundred and fifty thousand were there from captured, one hundred thousand were there slain, and many times as many died. But what was the result? The conquered Kalinga conquered her conqueror. This was the last war fought by him after whom he became the great champion of Buddhism and upheld the values of peace and non-violence. The ancient State rose to prominence as a Kingdom under Kharavela, a great conqueror and patron of Jainism, in the second half of the 1st century B.C. Other great rulers belonged to the Keshari dynasty and the Eastern Ganga dynasty who were also great builders. At one time the vast kingdom spanned from Ganga to Godavari. The flourishing maritime trade with South-East Asian countries, i.e., Java, Bornio had brought in a golden era of affluence and opulence. It has also shown its military strength and prowess during Buxi Jagabandhu, period of the warrior of Khurda Paikas. The glories of Orissa ended in later half of 16th century. Two 322http://www.orissa.gov.inlintro.htm
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centuries later the British administered the final blows by dividing the original territory in to several administrative units. In 1936, ultimately an independent State Orissa was constituted as a separate province by carving out certain portions from the provinces of Bihar, Orissa and Madras. As centuries rolled by, Orissa continued to invite heros, Scholars and prophets alike. Famous Kings like Samudra Gupta and Harsha Siladitya came to Orissa on political missions while scholars like Prajna and Hieuen-Tsang came to learn at centers of learning. Hieuen-Tsang, the famous Chinese pilgrim of the 7th century who visited Orissa was surprised to see the University of Puspagiri imparting knowledge to innumerable scholars now lying buried under Buddhist complex at Ratnagiri-Lalitgiri-Udayagiri. Various prophets visited Orissa; the significant among those visits is the visit of Adi Sankaracharya in 9th century to Puri to make it a center of his mission and a towering citadel of his spiritual ideology and message. He established four monasteries in four corners of Indian Peninsula out of which "The Gobardhan Pitha" of Puri was one of the most significant. Another Great Saint Ramanujacharya, the propounder of Visista Dwaita philosophy also visited Puri and established the Emar Matha. In the same century Jayadev composed his world famous lilting treatise "Gita Govinda". Subsequently in 16th century Sri Chaitanya, the exponent of the Bhakti Cult came to Orissa and made Puri his abode for last 18 years of his life. His contemporary Pancha Sakha i.e. Sri Jagannath Das, Sri Achyutananda Das, Sri Balaram Das, Ananta and Yasobanta were spiritual stalwarts and literary luminaries of the time. Kabi Samrat Upendra Bhanja, Kabi Surya Baladev Ratha, Radhanath Ray, Fakir Mohan Senapati, Pandit Gopabandhu Dash, Pandit Nilakantha Das, Godabaris Mishra, Kalandi Charan Panigrahi, Sachidananda Routray and many others have contributed substantially to the language and literature of Orissa. Utkal Gaurav Madhusudan Das was the architect of Modern Orissa and subsequently Sri Nabakrushna Chowdhury, Dr. Harekrishna Mahatab, Sri Bijayananda Patnaik and others engineered their best efforts for catapulting Orissa to Himalayan heights of fame and glory. In fact, Orissa has become a multi dimensional, multi coloured, many splendoured, vibrant and boisterous modern State all set on its journey in the present recognized to make its presence and voice felt in the nooks and corners of the world through the Universal Cult of brotherhood, its unique cultural heritage, luxuriant forests and wild life, sprawling Chilika Lake, bountiful coastline, wide range of tribes and colourful canvass of art and culture. Orissa has been resurgent again rejuvenating and resuscitating its ancient glory, glamour and greatness
Origin of The Name of The State323 The name Orissa is derived from the Sanskrit Odra Vishaya or Odra Desa. Both Pali and Sanskrit Literatures mention the Odra people as Oddaka and Odrah, respectively. Greek 323
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writers like Pliny and Ptolemy described the Odra people as Oretes. In the Mahabharata the Odras are mentioned along with the Paundras, Utkals, Mekalas, Kalingas and Andhras, while according to Manu the Odras are associated with the Paundrakas, Dravidas, Kambojas, Yavanas, Sakas, Paradas, Pallhavas, Chinas, Kiratas and Khasas. The location of the Odra territory has been given in the Natural History of Pliny in which it is mentioned that the Oretes inhabited the country where stood the Mount Maleus. The Greek Oretes is probably the Sanskrit Odra and the Mount Maleus has been identified with Malayagiri near Pal a Lahara. Pliny associates the Mount Maleus with the people called Monedes and Sharis who were probably the same as the Mundas and the Savaras respectively inhabiting the upland regions of Orissa. The Chinese pilgrim Hiuen-Tsang who visited Orissa in about 636 A.D. gives an account of the territory named Wu-Cha which is very likely the same as Odra. The pilgrim States that the Wu-Cha (Wu-tu) country was above 7,000 Ii in circuit and its capital was above 20 Ii in circuit. The area of the territory, which was 7,000 Ii or (2,253 km) in circuit, was very extensive. General Cunningham who calls this territory as Odra or Odra Desa writes as follows: "The ancient province of Odra desa or Or-desa was limited to the valley of the Mahanadi and to the lower course of the Subarnarekha River. It comprised the whole of the present districts of Cuttack and Sambalpur and a portion of Midnapore. It was bounded on the West by Gondwana, on the North by the wild hill States of Jashpur and Singhbhum, on the East by the sea and on the South by Ganjam. These also must have been the limits in the time of Hiuen-Tsang as the measured circuit agrees with his estimate" The Muslim geographer Ibn Khurdadhbin who wrote his geography in 846 AD refers to a territory called Ursfin which is identified by the Russian scholar V. Minorsky with Odra Desa. In another Persian geography called Hudad-al Alam written towards the close of the 10th century A.D. mention has been made of a territory called Urshin (Odra Desa) which has been associated with the territories called N. Myas, Harkand, Smnder and Andhras which were more or less contiguous. The territory called N.Myas may be Mahismati and Harkand is suggested to be Akarakhand (eastern Malwa). Urshin may be the same as Odra Desa and Smnder may be the territory bordering the sea. Andhras is without doubt the same as Andhra Desa. Alberuni has referred to a territory called Udra Vishau located 50 forsakhs towards the sea in the south from the Tree of Prayaga. Fifty forsakhs is equal to about 200 miles or 321.86 km. So Udra Vishau may be the same as Odra Desa. In the mediaeval Muslim chronicles like Tabaq-at-I-Nasiri, Tabaquat-I-Akbari, RiyadusSalatin, Tarkh-I-Firuzsahi, etc., the Odra territory has been referred to as Jajnagar probably after the capital Yayatinagar or Jajatinagar. The territory of Jajnagar very probably denotes to the Ganga Empire during the period from Chodagangadeva to Anangabhimdeva III when Jajatinagar (modern Jagati on the Mahanadi) was the capital of that empire. It was
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Anangabhimadeva III who transferred the capital from Jajatinagar to Baranasi Kataka. And even after the change of capital some Muslim chroniclers continued to call this territory as Jajnagar. Shams-I-Seraj-Afif called this territory as Jajnagar-Udisa with its capital city Banaras on the right bank of the Mahanadi. The word 'Udisa' added to Jajnagar appears very significant. It is a developed form of the word Ursfin or Urshin used by earlier Muslim writers of the 9th and 10th centuries A.D. In Buddhist literature this word is expressed as Odivisa or Udivisa as found in the works of Lama Taranath and the author of Pag-Sam-Jon-Zang. In the Tantric literature of the mediaeval period, the word Udisa has been frequently used and in Tantrasara, Jagannath has been referred to as Udisanatha. Poet Sarala Das mentions both the words Odra Rastra and Odisa in his famous treatise Mahabharata while Gajapati Kapileswaradeva (1435-1467 AD) in his proclamation inscribed on the temple walls of Jagannath calls his territory as Odisa Rajya. Thus from the 15th century AD onward the land of the Oriya people was called Udisa or Odisa.
History of The State as An Administrative Unit324 On the height of their power in the 15th century AD, the Gajapati Kings of Orissa ruled over a kingdom, extending from the Gangas in the north to the Kaveri in the far south. But already in the early 16th century, the Gajapatis lost great portions of their southern dominion to Vijayanagar and Golkonda. The dismemberment of the Oriya-speaking central region began immediately after the downfall of the kingdom in 1568, when the present Ganjam district was conquered by Golkonda and when, in the early 17th century, the districts north·to the river Subarnarekha were annexed to the Bengal Subah of the Mughal Empire. The fate of Orissa was further determined in 1751 when the Marathas merely conquered central and western Orissa whereas southern and northern Orissa remained under the rule of the Nizam of Hyderabad and the Nawab of Bengal respectively. And when, in the year 1803, Orissa was finally conquered by the East India Company, the districts of Ganjam and Midnapore, already several decades ago, had become part of its fast expanding territory. The East India Company had no intention of unifying the Oriya-speaking territories which it had conquered piece by piece during a period of more than half a century. On the contrary, after further reorganization of those Oriya-speaking areas which lay outside the Orissa Division, the Oriyas were administered by five separate political authorities, i.e. Bengal and its Orissa Division, Chota Nagpur, the Central Provinces, Madras and the Garhjat Mahals of feudatory States of Orissa. The formation of the linguistic province of Orissa in 1936 may be regarded as one of the landmarks in the history of the evolution of the Indian Union. The demand for linguistic States which has became so conspicuous in India after independence had its genesiS in the movement of the Oriya-speaking people for a separate province on the basis of language during the later half of the British rule. This movement had a long and chequered history ranging from 324
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the last quarter of the nineteenth century till the new province was created on the 1936.
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The British conquest of India was carried on according to prevailing political situations as well as military conveniences of the conquering power. In the process of territorial conquests the traditional compositions of the socio-cultural affinities of the various Indian people were very much neglected. As one of the major linguistic communities of the Indian subcontinent, but placed under several administrative jurisdictions, the Oriya people suffered the injustice of dismemberment for nearly a century since the British conquest of Orissa in 1803. Ganjam and other Oriya-speaking areas south of the Chilika lake remained tagged to Madras; Midnapore to Bengal; Singhbhum, Seraikela and Kharsawan to Chota Nagpur Division; Sambalpur and Chhatisgarh feudatory States to the Central Provinces. Thus, when the British occupied Orissa in 1803 it was confined to the three coastal districts of Puri, Cuttack and Baleswar. A new awakening was marked in Orissa after the 'Na Anka' famine of 1866 and during the time of the 'language agitation'. growth of education, development of communication, increase in the volume of trade and commerce, establishment of printing press and publication of journals and periodicals paved the way for the growth of political consciousness in Orissa. This consciousness made the people aware of administrative disadvantages. The tales of the woes of the scattered Oriyas under other neighbouring people and their strong desire for union with Orissa crowded the columns of the newspapers and journals. When Lord North Brook, the Governor-General, suggested to break up the Central Provinces and to merge its areas with other provinces, the pioneers of the Oriya movement advocated strongly merging Sambalpur with Orissa. The question of amalgamating outlying Oriya-speaking tracts with Orissa was so far confined to newspapers and journals but later steps were taken to submit representations to the Government to that effect. When John Beams was the Commissioner of Orissa, the Oriyas appealed to him for the merger of the Oriy-speaking areas into a distinct linguistic unit. The people of Baleshwar made a similar representation to Richard Temple, the LieutenantGovernor, who did not pay any heed to that appeal. In 1876, Raja Baikunthanath Dey of Baleshwar and Bichitrananda Das, the Sirastadar of the Commissioner of Orissa, made a representation to the Government for the union of all the Oriya-speaking areas under a single administration. In creating consciousness for the amalgamation of the Oriya-speaking areas, the district of Ganjam played a leading role. The people of Ganja." for the first-time organized meetings and passed resolutions for the unity of all the Oriya-speaking areas. In September 1870, in the village of Russelkonda (present Bhanjanagar) under Ghumusar Taluk in the Ganjam district, a mass meeting was held. In the meeting it was resolved to request the Oriyas of Cuttack to make united efforts for amalgamation. The Ganjam Oriyas formed an association called the 'Ganjam Utkal Hitabadini Sabha' with the Raja of Kalinga, Venkates Beu, as its Secretary and carried on the agitation more vigorously.
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In the Orissa Division, on the 28th November, 1874, there was a vast congregation of all the Rajas, Zamindars, and aristocrats in the garden of Bichitrananda Das to discuss the common problems of Orissa. In July 1877, an association called 'Utkal Sabha' was formed under the leadership of Utkal Gourab Madhusudan Das. On the 16th August, 1882 the Orissa Association was also formed by Mr.Das. In 1888 the Orissa Association made a representation to Sir Stewart Colvin Bayley, the Lieutenant Governor of Bengal, to unite all the Oriya-speaking areas. On 15th December, 1902 Raja Baikunthanath Dey submitted a memorial to Lord Curzon to the same effect. In 1903 the Ganjam Oriyas sent a memorial to Lord Curzon for the amalgamation. They also sent a copy of their memorandum to the people of Orissa Division. In the same year a meeting was held at Rambha in the Ganjam district under the leadership of the Raja of Khallikot and the 'Ganjam Jatiya Samiti' was formed. Its first meeting was held at Brahmapur and Shyamasunder Rajguru of Paralakhemundi was its President. Delegates to attend this meeting from Orissa Division included such eminent persons as Utkal Gourab Madhusudan Das, Biswanath Kar, Nanda Kishore Bal and Gopal Chandra Praharaj. This meeting was regarded as the fist national conference of the Oriya people. This was followed by the formation of the Utkal Union Conference at Cuttack on the 30 th December, 1903 under the leadership of Utkal Gourab Madhusudan Das. This conference played the most significant role for the amalgamation of the Oriya-speaking areas. In 1901 Andrew Fraser, the then Chief Commissioner of the Central Provinces proposed the transfer of Sambalpur to the Orissa Division. On 3,d December, 1903 Lord Curzon in a scheme proposed to unite under a single administration the scattered sections of the Oriyaspeaking population while considering a proposal for the partition of Bengal. But the proposed scheme was partially carried into effect by the transfer of the Sambalpur district to Orissa Division on the 1st September, 1905 minus the Chandrapur and the Padmapur States and the Phuljhar Zamindari. In the same year the two feudatory States of Gangpur and Banei (Bonai) from the Chota Nagpur Division and the other five Oriya feudatory States of Patna, Kalahandi, Sonapur (Sonepur), Bamra and Redhakhol (Rairakhol) were transferred to Orissa Division from the Central Provinces. The next great agitation for the amalgamation took place in 1911 when Lord Hardinge, the Governor General, created a new province consisting of Bihar and Orissa excluding the Oriya-speaking areas of Midnapore, Ganjam and Vizagapatnam agencies; the States of Sarangagarh, Rayagarh, Bastar, Phulijher, Chandrapur, Padmapur, etc. and the States of Saraikela, Kharsawan and Sundergarh. The Orissa being dissatisfied at this, continued their agitation with double vigour. The claims of the Oriyas were discussed at the Utkal Union Conference which met from year to year. Besides the Utkal Union Conference, the Oriya Peoples' Association, the Balasore National Conference, the Udit Club of Singhbhum, the Utkal Milan Samaja and the Utkal Hitaisini Samaja of Ganjam also played leading roles for the union of the Oriya-speaking areas. A counter movement called the Ganjam Defence League was organized by the Telugus in Ganjam to oppose the Oriya movement.
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In 1917, the Montagu-Cheimsford Commission visited India on the subject of selfGovernment. As regards Orissa, the Commission in its report recognized the need for an administrative union of the Oriya-speaking people and recommended for a sub-province for the Oriyas. But in the Act of 1919, there was no provision for a separate sub-province and the merger of the Oriya-speaking areas. The question of amalgamation of the Oriya-speaking people was discussed from time to time in the Central and the Provincial legislations. On the 20th February, 1920 Satchidananda Sinha moved a resolution in the imperial Council for the amalgamation of the Oriya-speaking tracts. A similar resolution of A.B. Latthe supported by Brajasundar Das was moved in the Indian Legislative Assembly on the 2nd September, 1921. In reply Sir William Vincent, the Home Member, expressed his inability to take any step to change the provincial bqundaries. On the 25th November, 1921, Viswanath Kar, an Oriya member in the Bihar and Orissa Legislative Council moved a resolution for the union of the Oriya-speaking tracts. In the same year, Sasibhusan Rath moved a similar resolution in the Madras Legislative Council. All these resolutions were disallowed by the Government. At last Government of India appointed C.L. Philip and A.C. Duff to make enquiry regarding the attitude of the Oriya inhabitants of the Madras Presidency towards the merger with Orissa. The Commission in their report made the following concluding remarks, "Our enquiry has shown that there is a genuine long-standing and deep seated desire on the part of the educated Oriya classes of the Oriya-speaking tracts of Madras for amalgamation of these tracts with Orissa under the administration". Before taking any step on the recommendations of the Commission, the Government appointmented a Statutory Commission in 1928 under the Chairmanship of the Sir John Simon to report on the working on the reforms in India. The Commission in its report Stated, "Bihar and Orissa is a glaring example of the artificial connections of areas which are not naturally related." The Commission, therefore, appointed a sub-committee for Orissa with Major Attlee as Chairman. The sub-committee recommended the creation of a separate Orissa province. The report of the Simon Commission led to the summoning of the Round Table Conference. Krushna Chandra Gajapati Narayan Dev, the Maharaja of Paralakhemundi represented Orissa in the Conference. The Maharaja circulated the pamphlet, "the Oriyas, their needs, and reasons for a separate province." His efforts bore fruits: before the Third Round Table Conference ended, the Orissa Boundary Commission was appointed to review the boundary lines of the proposed Orissa province. According to the suggestion of the Simon Commission, the Orissa Boundary Commission was appointed with O'Donnell as the Chairman. The Committee examined the claims of the Oriyas and finally recommended for inclusion in Orissa of the plains and the agency areas, excluding Paralakhemundi, in the Ganjam district; and Kharial and Padmapur, excluding
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Phuljhar in the Central Provinces. But the Commission opposed the inclusion in Orissa of the Oriya-speaking areas in Bihar and Bengal. The report of the Committee was vehemently opposed by the Oriyas. The "white paper" was published on the 17th March, 1933, containing the draft proposals for the reform of the Indian Constitution. It proposed to create two new provinces, viz., Sind and Orissa. But the proposal regarding the boundary of Orissa was far from satisfactory. It excluded the Vizagpatam Agency and Paralakhemundi State and the Jalantar Maliah in the Ganjam agency from the proposed Orissa province. When the "white paper" was under review of the Joint Parliamentary Committee, an Oriya delegation consisting of seven members met the Secretary of State under the leadership of the Maharaja of Paralakhemundi on the 3,d July, 1933 and submitted a representation. In the meantime, the Utkal Union Conference Committee met and authorized the Maharaja of Paralakhemundi to represent before the British Parliament for the inclusion of the Oryaspeaking areas of the Ganjam district. The Maharaja by his powerful arguments convinced the Parliamentary Committee for the transfer of Jaypur (Jeypore) agency and a portion of Paralakhemundi to Orissa. The Commission after careful consideration made some recommendations. A separate province of Orissa WOUld, however, be perhaps, the most homogenous province in the whole of British India both racially and linguistically. They recommended that a new province of Orissa be constituted. They also recommended that there should be added to the Orissa Province, a portion of the Jaypur (Jeypore) State which the O'Donnell Committee proposed to transfer to Orissa, the Paralakhemundi and Jalantar Maliahs and a small portion of the Paralakhemundi State including Parlakhemundi town. But no step was taken for the transfer of Oriya-speaking areas from Bengal and Bihar. By this recommendation the total area was raised from 55,799 to 84,677 sq. km. (21,545 to 32,695 sq. miles). In the lines of the recommendations of the Committee, the Government of India Bill 1935 was passed by the Parliament and the new province of Orissa as an administrative unit came into being on the 1st April, 1936. Since then throughout the pre-independence days Orissa has suffered a lot as it was not possible to put together all the Oriya-speaking areas under a single administration. There were only six districts, viz., Cuttack, Puri, Baleshwar, Sambalpur, Ganjam and Koraput. The old district of Anugul was split up into two statutory districts, viz., Anugul and the Khondmals under the Angul Laws Regulations, 1936 and the Khondamals Laws Regulations, 1936 respectively. But for administrative purposes Angul was tagged to Cuttack district and Khondamals to Ganjam district. The collectors of Cuttack and Ganjam became respectively the ex-officio Deputy Commissioners of those two areas. The rest of the province constituted
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26 princely States, governed by the Rajas and Maharajas who had the last word of law within the jurisdiction of their respective princely States. They were loosely knit and administered under Political Agent of the British Government who was mostly satisfied after the collection of a predetermined part of the total revenue collection known as tribute or Nazarana from the rulers of those States. The process continued till 1947 when the country got independence. After independence, Orissa tried to consolidate her from socio-economic angle. In 1948, the foundation stone of capital at Bhubaneswar was laid but the shifting of capital from Cuttack to Bhubaneswar was done in 1949. Next year, Orissa territorial map with 13 districts was published. In 1955, as a part of Bhoodan movement, the landless people of Orissa were distributed lands. The developmental process of the State continued, though not in a galloping way. Constructions of Hirakud dam, Rourkela Steel Plant, declaration of Similapal forest as a National Park are the distinguishable points in the developmental phase of the State. In 1993, thirteen districts of Orissa were re-organised to thirty, as depicted in the map of Orissa (Exhibit 5.1). From the administration point of view, Right to Information Act was implemented in the State along with constitution of State Information Commission. This is hailed as the corner stone of administrative accountability in the State.
5.2. Geography of Orissa Orissa extends from 17-degree 49 N to 22-degree 34 N latitude and from 81-degree 27E to 87- degree 29-E longitudes on the eastern coast of India. It is bound by the States of West Bengal on the North East, Jharkhand on the north and Chhatisgarh on the West, Andhra Pradesh on the South and Bay of Bengal on the East. Morphologically Orissa can be divided into five parts - the coastal plains, the middle mountainous country, the rolling upland, the river valleys and the subdued plateaus. The coastal plains of Orissa stretch from the Subarnarekha in the North to Rushikulya in the South. They are narrow in the North, widest in the middle, narrowest in the lake Chilka coast and broad in the South. The coastal plains are the gift of six major rivers, which bring silt from their catchments, has reclaimed this area from the depths of the Bay of Bengal. The rivers from North to South are the Subarnarekha, the Budha Balanga, the Baitarani, the Brahmani, the Mahanadi and the Rushikulya. The coastal plains can be termed as a land of six deltas of the Subarnarekha and the Budha Balanga, the middle coastal plains the combined deltas of the Baitarani, the Brahmani and the Mahanadi and the South coastal plains (The Rushikulya plains). The mountainous region of Orissa covers about three-fourths of the area of the State. This region is a part of Indian peninsula. Here deep and broad valleys are cut by the Baitarani, the Brahmani, the Mahanadi, the Rushikulya, the Vansadhara and the Nagavali rivers. They are fertile, well-drained and thickly populated. Morphologically this region can be divided into the following units:
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ORISSA 2001
Exhibit 5.1. Map of Orissa, showing districts
(a)
The Simulia and the Meghasan mountains,
(b)
The Baitarani and the Brahamani interfluous,
(C)
The water shed between the Brahmani and the Mahanadi,
(d)
The water shed of Rushikulya and the Vansadhara. The elevation ranges from 610 to 1, 068 meters. The rolling uplands are lower in elevation than the plateaus. They vary from 153m. to 305m.
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They are the products of continued river action, are rich in soil nutrients, and are situated in the Koelsankh basin of the upper Brahmani in the IB, the Suktel and the Tel of the middle Mahanadi and the Sabari basins. The rolling uplands may be grouped as follows : the Rajgangpur uplands, the Jharsuguda uplands, the Bargarh uplands, the Bolangir-TitilagarhPatnagarh uplands, the Bhawanipatna uplands, the Malkangiri uplands and the Rairangpur uplands. River valleys are net product of the action of rivers. They are fertile and at times present an undulating topography. The major river valleys of Orissa are associated with the Brahmani, the Mahanadi and the Vansadhara rivers. The subdued plateaus (305 610m.) reveal all the peculiarities of peninsular tablelands. They are almost flat and the monotony of orography is interrupted by the river valleys . These features are commonly met within the upper Baitarani and the Sabari basins of the Keonjhar and Koraput Districts, respectively. In these uplands sheet erosion is most common while gullying is confined to the river valleys. These plateaus can be divided into the Panposh-Keonjhar-Pallahara plateaus and the Nawrangpur ~eypore plateaus.
5.3. Orissa: A Socio-economic Profile The Economic Survey 2004-05 presents the status of the State's Economy as well as its strengths and weaknesses based on a review of the development performance of the State at the end of the year in different development sectors. This report also briefly outlines the strategy adopted by the State in implementation of Plans and Programmes which have been undertaken to transfer an economy characterized by persistent poverty and unemployment, low per-capita income, low capital formation, under exploitation of abundant natural resources and inadequate development of socio-economic infrastructure into a vibrant economy for ensuring equity oriented sustainable growth not with standing the recurrent natural calamities which have ravaged the State over the last four decades.
Demography of Orissa: Back Drop Orissa comprises of 4.74% of India's landmass and 36.80 million people (2001 Census), accounts for 3.58% of the population of the country. Nearly 85% of its population live in the rural areas and depend mostly on agriculture for their livelihood. The State has abundant mineral resources including precious and semi-precious stones. It has also plentiful water resources. According to the estimate of the Central Ground Water Board, the total ground water resource in Orissa was 21 , 01,128 hectare meter in 2001. The gross annual draft for all uses in 2001 was 3, 10,689 hectare meter. Accordingly, 14.79 percent of ground water resources had been harnessed till 2001. The total cultivable land of the State is nearly 65.59 lakh hectare of which only 26.89 lakh hectares has been provided with irrigation facilities by the end of 2003-04 which constitutes around 40% of the cultivable land. Planned exploitation and optimum ecognized of rich natural resources like mineral, land, water and others including human resources holds the key to rapid economic development of the State.
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The State can be divided into ten agro-climatic zones on the basis of soil, weather and other relevant characteristics. Its land can be classified into three categories, low (25.6%), medium (33.6%) and up-lands (40.8%) with various types of soil like red, yellow, red-loamy, alluvial, coastal alluvial, laterite and black soil etc. with low and medium texture. Characteristics of different agro-climatic zones in Orissa are presented in Exhibit 5.2.
SI. No. 1
Agro-climatic zone
Climate rainfall (in mm)
Mean annual
Soil group
3
4
5
2
1 North western plateau
Hot and moist
1648
Red and yellow
2 North central plateau
Hot and moist
1535
Red loamy
3 North eastern coastal plateau
Hot and moist
1568
Aluvial sub-humid
4 East and south eastern plateau
Hot and humid
1449
Costal alluvial saline (near the coast line)
5 North eastern ghat
Hot and moist
1597
Laterite and brow forest
6 Eastern ghat high land
Warm and humid
1522
Red
7 South eastern ghat
Warm and humid
1522
Red, mixed red and yellow
8 Western undulating
Warm and humid
1527
Black, mixed red and black
9 West central table land
Hot and moist
1527
Red, heavy textured
Hot and dry subhumid
1421
Red loamy, laterite Mixed red and black
10 Mid central table land
Exhibit 5.2. Agro-climatic Zones in Orissa (Source: http://orissagov.nic.in/pandclec02006/PDF/eco-1.pdf')
Demographic Profile The population of Orissa, which was 316.60 lakh in 1991, has increased to 368.05 lakh in 2001 exhibiting a decennial growth rate of 16.25 per cent as against 20.06 per cent in the previous decade and 23.86 per cent at all-India level. The density of population which was 203 per sq.km in 1991 has increased to 236 per sq.km. in 2001 and is much lower than the all-India average of 313 per sq.km. Increase in the literacy rate from 49.10 per cent in 1991 to 63.08 per cent in 2001 is a milestone. The male and female literacy rates have gone up to 75.35 per cent and 50.51 per cent respectively in 2001.
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Scheduled Castes and Scheduled Tribes population in the State, as per 2001 Census, were 60.82 lakh and 81.45 lakh respectively, which were 16.5% and 22.1 % of the total population of the State as against 16.2% and 22.2% in the previous census in 1991. The decennial growth rate of SC and ST population during 1991-2001 was 18.6% and 15.8% respectively. As per 2001 Census, the sex ratio among SC and ST population was 979 and 1003 respectively as against 936 and 978 at all-India level.
Employment Scenario With the increase in population and consequent addition to the labour force, supply of labour continues to outstrip demand resulting in increase in level of unemployment and underemployment. The occupational classification as per 2001 Census shows that the total workers in the State account for 142.76 lakh constituting 38.79% of the total population of the State. Out of the total number of workers, main workers accounted for 67.2%. The main workers comprise of cultivators (35.8%), agricultural labourers (21.9%), household industries workers (4.2%) and other workers (38.1 %). The proportion of male workers to male population and female workers to female population in 2001 stood at 52.5% and 24.7% respectively. Growing unemployment particularly the phenomenon of educated unemployment is one of the burning problems of the State. It has been estimated that the total backlog of unemployment at the beginning of 2005-06 was of the order of 9.90 lakh person-years. With 1.89 lakh person-years of additional labour force during the year and 1.97 lakh person-years of employment generation during 2005-06, it is expected that the level of unemployment by the end of 2005-06 will be of the order of 9.82 lakh person-years. Keeping in view the growing unemployment particularly among the educated youth, Government has framed a State Employment Policy. As a part of this policy, State Government has constituted a High Power Employment Mission under the chairmanship of Hon'ble Chief Minister. In order to tackle the problem of unemployment, various wage employment and self-employment programmes are being taken up with special emphasis on generation of gainful employment opportunity in the secondary and tertiary sectors. Since the employment opportunity in the organized sector is limited, emphasis is being laid on creation of self-employment opportunities. As such, a number of self employment schemes including information kiosks, BPO complex, shopping units in urban areas, cUltivation of medicinal plants etc. have been launched in the State and educated youth are being motivated to avail the facilities. As per the Live Register maintained by employment exchanges, at the end of 2004, the number of educated unemployed in the State was 7.45 lakh, which comes to 86.73% of the total number of applicants of 8.59 lakh. The number of registrations made in employment exchanges during 2004 was 2,67,337 and vacancies notified was 1760.
State Income: Mirror of Growth Index The gross State Domestic Product (GSDP) at constant prices (1993-94) of Orissa has increased from Rs.18, 536.66 crore in 1993-94 to Rs.29, 487.94 crore (Advance Estimate) in
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2004-05 registering an annual compound growth rate of 4.31 per cent over the period. Similarly, the Net State Domestic Product (NSDP) commonly known as State Income increased from Rs.16, 184.88 crore in 1993-94 to Rs.25, 178.98 crore (Advance Estimate) in 2004-05 at 1993-94 prices. The per capita income at constant prices (1993-94) has been estimated at Rs.6, 555/- in 2004-05 (Advance Estimates) against Rs.4, 896/- in 1993-94. As against the Tenth Plan target growth rate of 6.2%, the growth rates during 2002-03 (P) and 2003-04 (Q) were respectively (-) 0.07% and 14.40%. The growth rate during 2002-03 was negative due to drastic fall in agricultural production in view of severe drought and the growth rate during 2003-04 was abnormally high due to negative growth during 2002-03and better performance in almost all the sectors including a record production of food grain during the year. As per the estimate of Directorate of Ecol1omics and Statistics, the foodgrain production decreased from 71.52 lakh MT in 2003-04 to 69.65 lakh MT during 2004-05.
Gross Fixed Capital Formation (GFCF) The gross Fixed Capital Formation (GFCF) is one of the most important indicators to measure the magnitude of economic development of the State. At present, the estimates of Gross Fixed Capital Formation at current prices are being prepared in respect of public sector only. Estimates of the same in respect of Private Sector are not being prepared because of non-availability of required data. The Gross Fixed Capital Formation for the Public Sector by Industry of use and type of assets at current prices has increased from Rs.2288.66 crore in 1993-94 to RS.3859.42 crore in 2002-03 showing a compound growth rate of 5.98% during the period.
Agriculture Agriculture and allied sectors continue to be the main-stay of the State's economy with a contribution of about 25.75% to NSDP during 2004-05 at1993-94 prices. Taking into account the predominant position and dependence of large percentage of people on this sector, the State Government pronounced the State Agriculture Policy 1996 with the main objectives of doubling the production of food grains and oilseeds by the end of the Ninth Plan and to adopt agriculture as the main route for eradication of poverty. The Agricultural Policy 1996 is designed to bring about all-round development of the agricultural sector. Agriculture has been accorded the status of an industry under the new Agricultural Policy with a view to encouraging private sector investment. According to Agricultural Census conducted by the Board of Revenue, there were 39.66 lakh operational holdings in Orissa in 1995-96 of which small and marginal holdings accounted for 81.97% while the remaining 18.03% came under the category of semi-medium, medium and large holdings. As much as 50.27% of the total operated area was owned by small and marginal farmers and the remaining 49.73% by the semi-medium, medium and large farmers.
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Production of food grains has fluctuated over years. As per the estimates of the DES, food grains production was 49.75 lakh MT and 75.401akh MT during 2000-01 and 2001-02 respectively. The low production of food grains during 2000-01 was on account of the severe drought situation in the state Estimates further show that during 2001-02, there was a record production of food grains of 75.40 lakh MT as a result of bumper production of rice which declined to a very low level of 35.55 lakh MT during 2002-03 on account of severe drought in the State during Kharif-2002.Not withstanding the natural calamities, the contribution of Orissa to the food grains basket of the country increased from 2.07% to 3.42% between 2002-03 to 2003-04. During 2003-04, the production of foodgrain again reached the record level of 71.52 lakh M.T. Paddy, the major cereal crop in the State constitutes 94.16% of the total food grains production. During 2004-05, foodgrains production reached 69.65 lakh M.T., i.e ... 2.61 % less than that of the previous year. The area covered by rice during 2004-05 is 76.9%, followed by pulses (11.2%) and oil seeds (5.6%). The area under fiber cultivation accounted for only 1.4% and other crops, i.e., sugar cane, potato, chilli etc. 2.0% of the total cultivated area during 2004-05. Land resources remaining almost the same, the per-capita availability of land in Orissa has considerably gone down from 0.39 hectare in the year 1950-51 to 0.15 hectare in 200405 due to increase in population. It is, therefore, essential that the yield rate should be given substantial boost by adopting improved agricultural practices.
Irrigation In the absence of adequate irrigation facilities, agriculture is pathetically dependent on monsoon. Because of erratic monsoon, agricultural production fluctuates widely from year to year. The net irrigation potential created in the State by the end of 2004-05 from all sources was 26.96 lakh hectares, which is around 46% of the estimated irrigable area of the State. Out of 26.96 lakh hectares of irrigated area, 12.37 lakh hectares of land are irrigated through major and medium irrigation projects, 5.04 lakh hectares through minor (flow), 3.76 lakh hectares through minor (lift), and the rest through other sources which include private tanks, ponds, dug-wells, water harvesting structures and the like. However, assured irrigation was available through major and medium irrigation projects accounts for 45.87% of the total area under irrigation. This underscores the need for stepping up the assured irrigation potential in order to insulate agriculture from the vagaries of monsoon. It has been targeted to create 4.65 lakh hectares irrigation potential through major and medium irrigation during the Tenth Plan period.
Fisheries With a coastline of 480 kms and a continental shelf area of 24,000 square km, there is excellent scope for marine fish production in the State. The inland fishery resources of the State include fresh water area of 6.66 lakh hectares and brackish water area of 4.18 lakh
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hectares. The State has thus vast scope for development of fisheries sector and the allied activities. During 2004-05, total fish production in the State was 3.16 lakh tonne, i.e., an increase of about 2.9% over the production of 3.07 lakh tonne iil 2003-04. Out of total fish production of 3.16 lakh tonne in 2004-05, fresh water fish production constituted 53.86% followed by marine fish 38.61 % and brackish water fish production 7.53%. While the export of fish from the State during 2004-05 was 91.75 TMT showing an increase of about 22.2% over 2000-01, the import of fish has come down from 41.99 TMT during 2000-01 to 37.01TMT during 2004-05 showing a decline of 11.86%. During the same period the per capita consumption of fish increased from 7.71 to 8.3 kg. Per annum this is still far behind the 11 kg/Per annum recommended by W.H.O.
Animal Resources Animal resources sector plays an important role in providing and supplementing income of rural households. As per livestock census conducted in 2003, the total livestock population in the State was 240.22 lakh of which cattle population alone accounted for 142.81 lakh, buffaloes 14.39 lakh, goats 59.74Iakh, sheep 17.59 lakh and pigs 5.69 lakh.The total milk production in the State in 2004-05 was 12.83 lakh tonne, with per capita availability of 92 gm. of milk per day. The production of milk during 2004-05 has increased tremendously, i.e., by 28.9% than the production in 2003-04. Egg production in 2004-05 was 1215.96million showing an increase of 30.6% over the production level of 931.06 million during 2003-04. Meat production in 2004-05 was 50.53 thousand tonne as compared to 44.89 thousand tonne in2003-04. There were 540 Veterinary Hospitals and Dispensaries, and 2,939 livestock Aid Centres in the State by the end of 2004-05. During 2004-05, total 49.37 lakh animals were treated, 112.741akh animals were vaccinated and 2.131akh animals dewormed. During 200405, 1885 Milk Producers' Co-operative Societies were functioning in the State. These societies procured 1, 88,500 kg. of milk per day on an average. The Tenth Plan targets for milk and egg production are 55.14 lakh M.T. and 7,506 million nos. respectively.
Forest The State has forest area of 58,136 sq. km; which constitutes 37.3%of the State's geographical area. However, the State Forest Report, 2003 of Forest Survey of India indicates that out of the r~corded forest area of 58,136 square km; only 48,366 sq. km. (31.06%) of the State's geographical area) is under forest cover. Out of the total 48,366 square kms; 288 sq.kms is very dense forest, 27,882 sq.km. is moderately dense forest and 20,196 square km is open forest. In addition to these, there is additional 6,381 square km.of areas under tree cover. In order to achieve the 33% forest cover as recommended in National Forest Policy, 1988, afforestation of wasteland and rejuvenation of degraded forest are being accelerated. Besides emphasis is being laid on conservation of forests by intensifying protective measures and enlisting people's involvement through joint forest management
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committees in checking illegal cutting of trees. During 2004-05, plantation/afforestation programme has been carried over an area of 24,605 ha. The revenue receipt from forest produce which was Rs. 49.81 crore in 2003-04 has increased to Rs. 85.00 crore during 2004-05. Kendu leaf is a major source of forest revenue. Orissa Forest Development Corporation is the nodal agency for Kendu leaf trading. During 2004-05, 3.89 lakh qntls. of Kendu leaf were sold valued at Rs. 132.02 crore.
Education Education is one of the indispensable inputs for human resource development. Improvement of skill is possible only through education in various areas. The literacy rate in the State has increased from 15.8% in 1951 to 63.8% in 2001. During the same period, the female literacy rate has also increased from 4.5% to 50.5%. During 2004-05, there were 45,700 primary schools with 52.15 lakh enrolment and 0.99 lakh teachers. During the same period the number of upper primary schools was15, 893 with 13.83 lakh enrolment and 0.31 lakh teachers and there were 7,141 high schools with 13.25 lakh enrolment and 0.61 lakh teachers. There was one primary School (formal) for every 3.7sq.km. and teacher-pupil ratio was of 1:41 in 2000-01, it was 3.4 per sq. km. and 1:53 respectively during 2004-05. The State is committed to Universalisation of Elementary Education (UEE) as part of Millennium Development Goals. The State has 9 universities and 1,680 general colleges with intake capacity of 3.87 lakh students. In the field of technical education, the State has made significant progress. By the end of 2004-05, there were 40 Engineering Colleges including 5 Government Colleges, with intake capacity of 12,089 students and 30 Engineering Schools/Polytechnics including 13 in the Public Sector, with intake capacity of 6,945 students. Besides, there were 48 colleges in the State to provide Master Degree Courses in Computer Application (MCA) with intake capacity of 2,802 students. There were 176 Industrial Training Institutes including 24 under Government and 152 under private management, with intake capacity of 21 ,912 students. In the field of medical science, the State has three Medical Colleges, one Dental College, one Pharmacy Colleges, three Ayurvedic Colleges, four Homoeopathic Colleges and one Nursing College in the Government Sector. Besides, there are two Ayurvedic colleges, two Homoeopathic colleges, and thirteen Pharmacy colleges in the private sector. This educational scenario is fast changing with public-private partnership and government initiatives
Power During 2004-05, State's share in installed capacity in the State sector was 2798.88 MW (hydro 1918.88 MW and'thermal880.00 MW) against which power was available to the extent of about 1429 MW. In addition to this, 498 MW of power was received from Central sector projects towards State share and 69 MW of power was purchased from captive power plants
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installed in the State by different industries. Thus, from all sources, about 1996 MW of power was available against the estimated demand of 1986 MW. Out of 46,989 inhabited villages in the State, 37,744 villages have been electrified by the end of 2004-05 representing coverage of about 81% of total inhabited villages. Orissa has the distinction of being the pioneer State in power sector reforms and restructuring. As part of reforms measures, the erstwhile Orissa State Electricity Board was dissolved and power generation, transmission and distribution systems were entrusted to Orissa Hydro Power Corporation (hydel power generation) and Orissa Power Generation Corporation (thermal power generation), Grid Corporation of Orissa (transmission) and four distribution companies (distribution). Further, in accordance with the provisions of Electricity Act 2003, enacted by Govt. of India, the trading of power has been retained by GRIDCO, while a separate body, i.e., Orissa Power Transmission Corporation Ltd. has been created to look after power transmission. An independent Regulatory Authority has been established to administer, regulate and monitor generation, transmission and distribution of power.
Transport and Communication In the absence of adequate internal rail links, surface roads have remained the major means of transportation in the State. As per the estimates of Planning Commission, about 40% of the vii/ages in Orissa has all weather roads as compared to 60% at all-India level. The road length in the State was 2.37 lakh km. in 2004-05. At the end of 2004-05, total railway route length in Orissa was 2287 km. including 91 km. of narrow gauge railway. The density of railway route length per thousand sq km. area in the State is around 14.7 km. During 200405, about 14.61 lakh motor vehicles were on road in the State, and number of motor vehicles per thousand sq. kms.was 9383 and per lakh population it was 3804. During 2004, 7728 road accidents were registered involving 2454 deaths. Out of 11 major ports in the country, Paradeep is the only major port belonging to Orissa through which mineral and metallurgical products are being exported. During 2004-05, 216.66 lakh MT of goods were exported and 84.38 lakh MT of goods imported through this port as against 186.08 lakh MT of goods exported and 67.03 lakh MT goods imported during 2003.04.
Health Services The National Health Policy aims at providing universal health care and access to medical services covering preventive, promotive and curative aspects to all sections of the society. By the end of 2004-05, there were 174 Hospitals, 231 Community Health Centres, 120 Primary Health Centres (PHCs), 1162 PHCs (New) and 14 Mobile Health Units in the State providing curative health services. Apart from these, 90 programme-specific mobile health units are also operating in KBK districts with assistance from Government of India under RLTAP. In
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addition, there were 5 Ayurvedic Hospitals, 607 Ayurvedic Dispensaries, 9 Unani Dispensaries, 4 Government Homoeopathic Hospitals and 533 Homoeopathic Dispensaries by the end of 2004. Health care and population control were the two main objectives of the Ninth Plan. The Family Welfare Programme is being implemented by the State Government with the objective of motivating eligible couples to adopt spacing and terminal methods and ensuring child survival. The death rate per thousand has been brought down from 10.5 to 9.7 during the period 2000-2003 and the infant mortality rate has been reduced from 97 per thousand live births in 1999 to 83 per thousand live births in 2003.
Minerals The State is endowed with vast mineral deposits like coal, iron-ore, manganese ore, bauxite, chromite etc. According to all-India Mineral Resources Estimates, the mineral deposits of Orissa in respect of chromite, nickel, bauxite, iron ore are about 97.37%,95.10%,49.74% and 33.91 % respectively of the total deposits of India. Other important mineral resources of the State are limestone, china clay, quartz, precious and semi-precious stones, copper, vanadium etc. However, the rate of exploitation of different minerals is much below the potential. During 2004-05, the mineral production of the State was 1270.48 lakh tonne valued at Rs.6148.61 crore. The export of minerals and ores to different countries during 2004-05 was 171.67 lakh tonne. Mining royalties and other revenue collected during 2004-05 stood at RS.670.51 crore as against RS.550.76 crore in 2003-04 showing an increase of 21.74%.
Industry With vast mineral resources, abundance of raw materials, comfortable power situation and sufficient skilled manpower, the State has an immense potential for industrialization. large industries like Rourkela Steel Plant, National Aluminum Company, Indian Charge Chrome Ltd., Paradeep Phosphates and coal based power plants at Talcher, Kaniha and Banharpal have been set up in the State during different Plan periods. At present, three nodal agencies, namely, Industrial Promotion and Investment Corporation Ltd. (IPICOl), Industrial Development Corporation Ltd. (IDCOl) and Orissa State Electronics Development Corporation (OSEDC) are engaged in promoting large and medium industries in the State. By the end of 2004-05, Orissa had 362 large and medium industries with an investment of Rs.3600.21 crore and employment potential for 85,926 persons. In recognition of the important role of small scale and village and cottage industries for rural development, efforts have been made to provide institutional and financial support, in addition to various incentives and concessions, for promoting this sector. During 2004-05, 4511 small scale industries with an investment of Rs.245.59 crore were set up in the State providing employment to 21 , 898 persons. Besides, 17,808 cottage industries have been set up in the State with an investment of Rs.47.11 crore and creating employment for 29,587 persons during 2004-05.
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The Tenth Plan target for Handloom Industry is to produce 900 lakh sq. mt. of cloth with creating employment opportunities for 1.35 lakh persons. During 2004-05, 120.86 lakh sq. mt. of cloth was produced providing employment to 1.03 lakh persons by the Handloom Industry in the State.
Poverty Alleviation Poverty is the most intractable problem of Orissa. According to the estimate made by Planning Commission in 1999-00, Orissa is the poorest among major States with 47.15% people living below the poverty line. Several self employment and wage employment programmes are being implemented in the State to create income generating assets and employment on daily wage basis for identified beneficiaries of target groups so as to enable them to cross the poverty line. Swarn Jayanti Gram Swarojgar Yojana (SGSY) is the main Centrally Sponsored self-employment programme implemented in the State since 1sl April 1999. During 2004'()5, 65712 beneficiaries have been assisted with income generating assets under SGSY with an investment of Rs.156.91 crore. Another Centrally Sponsored scheme called "Sampoorn Gramin Rojgar Yojana (SGRY) has been launched w.e.f. 25.09.01 by merging two wage employment generating schemes namely JSGY and EAS. The main objective of the scheme is to provide additional wage employment in rural areas, ensure food security, create durable community assets and develop rural infrastructure. During 2004'()5, about 553.94 lakh man days of employment have been generated under SGRY scheme. State Govt. is also poised to implement the Employment Guarantee Act from 2006'()7. State Government has constituted a Poverty Task Force (PTF) headed by Development Commissioner to devise an actionable poverty reduction strategy. PTF recommends that vigorous efforts need be made to reduce poverty by at least 7% at a simple rate of 1.4% per year during Tenth Plan period. A further reduction in poverty by about 10% may be attempted in eleventh Plan Period (upto 2012) and further efforts should aim at 6% reduction of poverty during the next three years.
Development of Women Several welfare programmes are being implemented in the State for development of women which include setting up of women's training centres, provision of short stay homes, rehabilitative services for women in distress, provision of old age pension etc. The female literacy rate in the State has increased from 4.5% in 1951 to 50.5% in 2001. The proportion of women among total employees in the recognize sector have increased from 12.41 % in 2000 to 14.31% in 2004. To increase the number of women in public services, 1!3rd of the vacancies in the State Government Departments in Group B, Group C and Group D services! posts required to be filled up through direct recruitment, have been reserved for women. Under State Old Age Pension Scheme (SOAP) 3.43 lakh (51 %) women beneficiaries were
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covered during 2004-05. Similarly under National Old Age Pension Scheme (NOAP), 2.51 lakh (51.0%) women were benefited during the said period. During 2004-05, around 60,000 (Le. about 85%) women were benefited under SGSY. Under SGRY, 553.94 lakh labour days of employment were generated, out of which 181.65 lakh labour days were created by women.
Welfare of Scheduled Castes and Scheduled Tribes One of the major concerns of the State has been to accelerate the all round development of scheduled tribes and scheduled castes that together constitute 38.6% (STs 22.1 % and SCs 16.5%) of the total population of the State as per the 2001 Census. For historical reasons, this segment of the society has remained socially and economically backward. Therefore, concerted efforts have been made under different Plans to bring them into the mainstream of development. The State Government is committed to the development of these communities. Accordingly, various special programmes and welfare measures have been launched for their benefit which includes legal aid, rehabilitation of STs and SCs, housing facilities, establishment of special employment exchanges, reservation in employment etc. The Tribal Sub-Plan approach was adopted in the Fifth Plan and the Special Component Plan for SCs in the Sixth Plan. Allocations from out of plan budgets of the State are being earmarked for the Tribal Sub-Plan and Special Component Plan commensurating to the proportion of ST and SC population to the total population.
Externally Aided Projects (EAPs) In order to bridge the resource gap for development projects, the State avails financial assistance from various external sources including international donors, viz., Germany, World Bank, DFID, JICA, JBIC etc. Eighteen (18) Externally Aided Projects (EAPs) which include seven (7) ongoing projects and eleven (11) pipeline projects are programmed for implementation during the Annual Plan 2005-06 covering sectors like Works, Irrigation, H UD, Forestry, Rural Development, Welfare of SC and ST etc. State Government has taken appropriate steps to ensure successful implementation of these EAPs. The Chief Secretary and the Development Commissioner-cum-Additional Chief Secretary monitor the implementation of the EAPs while the mega projects are monitored by office of the Chief Minister. It is expected that focus on improved monitoring of these projects shall help timely implementation of these projects and to sort out inter-departmental problems.
Public Sector Enterprises (PSEs) As a part of the planned economic development programme, State Government has set up a number of undertakings in various sectors like power, transport, construction, forestry,
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fisheries etc. to harness local resources and to provide quality service to the public. As on 31 sl March 2005 , there were 67 Government Companies and four working Statutory Corporations. Out of these 67 PSUs, 36 were working PSUs with investment of Rs .12, 315.28 crore (equity Rs .2, 201.20 crore and term loan Rs.10, 114.08 crore) . Further, out of 36 · working PSUs, 14 were loss making PSUs during 2003 -04. The Government is according top priority to Public Enterprises Reform in pursuance of the changed industrial scenario in the country. The steps contemplated include disinvestment, financial restructuring and creation of social safety net for redundant employees an<;l implementation of voluntary retirement schemes for the employees of the State PSEs. Financial assistance is being sought from international financial institutions for restructuring the State PSEs on the above line. Now the term is to explor e -governance in Orissa. Really, e-governance is the vehicle of good governance. As pointed earlier, good governance has the characteristics of participation, consensus, accountability, transparency, responsiveness etc. To be specific egovernance in Orissa furthers and sharpens these features of good governance. The importance of e-governance or Information Technology for the modern-day office needs no emphasis, and , offices of government are no exception . While it is agreed that e-governance is not a substitute to Good Governance, it cannot be denied that it is an important tool/aid in that direction. In order to bring about innovation in service delivery to the citizenry, Government must make more and more use of modern technology. This will provide the citizens better access to information and services. It will also help to reduce costs, increase revenues, enhance speed and efficiency and also increase accountability. In short, there is no escape from more and more use of modern technology. Keeping all these things in mind , the Government of Orissa is galloping towards digital governance under the vibrant leadership of the Chief Minister. The State Government in Orissa is committed to build an organizational environment in Ministries/Departments that facilitate the development and deployment of citizen centric services through. web enabled processes, electronic Workflows, e-enabled applications, collaborative partnerships and participation of Citizens, clients and stakeholders. In the same context, and additionally in its drive to inculcate transparency and accountability in all its interactions and processes (especially those pertaining to the citizens), the Government of Orissa had initiated the preparation of State's e-governance and Capacity Building Roadmaps, with assistance from National Institute for Smart Government (NISG) and Wipro InfoTech. In 2004, Government of Orissa declared its ICT policy, which is a great step regarding the growth of e-governance in the State (See Appendix 1).
CJ
Learning Objectives 6.1.
E-Governance Road Map of Orissa
6.1.1 . E-governance Vision 6. 1.2. E-governance Strategy 6.1 .3. E-governance Blueprint 6.2.
E-Governance Initiatives in Orissa
6.2.1. E-shishu 6.2.2. E-procurement 6.2.3. Bhlulekh 6.2.4. Bhasa 6.2.5. GRAMAST 6.2.6. Secretariat LAN 6.2.7. Secretariat Training Facility 6.2.8. ORIS 6.2.9. Treasury Automation Project 6.2.10. Orissa Telemedicine Application Network 6.2.11 . Computerization of Commercial Tax Department 6.2.12. Integrated Transport Information Management System 6.2.13. E-governance in Panchayatiraj Department 6.2.14. Food Grain Monitoring System 6.2.15. E-gram 6.2.16. E-Redressal 6.2.17. Computerization of Central Excise 6.2.18. Computerization of Courts 6.2.19. Miscellaneous 6.3.
E-Governance and Good Governance in Orissa: Congruence
E-Governance in Orissa: Deep Focus
E-Govern~nce:
6.1
w--~~
'"
"'~~
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Road Map of Orissa
"""''''~
A
As a part of this assignment, an indicative e-gavernance roadmp has already been proposed for the State and has been forwarded to all the stakeholders for review and enhancements. The Plan highlights the key initiatives that need to be undertaken by the various Government Departments and Organization and also details the complete e-governance architecture for the State. The Capacity Building Strategy for Orissa basically addresses the following 325 ~
Setting up appropriate in stitutionalizes framework for e-governance
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Identification of people and skill set for augmenting existing capacities
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Leveraging internal capacity
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Training Needs Assessment
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Involvement of external partners to complement existing capacities
2000
~
2004
~
2006~
2010
~
e-Government Evolution
Exhibit 6.1. E-Governance Road Map in Orissa (Source: http://www,ocac.inNiewDettails.aspx?glinked-GL002andplinked-PL006)
The above exhibit envisions the road ahead of Orissa e-governance by depicting the knowledge based government by 2010. The e-Governance Roadmap proposed for the State primarily comprises of 3 main components, namely:
325
~
e-governance Vision
~
e-governance Strategy
~
e-governance Blue Print Capacity Building Road Map for Orissa. Government of Orissa. [Available at http://www.ocac.in)
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E-Govemance
6.1.1 E-Governance Vision The e-governance Vision of Orissa necessitates t0 326: ~
Localize implementation and decision-making and deploy the core infrastructure to deliver services to the third tier of Governance.
~
Manage all leT initiatives as "capital investments" which can be evaluated in terms of pre-defined goals and measurable targets.
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Make various stakeholders capable of conceptualizing, developing and managing e-Governance tools themselves.
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Aim at service-oriented approach of Governance and create an integrated, modular and scalable framework to become more adaptive
~
Utilize policies , structures and frameworks to bring about transparency in various government functions .
6.1.2 E-Governance Strategy The e-Governance Strategy for Orissa outlines the initiatives to be undertaken across the State. It also defines an internally consistent set of options to lead to realization of State's e-Governance Vision . For Orissa, 14 Sectors have been identified as MMPs based on socioeconomic need analysis, development and Governance priorities, political Vision, perceived benefits to citizens and revenue generation potentials, e-readiness and level of automation and in alignment with NeGp327. ( See Exhibit 6.2.)
> > > > > > > > > > > > > >
Transport Agriculture Home (Police) Revenue(Land Records & Property Registration Panchayati Raj Urban Development (Municipalities) Labour & Employment
School & Mass Education Health Consumer Welfare (Food & Civil Supplies) Women & Child Development ST & SC Development Fisheries & Animal Resource Development Tourism
Exhibit 6.2. List of Sectors identified as MMPs (Source: Government of Orissa, ·Capacity Building Road Map for Orissa". http://www.ocac.in) 326
Capacity Building Road Map for Orissa. Govemment of Orissa. [Available at http://www.ocac.in)
327
Ibid.
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185
On the basis of e-governance strategy, e-governance architecture has also been made, as depicted below. (See Exhibit 6.3 )
Exhibit 6.3. E-governance architecture for Orissa (Source: Government of Orissa, "Capacity Building Road Map for Orissa", http://www.ocac.in)
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6.1.3 E-Governance Blue Print
Core Policies Security Legislations, Front End, Mjddleware \ I,,"V?\'\},,;}c Backend, Human Resource Management, Content Management, Integrated Services, Electronic Payment Mechanism, etc.
Exhibit 6.4. E-governance Blue Print for Orissa (Source: Government of Orissa, "Capacity Building Road Map for Orissa", htto:llwww.ocac.in)
The Core of ·the Big Picture comprises of Institutional framework, Reengineering Framework and Capacity Building Framework interfacing seamlessly with Core Policies, Core Infrastructure and Core Applications. The objective of the Core area of the structure is to provide an overall direction, standardizations and consistency across all initiatives. Service Delivery Channels would form a part of the Core infrastructure in the form of Urban and Rural Service Centers, Web Portals which would efficiently deliver various Governmental Services to citizens and businesses across the State, both in urban and in rural areas. These delivery centers would simultaneously cater to a number of departments and would actually act as the
E-Governance in Orissa: Deep Focus
187
front-end of the architecture described above. The next layer comprises of integrated applications interfacing with more than one department of the State. These applications would be in the form of Scheme Management System, knowledge Management, Secretariat workflow, Grievance Redressal System and Works Management System. The final layer would comprise of the Departmental Intranets. As per the Exhibit 6.4, Departmental intranets for 14 Departments would form the outermost layer of the e-Governance architecture 328 •
6.2. E-Governance Initiatives in Orissa Evolution of e-Governance is a highly complex process requiring provisioning of hardware, software, networking, process re-engineering and change management. In a truly e-Governed system, there should be minimal human intervention and decision on cases. It should be 'system driven' rather than 'individual driven', thereby curtailing the scope for subjective interpretation in the process of disposal of cases, particularly routine cases. In the past, a number of e-Governance projects have been undertaken through individual initiatives; some of them have succeeded while some have not produced the desired results or withstood the test of time. Therefore, based on lessons learnt from the past and experiences from successful e-Governance applications that have been implemented nationally and internationally some projects are identified. An e-Governance portal for Orissa "orissaonline.gov.in" is being developed by MIS Tata Consultancy Services in line with "aponline.gov.in". The land record project "Bhulekh" is developed in Orissa by NIC in line with "Bhoomi" project of Karnataka State. IT KIOSKs are being developed in the State by providing subsidy and training to the educated unemployed entrepreneurs. Unicode based Oriya language is getting developed by Microsoft India to incorporate in MS-Windows and MS-Office to enable the citizens to use ICT based projects. Computerization of schools and colleges, treasury, commercial tax, registration office, transport sector, Panchayati Raj, election office etc. are being developed on stand alone basis. The famous e-governance initiatives in Orissa are described below.
6.2.1 E-Shishu Orissa Primary Education Program Authority has implemented this project which is the first of its kind in the country. The project has two components - Child Tracking system (CTS) and IAtervention Monitoring and Information System (IMIS). Under CTS, a comprehensive database of all children below 14 years has been created which includes their socio-economic as well as demographic details. Under IMIS, all the 14 interventions under Sarva Shiksha Aabhiyan are monitored online. So project e-Shishu aims at tracking each child whether in school or out of school of the State of Orissa by demographic attributes, education status, financial status and many such minute details329 • 328
Capacity Building Road Map for Orissa. Government of Orissa. [Available at http://www.ocac.inj
329
www.ocac.in
188
E-Governance
In this endeavour, the data about each child of all 30 districts is collected through a door to door house hold survey .There were nearly 75 lakh families. In this survey, nearly 40,000 enumerators participated and collected information from each village of Orissa. The data is then stored in various District servers, all the 30 Districts are equipped with State-of-art infrastructure with high-end servers and connected with State office using IPSTAR VSAT Network. This will help in updating child related data and other interventions. Thus a Child Tracking System (CTS) was developed to track down child by her/his name or guardian name. The masses can view the information through internet, as the entire database is open to citizens, transparency about the whole data base is for the public to see and judge. The website offers this facility to the masses of Orissa to interact and send in mails to the administrator to correct or update any information which they find unauthentic. Upon receipt of such mails, there shall be a field enquiry before actual updation takes place at appropriate level and if the request for updation is found valid the administrator authenticates it and then the information appears in the website. The benefits of Project e-Shishu ( as in Exhibit 6.5 ) are 330 : ~
Helps in planning activities under various interventions to achieve the goals of SSA
~
Assists in making specific Plan action for out of school children based on the reason for being out of school
~
Facilitates plan for future entrants to the education system with infrastructure
~
Duplicate and fake enrolments could be minimized/eliminated altogether
~
Development as a tracking system for each child based on his /her achievements and taking steps to improve the same so as to achieve the objective of quality education
E-shishu project, which has been awarded by Central government in early 2008, aims to optimize the use of resources by targeting them to these who need it instead of uniform/ division among stakeholders or administrative units. It works as a decision support system for planners and administrators.
330
www.ocac.in
E-Governance in Orissa: Deep Focus
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.
STPI
.
OCAC
eOPEPA
e
Analysis Design Technical Training
~"==
Development
CSM
Pre-Development Feasibility Study echnology Evaluation & uidelines & IT trends
Implementation on actual '-!M.--r-data and supervision Household survey & ICR form fill up Villagewise EMIS code generation for schools Printing distribution & Packaging of ICR Form Site Preparation (VSAT) Orientation at different Levels Training System Hardware Networking Software
Exhibit 6.5. Total Network of E-Shishu (Source: www.ocac.in)
6.2.2 E-Procurement GOVt. of Orissa has decided to implement the e-Procurement system in place of the traditional procurement system in the State on priority. Accordingly a team of senior officials from Govt. of Orissa had attended training programme on e-Procurement at National Institute of Smart Government (NISG), Hyderabad. It was decided to implement e-Procurement system developed by NIC, New Delhi. Govt. of Orissa has signed a MoU with NIC, New Delhi. NIC in turn in association with Price Waterhouse Coopers Pvt. Ltd . (PWC) is conducting the process study and with C1 India for implementation as well as the post-implementation support. Initially four engineering departments namely Works, R&D, Water Resources and H&UD were taken for implementation of e-Procurement. In the pilot phase NIC has developed works package for Works Department, which was taken up in the first phase of implementation. Later on it can be rolled out to other Engineering Departments. A dedicated e-Procurement mission team has been notified with members from all the Engineering Department and OCAC, to carry forward the implementation.
6.2.3 Bhulekh Directorate of Land Records and Surveys has taken up computerization of land-records to optimize maintenance of Records and to provide accurate copies of Records of Rights
190
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(ROR) to the landowners all across the State. Computerization of land records (CLR) is a centrally sponsored project, which besides rendering faster services to the people also aims at creating a network between all the tehsils. The CLR also intends to preserve land records of the people so that it will not be missed, damaged or misused 331 •
6.2.4 Bhasa Project "Bhasha" was initiated by OCAC, the Technical Directorate of IT Deptt, in collaboration with Microsoft, to support Unicode Oriya. Microsoft Vista which supports Unicode Oriya has been recently launched 332 .
6.2.5 GRAMSAT It is a VSAT based network which provides 128 kbps connectivity to all DRDAs/ Blocks and facilitates dissemination of Government Information, monitoring of schemes and fund utilization and bringing about transparency in various projects getting executed at Panchayat / Block levels. Apparently Orissa is all set for responsive, efficient and transparent governance which is in the right direction of good governance. As a part of GRAMSAT pilot Swarna Jayanti Vidya Vikas Antariksh Upagraha Yojana, Vidya Vahini has already been inaugurated. This pilot project connects the State secretariat with the offices of District collectors for providing voice, video and data communications over a governmental internet.The State has gone a step ahead in augmenting e-governance with-the launching of the GRAMSAT project and implementation of the UNDP supported programme on Improving Citizens Access to Information with assistance from the Department of Personnel and Training, Government of India. This programme includes a need assessment study to identify customized information and utility services. In the first phase district Kalahandi was benefited. In the second phase 800 villages of Kalahandi-Bolangir-Koraput (KBK) have been included. A transponder of INSAT-3B under GRAMSAT project has been provided to Orissa for promoting distance education, telemedicine, agricultural extension etc333 •
6.2.6 Sectetariat LAN It connects various Departments at the State Secretariat through a 1000 Mbps Fiber Optics Network Backbone with 2 Mbps Network Connectivity. Offices of the Chief Minister, Cabinet Ministers, Secretaries, Additional Secretaries, Directors and all Department Computer Centers have been provided connectivity. This is being extended to cover remaining Officers
331
hftp:!!www.egovonline.netlegovindja egov% 20lndia %202006% 20presentation s% 5Cegov %20lndja %2024th %20 August% 5CState%20initiatives%5CYishal.pdf
332 333
Ibid. Pati, C. 2001. "GRAMSAT Training Programme". Orissa Review. Bhubaneswar.
E-Governance in Orissa: Deep Focus
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and Sections of all Departments in the Secretariat. All sections of all the Departments in the Secretariat have been provided withComputers 334 •
6.2.7 Secretariat Traning Facility A State-of-the-art training facility has been created in the Secretariat for providing basic as well as specialized training on IT to all levels of employees in the Secretariat. The training centre runs courses throughout the year for different levels of employees as per a preplanned calendar of training programs 335 .
6.2.8 ORIS Revenue Department is implementing Orissa Registration information System (ORIS) for computerized registration of various activities. The ORIS package has been successfully running at District Registration office, Khurda since 22nd July 2002. The package takes care of various activities such as Registration of different deeds like Sale, GPA, Agreement, Mortgage, Lease, Endorsement of Documents, generation of receipts and various reports etc336.
6.2.9 Treasury Automation Project This project aims at automation of various processes at DistricVSpecial Treasuries, including payment of Bills, payment of Pension Bills, receipt of Challans and other accounting activities is nearing completion. All sections of treasury accounting procedure have been covered to meet the requirements of the user department. NIC has also conducted workshops and exhaustive training programmes for the officers and staff of treasuries 337 •
6.2.10 Orissa Telemedicine Application Network A telemedicine network has been established (in collaboration with ISRO) to connect Sanjaya Gandhi Post Graduate Institute of Medical Sciences, Lucknow with Medical Colleges at Cuttack, Berhampur and Burla through V-SAT Network for remote delivery of Healthcare. It is also proposed to cover more Government Hospitals bringing them to the fold of V-SAT Network by the end of Tenth Plan Period. This will facilitate the people in rural areas to take advantage of the facility. This is however subject to availability of funds 338 • 334
http: WWW. egovonline. nete govjndiaegov% 20lndia% 202006% 2Qpresentations% 5Cegov% 2Olndia% 2024th% 20August% 5C$tate % 20initiatives% 5Cvishal.pdf
335
Ibid.
336
http://www.orissagov.nic.jnlegov.htm
337
Ibid.
338
Ibid.
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E-Governance
6.2.11 Computerization of Commercial Tax Department As a part of this project, automation of various processes of commercial tax, such as disposal of registration application, providing information on tax collection, identification of defaulters, issue of statutory forms and VAT administration has been completed 339 •
6.2.12 Integrated transport Information Management System In order to facilitate Transport Management and Administration as a part of e-governance in the Transport Sector, a pilot project was undertaken to computerize various activities in the State Transport Authority and Road Transport Offices (RTO) including: ~
Collection of Taxes
~
Bank Draft (BD) Collection and processing
~
Registration/Renewal/Ownership Transfer of Vehicle
~
Maintenance of GR Volume
~
Issue of Permits (Temporary Permit, Permanent Permit, National Permit, CST, CSP for Stage carriage, Goods Carriage)
~
Enforcement of M.V. Act and Rules (VCR)
~
Issue of licenses (Driving and Conductor licenses)
Under the pilot project computerization was initiated in the STA, 4 RTO Offices and 7 check gates. The software developed for the above applications has been installed in the STA and the RTO in Bhubaneswar. Site preparation and installation of computer systems are made in other locations. For the second phase of the project the applications are under implementation in 6 more RTOs and they will be interconnected as an Intranet34o •
6.2.13 E-Governance in Panchayatiraj Department Application of information technology in panchayatiraj department of Orissa is the most innovative one, where real empowerment has become possible, making good governance visible at the grass root level. All 314 Block offices in Orissa have been covered under this project. The ORDAs already have the necessary computers and peripherals. The main challenges 341 are:
340
http :www. eaovonline. nete govindiaegov% 2Dlndia% 202006% 2Opresentations% sCegov% 20lndia% 2024th% 20August% SCState %20initiatives%SCvishal.pdf http://www.orissagov.nic.inlegov.htm#paraB
341
http//:orissagov.nic.in/panchayatldefault.asp
339
E-Governance in Orissa: Deep Focus
193
~
125,000 small projects for community infrastructure and 95,000 individual benefits to be monitored - from village plans, estimate, work order, measurement, bills, payment, Utilization Certificate and CAG audit etc.
~
The Block and G.P offices are too over loaded with paper work to ensure quality implementation of Rural Development schemes.
~
92 schemes of 11 departments with different sets of guidelines - from only Palli Sabha execution to issuance of work order
~
Stock and Store-mismanagement
~
Auditing problem-lack of quality information
~
Unwieldy book-keeping at Blocks and G.Ps discourages District Coliectors/DRDAs from rigorous supervision for proper implementation of schemes .
Partners like NIC, OCAC, XIM, and UNDP are contributing a lot to face the challenges. NIC is associated for online RuralSoft, PriaSoft and e-NRICH, monitoring of physical progress of poverty alleviation programmes, Funds flow monitoring, DRDA/BLOCK portal etc. OCAC is associated for online payroll package and to maintain and upgrade software centrally. XIM is engaged for online accounting for blocks/DRDAs, implementation of Panchayat Accounts
Exhibit 6.6. E-Govemance and Rural Prosperity through PRls
(Source: http/I :orissagov.nic.inlpanchayatldefault.asp)
194
E-Governance
Monitoring Information System (PAMIS), and IT Consultant for the Panchayati Raj Department. Finally UNDP is supporting the citizen service model and taking care of the details of beneficiary and Projects, Public interlace etc. The main initiatives of panchayatiraj e-governance system are priasoft, rural soft, PAM IS, and BETAN which will be discussed under separate subsections. The vision is also clear, i.e. to establish e-panchayat in the State, filled with rural prosperity (See Exhibit 6.6 ).
Priasoft The Panchayati Raj Institutions Accounting Software (PriaSoft) is being used to monitor the accounts of district, block, and village panchayats and Web-Based application for monitoring Funds Flow in the Panchayati Raj Department. 30 DRDAs, 314 Blocks and 6234 Gram Panchayats use PRIASOFT (See Exhibit 6.7) for the effectiveness of e-panchayat. PRIASOFT empowers the administrators to monitor the fund receipt, availability, and expenditure at all levels of three-tier administrative set up of Rural Panchayati Raj Institutions (PRI). It generates a number of reports and has an in-built decision support system to analyze any of the account heads. The software is designed so as to allow addition of new account heads at the State level as and when required.
Exhibit 6.7. Priasoft Model (Source: http://informatics.nic.inlarchive/inf2004janlhappening.asp)
E-Govemance in Orissa: Deep Focus
195
The Web-based version of Priasoft (http://ori.nic.in/priasoft) has been successfully implemented by Department of Panchayati Raj, Government of Orissa, covering 30 ORDAs, 314 Blocks and 6234 Gram Panchayats. The software has been installed at NIC-Orissa State Unit Server. The data entry/ updating is being done, by PRls, from remote places over the Internet (District, Block and Gram Panchayats). The features related to the elected representatives and assets created by respective Rural Local Bodies (RLBs) are also being added for better management. This is the first time Rural Local bodies have joined e-governance initiatives in such a large number and effective manner342 •
Ruralsoft Rural Soft is a web-based application for monitoring progress of projects/schemes under various poverty alleviation programs. National Informatics Centre (NIC), New Delhi has developed this software for physical and financial monitoring of anti-poverty programme specially SGRY-I and II, lAY and SGSY. Rural Soft package has also provision for location of projects taken up under wage employment programs like SGRY at all the 3 levels, i.e., Zilla Parishad, Panchayat Samiti and Gram Panchayat level including physical and financial progress being achieved. Rural Soft is a web based project monitoring tool developed by NIC Delhi on the advice of Ministry of Rural Development and has become a necessity in view of direction of Hon'ble Supreme Court of India. A citizen can know the, amount allotted, expenditure made and balance available in all projects of wage employment programs at a click of a button either herself or with the help of civil society organizations343 •
PAMIS PAMIS (Panchayatiraj Accounting and Monitoring Information System) is a web based desktop application for monitoring various Accounts of the Panchayati Raj Department. PAMIS is being used by 30 ORDAs and 314 Blocks. It was implemented in Bhubaneswar block on pilot basis. Implemented in all 30 ORDAs, DRDNBlock professionals have been sensitized now.
Betan Betan is a Web-based payroll package having centralized computing facility developed for all the Blocks and District Rural Development Agencies under Panchayati Raj Department. It was implemented in Bhubaneswar block on a pilot basis and gradually extended to all the 314 blocks of the State, 30 ORDAs, along with Orissa Secretariat and other State Government Offices344•
342
http://informatics.nic.inlarchivelinf2004janihappening.asp
343
http://ws.ori.nic.inlrura/soft http://www.ocac.in
344
196
E-Governance
6.2.14 Food Grian Monitoring System An RFID based food grain monitoring system is currently under development. Pilot implementation is being done in Khurda and Koraput districts. It is expected that all the districts and blocks will be covered under this project.
6.2.15 E-Gram The E-Gram project, the first of this kind in Orissa, is a humble beginning at Ganjam with active initiation of District Collector and DRDA Ganjam. Internet/Intranet connection has been provided to al\ the 22 Blocks via the NICNET from NIC Berhampur. Intranet connection is also available through DRDA. Information on various developmental schemes, social security measures and the like are updated periodically and available on the website http:// drdaganjam.nic.in and http://ganjam.nic.in . It enables access and review of progress in blocks, tahasils, and district by higher officials at State headquarter as well as Rural Development Ministry, Government of India and the common public. The information on prevailing Government/Market rates of different agricultural and allied products is available to the farmers/ SHGs to get the best price for their produces. Self Help Groups get latest information on various new rural technologies for their improvement. 345
6.2.16 E-Redressal The State Government on 3 July 2008 launched an electronic grievance redressal system namely 'SANJOG' to deal with drinking water problems with toll free number 18003456770 where anybody can call and register complaints. Besides e-mail is also another mechanism of 'Sanjog' to receive complaints. Additionally e-Procurement system for floating of tenders under Prime Minister Gram Sadak Yojana (PMGSY) has been launched. The underlying purpose is transparency and State Government floated tenders worth B877. To this Electronic Clearing System(ECS) and National Electronic Fund Transfer (NEFT) facilities are introduced for payment to contractors for their work (TOI: 5 July 2008).
6.2.17 Computerization of Central Excise The Computerization of the Central Excise and Customs Department, Orissa started with the implementation of the SERMON (System for Excise Revenue and Monitoring) project developed by NIC in all the Central Excise divisions in1997. This started a new era of electronically capturing the documents through the software and to automatically eliminate human errors. SERMON has several built-in features for capturing Assesses Information and Excise Returns which is required by Audit, Preventive, Statistics, Technical and other sections. 345
http://informatics.nic.inlarchivelinf2003AprIState_infocus.htm
E-Governance in Orissa: Deep Focus
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A highly reliable database of revenue particulars of all assesses has been created using this software which has proved as a boon to the department for its utility. Another application named STREMS (Service Tax Revenue Monitoring System) has been recently installed in all formations to capture Service Tax Returns to monitor revenue of growing nomber of service tax assesses. Five web enabled applications, viz., CRRD (Cyber Revenue Realization Details), CRRS (Cyber Revenue Realization Summary), SAPS (System for Allotment of PAN based Service Tax Payer Code), SACER (System for Allotment of Central Excise Registration) and PAMS (Provisional Assessment Monitoring System) have also been implemented in all the Central Excise divisions under two commision rates of Orissa. 346
6.2.18 Computerization of Courts In 1993, NIC set up one of its largest computing facilities at the Orissa High Court. The facility consists of two servers, 42 terminals, and 20 printers covering important sections of the High Court. Starting from online filing of cases, preparation of cause lists, i.e., list of cases with brief details to be taken up by the Court, uploading of Cause Lists to the Indian Courts website, recording of disposal information till uploading of head notes of reportable judgements of the High Court to the Indian Courts website, crucial judicial activities have been computerized. Administrative activities like preparation of civil list of judicial officers of the State and preparation of Payroll for all the officers and staff of the High Court have also been computerized. At the filing counter all types of cases and miscellaneous cases are filed and numbers are automatically assigned by the software. A computer generated receipt bearing the case no., party names, advocate names, subject code etc. is provided to the petitioner. Caveat matching is also done online at the filing counter. The weekly cause list and the supplementary daily cause list are regularly generated for all the benches (Full, Division and Single) of the High Court. The cause lists are also made available at the http://www.indiancourts.nic.in website where it is possible to see the entire cause list, a particular court's cause list, and the cases to be taken up by any Hon'ble Judge etc. It is also possible to search whether a particular case has been listed or not. Provision for generating an advocate wise list is also available. The computerized databases contain necessary details of all pending cases at the High Court and statistical reports are generated to assist the registry in managing allocation of cases. The head notes of reportable Judgements of the Orissa High Court are also stored regularly. So far, nearly 10,000 head notes are available in the system. One can refer the head notes either by providing Act name, part of party name, case no. etc. These head notes are also available at the website http://www.indiancourts.nic.in.ltis the one of the largest compilation of head notes at this site. On the administrative side, database regarding service and relevant personal details of all judicial officers of the State has been computerized for reference by the court and registry. The payroll for all the staff of the High Court is also 346
http://informatics.nic.in/archivelinf2003Apr/State_infocus.htm
198
E-Gov9rnanC9
regularly generated. A proposal for up gradation of the computing facilities at the Orissa High Court submitted by NIC, which includes setting up of E-Courts, electronic filing of cases, availability of orders in the Internet, installation of Touch pad screens in the High Court premises and IVR facility to ascertain status of a case by the public, has been accepted for implementation by the High Court. NIC has also provided servers, printers, allied equipments and both system and application software to 22 DJ and ADJ Courts of the State. The District Court Information system is a comprehensive system which keeps track of a case starting from filing of a case till its disposal. Filing counters, similar to that of High Court and generation of certified copies for the litigants is also a feature of this system 347• 6.2.19 Miscellaneous Besides the above mentioned projects and e-governance initiatives, Orissa has also adopted other projects to make the administrktion of the State citizen friendly. Since the inception of NIC Orissa State Unit in January 1986, as a "Total Solution provider" it is effectively assisting the State Government functionaries in timely decision making through the implementation of various e-governance projects. Orissa is one of the first States in the country to prepare a fully computerized State Budget since 1992. Software developed by NIC Orissa for the Finance Department has proved to be indispensable for formulating the figures of the annual budget and the porresponding supplementary budgets or vote-on-accounts both in English and in Oriya. The budget software also handles monitoring day-to-day activities based on budget figures. Various reports catering to the requirements of the State and Central Government and external funding agencies are generated through the software. The software enablE::s the State Government to make forecasts of the State budget. Computerization of provident fund accounts of about 3 lakhs teachers of aided educational Institutions has been carried out by NIC Orissa. Through computerization, arrears since 1996 were cleared in the first phase. The account-slips and ledgers have been generated after going through different validation procedure for all the arrear accounts. NIC has developed many important computer software packages like assembly Questions, library information system, press clipping, member's who's who, payroll, member's paybill etc. A campus LAN was established with internet connectivity covering the VIP chambers. Regional Passport office, Bhubaneswar has been computerized by NIC. The receipt /enquiry ~ounters, index checking is being done by the computer and whole process of passport issue is streamlined. 'AlertOrissa' has been designed to manage pre-disaster, during disaster and post-disaster situations. The system provides a module on contingency planning (District statistics, Resource Planning, Vulnerable Locations, Flood Shelter Points etc), Calamity Monitoring (Capturing Daily Situation Data, Final Damage Data, Query on Affected, Casualty, Damages, Relief measures etc), Past Calamities (Affected area/Population, Casualty, Damages, Relief Measures, Map based Analysis etc). With implementation of Computerized Birth and Death Registration system and Holding tax monitoring system the Cuttack Municipal Corporation became the first corporation in Orissa to go for automation. 347
http://www.orissagov.nic.in/egov.htm#para4
E-Governance in Orissa: Deep Focus
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All the e-governance initiatives in the State are meant for maintaining transparency and accountability in the process of governance. Transparency and accountability are the key ingredients to achieve good governance, as identified by World Bank and other development related organizations or institutions. The State has come to a stage now, to challenge the supremacy of Indian Southern States in e-governance initiatives . The achievements of e-governance are high and can be made more. In order to bring about innovation in service delivery to the citizenry, Government must make more and more use of modern technology This will provide the citizens better access to information and services . It will also help to reduce costs, increase revenues, enhance speed and efficiency and also increase accountability. In short, there is no escape from more and more use of modern technology. The strengths and weaknesses of e-governance initiatives in Orissa can be well judged by responding to a number of questions like - the e-governance initiatives in Orissa are i" right path or not, more and more people are availing the services through electronic media or not, people are happy with the current status of e-governance initiatives in the State or not. So, an attitudinal study of the people of Orissa is necessary to know whether e-governance in Orissa is moving towards achieving good governance or not. Further, it is to be noted that Centre has selected Ganjam and Mayurbhani districts in Orissa to implement National e-Governance Plan (NEGP) on a pilot basis. And it was launched in June 2008. Essentially, this aims to provide various Government services to the people at their door step through Common Service Centres (CSC) at each panchayat in the districts. The services in includes revenue cases, social benefit schemes, miscellaneous certificates, government dues and recovery, public distribution system, Right to infromation and redressal of greviances . Distribution of BPL cards and old age pensions are also covered under this scheme, for example. To this end the district administration has formed District e-Governance Society (DEGS) to supervize the implementation. (Times of India 20 Oct 2008).
6.3. E-Governance and Good Governance in Orissa: Congruence 348 It is the unanimous view of the stakeholders that the good governance is not a luxury but sine quo non for sustainable development and many governance assessments have shown that smaller increase in the State capability and the returns to incremental improvement are high and improves the quality of life of the citizens. Orissa Modernising Government Initiative (OMGI) is an innovative project that ensure better public services to the poor by improving the service delivery adopting a comprehensive four-pronged approach through the use of information technology, building an enabling policy framework for service delivery, re-engineering the government processes and enhancing capacity of the human resources to manage a smart and modern citizen centric government. It can be safely assumed that OMGI wants to achieve good governance through e-governance itself. The agenda of good governance has been a key priority because of its beneficial impact on the poor. DFID has forged a meaningful partnership with Government of Orissa in several projects that aims to improve the services, fiscal prudence and attempts to promote inclusive growth and development. In the line of national e-governance action plan, Government of Orissa has 348
http://orissagov.nic.in/gaiARCeII/OMGl/programm %20documenI.pdf
200
E-Govemance
been spearheading the e-governance agenda. OCAC (Directorate of IT) has engaged services of consultants to look at issues of e-procurement, servic~ delivery initiatives in several departments. Government of Orissa has consistently attempted to improve the public accountability through reduction of procedural complexities and strengthening tlie internal vigilance system. E-procurement initiative, fast track courts and specials sectoral courts (like special police stations for power thefts) are some such initiatives. One of the key components of the program will involve a comprehensive change strategy and planning wherein various institutional arrangements will be fine tuned, core staff mobilized and trained, basic workspace modernized and procurement process initiated . Orissa Computer Application Center (OCAC) has already been designated as a procurement unit and it is also spearheading the e-procurement initiative. Strategic Performance and Innovation Unit (SPIU) is the institutional form within OMGI framework to support the departments (not for replacing the core functions of the department) in identifying core reforms needed in the departments and develop a reform action plan for the department with clear timeframes and outcomes and support implementation of pilot reform activities where needed. Introduction of basic governance principles with ICT application is one of the key tools for OMGI and it will have demonstrative quick wins. This is a unified component and is an outcome of the e-citizen service delivery projects undertaken by Department of General Administration (GA) and SPIU . It is widely recognized that the use of Information Technology and the delivery of e-governance is an essential element of the Modernisation Government Programme. It offers the potential to significantly improve the quality of services to the citizen and to facilitate more efficient working within and across Departments. If designed properly it ensures adequate transparency and accountability in the public system. Exhibit 6.8 is placed below for reference.
Exhibit 6.S. Typical phasing of Integrated Govemance Projects (Source:
Orissa Modernising Government Initiative, htfp:llorissagov.nic.inlgaIARCeIlIOMGII programm%20document.pdf)
E-Governance in Orissa: Deep Focus
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E-governance is essentially a technology enabled government. The above exhibit shows how delivering value to the citizens are being transformed in Orissa towards good governance through the implementation and technology phasing. Now the authors will try to explore the interaction of the people in Khurda and Bhubaneswar block of Khurda district where e-governance is really visible. To know the reaction of the people the authors visited the villages several times and informally collected the opinions as to the implementation of e-governance projects in the light of the stated hypotheses. Now, it is time to test the hypotheses taken in the introductory chapter. To reiterate, the hypotheses are: 1.
95% of people are of the opinion that e-governance beneficiaries are illiterate.
2.
Opinion is divided as to e-governance has failed to serve the aspirations of the poor.
3.
95% of the people have never listened about e-governance.
4.
Two-thirds of people said that e-governance means just a computerization of the governance system.
5.
95% of the people are of the opinion that e-governance reduces corruption in administration.
6.
Two-thirds of people are of the view that e-governance has made the delivery of services easier.
7.
Majority of people are not satisfied with the technology based administration.
8.
Majority of people are of the view that e-governance has failed to reduce the crimes in the State.
9.
All most all are of view that e-governance has changed the mindset of the administrators.
10.
Two-thirds of people are of the view that e-governance can be more successful if participation of the beneficiaries is ensured.
11.
95% of the people opine that e-governance has no role in solving the social problems like communalism, casteism etc.
12.
All most all (say 95%) are of the opinion that e-governance can bring good governance.
The hypotheses are tested with the opinions of the adopted blocks of Khurda district. The sample here is taken 100 from both the Khurda and Bhubaneswar block and it is at random. The authors have interacted with the people directly with the use of a schedule as placed in Appendix 2. True, the authors have not used questionnaire method and higher
202
E-Governance
statistical tools, yet within paucity of time frame; the care has been taken to analyze the observed frequencies of the people with the help of SPSS stastiscal package. The calculated values of Chi-Square Test are placed below in respect of all the 12 hypotheses. It is to be noted, if the calculated value is less than the true value of X 2 (Chi-Square), then the hypotheses is significant; otherwise insignificant. Table 6.1: Hypotheses 1 fo
fe
(fo - fe)
(fo - fe)2
{(fo - fe)1 fe}2
For
92
95
-3
9
0.094
Against
08
5
3
9
1.8
100
100
N
1.894
=100
Result - Significant Table 6.2: Hypotheses 2 fo
fe
(fo -fe)
(fo - fe)2
{(fo - fe)1 fe}2
For
36
50
-14
156
3.12
Against
64
50
14
156
3.12
100
100
N
6.24
=100
Result - Insignificant Table 6.3: Hypotheses 3 fo
fe
(fo -fe)
(fo - fe)2
{(fo - fe)1 fe}2
For
91
95
-4
16
0.168
Against
9
5
4
16
3.20
100
100
N
3.368
= 100
Result - Significant Table 6.4: Hypotheses 4 fo
fe
(fo - fe)
(fo - fe)2
{(fo - fe)1 fe}2
For
73
66.67
6.33
40.06
0.60
Against
27
33.33
-6.33
40.06
1.20
100
100
N
=100
1.80 Result - Significant
E-Govemance in Orissa: Deep Focus
203
Table 6.5: Hypotheses 5 fo
fe
(fo -fe)
(fo - fe)2
{(to - fe)/ fe}2
For
97
95
2
4
0.042
Against
3
5
-2
4
0.8
100
100
0.842
N = 100
Result - Significant Table 6.6: Hypotheses 6 fo
I
fe
(fo -fe)
(fo - fe)2
{(to - fe)/ fe}2
For
71
66.67
4.33
18.74
0.28
Against.
29
33.33
-4.33
18.74
0.56
100
100
0.84
N =100
Result - Significant Table 6.7: Hypotheses 7 fo
fe
(fo - fe)
(fo -fe)2
{(to - fe)/ fe}2
For
89
95
-6
36
0.37
Against
11
5
6
36
7.2
100
100
7.57
N = 100
Result - Insignificant Table 6.8: Hypotheses 8 fo
fe
(fo -fe)
(fo - fe)2
{(fo - fe)/ fe}2
For
91
95
-4
16
0.168
Against
9
5
4
16
3.20
100
100
3.368
..
N = 100
Result - Significant Table 6.9: Hypotheses 9 fo
fe
(fo - fe)
(fo -f,l
{(to - fe)/ fe}2
For
84
95
-11
121
1.27
Against
16
5
11
121
24.2
100
100
N = 100
25.47 Result -Highly Insignificant
204
E-Governance
Table 6.10: Hypotheses 10 fa
fe
(fa - fe)
(fa - fe)2
{(fa - fe)/ fef
For
69
66.67
2.33
5.42
0.081
Against
31
33.33
-2.33
5.42
0.162
100
100
0.243
N = 100
Result - Significant Table 6.11 : Hypotheses 11 fa
fe
(fa - fe)
(fa - fe)2
{(fa - fe)/ fe}2
For
94
95
-1
1
0.10
Against
6
5
1
1
1.20
100
100
0.30
N = 100
..
Result - Highly InSignificant Table 6.12: Hypotheses 12 fa
fe
(fa - fe)
(fa - fe)2
{(fa - fe)/ fe}2
For
91
95
-4
16
0.168
Against
9
5
4
16
3.20
100
100
3.368
N = 100
Result - Significant
Further a total chart is presented below in Table 6.13 to ascertain the results of hypotheses. Table 6.13: Results of Fitness Test - One Variable Test Table value of X2 ValueofX2 SLNo Hypotheses as to E-Governance and Good Governance at 0.5 level of signific-ance
1
95% of people are of the opinion that
Result
1.894
3.84
Significant
e-governance beneficiaries are illiterate
2
Opinion is divided as to e-govemance has failed to serve the aspirations of the poor
6.24
3.84
Insignificant
3
95% of the people have never listened
3.368
3.84
Significant
1.80
3.84
Significant
about e-governance
4
Two-thirds of people said that e-governance means just a computerization of the governance system
205
E-Governance in Orissa: Deep Focus
0.842
3.84
Significant
0.84
3.84
Significant Insignificant
Majority of people are not satisfied with the technology based administration
7.57
3.84
Significant
8
Majority of people are of the view that e-governance has failed to reduce the crimes in the State
3.368
3.84
Highly Insignificant
9
All most all are of view that e-governance has changed the mindset of the administrators
25.47
3.84
Significant
10
Two-thirds of people are of the view that e-governance can be more successful if participation of the beneficiaries is ensured
0.243
3.84
Highly Significant
11
95% of the people opine that e-governance has no role in solving thesocialproblems like communalism, casteism etc.
0.30
3.84
Significant
12
All most all (say 95%) are of the opinion that e-governance can bring good govemance
3.368
3.84
5
95% of the people are of the opinion that e-governance reduces corruption in administration
6
Two-thirds of people are of the view that e-governance has made the delivery of services easier
7
As such it is found that except three hypotheses at serial no. 2, 7 and 9, all the hypotheses are proved to be correct.
Summary --~~~
The current part goes deep into the history and socio-economic profile of the State Orissa where e-governance as a vehicle of good governance has been studied. The history, geography, and socio-economic conditions are defined in this chapter. Further it exclusively deals with e-governance in Orissa. Before going to deep, e-governance vision, strategy and blueprint are discussed first. Then the efforts of the State regarding the use of leT in delivery
206
E-Governance
of services have been discussed at a length. Theauthors throw light upon how far e-governance initiatives in the State have become able to achieve good governance. The interaction with the beneficiaries is also a part of this chapter.
Review Questions 1.
Analyse the process and prospects of E-Governance in any State of your choice as a case study.
2.
'E-Governance in Orissa is fast moving towards need based, client and development oriented'. Comment.
208
E-Governance
A comprehensive discussion as to e-governance, good governance and its intimate relationship at global, national, and local levels has been made earlier. As such the same has been put in brief in this part. To start with, 'Governance' is the exercise of power or authority - political, economic, administrative or otherwise - to manage a country's resources and affairs. It comprises the mechanisms, processes and institutions through which citizens and groups articulate their interests, exercise their legal rights, meet their obligations and mediate their differences. 'Good governance' means competent management of a country's resources and affairs in a manner that is open, transparent, accountable, equitable and responsive to people's needs. Key elements of good governance can be outlined under political and economic headings as follows 349 :
Political principles ~
Good governance is based on the establishment of a representative and accountable form of government.
~
Good governance requires a strong and pluralistic civil society, where there is freedom of expression and association.
~
Good governance requires good institutions - sets of rules governing the actions of individuals and organisations and the negotiation of differences between them.
~
Good governance requires the primacy of the rule of law, maintained through an impartial and effective legal system.
~
Good governance requires a high degree of transparency and accountability in public and corporate processes. A participatory approach to service delivery is important for public services to be effective.
Economic Principles
349
~
Good governance requires policies to promote broad-based economic growth, a dynamic private sector and social policies that will lead to poverty reduction. Economic growth is best achieved in an efficient, open, market based economy.
~
Investment in people is a high priority, through policies and institutions that improve access to quality education, health and other services that underpin a country's human resource base.
~
Effective institutions and good corporate governance are needed to support the development of a competitive private sector. In particular, for markets to function, social norms are needed that respect contract and property rights. Good Governance - Guiding Principles for Implementation. 2000. Overseas Aid Program. Government of Australia. [Available at http://www.ausaid. gov.au/publications/pdf/good_govemance. pd~
A Summing Up ~
209
Careful management of the national economy is vital in order to maximize economic and social advancement.
Good governance is an essential precondition for sustainable development. Various countries that are quite similar in terms of their natural resources and social structure have shown strikingly different performance in improving the welfare of their people. Much of this is attributable to standards of governance. Poor governance stifles and impedes development. In countries where there is corruption, poor control of public funds, lack of accountability, abuses of human rights and excessive military influence, development inevitably suffers. A landmark study by the World Bank, Assessing Aid - What Works, What Doesn't and WhY' (1998), demonstrated the crucial role that good governance plays in enhancing the effectiveness of aid 350• The study found that where there is sound country management, an additional one per cent of GDP in aid translates into a one per cent decline in poverty and a similar decline in infant mortality - whereas in a weak policy and management environment aid has much less impact. Findings like this clearly indicate that the 'returns' from development assistance are generally greater in developing countries characterised by good governance. One element of good governance that is needed for sustained development is an economy that operates in an ethical, accountable and appropriately regulated environment, which facilitates competition in the marketplace. Without this, there will be no driver for economic growth and sustainable development will not be possible. A dynamic private sector, operating in a properly functioning competitive market system, creates jobs and income, generates wealth and helps ensure that resources are used efficiently. Good governance implies effective political institutions and the responsible use of political power and management of public resources by the State. Essentially, it is about the interaction between democracy, social welfare and the rule of law. Good thus extends beyond the public sector to include all other actors from the private sector and society. Good governance is guided by human rights and by the prinCiples of the rule of law and democracy, such as equal political participation for all. Particular attention is devoted to the needs of the weaker members of society. In the United Nations' Millennium Declaration, the international community reached a governance consensus that good governance is not only an aim in itself but also a key factor in attaining human development and in successful poverty reduction and peacebuilding351 • Besides World Bank, The IMF contributes to promoting good governance in member countries through different channels. First, in its policy advice, the IMF has assisted its member countries in creating systems that limit the scope for ad hoc decision-making, for rent seeking, and for undesirable preferential treatment of individuals or organizations. To this end, the 350
Good Govemance-Guiding Principles for Implementation. 2000. Overseas Aid Program. Government of Australia. [Available at http://www.ausaid.gov.au/publications/pdf/good_governance.pdf]
351
http;//www.gtl.de/enlthemen!politjsche-reforroen/882.htm
210
E-Governance
IMF has encouraged, among other things, liberalization of the exchange, trade, and price systems, and the elimination of direct credit allocation. Second, IMF technical assistance has helped member countries in enhancing their capacity to design and implement economic policies, in building effective policymaking institutions, and in improving public sector accountability. Third, the IMF has promoted transparency in financial transactions in the government budget, central bank, and the public sector more generally, and has provided assistance to improve accounting., auditing, and statistical systems. In all these ways, the IMF has helped countries to improve governance, to limit the opportunity for corruption, and to increase the likelihood of exposing instances of poor governance352 . In addition, the IMF has addressed specific issues of poor governance, including corruption, when they :lave been judged to have a significant macroeconomic impact. Many governance issues are integral to the IMF's normal activities. The IMF is primarily concerned with macroeconomic stability, external viability, and orderly economic growth in member countries. Therefore, the IMF's involvement in governance should be limited to economic aspects of governance. The contribution that the IMF can make to good governance (including the avoidance of corrupt practices) through its policy advice and, where relevant, technical assistance, arises principally in two spheres 353: ~
Improving the management of public resources through reforms covering public sector institutions (e.g., the treasury, central bank, public enterprises, civil service, and the official statistics function), including administrative procedures (e.g., expenditure control, budget management, and revenue collection); and
~
Supporting the development and maintenance of a transparent and stable economic and regulatory environment conducive to efficient private sector activities (e.g., price systems, exchange and trade regimes, and banking systems and their related regulations).
Although it is difficult to separate economic aspects of governance from political aspects, confining the IMF's involvement in governance issues to the areas outlined above should help establish the boundaries of this involvement. In addition, general prinCiples that are more broadly applicable to the IMF's activities should also guide the IMF's involvement in governance issues. Good governance has been advocated by all aid giving and developmental agencies. But the achievement of good governance is a Herculean task, as it goes beyond the definitional boundary to assume a number of areas for development. Achieving good governance is more easily said than done. Not a single approach is sufficient to achieve that and the authors are is also limited to throw light upon all the possible ways for realizing the goal of good 352
http://www.imf.org/external/pubs/ftlexrp/govern/govindex.htm
353
http://www.imf.org/external/pubs/ftlexrp/govern/govindex.htm
A Summing Up
211
governance. However, in the age driven by technology, e-governance can be a viable mean to achieve the end, i.e., good governance. New theories and techniques are being evolved with the passage of time. E-governance is such an innovation, or rather eventuality with full of potentials. Many theories and techniques are hard to put in place everywhere owing to variations of societal settings and cultural norms. However, e-governance promises and seems to be the exception. Its acceptance is worldwide, thanks to its in-built credentials. Thus, it can be safely remarked that this very phenomenon has come to stay and thrive. Admittedly, developing country governments have been using IT for more than 40 years. So, what is new about e-governance? What's new is that-as an ardent exponent of e-governance thinking Richard Heeks puts - we are moving on from IT to leTs and from IT to IS. The old model was one of information technology (IT) automating the internal workings of government by processing data. The new model is one of information and communication technologies (leTs) supporting and transforming the external workings of governance by processing and communicating data. The old model also held information technology isolated from the mainstream of reform, or held IT as the objective of reform but the new model brings information systems (IS) to the heart of reform. In practice, this means two things354:
1. A central role for ICTs: As governance becomes recognized as even more information-intensive, leTs become an essential part of more and more governance initiatives. leTs are also recognized as a key lever to change. They are no longer isolated on the sidelines. 2. An integrated role for ICTs: e-governance means using leTs as servants to the master of good governance. leTs are no longer seen as an end in themselves and they are seen to work only as part of a wider systematic 'package'. Overall, e-governance is the leT-enabled route to achieving good governance. Some may even prefer to think of it as 'i-governance' - integrated governance - since it integrates both the processing and communication technologies; and since it integrates people, processes, information, and technology in the service of governance initiatives355. In simple terms, e-governance is defined by authorities as giving citizens the choice of when and where they access government information and services. This would mean using more and more of Electronics and Information Technology in many of the government functions. 354
355
Quddusi, Kazi S.M. Khasrul Alam. 2006 "E-governance for Good governance". August 18. The New Nation. Editorial Page. [Available at http://nation.ittefaq.com/artmanlpublish/article_30056.shtmIJ Quddusi, Kazi S.M. Khasrul Alam. 2006 "E-governance for Good governance". August 18. The NeNation Editorial Page. [Available at http://nation.ittefaq.comlartmanlpublish/article_30056.shtmIJ
212
E-Governance
In the current literature, most definitions of e-governance are loaded with its advantageous or virtuous connotations. For example, e-governance is considered a system of governance that represents 'good governance', that works better and costs less, that enhances accountability and responsiveness, that promotes civil society, and that is moral and transparent. E-Governance should be seen - as elaborated by Heeks - to encompass all ICTs, but the key innovation is computer networks - from intranets to the Internet - creating a wealth of new digital connections between 356 : ~
Government and Governments - permitting 'joined-up thinking'.
~
Government and NGOs/citizens - strengthening accountability.
~
Government and business/citizens - transforming service delivery.
~
Community and communities - building social and economic development.
Widespread global acceptance of electronic governance bears testimony to the observation that e-governance has rocked the governing systems in the world to a degree. As a matter of fact, it has revolutionized the systems of government service delivery and the developed States have made strides in adopting this technology driven mechanism. Countries such as USA, UK, Canada, France and such other economically dominant ones are about to have e-governance in a full fledged manner. Many other countries are in hot pursuit. In New Zealand, the future of e-governance is an exciting prospect. By 2010, if the government is to transform its operations through the Internet then this will mean that policy development, service design and delivery, democratic and political processes will have to undergo significant changes since e-governance facilitates greater participation in government leading to good governance. Keeping this in view, during the policy development there has already been a gradual increase in the use of the Internet to invite input, while concurrent with the expected increase in levels of participation, will be the emergence of more demand-oriented initiatives. The delivery of linked services is being considerably seen as one of the more important initiatives in this transformation. Consequently, a member of the public would thus be able to accomplish a variety of different interactions with multiple government departments in one online transaction. Turning now to the situation in Australia in terms of the take-up of e-governance, Australian governments at all levels have assiduously taken up e-governance initiatives offered by modern information technology developments. As early as the mid 1990s, most governments in Australia had formal policies promoting the provision of online information services by their respective agencies. In the Australian federal government, the broad wholeof-government framework for managing the provision of government services online has been guided since 2002 by the government's Better Services Better Governmen(J57 strategy. Under this broad umbrella, a number of dependent strategies have been developed to facilitate 356
Ibid.
357
Better Services Better Government. 2002. National Office for the Information Economy. Canberra, p.4
A Summing Up
213
and regulate the practical implementations that government agencies have had to put in place. These include the Technical Interoperability FrameworJi358 that prescribes standards for government-to-government interoperability, and the e-Permanence suite of standards and guidelines issued by the National Archives of Australia 359 since 2000, that provides guidance to agencies on meeting their legal responsibilities, managing risks, and adding value to their processes through good recordkeeping practices. These frameworks, although initiated in the 1990s, are being continually updated and made more practically implementable for agencies, by providing tools and best practice guides. The Demand and Value Assessment methodology developed in 2004 by the Australian Government Information Management Office to assist agencies with the evaluation of proposals for the provision of e-government services includes specific guidance on addressing the e-governance issues that are presented by online services. The methodology defines governance issues to include: )0>
increased community participation in democratic processes;
)0>
increased transparency of government processes; and
)0>
increased accountability.
Obviously not all of these relate to every service of government. In most life-events it is the second two - transparency of processes and accountability - that matter most to most users of the services. In UK, e-governance has touched the grass root level, depicting a true picture of participation from rural Britishers. Empowerment of vulnerable sections of the society through the application of ICT is the real good governance. In many developed countries ICT are being used for political processes, leading to e-democracy. In Canada, New Zealand, USA, Australia and even developing countries like Brazil are using ICT for their voting processes. The logic is that e-democracy aims to strengthen the existing democracy and democratic environment is a necessity for sustenance of good governance. The e-democracy has been originated in American context, but has been expanded to many countries, contributing to the growth of democratic values. Australia e-democracy believes in innovative ways to enhance citizen participation in online public services. To strengthen the partiCipative democracy, Queensland Government has explored many opportunities of e-democracy. The convergence of traditional democratic processes and ICT gave new dimensions of democracy, which can be judged from 'Gulf Savannah e-democracy project', Queensland, Australia. The project was implemented in far north of Queensland in 2002-03. The product is aimed to create an e-democracy forum, where Gulf residents an engage themselves with the government, thus bringing social, cultural, and economic benefits to the wide remote community having 10,000 population 360 • Developing countries are not lagging far behind given their 358 359
http://www.agimo.gov.aulpublicationsl2005/04/agtifv2#Australian20Technical20Framework. http://www.naa.gov.aulrecordkeepingioverviewlsummary.html
360
Sutcliffe, K. 2006. "Gulf Savannah e-Democracy Project (Queensland, Australia)". [Available at http://unpan1.un.orgl intradoclgroupsipublicldocumentsiOtherlUNPAN024461.pdfj
214
E-Governance
capacity. Bangladesh, too, has taken positives steps in this direction. Though Bangladesh has many other problems of overriding importance, its journey has started with due emphasis on e-governance at the State level. But making the facilities of e-governance accessible to all strata of people remains a critical problem for Bangladesh because the State is ill equipped to make it happen sooner rather than later. The Chinese government has actively encouraged and invested in the growth of the Internet to capture the technologies of vast commercial potential, while exerting State control. Even before the country was fully connected to the global "network of networks," China began to implement programs that would facilitate e-government. Several studies have found that broad e-governance, e-knowledge, and e-service functions were implemented at sites of national, costal, and inland government units. Generally, national and costal sites were more sophisticated, but inland sites seemed designed to meet the specific needs of government, citizens, and businesses in inland areas. The coding form and method designed for analyzing these sites holds promise for future researchers and the findings suggest that China may have begun to achieve its goals of facilitating government functions via the Internet361 • In spite of non-existence of democracy, China is marching ahead towards good governance through e-governance. The series of 'Golden Projects' in China signifies the level of governmental participation in making a modern developed China. E-procurement system of Mexico, Philippines, Bulgaria and Chile and Income Tax online in Mexico, Singapore, Jordan, and Brazil are notable e-governance initiatives of developing countries having wide recognition. The European Union (EU) and China recently joined hands to give effect to the EUR15.7mn (US$18.82mn) EU-China Information Society Project to enable China better its existing e-Government services and provide greater access to people 362 • Aiming to boost e-Commerce and e-Government transactions in the countryside, the League of Municipalities of the Philippines (LMP) and a Canadian based company recently launched the e-Community, a cashless electronic card system. The project is expected to significantly improve the delivery of social and economic services in all the towns across the country. The Rural Bankers Association of the Philippines (RBAP) has also entered into a tieup with the LMP for the e-Commerce project. As part of its strategy to streamline public services, the local government of Makati City in the Philippine has started an online real property tax payment in 2007. Pilot tested in 2003, the electronic system would considerably cut down the processing of property tax payment from one day to just four minutes363• Dubai Customs recently disclosed that a record number of transactions were processed in 2005 by e-Mirsal, its total compliance e-Management strategy. In 03 (2005), some 4,857,000 bills were processed electronically as compared to 3,047,000 during the same period in 2004. E-Mirsal, which forms the core foundation of the e-Clearance solution, was developed and integrated into Dubai Customs' business processes in 2002 for streamlining trade facilitation and digitising customs procedures for effective administrative functioning. The e-Clearance
361
Zhou, x. 2004. "E-Government in China: A Content AnalYSis of National and Provincial Websites". Joumalof Computer-Mediated Communication. 9 (4). [Available at http://jcmc.indiana.edulvoI9/issue4/zhou.htm~
362
e-Gov. 2006. Vol. II. Issue. 2. February. [Available at http://www.egovonline.netlpdflfeb06.pcJfJ
363
Ibid.
A Summing Up
215
facility, which is operational 24 hours, can be accessed from www.dubaitrade.ae. The system is considered beneficial for shipping and clearing companies and free zone licensees 364 • In order to encourage customers to pay taxes through the banks on or before deadlines, the Zimbabwe Revenue Authority (Zimra) recently launched the direct banking initiative known as e-Taxation. Now, under this cost-effective e-Taxation system, the clients would not be required to physically visit Zimra offices for tax payments. As such, once the payments are done Zimra would make an electronic transfer to its Reserve Bank account through the Zimbabwe Electronic Transfer and Settlement System. Zimra as confirmation of payment would then send receipts to the customers 365 • India has created a separate place for her in the realm of e-governance. The aim is obviously good governance. The good governance is never new for India. Traces of it can be collected from the ancient period. In modern times, several attempts are being undertaken to provide good governance to the people. In this regard, e-governance can be visualized as a tool for achieving the ultimate end. The Government of India has planned a national level initiative National e- governance Plan (NeGP) for increased transparency, efficiency and effectiveness for delivery of citizen services. The nature and scale of e-governance initiatives thus planned would supposedly reflect the aspiration level of the government in progressing towards a truly welfare State. Each State is unique in terms of requirement and application and objectives that it wants to achieve by implementing an e-governance project. However, there is one common objective which all States would like to achieve is 'empowerment' of common citizen. Significantly enough, this is equally paramount for the all concerned. India is a rural country with 80% population residing in rural areas, and any initiative in launching "e-Governance' should target and aim at total coverage of States so that all the citizens can have equal and fair access to the applications falling under aegis of such a initiative366 • Besides the Government of India, many State Governments have taken visionary steps for digitalizing the government. E-procurement, e-choupal, Gyandoot, e-seva, FRIENDS, Lokavani, Sarita etc. are some of the successful e-governance initiatives taken by the State Governments. Gujarat has become the first State in the country to link up two central jails and five district jails with the courts through video conferencing, a latest initiative in e-governance 367 • In order to enable citizens get their numerous official work done more easily, the Haryana Government has established e-disha centres in the districts at sub-division and block level in a phased manner, with the first one coming up in Rohtak district. An IT-driven electronic interface between the government and the citizens, e-disha centres would be providing services such as preparing driving licences; passport application acceptance; giving 'nakai' or 'jamabandi' for district headquarter Tehsil; certificates relating to domicile, income; SC, aBC and handicapped status etc368 • Promotion of e-governance in Jharkhand is relatively on a fast track. To further 364
e-Gov. 2006. Vol. II. Issue. 2. February. [Available at http://www.egovonline.net/pdflfeb06.pd~
365
Ibid.
366
eGov. 2006. Vol. II. Issue. 2. February. [Available at http://www.egovonline.net/pdflfeb06.pd~
367
Ibid.
368
Ibid.
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E-Governance
the cause of e-governance in the State, a computerised employment exchange and a commercial tax office has been inaugurated at Ranchi. It may be noted that under the e-Governance plan in Jharkhand Statewide information and communication network called 'JharNet' would be established for providing a voice and high-band data width connectivity among all offices of the State government from its headquarters down to the panchayat level -by 2007 369 • To offset the shortage of stamp papers, the Government of India is actively contemplating introducing countrywide e-Stamping (electronic stamping) facility and have asked the States to adopt this. A concept paper on e-stamping has been prepared by the Stock Holding Corporation of India. Payments - in the case of e-stamping - can be done through banks or credit cards. The proof of payment can be attached to the document. Details are still being worked out, even as many States have indicated their willingness to adopt e-Stamping at a meeting convened by the centre recently. The MCA21 project is the flagship e-governance initiative of the Ministry of Corporate Affairs (MCA), Government of India. Envisioned to provide anytime and anywhere services to businesses, MCA21 project was the first mission mode e-governance project implemented in the country. The MCA 21 project was initially launched on pilot basis at Coimbatore on 18th February, 2006 and then at Puducherry, and Ernakullum. The project was launched at Delhi on 18th March, 2006. It became operational at all 20 Registrar of Companies (RoC) offices by the end of July, 2006, and 48 Registrar Front Offices have been established across India to facilitate filing for the stakeholders. All services of the RoC offices, Regional Directorate offices and Ministry of Corporate Affairs are now available online through the www.mca.gov.in portal. The portal gets an average of 3.5 million hits a day, making it one of the most popular government portals. The e-Filing of all documents, using digital signatures of authorised representatives of the companies was mandated under law with effect from September 16, 2006. The MCA21 has led to automation of processes related to the proactive enforcement and compliance of the legal requirements under the Companies Act, 1956. The project has both the virtual and physical front office. The physical front office is a replacement to the existing RoC counters. The user can avail the following services on MCA21 portal: e-Filing, viewing public document, requesting certified copies, registering investor complaint, tracking transaction status. National Institute of Smart Government (NISG) has been entrusted with the responsibility of implementing the MCA21 project. TCS has been selected as the implementation partner for the end-to-end implementation on a build-own-operate-transfer (BOOT) model till 201237 This is really praise worthy initiative by the government. Government of Madhya Pradesh in the last two to three years has implemented several e-governance projects. State's IT policy emphasizes induction of IT in all walks of government functioning with focus on masses and aims to leverage IT for transparency and better governance. 'Krishinet' project is developed for strengthening/promotion of ICT at the State, District, Agricultural Block and grass root level and departments for faster information exchange/dissemination. As part of its e-governance plan for State of Madhya Pradesh and as an effort to standardize the
°.
369 370
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procurement process, the State Government decided to implement an Electronic Tendering solution for use by all its departments/PSUs and authorized Madhya Pradesh Agency for Information Technology (MAP_IT) to select a suitable service provider for the implementation. The "e-PROOFS' (Electronic Processing of Firms and Societies) for Registrar, Firms and Societies, M.P., Bhopal deals with the computerization of the Registration process and other a'Ctivities of Societies and Firms at the Registrar's office, M.P. Watersoft (PHEMIS) is a Webbased solution for effective management of Water Resources, Schemes/Programmes (Rural/ Urban Water Supply Schemes), Equipment Information, Water Quality, Contractor Information, Material and Stores, Total Sanitation Campaign, Finance and Works Accounting 371 . In the coming days, the list of e-governance initiatives may be endless. Punjab was the first State to implement the national e-Governance plan under National common service centers (NCSC). The e-Governance initiatives of the Punjab IT Policy (2001) focused upon creating efficient and cost effective government by improving the internal processes of the government through administrative reforms, process re-engineering, modernisation and deployment of IT for an efficient, productive, objective and accountable governmenP72. Further, the authors have a done a profound study regarding e-governance initiatives in Orissa. The aim of the study is obviously to draw the performances of Orissa towards achieving good governance through e-governance. In ancient times, Orissa was prosperous enough. The trading communities of Orissa had vibrant trade relationship with far eastern countries. Orissa has a history spanning a period of over 2000 years. The history of Orissa is in many ways atypical from that of the northern plains and many of the common generalizations that are made about Indian history do not seem to apply to the Oriya region. The word Oriya is an anglicised version of Odia which itself is a modern name for the Odra or Udra tribes that inhabited the central belt of modern Orissa. Orissa has also been the home of the Kalinga and Utkal tribes that played a particularly prominent role in the region's history, and one of the earliest references to the ,ancient Kalingas appears in the writings of Vedic chroniclers. In ancient times evidences tell that people of Orissa were quite happy, but the State Orissa has faced many unpleasant situations during the medieval period. In 1803, the British under the British East India Company occupied Orissa after the Second Anglo-Maratha War. In 1823, Orissa was divided into the three districts of Cuttack, Balasore and Puri, and a number of native tributary States. Orissa was administered as part of the Bengal Presidency. Following famine a~d floods in 1866, large scale irrigation projects were undertaken in the last half of the 19th century. The coastal section was separated from Bengal and made into the Province of Bihar and Orissa in 1912, in response to local agitation for a separate State for Oriya-speaking peoples. 111 1936, Bihar and Orissa were split into separate provinces. Following Indian independence, the area of Orissa was almost doubled and the population was increased by a third by the addition of 30 former princely States. In 1950, Orissa became a constituent State in the Union of India373. 371 372
http://www.egovonline.netlarticleslarticle-details.asp ?articleid= 1531andtyp=FOCUS http://www.egovonline.netlarticles/article-details.asp?articleid= 1426andtyp=FOCUS
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Orissa is notable as one of the first Indian States to have tackled its structural problems during the post 1994 Indian economic reforms. Orissa was the first State in India to begin to privatise its electricity transmission and distribution businesses. Recently, the number of companies who have signed Memoranda of Understanding (MoUs) to set up steel plants in the State has gone upto 50, including Posco of South Korea which has agreed to construct a mammoth $12 billion steel plant near Paradip port. It would be the largest single investment in India's history. Arcelor-Mittal has also announced plans to invest in another mega steel project amounting to $10 billion. Russian major Magnitogorsk Iron and Steel Company (MMK) plans to set up a 10 MT steel plant in Orissa too. The State is attracting an unprecedented amount of investment in aluminum, coal-based power plants, petrochemicals, and information technology as well. In power generation, Reliance Industries (Anil Ambani Group) is putting up the world's largest power plant with an investment of US $13 billion at Hirma in Jharsuguda district. Vedanta Resources' 1.4 million tonne alumina project in Kalahandi district is the largest investment in aluminium. Vedanta has also announced a $ 3.2 billion dollar huge private University project on the lines of the Ivy League Universities, which is unprecedented in the history of education in India. The Central Government has agreed to accord SEZ (Special Economic Zone) status to eight sites in Orissa among which are Infocity at Bhubaneswar and Paradip374. It is interesting to note that, Orissa has a population of 32 million having 87% rural population. In spite of the above mentioned economic developmental programs and God gifted natural resources, it is one of the poorest States of the country. Can a society with massive poverty is an indicator for good governance? In this regard e-governance in the State has been engineered to bring development in the delivery of services to the citizens, so that it would reach vulnerable sections of the society, and arresting poverty, corruption etc. Good Governance requires an accountable and transparent society, where people can live happily and e-governance in Orissa caters to those needs. The best e-governance initiative in Orissa has been adopted by the Panchayati Raj Department. The rural development programmes in India are executed and monitored by the 3-tier Panchayati Raj Institutions (PRls). The objective of these rural development programmes can be achieved only if the execution and monitoring can be done in more effective manner, which is possible only through the use of ICT. In retrospect, the Ministry of Panchayati Raj, Government of India, recommended the use of ICT in PRls during its 7th Round Table Conference in 2004. Accordingly, the Government of Orissa has taken this as a mission mode project and implemented some e-governance applications for transparent and effective management of PRls. The project includes applications like Priasoftthat monitors financial position of PRls; Ruralsoftthat gives the picture of physical progress of projects implemented at the village level; PAMIS that keeps track of day-to-day financial transaction with cashbook generation; and, BETAN that is implemented to prepare the salary. Gandhi has envisioned that, every village ought to be a republic ... with the authority_ and resources to realise the potential for economic and social development of the village, for a vibrant democracy in India. This vision of Mahatma Gandhi 374
http://en. wikipedia. org/wikilOrissa
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was ultimately realised through the Constitutional amendment of Article 243G of Part IX of the Indian Constitution during the tenure of the then Primer Minister Rajiv Gandhi, which empowers the Panchayati Raj Institutions (PRls) to function as "Institutions of self-governmenf' to plan and implement programmes of economic and social justice. Strengthening of Panchayati Raj Institutions (PRls) is a must if the fruits of development are to be truly reached to the rural poor. Undoubtedly, the effective and wide usage of ICT has brought about a major turnaround in the rural context too thus bringing the Mahatma's dream to near fruition in bettering the lot of the rural populace further. As such, through the application of e-governance applications like Priasoft, Ruralsoft, PAMIS and BETAN, the Government of Orissa has taken a step forward in successfully implementing these e-governance applications for transparent and effective management of PRls with an avowed objective to propel the State towards good governance. The Panchayati Raj department, Government of Orissa, has successfully implemented the ICT-based applications as a part of e-Governance initiative in the State. The Panchayati Raj Institution Accounts Monitoring Software or PriaSoft is a web-based e-governance application designed and developed by National Informatics Centre (NIC) for the purpose of monitoring of funds at 3-tier PRls under different account heads in the shape of P. L. Account (not in Village Panchayat), Bank, Cash and advance on a month-end basis. It also contains the database of all Self-Help Groups (SHGs) created under different key activity besides monitoring the financial health of each SHG in the shape of different savings, advance and stock position. PriaSoftempowers the administrators to monitor the fund receipt, expenditure and availability at all levels of three-tier administrative set up of PRI. It generates a number of reports and has a module that gives the data entry status. The PriaSoft architecture has two modules namely Citizen Section (G2C) and Government section (G2G). Citizen section provides financial information to the public whereas Government section captures data and generates MIS reports in the specified format as per requirement at the State, district, block and GP level. The account is maintained under three layers of account heads - Major account, Sub account and Minor account for all 3-tier PRls namely District Panchayat, Block Panchayat and Village Panchayat. The Major account head covers all the rural development schemes. Orissa is the first and perhaps the only State in the country where this information is available in the Public domain over the Internet. Under the Government domain, each PRI has been given a user ID and password. Major account heads are created at the State level. The software has an analytic module, and provides the facility to monitor the data entry status at the next higher levels. State user has the privilege to monitor all three layers, district user can monitor two layers below it within its domain and the block user has the permission for GP layer within the block. The report module generates reports on different parameters. The reports are designed as per the need of State, district, block and Gram Panchayat levels. The SHG Module provides financial status of SHGs, and also gives the bank wise loan position under different key activities. RuralSoft is a web-based e-governance application designed and developed by the NIC for monitoring the physical progress of the rural development projects being implemented at the village level. The RuralSoft architecture has two modules namely Citizen Section (G2C) and Government section (G2G). Citizen section
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provides physical status of rural development projects implemented at the village level whereas Government section captures data and generates MIS reports in the specified format as per the need at the State, district, block and GP level. The rural development projects are implemented by all the 3-tier of PRls. The details of projects are captured from all three levels in the prescribed format that includes Name of the Scheme from where money has been sanctioned (SGRY/IAY/MPLAD/MPALAD etc.); Name ofthe project; Description of the project; Location of the project; Amount sanctioned; Date of commencement; Man-days generation; Status of the project; Date of completion; and Sanctioned financial year. Besides, it has also the provision of capturing the information from DRDAs in the format prescribed by the Government of India for Monthly Progress Report (MPR) for schemes like lAY, SGRY, SGSY and NFFW. Panchayat Accounts Monitoring Information System or PAMIS is a web-based as well as desktop application developed by Xavier Institute of Management, Bhubaneshwar (XIMB) for the Panchayati Raj Department. PAMIS is capable of capturing each transaction of DRDAs/Blocks, and is based on double entry system wherein daily transactions can be entered. Cash Book as well as Journals can be generated through the package. The package has been implemented to standardize the accounting system of all the DRDAs and the Blocks to save delay and better transparency. The package is being used in 30 ORDAs and 314 Blocks. BETAN is an integrated Pay Roll package developed by OCAC (Orissa Computer Application Centre, Bhubaneshwar) for the Department. The objective is to save time and manpower in preparing the repetitive Pay Bills, have a standard format for all the employees of DRDAs and Block level officials. The package is being currently used in 30 DRDAs and 314 Blocks. Data Web Hosting Information can now be accessed regarding villages with demographic details, which are now Panchayat compliant. Gram Chahatpackage is being developed to enlist prospective job seekers available at the village level. Besides, other departments are being encouraged to use INDIA village database to ensure wide dissemination of information to the public for better transparency and accountability. All the 30 DRDAs and 314 Blocks have been connected over VSAT connectivity. All the DRDAs and Blocks have been provided with email accounts for mail transactions. Interactive Training Programmes over GRAMSAT were conducted for sorting out the difficulties at the DRDA and Block level. Panchayati Raj Department Portal (http://orissagov.nic.in/panchayat/default.asp) has been hosted by the Government of Orissa, and contains links to all major government sites besides all information related to PRI act, rules, elected members list etc. The Panchayati Raj Department in the State has also hosted the DRDA Portal (http://ori.nic.in/drdaportal) using e-NRICH developed by the NIC for creating a standard portal for all the ORDAs of Orissa. e-NRICH has the feature of remote content management. The Ministry of Panchayati Raj:~ Government of India, has hosted National Panchayat Portal or NPP (http:// panchayat.nic.in) using e-NRICH developed by the NIC for creating portals for all the 3-tier PRls, with remote content management feature. Orissa is the first and perhaps the only State in the country to upload information on this portal. All these however could be achieved through consistent hard work and a willingness to achieve after undergoing the resultant pain. It is now a widely acknowledged fact that rural prosperity and sustained growth can only
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be achieved through land reform and decentralisation. As such, the advent of ICT has truly changed the roles people and PRls are playing in Orissa. The rural populace cannot merely achieve prosperity just only because of the mandatory 100 days of wage employment to 74 lakh rural household who are at bottom of pyramid with minimum wage under NREG Act 2005, but the use of ICT has a lot more to do with it375 • Another major e-governance initiative is e-Sahayatawhich has been implemented through National Informatics Centre (NIC)'s Orissa State Unit. It is an integrated single-window based information and service delivery system to offer various public related information and services. The information to be offered includes the information about the ongoing public-oriented projects and the information need to be provided under the Rights to Information Act. The services include all common services offered to the public by various departments of the government. In addition, e-Sahayata also includes computerisation of related government processes, grievance/complaint redressal, and government office procedure automation under its scope. The objective of e-Sahayata is to primarily provide all the required information and services to citizens through e-Sahayata centres located throughout the State. It also aims to cater to the needs of the government machinery by handling the office and inter-office automation needs. e-Sahayata Information Kiosk is an integrated e-platform through which rural and urban population of the State can get desired information by means of Touch Screen kiosks suitably placed at State, district, sub-division, block and other loc-ions. e-Sahayata information would also be made available on the Internet so that public could also access the information from any cyber cafe or computer having access to Internet. The kiosk would also provide information on guidelines for obtaining-any e-Sahayata related service, services related information and application status. The information being currently provided through the kiosks include rural Below Poverty line (BPL) list, land records information (ROR, Homestead Land), Census 2001, DRDA projects and programmes (Indira Awas VOjna, Sampoorna Gramina Rojgar Vojana, Swarna Jayanti Gramya Swarojgar Vojna, and National Food for Work Programme), MPLAD/MLA LAD, Social Welfare schemes (Old Age Pension, SOAP, NOAP, ODP, NFBS), Children'S welfare (Orphanage, ICDS, Mid-day Meal), Women's welfare (Mission Shakti, Short stay home, Working women's hostel, Family counselling, Swadhar shelter home), Civil supplies (Antodaya Anna Vojana, Annapurna, list of Retailers/PDS Centres), Education (SSA Works, High Schools, Ashram Schools), ITDA, and Rural Water Supply and Sanitation (Tube wells). The e-Sahayata service counter is a one-stop, citizen friendly computerised service delivery counter to provide a wide range of services under one roof so that the citizens do not have to run around various departments for obtaining various services. The list of services, their specified delivery time and the documents and fees to be submitted is displayed at the service counter for public intimation. The objective of Janavani, a public grievance redressal initiative is to provide an Internet based Grievance Redressal and Information interface for the citizens. Janavani aims to capitalise on the emerging Information and Communication Technology
375
Tripathy, S. N. and Mishra, B. P. 2006. "e-Panchayati Raj in Orissa: Successfully Strengthening PRls through ICT". March. eGov.
[Available athttp://www.egovonline.netlarticles/article-detai/s.asp?articleid=578andtyp=Regional%20FocusJ
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(ICT) framework to provide efficient, effective, accountable, responsive and transparent grievance redressal system to the public. Janavani is a pioneering attempt to usher in the era of e-governance in the various districts of Orissa 376 • Orissa Telemedicine Application Network has been set up to connect Sanjay Gandhi Post Graduate Institute of Medical Sciences (SGPGIMS), Lucknow, with three Medical Colleges in the State enabling remote delivery of healthcare. The Orissa Computer Application Centre (OCAC) - an agency of the State Government, is implementing a scheme that seeks to provide computer-based training in 400 high schools in 30 districts across the State. The project entails an investment of Rs 12.90 crores (US$2.91 mn). The State Government has already obtained approval from Government of India for State Wide Area Network (SWAN). From the Secretariat to the Districts, 2 Mbps Data Link has been established, and connectivity to the Sub-Divisions, Blocks and Tehsils will be provided in partnership with BSNL (with OFC backbone). The ultimate aim is to provide connectivity upto the grassroots levels at the earliest. The Government would be setting up Information Kiosks throughout the State, particularly in the Urban and Semi-Urban areas through Self-Employment Mode targeted at the unemployed youth. A variety of services would be offered by the Kiosks such as e-mail, Internet browsing, computer education, photography, DTP work, display of movies through CDs, and PCOs. The Ministry of Information Technology (IT), Government of India (Gol), has set up a Resource Center at OCAC and Utkal University for technology development in Indian Language for development and promotion of Oriya Language based tools and application under the aegis of Bhasa Project. Word Processor, Spell Check, Thesaurus, OCR, Bilingual Chart and E-Mail Application in Oriya have already been developed. Webbased Bilingual English to Oriya e-Dictionary, Oriya World Net Software for Language Query and Trilingual Word Processor (English-Oriya-Hindi) have also been developed. The Department of Transport has taken up the Integrated Transport Management Information System (ITMIS) in order to streamline the issue and renewal of Driving License, Registration of Motor Vehicles, Issue and Renewal of Permits, Collection of Motor Vehicle Taxes etc. Issue of Computerised Driving License has been started from RTO, Bhubaneswar. Supervision and control of the RTO offices and border check gates and issue and renewal of permits for passenger and goods vehicles are being computerised and automated. The department plans to introduce smart cards for license and registration certificates, modernise check gates with e-connectivity and create consolidated data bank. Under the aegis of Department of Education, the data capturing of around 70 lakh children has been completed. A database is being developed through ICR (Intelligent Character Recognition) for all the children. VSAT and computer servers are being installed at all District Offices of OPEPA and its HO to have 376
Panda, S. K. 2006. "e-Sahayata Delivering efficient information and service for citizens". November. eGov. [Available at http://www.egovonline.neVarticles/article-details.asp?articleid=867andtyp=Regional%20Focusl
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a Web -based Application to avail online information throughout the State. The State of Orissa was among the "Average Achievers" States in India in terms of its e-Readiness in 2004. However, it is important to note that Orissa has moved from "Below Average Achievers" in 2003 to "Average Achievers" in just one year, and to continue progress in this specific area the State Government has framed the Information Technology Policy in 2004 through which it aims to develop a well planned, robust and futuristic IT architecture in the State. The authors have taken an interactive study with the beneficiaries of e-governance in two adopted bocks. Most of respondents are illiterate, but their opinion has provided the researcher to conclude, whether e-governance in the State has contributed to good governance or not. The successf'll e-governance projects as implemented particularly in Department of Panchayat Raj have targeted the rural people. The beneficiaries are also poor people, which corroborate that; e-governance wants to bring a paradigm change in the face of rural Orissa. Though all respondents are not happy, but majority of them seems to be happy with the delivery of services by the government through electronic means. One interesting fact has been drawn through such interaction is that, though people are enjoying the leT led benefits, but the beneficiaries don't know that, these are e-governance initiatives. They are simply insisting that, it is the duty of the government to provide better services, irrespective of any means. They know computer, and e-governance to them is computerization of the governance system. Though evidences support that, e-governance reduces corruption in administration, by reducing red tapism and maintaining accountability, still the respondents opine that corruption prevails in the delivery of government services. This has really put the authors in an awkward position. But when the respondents are asked to compare the level of corruption between leT enabled service delivery and pre- leT enabled service delivery, they vehemently opine that the current system is rather less corrupt. Hence, it can be safely assumed that, e-governance reduces corruption, but does not eradicate. There is no ambiguity about the easiness of delivery of services with the help of leT. The provision of e-shishu, BHULEKH have provided enough support to it. As pointed out earlier, may not be all, but majority are happy with the current leT enabled service delivery provisions. Hence, naturally it can be concluded that people are satisfied with the technology based administration. Almost all respondents have viewed that the technology based governance system has nothing to do with crimes, as it has been going on as usual like before. The respondents reveal that, now-a-days when they are going to any government office, they see computers on many tables, which was not earlier. They believe that government has supplied these computers to the offices, but in most cases the computers are covered with dusts. The behaviour of the administrators has not been changed at all. Hence, it can be concluded that e-governance has not changed the mindset of the administrators till now. Most beneficiaries want participation if opportunity is given, which may bring more success to the e-governance system. As the villagers are afflicted with the problems of social ills like communalism, casteism etc., they are quite vociferous about the fact that the technology enabled administration can not solve these issues. Good governance is a value loaded term, and it entails a number of parameters and e-governance can not be a solution to all, but it can contribute the process of good governance.
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Moreover, it is to be noted that out of 12 hypotheses taken nine are significant on the basis of interactive study of hundred number of random respondent through the use of schedule only. Hence, the authors are limited in not using questtainer and survey method for overall data anlysis. Only the authors are limited to test the hypotheses by a statistical technique - Chi Square Test, put earlier in this thesis.
A Final Word At the end of the interactive study, the authors conclude that no doubt e-governance is doing well in the State on the path to good governance. But it is wrong to assume that e-governance is a one capsule remedy for all governmental maladies. Further, one must agree with the suggestions of Sameer Sachdeva that from e-Governance 'i-Gov', i.e., Integrated Government shold be evolved.ln short, to reiterate, for this twenty five steps are pointed out towards successful e-Governance (Sachdeva).They are: ~
Understanding Governance
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Definition of Vision and Strategic Objectives
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Formulation of e-Governance Roadmap
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Leadership for e-Governance
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Institutional Framework for e-Governance
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Government Process Re-engineering
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Legal Reforms
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Human Capacity Building
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Cost Benefit Analysis
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Sustainable Business Model
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Service Delivery Paradigm
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Collaboration for e-Governance
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e-Content
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Building National Information Infrastructure
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e-Governance Technology Architecture
A Summing Up ~
Privacy and Security
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People's Participation/Civic Engagement
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Universal Accessibility
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Awareness and Communication Strategy
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e-Governance Program Management
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e-Governance Application Development
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Change Management in Government
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Evaluating e-Governance Projects
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Continuous Feedback
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The current system of e-governance can also be developed further, for maximum citizens' happiness. The education level with special reference to basic computer is very low. Hence, government must have to undertake some programs imparting free computer training to the masses. It may be a burden on governmental treasury. Hence, budgetary allocation needs to be hiked. The government should keep in mind that, it is an investment, which can bring dramatic result in the future. Proper education would eradicate the notion that e-governance means just computerization of governance system. The administrators should be trained properly with emphasis on attitudinal reform. Most people still look down upon the officers due to the wrong behaviour of the officers. More e-governance initiatives must be chalked out; so that product depth and width would be enlarged covering a vast number of people, and providing multiple services to a single person at a time. For technology upgradation and good infrastructure, the State should resort to public-private partnership models. The delivery of internet-based public services may also require the realignment and modernisation of the organisational structures which deliver public services. This will be possible after collaborative e-enabling of department becomes a reality and there is a fully transaction oriented government portal complete with databases and payment gateways and information. Some of the sectoral pilot initiatives have already been identified and must be implemented sooner the better. E-Tooling and Shared Service Database Including Citizen Database (ECSSD) is to be started as an inter-departmental collaborative initiative and to be anchored by Department of General Administration. A MIS for Anti-Corruption System is the need of the hour to have a cross-departmental database from sales tax, income tax, registration, etc. for tracking the high value defaulters. From a highly centralized and secretive bureaucracy, public administration and service delivery need to be brought closer to the people, made more transparent and accountable to them. From a large sized and perceptibly inefficient system,
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the civil service needs to transform itself into a trim and efficient, honest and dedicated army of public servants who are fired with the passion for social development and poverty reduction. It needs to develop over time into a modern system that makes effective use of the latest information technology. To improve productivity by allowing public sector managers greater freedom and discretion in managing their staff, to enhance meritocracy by strengthening the process of performance monitoring and evaluation and, finally to improve the quality and skills of the workforce, following steps are to be undertaken for improving human resource development. It is necessary to establish a computerized human resource management system shareable by departments, establishment offices and field offices, so that Government of Orissa can immediately produce accurate and timely information on the size and composition of the civil service. Constant up-gradation of knowledge, skills and attitude of civil servants working at all levels of the government with a focus on the cutting edge level through compulsory induction, in-service e-enablement and specialized training is necessary for greater use of Information Technology including modernization of record keeping. Ninety per cent of work concerning e-governance should be outsourced and government should only manage the Data Centre and maintain it for online application. The Government of Orissa should establish e-governance Commission or empowered Board Establishment of e-Governance GRID. Setting up of the Horizontal GRID across the State government and interconnecting the Horizontal GRID to the Vertical Central GRID would be quite helpful for integrating the State with the centre in a federal set up. It is also necessary to set up e-governance DATA Centre and real time updation of data from various units of the government. To reach at better level of governance, the system should be effective and result oriented. Minimum discretion in policy implementation as well as in service delivery is another essentiality of good governance. To achieve this, it will require high degree of coordination and exchange of information. This coordination would be not only horizontally across the departments, but also should include criss-cross co-ordination model. This will facilitate exchanging as well as making data available to all levels of department seamlessly and also speedily. This can happen when departmental walls as well as protocol and procedures created for pasting and receiving information should be either torn apart or those should be so transparent that co-ordination, exchange of data becomes effortless. Success of e-governance system largely depends on how much integrity is possible among various departments. It is observed that many e-governance initiatives have failed due to lack of integrity. Real benefits of computerization in terms of speed accuracy and volume of service can be achieved only through integration of existing manual or semi manual system. It is frequently assumed that the introduction of more advanced leT reduces opportunities for corruption. The reality is more complex. While ICT does sometimes detect and remove corruption, it can also have no effect, or even provide for new corruption opportunities. Hence, the government should be careful about it. Barriers of language, literacy, and localism can be overcome. Farmers and poor people neither have to learn only from local people, nor do they have to learn in textual form and from those who speak their language. Multimedia technology can help people get closer to each other. Databases of innovations, with the names and addresses of the innovators and communicators, can be kept and shared. Among the many other possibilities,
A Summing Up
227
discussion groups may be set up in the oriya language so that specific innovations or grievances may be taken up for collective improvements in design and scope, given the willingness of innovators as well as their peers to engage in such collaborative learning exercises. Such a system can also be used to provide organized feedback on the quality of government services and investment projects. With the emphasis on good governance, elimination of hurdled service delivery and maintenance of transparency has becoming the order of the day. Good governance is being recognised as an important goal by many. States have taken up specific initiatives for open government. Freedom of information is being redefined and supported by detailed guidelines. The Internet revolution has proved to be a powerful tool for good governance initiatives. An important dimension of the Internet potential is the possibility of providing services any time anywhere. Along with this, there should be a conscious effort to put the citizen as the centre of focus of the governance. Citizens are being perceived as customers and clients. Delivery of services to citizens is considered as a primary function of the government. Particularly the democratic nation of the billion people like India, e-Governance should enable seamless access to information and seamless flow of information across the State and central government in the federal set-up. E-governance is a tool for good governance not an object in itself. So while declaring agenda for e-governance it must be defined what kind of good governance will be achieved through e-governance. In short, role of Ie' is very small or like a catalyst in e-governance policy and 'Governance' has a prime importance. True, e-governance is appropriate technology savvy. Technology is not enough for e-governance. It must be democratized. Simultaneously, attitude of clients to use technology for governance is of prime importance. Necessarily attitudinal change of government and people is the way. To put in other words, with changed attitude of people, technology based e-governance will be a great help in good governance. An e-governance model is appended here for appreciation and clarity (Exibit 7.1) .This is true of India in general as well as Orissa in particular. To bring to a close, it can be said that in cutting age technology e-governance is the vehicle of Good Governance. No doubt the more users friendly and wide based is e-governance; the more sustainable is the good governance. Moreover, in coming days probab!y internent will be changed due to convergence of new technologies and new phenomenon will be created.whether it is internent or new technologies certainly it will provide new opportunities in getting things done in a better and efficient manner. As a matter of fact, it may provide novel solutions to the problems unimagined and unthinkable. And it is true, technology could not alone bring about a change in India. For this, constitutional and administrative changes are necessary to make the Government accountable to the citizen .No doubt e-governance faces challenges. Notwithstanding, ICT infrastructure ( Computing, communication and Internent ) under e-Governance should cofirm to Return on Investment (ROI), improve communication, create e-library and create local employment generation. Unquestionably, e-governance finds a place in India in different operational sectors. To list some are:
228
E-Governance
Judiciary - Supreme Court (Central), High Courts (States), DistricVMunicipal Courts: Defence - Army, Navy, Air force, Border Security, Fire, Industrial Security, Police, Criminal Investigation: Election Commission, Central Election Commission, State Election Commission: Elected Bodies - Parliamentary Affairs (Central), Legislative Affairs (State Governments), Municipal Affairs (City Governments), Local Governments (Districts, Village Governments): Regulatory Authorities - Central Vigilance Commission, Controller and Auditor General of India, Insurance Regulator Banking Regulator, Company Affairs, Electricity Regulator, Telecom Regulator, Environmental Regulator and, Pollution Control, Traffic Control (Motor Vehicle/Ship/Aircraft), Petroleum, Gas Price and Safety Regulator, Food, Drugs and Pharmaceuticals Quality and Price Control Finance and Commerce- Budget, Treasury Planning, Government departments - Accounts/Audit, Income Tax, Road Tax, Vehicle Tax, Commercial Tax (EXCise, Customs, Vat and Service Tax), Property Tax: Education- Higher Education, Primary Education, Sports and Culture Record Keeping - Record Keeping, Census, People Records (Birth/Marriage/ Death), Passport, Land Records, Weather, Climate, Rainwater, Pollution, Disaster, Survey, Mapping, GIS Natural Resources, Mineral Resources, Water Resources - Service Records. - Employment, Salary Administration, Pension, Provident Fund Welfare - Public Distribution System, Social Security, Women, Minorities, PhYSically Challenged Sections: Health Care-Primary Healthcare, Special Healthcare Public Services Water Supply
Post and Telegraph, Telecommunications, Electricity Supply,
Infrastructure - Roads, Railways, Airports, Seaports, Power, Mineral Resources, Steel, Coal: Information and Communication service - President's Office, Prime Minister's Office, Other Central and State Governments' Portals: Miscellaneous - Atomic Energy, Space, Oceanography, and Biotechnology. As a New Technology of control its future application can be extended to more areas like Crime prevention, terrorism control, Law and order, infrastructure development and above
229
A Summing Up
GOVERMENT. The Service Provider
Inputs to Government
Transparency
E-Governance Or Use of ICT
CLIENTS; The End User Citizen/people
<
E-TOOIS)
Features of E-Techono logy
» » » »
Appropriate Democratized Sustainable User- friendly
People's Grievances for Redress: Inputs
Exhibit: 7.1. E-Govemance Model for Good Govemance
230
E-Governance
all policy making and implementations. In this regard, incontrovertibly it can be said 'mobile computing' would be a new tool in coming days. Really, this qualitative mode of governance enhances transparency and democratic values. Further, it ameliorates peoples' participation, decentralization of management, effective decision-making, openness and accessibility. Also it has a magic effect on civil society at large and citizen have high expectations from this innovative technology. Concomitantly, despite its significant advantages, it is also handicapped by privacy issues, lukewarm political support, socio-cultural resistance and democratization of the technology. However, the fact remains that e-governance with low cost and high convenience features it will further e-democracy.
APPENDICES
E-Governance
232
,
Information and Communication Technology (ICT) Policy, 2004 1. Vision The Government of Orissa will strive to develop a well planned, robust and futuristic IT architecture in the State which will bring about positive changes in all walks of life and society, resulting in ease and convenience in transaction, augmenting employment opportunities to the educated youth and ushering higher economic growth in a definite time frame. Government will help IT reach the common citizen so as to narrow down the Digital Divide. Widespread applications of IT would establish a system where the citizens will receive good governance ensuring speed of decisions from a transparent Government through an effective eGovernance System. It will offer a hassle free, business friendly environment to the ICT entrepreneurs by framing an attractive policy package and financial incentives. It will be the endeavour to attract investments from outside into the State. A detailed document on the IT Vision of the State is available at http://www.ocac.in/ITPromotion.
2. Objectives The Policy will provide: ~
Inexpensive access to Information
~
Transparency in governance practice
~
Door step delivery of host of services
~
Increased employment
~
High export turnover and economic growth
3. Agencies ~
State Information Technology Services Board (SITS B) has been constituted to oversee the ICT sector in the State. This is the apex policy making body.
~
Department of Information Technology will be the administrative department in Government of Orissa in the matters of IT, ITES and Communication.
~
Orissa Computer Application Centre (OCAC) has been designated as the Directorate of the Information Technology Department. It will co-ordinate and implement the ICT Policy and power the growth of IT in Government and semi-government sectors.
Appendices ~
233
Software Technology Parks of India (STPI), Bhubaneswar under the Ministry of Information Technology and Communication, Government of India is responsible for promotion of Export Oriented IT Units in the State.
4. STRATEGIES 4.1 E-Governance 4.1.1 E-readiness in Government
Government is convinced that the gap between the rich and the poor, between the more developed and the less developed, between the urban and rural population can be bridged by empowering the less privileged sections of society by providing equality of opportunity to access information and services. To this end, Government procedures in all Departments shall be re-engineered to use the ICT tools for attaining speed, transparency and effectiveness in implementing Government decisions and reaching them to the people. All the Departments and important administrative set-ups of the Government shall be connected to the Secretariat Local Area Network (LAN). Computerisation of District and field level offices of all Departments shall be taken up expeditiously. Departments connected with important public services and utilities shall be automated in their functioning and suitable public interface will be designed to provide the services. 4.1.2 Access to Information
Government information such as various Cabinet Decisions, Forms, Procedures, Programs, Projects, Schemes, Tenders, Quotation Calls, and Notice etc will be displayed in the State Portal for reference and use by the public. Designated Information Officers in individual Departments and offices shall be responsible to provide all information needs to the Government and public. 4.1.3 Citizen Services
Various citizen services such as Payment of Utility Bills like Electricity Bills, Water and Sewerage Bills, Telephone Bills, Holding Tax, Filing CST Returns, Exam Fees for School Final, Exam Fees for JEEs, Filing IT Returns, Registration of birth and death and getting related certificates, getting various permits and licenses, downloading of Forms and Government Orders etc. will be designed to be made available to the public through State Government Portal. These services will be available to the public from the information kiosks.
234
E-Governance
4.2 Human Resource Development 4.2.1 E-Literacy
(i)
All employees in the Government will be trained on different aspects of computer usage and its applications. The existing in-house capacities available with the Information Technology Department will be suitably augmented by outsourcing the service.
(ii)
Recruitment Rules in the Government will be suitably amended to ensure that future appointments in the Government will require a minimum entry level of knowledge on computer applications.
(iii)
Government employees will be permitted to take up courses on skill development in the IT related fields leading to award of Diplomas and Degrees from recognized educational! training institutions. Respective Departments will reimburse course fees paid by the employee after passing qualifying examinations and on production of relevant certificates to the authorities.
(iv)
Computer Centres and Kiosks will be extended to the village level users. Wherever necessary, Village Panchayat offices will be equipped with a community computer and Internet connectivity. The village level users will be trained on various aspects of computer usage such as accessing the Internet, browsing the Government website and availing of e-Services provided by the Government from time to time.
(v)
Use of local language interface in using computers and offering of e-Services through the State Government website will be made available to the users for convenience. Government will provide aides at selected access points to guide citizens with user convenience.
4.2.2 Education and Training
(i)
Computer Education at Schools Starting from the primary school level, all the school children in the State will be covered under computer training program through appropriate initiatives. The existing coverage of 400 schools will be suitably extended in the coming years. English would be in the school curricula from Class-I.
(ii)
Teachers' Training Training will be imparted to all school teachers on computer usage and IT applications and special training will be given to teachers-in-charge of computer education under
Appendices
235
multiple schemes. Regular training programs will be held for the teachers to keep their knowledge base at most current level.
(iii)
Networked Universities and Colleges All Universities and colleges in the State shall be connected through a Wide Area Network and with Internet connectivity. Student related services and facilities such as online education, career counseling, online selections and interviews etc can be made available through this network.
(iv)
Industry Friendly Curriculum Industry friendly curriculum will be devised for all kinds of IT education and training offered by institutions and training houses in the State in consultation with experts drawn from Industry and Academia. EDP will be included in the school and college curricula. This will ensure the compatibility of the young graduates and professionals to the requirement of industry and commerce for getting suitable jobs.
(v)
IT Manpower Planning Manpower is the lifeline for sustenance of IT activities in the State. Therefore, manpower planning for the IT sector shall be done on a continuous basis. Government will keep a tab on the existing capacities available with various technical institutions in the State on IT related subjects.
4.2.3 Capacity Building Senior and middle level officers and executives will undergo necessary training programs organised through IT Department in the areas of their interest and intended applications. This will be organized through OCAC. Services of reputed training organizations in the private sector shall be outsourced to augment the existing capacities with Government. Junior executives and official staff shall be given adequate training on various office automation tools and procedures for use in their day-to-day job.
4.3 Infrastructure Building 4.3.1 More IT Parks will be established at suitable locations in the State, preferably in tier-II townships to disperse the IT development uniformly envisaging local area development. For this, private investments will be encouraged. 4.3.2 Data Centres will be developed at District levels, connecting offices of District Collectorates. Varieties of information and primary data related to the land and people such as income group, health and education status, land holding and usage, soil characteristics,
236
E-Governance
weather reports, rainfall data, agricultural produce, business and commerce, consumption of commodities etc shall be stored in the cor .j-Iuters of these data centres for future reference. Video Conferencing facility will be provided to all District Collectors so that the District Administration and State Secretariat can interact at all times. Vital information of the Government and important establishments may also be stored in a State level Disaster Recovery Centre in OCAC to safeguard them from possible damage or loss in case ot' any natural calamities. 4.3.3 High Speed Data Corridors: All important IT infrastructures such as the State Secretariat, Infocity, Fortune Tower, District Data Centres etc. will be linked through broad band connectivity for sharing common server space wherever necessary. All major Internet Service Providers, National Long Distance Operators and International Long Distance Operators will be encouraged to set up their point of Presence (POP) for providing readily available connectivity to the IT units. 4.3.4 Networking The Secretariat: LAN will be connected to a Statewide Wide Area Network with adequate connectivity through an Optical Fiber Cable back bone at District level and VSAT links at Block level, for information interchange with District and Block Level offices. Video conferencing facilities will be provided between the State and District administration. 4.3.5 Information Kiosks: Four thousand Information Kiosks will be set up through self-employment scheme in suitable urban and semi urban locations in the first phase to offer access to Government information portal and citizen services. Government will provide suitable incentives and free training for this important IT infrastructure in the private sector. A number of e-services targeted for citizens' use will keep these kiosks commercially viable. 4.3.6 City Infrastructure: Adequate civic amenities like high quality accommodation, high-class education, health care facilities, amusement parks, entertainment facilities, public gardens and lawns, playgrounds, swimming pools, food plazas, gymnasiums, auditoriums, mini stadiums, children parks etc shall be created in the State Capital and in tier-II townships. This will create a rich ambience required for the growth and concentration of IT activities. All Government Departments will be obliged to allocate 3% of their Annual Budget under the head 'IT Budget' for procurement of hardware and software and 5% for building up the IT infrastructure by their own initiative or in conjunction with combined budget allocation of two or more Department~. 4.3.7 Communication Infrastructure
(i)
Orissa Statewide Wide Area Network (OSWAN) will be implemented connecting the Secretariat to the District Head Quarters through broad band connectivity and from district to blocks through minimum 64 kbps data link. Additional connectivity to the blocks will be available through a VSAT network.
Appendices
237
(ii)
Government will encourage National Long Distance Operators (NLDOs) for building up a robust fiber optic network in the State connecting District Head Quarters and major towns.
(iii)
Free Right of Way will be granted by IT Department to ISPs and NLDOs for laying of their cables in the State against negotiated/agreed upon band width and allied services to Government for use in the Government Network.
(iv)
Government will encourage private participation for setting up international Fiber Landing Station at Paradip or Gopalpur Port to make connectivity abundantly available.
4.3.8 IT for Health Sector
(a)
Telemedicine facility will be expanded to all hospitals up to the level of Public Health Centres located in the Block level.
(b)
All District hospitals and the Medical Colleges in the State will be connected through a Wide Area Network/Video conferencing Network for information interchange and skill sharing.
4.4 Technology Support 4.4.1 Strategic Alliances with Technology leaders like Microsoft, Oracle, Sun Micro Systems, IBM etc. shall be encouraged in the Government and private sector. Officers of various Government Departments shall be trained with skill levels and domain knowledge related to their responsibilities. 4.4.2 Initiatives will be taken to establish national level institutes in areas like egovernance, e-commerce, networking, multimedia and animation. 4.5 Community Building 4.5.1 Industry Associations Government of Orissa shall interact regularly with industry associations like NASSCOM and CII and various Chambers of Commerce and Industry and Industry Associations for sharing and forming views and opinions. 4.5.2 An IT Think-Tank has been informally constituted with members and participants from local IT industry, Academia and IT users with encouragement from the Government in IT Department. This group meets to discuss on various policy issues and gives advisory feed backs.
238
E-Governance
4.5.3 CIOs' Forum is the formal body of Chief Information Officers of the Departments and Institutions of the State Government, constituting Secretaries/CEO's of Departments and Organisations as members who are the content owners of the State Portal. Secretary, Information Technology Department is the Chairman of the Forum. Information content of Government web pages and their updation are being effected through regular interaction in the Forum.
5. GOVERNMENT INCENTIVES 5.1 Incentives those are available automatically 5.1.1 IT and ITES units are declared as Public Utility Services under the provisions of the Industrial Disputes Act, 1947. They are allowed to work in three shifts as continuous processing units. 5.1.2 ITliTES units are exempted from the clearance and routine inspections of the controlling and regulatory authorities of the State Government such as Labour Commissioner, Director of Employment, State Pollution Control Board, Inspectorate of Factories and Boilers and are eligible for self certification to the Labour, ESI and EPF Authorities under the Provisions of the following Central and State Government Acts -The Factories Act, 1948; Contract Labour (Regulation and Abolition) Act, 1970; Employees' State Insurance Act, 1948; Employment Exchanges (Compulsory Notification of Vacancies) Act, 1959; Industrial Employment (Standing Orders) Act, 1946; Maternity Benefit Act, 1961; Minimum Wages Act, 1948; Payment of Wages Act, 1936; Orissa Shops and Establishments Act, 1946; Equal Remunerations Act, 1976; Employees Provident Fund and Miscellaneous Provision Act, 1952. 5.1.3 All ITIITES industries will be exempted from the payment of Sales Tax for a period of five years from the date of their first billing. 5.1.4 Important IT building infrastructure. such as IT Parks, STPI Complex shall be free from power cuts. 5.1.5 ITliTES units will be exempted from the payment of electricity duty as per the provisions of Industrial Policy of the Government. 5.1.SITIITES units will be exempted from clearance from Electrical Inspector for approving Contract Demand of Load and appliances to be fitted in an IT unit.
Appendices
239
5.2 Incentives that are available on application 5.2.1 Facilitation of leT Industries - A combined application form to obtain clearances would be developed to centralize statutory/non-statutory clearances and time bound clearances with provision of deemed clearances would be created for ICT industries, OCAC will be the nodal agency which will be the single window facilitator. In this regard details will be developed after formulation of Orissa Industries Facilitation Act. 5.2.2 Interest Subsidy on Loans from Financial Institutions/Banks New units in IT/ITES sector will be entitled to interest subsidy @5% per annum for a period of five years from the date of commercial production suLject to a maximum of Rs.20 lakhs, on term loans availed from recognized Financial Institutions/Banks in the same manner available to industrial units under Industrial Policy of Orissa, 2001. 5.2.3 Energy charges at Industrial Tariff for IT/ITES units Electrical energy consumption by IT/ITES units shall be charged at industrial rate subject to approval of OERC. 5.2.4 Stamp duty Exemption No stamp duty will be charged on land allotted by Government to IT/ITES units. 5.2.5 Mega Projects Special package of concessions will be offered to Mega IT Projects involving project cost of Rs.10 Crores and above providing employment opportunities to more than 500 persons within a period of two years. In providing such employment, the low end IT jobs such as data entry operators shall be filled up from local candidates. 5.2.6 Price preference of 10% will be available to local IT units participating in the eGovernance projects of the State Government.
6. ROLE OF OCAC Orissa Computer Application Centre will continue its role as the agency for computerization of the Government. In addition it will function as the Directorate for Information Technology in the State. Following major functions will be looked after by OCAC: (i)
Involve, co-ordinate and participate in the Computerisation of all Departments in the Government.
(ii)
Provide, organize, outsource and co-ordinate training to new users of computer hardware and software and upgrade the skill level of existing users in the Government, entrepreneurs of identified schemes, teachers and trainers. Necessary funds will be provided by Departments' budget.
240
E-Governance
(iii)
Prepare documents, programs and campaigns to increase the visibility of the State as a Destination of Choice for IT investments from investors.
(iv)
Design, host and maintain websites of Government Departments, organizations and institutions and necessary software packages as and when requested.
(v)
Design, host and maintain the official Information Portal of the Government.
(vi)
Implement, co-ordinate and monitor all Schemes of the State Government in the Information Technology Department pertaining to Information Technology, IT Enabled Services and Communication sector.
(vii)
Consult, process, procure and maintain hardware and software resources of all Departments in the Government.
(viii)
Plan, and formulate various strategies, visions, policies and projects for the Government to achieve success in its mission to reach the benefits of Information Technology to the people. It will explore these whenever possible on the public private partnership.
(ix)
Plan, invest, execute projects to build up adequate IT Infrastructure in the State on the basis of Build-Operate-Transfer (BOT), Build-Own-Operate Transfer (BOOT) and Build-Own-Operate (BOO).
(x)
Outsource technologies and IT services not available in the State and work back to assimilate, absorb and develop the technology for the same in the State.
(xi)
Collaborate with Technology Leaders to bring in new technologies to increase the local skill level.
(xi;)
Promote and establish Institutions of Excellence in the State in the IT, ITES and Communication sector to create world-class facilities for training and education.
7.ITES POLICY 7.1 A range of services including Customer Interaction Services, Financial and Accounting Services, Accounting/Data Entry/Data Conversion, TranscriptionlTranslation/ Localization Services, Web-Site Services (Content Development, Animation), GIS, Engineering and Design, HR Services, Remote Education/Data Search, Integration and Management! Market Research, Consultancy and Management /Network Consultancy and Management etc. have been identified as IT enabled services (IJES). This sector has the potential of uplifting the SME sector in the State with plentiful employment opportunities.
Appendices
241
7.2 Orientation 7.2.1 The State has a sizeable English knowing population with a sound work culture. It has around 38 Engineering Colleges, 42 MCA Institutions and 15 Institutions offering MBA Degree. Added to it, there are over 400 colleges running under six universities producing over a lakh of graduates. Both IT professionals and other graduates with good English and communication skill are assets for the ITES industry. Interaction with international clients and customers is the mainstay of ITES industry. Training facilities will be created for imparting good English education in the State. The existing English language curriculum followed in the primary, secondary and higher secondary school syllabi shall be reviewed and Spoken English will be introduced from the High School level. 7.2.2 IT Literacy Program in Schools/Colleges It is necessary that IT education be introduced right from the primary school level. This establishes the required level of familiarity of job-seekers and makes them employable with the minimum educational background of school final. 7.2.3 Knowledge on general maintenance and repair of IT Hardware and overall knowledge on networking shall be introduced to students at school level.
7.2.4 Courses on ITES related topics shall be introduced in selected graduate colleges for turning out readily employable manpower in local ITES units. 7.3 Training
7.3.1 Most ITES activities involve customer interaction services. Therefore training facilities on e-CRM will be made available in the State from experts in the field. 7.3.2 Training on e-Commerce activities including Sales and Purchases through Internet, Transaction processing, Security issues, web services shall be made available through Government agencies. 7.3.3 Training will be provided free of cost to the entrepreneurs selected for Information Kiosks and BPO Complex units under self employment schemes.
7.4 Infrastructure 7.4.1 Fortune Tower, an important IT building Infrastructure constructed by lOCO at Chandrasekharpur, Bhubaneshwar offers about 3 lakh square feet of ready -to-occupy space with all IT infrastructure for new IT units and for expansion programs of large IT/ITES companies of the country.
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E-Governance
7.4.2 An IT incubator facility namely, SPO Complex is under implementation on the available IT building infrastructure at Shubaneshwar, for providing help to existing SPO units in SME sector. Floor space of about 15,000 square feet would be made available to ITES units under SME category. 7.4.3 Adequate connectivity for voice and data transmission shall be provided through STPI, SSNL, VSNL and other 10caiiSPs to the ITES units. 7.4.4 For ITES activities to spread into length and breadth of the State, infrastructure development will be undertaken in the Tier-II townships.
7.5 Policy Incentives 7.5.1 All incentives available to IT industries are available to ITES units. 7.5.2 No rent will be charged for space for 3 years to SME units in the SPO Complex set up by Government. 7.5.3 Annual Cash Incentive to ITES units having minimum 128 Kbps data/voice connectivity will be given for creation of more than 50 seats and at least 50% turnover from export market shall be eligible for this incentive.
8. MISCELLANEOUS (a)
This policy shall remain in force until 5 years or until substituted by another policy, whichever is earlier. The State Government may at any time amend any provision of this policy.
(b)
Doubts relating to interpretation of any term and/or dispute relating to the operation of any provision under this policy shall have to be referred to the Department of Information Technology, Government of Orissa for clarification/resolution and the decision of Government in this regard shall be final and binding on all concerned.
(c)
Implementation of various provisions covering the incentives, concessions etc. will be subject to the issue of detailed guidelines/statutory notifications, wherever necessary in respect of each item by the concerned Administrative Department.
243
Appendices
APPENDIX -2 Right to Information Act 2005 RIGHT TO INFORMATION ACT 2005 No. 22 of 2005
[15th June, 2005]
An Act to provide for setting out the practical regime of right to information for citizens to secure access to information under the control of public authorities, in order to promote transparency and accountability in the working of every public authority, the constitution of a Central Information Commission and State Information Commissions and for matters connected therewith or incidental thereto. Whereas the Constitution of India has established democratic Republic; And whereas democracy requires an informed citizenry and transparency of information which are vital to its functioning and also to contain corruption and to hold Governments and their instrumentalities accountable to the governed; And whereas revelation of information in actual practice is likely to conflict with other public interests including efficient operations of the Governments, optimum use of limited fiscal resources and the preservation of confidentiality of sensitive information; And whereas it is necessary to harmonise these conflicting interests while preserving the paramountcy of the democratic ideal; Now, therefore, it is expedient to provide for furnishing certain information to citizens who desire to have it. Be it enacted by Parliament in the Fifty-sixth Year of the Republic of India as follows:
CHAPTER I Preliminary 1
(1) (2)
1
This Act may be called the Right to Information Act, 2005. It extends to the whole of India except the State of Jammu and Kashmir.
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E-Governance
(3)
The provisions of sub-section (1) of section 4, sUb-sections (1) and (2) of section 5,sections 12, 13, 15,16, 24 , 27 and 28 shall come into force at once, and the remaining provisions of this Act shall come into force on the one hundred and twentieth day ofits enactment.
2
In this Act, unless the context otherwise requires (a)
"appropriate Government" means in relation to a public authority which is established,constituted, owned, controlled or substantially financed by funds provided directly or indirectly (i)
by the Central Government or the Union territory administration, the Central Govement;
(ii)
by the State Government, the State Government;
(b)
"Central Information Commission" means the Central Information Commission constituted under sub-section (1) of section 12;
(c)
"Central Public Information Officer" means the Central Public Information Officer designated under sUb-section (1) and includes a Central Assistant Public Informa tion Officer designated as such under sub-section (2) of section 5;
(d)
"Chief Information Commissioner" and "Information Commissioner" mean the Chief Information Commissioner and Information Commissioner appointed under subsection (3) of section 12;
(e)
"competent authority" means -
(f)
(i)
the Speaker in the case of the House of the People or the Legislative Assembly of a State or a Union territory having such Assembly and the Chairman in the case of the Council of States or Legislative Council of a State;
(ii)
the Chief Justice of India in the case of the Supreme Court;
(iii)
the Chief Justice of the High Court in the case of a High Court;
(iv)
the President or the Governor, as the case may be, in the case of other authorities established or constituted by or under the Constitution;
(v)
the administrator appointed under article 239 of the Constitution; "information" means any material in any form, includiflg records, documents, memos, e-mails, opinions, advices, press releases, circulars, orders, logbooks, contracts, reports, papers, samples, models, data material held in any electronic form and information relating to any private body which can be accessed by a public authority under any other law for the time being in force;
245
Appendices
(g)
"prescribed" means prescribed by rules made under this Act by the appropriate Government or the competent authority, as the case may be;
(h)
"public authority" means any authority or body or institution of self-government established or constituted (a)
by or under the Constitution;
(b)
by any other law made by Parliament;
(c)
by any other law made by State Legislature;
(d)
by notification issued or order made by the appropriate Government, and includes any(i)
body owned, controlled or substantially financed;
(ii) non-Government organization substantially financed, directly or indirectly by funds provided by the appropriate Government;
(i)
"record" includes (a)
any document, manuscript and file;
(b)
any microfilm, microfiche and facsimile copy of a document;
(c)
any reproduction of image or images embodied in such microfilm (whether enlarged or not); and
(d)
any other material produced by a computer or any other device;
m
(k)
"right to information" means the right to information accessible under this Act which is held by or under the control of any public authority and includes the right to (i)
inspection of work, documents, records;
(ii)
taking notes, extracts or certified copies of documents or records;
(iii)
taking certified samples of material;
(iv)
obtaining information in the form of diskettes, floppies, tapes, video cassettes or in any other electronic mode or through printouts where such information is stored in a computer or in any other devic. "State Information Commission" means the State Information Commission constituted under sub-section (1) of section 15;
246
E-Governance
(I)
"State Chief Information Commissioner" and "State Information Commissioner" mean the State Chief Information Commissioner and the State Information Commissioner appointed under sUb-section (3) of section 15;
(m)
"State Public Information Officer" means the State Public Information Officer designated under sUb-section (1) and includes a State Assistant Public Information Officer designated as such under sUb-section (2) of section 5;
(n)
"third party" means a person other than the citizen making a request for information and includes a public authority.
CHAPTER II Right to information and obligations Subject to the provisions of this Act, all citizens shall have the right to information.
3
4
(1 )
Every public authority shall (a)
maintain all its records duly catalogued and indexed in a manner and the form which facilitates the right to information under this Act and ensure that all records that are appropriate to be computerised are, within a reasonable time and subject to availability of resources, computerised and connected through a network all over the country on different systems so that access to such records is facilitated;
(b)
publish within one hundred and twenty days from the enactment of this Act (i)
the particulars of its organisation, functions and duties;
(ii)
the powers and duties of its officers and employees;
(iii)
the procedure followed in the decision-making process, including channels of supervision and accountability;
(iv)
the norms set by it for the discharge of its functions;
(v)
the rules, regulations, instructions, manuals and records, held by it or under its control or used by its employees for discharging its functions;
(vi)
a statement of the categories of documents that are held by it or under its control;
(vii)
the particulars of any arrangement that exists for consultation with, or representation by, the members of the public in relation to the formulation of its policy or implementation thereof;
(viii)
a statement of the boards, councils, committees and other bodies consising of two or more persons constituted as its part or for the purpose of its advice,
247
Appendices
and as to whether meetings of those boards, councils, committees and other bodies are open to the public, or the minutes of such meetings are accessible for public; (ix)
a directory of its officers and employees;
(x)
the monthly remuneration received by each of its officers and employees, including the system of compensation as provided in its regulations;
(xi)
the budget allocated to each of its agency, indicating the particulars of all plans, proposed expenditures and reports on disbursements made;
(xii)
the manner of execution of subsidy programmes, including the amounts allocated and the details of beneficiaries of such programmes;
(xiii) particulars of recipients of concessions, permits or authorisations granted by it; (xiv)
details in respect of the information, available to or held by it, reduced in an electronic form;
(xv)
the particulars of facilities available to citizens for obtaining information, in cluding the working hours of a library or reading room, if maintained for public use;
(xvi)
the names, designations and other particulars of the Public Information Officers;
(xvii) such other information as may be prescribed and thereafter update these publications every year; (c)
publish all relevant facts while formulating important policies or announcing the decisions which affect public;
(d)
provide reasons for its administrative or quasi-judicial decisions to affected persons.
(2)
It shall be a constant endeavour of every public authority to take steps in accordance with the requirements of clause (b) of sub-section (1) to provide as much information suo motu to the public at regular intervals through various means of communications, including internet, so that the public have minimum resort to the use of this Act to obtain information.
(3)
For the purposes of sub-section (1), every information shall be disseminated widely and in such form and manner which is easily accessible to the public.
(4)
All materials shall be disseminated taking into consideration the cost effectiveness, local language and the most effective method of communication in that local area and the information should be easily accessible, to the extent possible in electronic
248
E-Governance
format with the Central Public Information Officer or State Public Information Officer, as the case may be, available free or at such cost of the medium or the print cost priceas may be prescribed. Explanation - For the purposes of sub-sections (3) and (4), "disseminated" means making known or communicated the information to the public through notice boards, newspapers, public announcements, media broadcasts, the internet or any other means, including inspection of offices of any public authority.
5
(1 )
Every public authority shall, within one hundred days of the enactment of this Act, designate as many officers as the Central Public Information Officers or State Public Information Officers, as the case may be, in all administrative units or offices under it as may be necessary to provide information to persons requesting for the information under this Act.
(2)
Without prejudice to the provisions of sub-section (1), every public authority shall designate an officer, within one hundred days of the enactment of this Act, at each sub-divisional level or other sUb-district level as a Central Assistant Public Information Officer or a State Assistant Public Information Officer, as the case may be, to receive the applications for information or appeals under this Act for forwarding the same forthwith to the Central Public Information Officer or the State Public Information Officer or senior officer specified under sub-section (1) of section 19 or the Central Information Commission or the State Information Commission, as the case may be: Provided that where an application for information or appeal is given to a Central Assistant Public Information Officer or a State Assistant Public Information Officer, as the case may be, a period of five days shall be added in computing the period for response specified under sUb-section (1) of section 7.
6
(3)
Every Central Public Information Officer or State Public Information Officer, as the case may be, shall deal with requests from persons seeking information and render reasonable assistance to the persons seeking such information.
(4)
The Central Public Information Officer or State Public Information Officer, as the case may be, may seek the assistance of any other officer as he or she considers it necessary for the proper discharge of his or her duties.
(5)
Any officer, whose assistance has been sought under sub-section (4), shall render all assistance to the Central Public Information Officer or State Public Information Officer, as the case may be, seeking his or her assistance and for the purposes of any contravention of the provisions of this Act, such other officer shall be treated as a Central Public Information Officer or State Public Information Officer, as the case may be.
(1 )
A person, who desires to obtain any information under this Act, shall make a request in writing or through electronic means in English or Hindi or in the official
Appendices
249 language of the area in which the application is being made, accompanying such fee as may be prescribed, to -
7
(a)
the Central Public Information Officer or State Public Information Officer, as the case may be, of the concerned public authority;
(b)
the Central Assistant Public Information Officer or State Assistant Public Information Officer, as the case may be,specifying the particulars of the information sought by him or her: Provided that where such request cannot be made in writing, the Central Public Information Officer or State Public Information Officer, as the case may be, shall render all reasonable assistance to the person making the request orally to reduce the same in writing.
(2)
An applicant making request for information shall not be required to give any reason for requesting the information or any other personal details except those that may be necessary for contacting him.
(3)
Where an application is made to a public authority requesting for an information (i)
which is held by another public authority; or
(ii)
the subject matter of which is more closely connected with the functions of another public authority,the public authority, to which such application is made, shall transfer the application or such part of it as may be appropriate to that other public authority and inform the applicant immediately about such transfer: Provided that the transfer of an application pursuant to this sUb-section shall be made as soon as practicable but in no case later than five days from the date of receipt of the application.
(1 )
Subject to the proviso to sUb-section (2) of section 5 or the proviso to sub-section (3) of section 6, the Central Public Information Officer or State Public Information Of-ficer, as the case may be, on receipt of a request under section 6 shall, as expedi-tiously as possible, and in any case within thirty days of the receipt of the request, either provide the information on payment of such fee as may be prescribed or reject the request for any of the reasons specified in sections 8 and 9: Provided that where the information sought for concerns the life or liberty of a person, the same shall be provided within forty-eight hours of the receipt of the request.
(2)
If the Central Public Information Officer or State Public Information Officer, as the case may be, fails to give decision on the request for information within the period specified under SUb-section (1), the Central Public Information Officer or State Pub-lic Information Officer, as the case may be, shall be deemed to have refused the request.
(3)
Where a decision is taken to provide the information on payment of any further fee representing the cost of providing the information, the Central Public Information
E-Governance
250
Officer or State Public Information Officer, as the case may be, shall send an intimtion to the person making the request, giving (a)
the details of further fees representing the cost of providing the information as determined by him, together with the calculations made to arrive at the amount in accordance with fee prescribed under sUb-section (1), requesting him to deposit that fees, and the period intervening between the despatch of the said intimation and payment of fees shall be excluded for the purpose of calculating the period of thirty days referred to in that sub-section;
(b)
information concerning his or her right with respect to review the decision as to the amount of fees charged or the form of access provided, including the particulars of the appellate authority, time limit, process and any other forms. Where access to the record or a part thereof is required to be provided under this Act and the person to whom access is to be provided is sensorily disabled, the
(4)
Central Public Information Officer or State Public Information Officer, as the case may be, shall provide assistance to enable access to the information, including providing such assistance as may be appropriate for the inspection. (5)
Where access to information is to be provided in the printed or in any electronic format, the applicant shall, subject to the provisions of sub-section (6), pay such fee as may be prescribed: Provided that the fee prescribed under sUb-section (1) of section 6 and sUb-sections (1) and (5) of section 7 shall be reasonable and no such fee shall be charged from the persons who are of below poverty line as may be determined by the appropriate Government.
(6)
Notwithstanding anything contained in sub-section (5), the person making request for the information shall be provided the information free of charge where a public authority fails to comply with the time limits specified in sUb-section (1).
(7)
Before taking any decision under sUb-section (1), the Central Public Information Officer or State Public Information Officer, as the case may be, shall take into consideration the representation made by a third party under section 11.
(8)
Where a request has been rejected under sUb-section (1), the Central Public Infomation Officer or State Public Information Officer, as the case may be, shall communicate to the person making the request (i)
the reasons for such rejection;
(ii)
the period within which an appeal against such rejection may be preferred; and
(iii)
the particulars of the appellate authority.
Appendices
S
251
(9)
An information shall ordinarily be provided in the form in which it is sought unless it would disproportionately divert the resources of the public authority or would be detrimental to the safety or preservation of the record in question.
(1 )
Notwithstanding anything contained in this Act, there shall be no obligation to give any citizen (a)
information, disclosure of which would prejudicially affect the sovereignty and integrity of India, the security, strategic, scientific or economic interests of the State, relation with foreign State or lead to incitement of an offence;
(b)
information which has been expressly forbidden to be published by any court of law or tribunal or the disclosure of which may constitute contempt of court;
(c)
information, the disclosure of which would cause a breach of privilege of Parliament or the State Legislature;
(d)
information including commercial confidence, trade secrets or intellectual property, the disclosure of which would harm the competitive position of a third party, unless the competent authority is satisfied that larger public interest warrants the disclosure of such information;
(e)
information available to a person in his fiduciary relationship, unless the competent authority is satisfied that the larger public interest warrants the disclosure of such information;
(1)
information received in confidence from foreign Government;
(g)
information, the disclosure of which would endanger the life or physical safety of any person or identify the source of information or assistance given in confidence for law enforcement or security purposes;
(h)
information which would impede the process of investigation or apprehension or prosecution of offenders;
(i)
cabinet papers including records of deliberations of the Council of Ministers, Secretaries and other officers: Provided that the decisions of Council of Ministers, the reasons thereof, and the material on the basis of which the decisions were taken shall be made public after the decision has been taken, and the matter is complete, or over: Provided further that those matters which come under the exemptions specified in this section shall not be disclosed;
0)
information which relates to personal information the disclosure of which has no relationship to any public activity or interest, or which would cause unwarranted invasion of the privacy of the individual unless the Central Public Information Officer
E-Governance
252
or the State Public Information Officer or the appellate authority, as the case may be, is satisfied that the larger public interest justifies the disclosure of such informtion: Provided that the information which cannot be denied to the Parliament or a State Legislature shall not be denied to any person. (2)
Notwithstanding anything in the Official Secrets Act, 1923 nor any of the exemptions permissible in accordance with sUb-section (1), a public authority may allow access to information, if public interest in disclosure outweighs the harm to the protected interests.
(3)
Subject to the provisions of clauses (a), (c) and (i) of sub-section (1), any information relating to any occurrence, event or matter which has taken place, occurred or happened twenty years before the date on which any request is made under secton 6 shall be provided to any person making a request under that section: Provided that where any question arises as to the date from which the said period of twenty years has to be computed, the decision of the Central Government shall be final, subject to the usual appeals provided for in this Act.
9
Without prejudice to the provisions of section 8, a Central Public Information Officer or a State Public Information Officer, as the case may be, may reject a request for information where such a request for providing access would involve an infringement of copyright subsisting in a person other than the State.
10 (1 )
Where a request for access to information is rejected on the ground that it is in relation to information which is exempt from disclosure, then, notwithstanding anything contained in this Act, access may be provided to that part of the record which does not contain any information which is exempt from disclosure under this Act and which can reasonably be severed from any part that contains exempt information.
(2)
Where access is granted to a part of the record under sub-section (1), the Central Public Information Officer or State Public Information Officer, as the case may be, shall give a notice to the applicant, informing (a)
that only part of the record requested, after severance of the record containing information which is exempt from disclosure, is being provided;
(b)
the reasons for the decision, including any findings on any material question of fact, referring to the material on which those findings were based;
(c)
the name and designation of the person giving the decision;
(d)
the details of the fees calculated by him or her and the amount of fee which the applicant is required to deposit; and
Appendices
253
(e)
11
his or her rights with respect to review of the decision regarding non-disclosure of part of the information, the amount of fee charged or the form of access provided, including the particulars of the senior officer specified under sUb-section (1) of section 19 or the Central Information Commission or the State Information Commission, as the case may be, time limit, process and any other form of access.
(1 )
Where a Central Public Information Officer or a State Public Information Officer, as the case may be, intends to disclose any information or record, or part thereof on a request made under this Act, which relates to or has been supplied by a third party and has been treated as confidential by that third party, the Central Public Information Officer or State Public Information Officer, as the case may be, shall, within five days f~1)1Tl the receipt of the request, give a written notice to such third party of the request and of the fact that the Central Public Information Officer or State Public Information Officer, as the case may be, intends to disclose the information or record, or part thereof, and invite the third party to make a submission in writing or orally, regarding whether the information should be disclosed, and such submission of the third party shall be kept in view while taking a decision about disclosure of information: Provided that except in the case of trade or commercial secrets protected by law, disclosure may be allowed if the public interest in disclosure outweighs in importance any possible harm or injury to the interests of such third party.
(2)
Where a notice is served by the Central Public Information Officer or State Public Information Officer, as the case may be, under SUb-section (1) to a third party inrespect of any information or record or part thereof, the third party shall, within ten days from the date of receipt of such notice, be given the opportunity to make representation against the proposed disclosure.
(3)
Notwithstanding anything contained in section 7, the Central Public Information Officer or State Public Information Officer, as the case may be, shall, within forty days after receipt of the request under section 6, if the third party has been given an opportunity to make representation under sub-section (2), make a decision as to whether or not to disclose the information or record or part thereof and give in writing the notice of his decision to the third party.
. (4)
A notice given under SUb-section (3) shall include a statement that the third party to whom the notice is given is entitled to prefer an appeal under section 19 against the decision.
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CHAPTER III The Central Information Commission 12 (1 )
The Central Government shall, by notification in the Official Gazette, constitute a body to be known as the Central Information Commission to exercise the powersconferred on, and to perform the functions assigned to, it under this Act.
(2)
The Central Information Commission shall consist of (a)
the Chief Information Commissioner; and
(b)
such number of Central Information Commissioners, not exceeding ten, as may be deemed necessary. The Chief Information Commissioner and Information Commissioners shall be appointed by the President on the recommendation of a committee consisting of -
(3)
(i)
the Prime Minister, who shall be the Chairperson of the committee;
(ii)
the Leader of Opposition in the Lok Sabha; and
(iii)
a Union Cabinet Minister to be nominated by the Prime Minister. Explanation.-For the purposes of removal of doubts, it is hereby declared that where the Leader of Opposition in the House of the People has not been recognised as such, the Leader of the single largest group in opposition of the Government in the House of the People shall be deemed to be the Leader of Opposition.
(4)
The general superintendence, direction and management of the affairs of the Central Information Commission shall vest in the Chief Information Commissioner who shall be assisted by the Information Commissioners and may exercise all such powers and do all such acts and things which may be exercised or done by the Central Information Commission autonomously without being subjected to directions by any other authority under this Act.
(5)
The Chief Information Commissioner and Information Commissioners shall be persons of eminence in public life with wide knowledge and experience in law, science and technology, social service, management, journalism, mass media or administration and governance. ..The Chief Information Commissioner or an Information Commissioner shall not be a Member of Parliament or Member of the Legislature of any State or Union territory, as the case may be, or hold any other office of profit or connected with any political party or carrying on any business or pursuing any profession.
(6)
255
Appendices
(7)
The headquarters of the Central Information Commission shall be at Delhi and the Central Information Commission may, with the previous approval of the Central Government, establish offices at other places in India.
13 (1 )
The Chief Information Commissioner shall hold office for a term of five years from the date on which he enters upon his office and shall not be eligible for reappointment: Provided that no Chief Information Commissioner shall hold office as such after he has attained the age of sixty-five years.
(2)
Every Information Commissioner shall hold office for a term of five years from the date on which he enters upon his office or till he attains the age of sixty-five years, whichever is earlier, and shall not be eligible for reappointment as such Information Commissioner: Provided that every Information Commissioner shall, on vacating his office under this sub-section be eligible for appointment as the Chief Information Commissioner in the manner specified in sub-section (3) of section 12: Provided further that where the Information Commissioner is appointed as the Chief Information Commissioner, his term of office shall not be more than five years in aggregate as the Information Commissioner and the Chief Information Commissioner.
(3)
The Chief Information Commissioner or an Information Commissioner shall before he enters upon his office make and subscribe before the President or some other person appointed by him in that behalf, an oath or affirmation according to the form set out for the purpose in the First Schedule.
(4)
The Chief Information Commissioner or an Information Commissioner may, at any time, by writing under his hand addressed to the President, resign from his office: , Provided that the Chief Information Commissioner or an Information Commissioner may be removed in the manner specified under section 14. The salaries and allowances payable to and other terms and conditions of service of
(5)
(a)
the Chief Information Commissioner shall be the same as that of the Chief Election Commissioner;
(b)
an Information Commissioner shall be the same as that of an Election Commissioner: Provided that if the Chief Information Commissioner or an Information Commissioner, at the time of his appointment is, in receipt of a pension, other than a disability or wound pension, in respect of any previous service under the Government of India or under the Government of a State, his salary in respect of the service as the Chief Information Commissioner or an Information Commissioner shall be reduced by
256
E-Governance
the amount of that pension including any portion of pension which was commuted and pension equivalent of other forms of retirement benefits excluding pension equivalent of retirement gratuity: Provided further that if the Chief Information Commissioner or an Information Commissioner if, at the time of his appointment is, in receipt of retirement benefits in respect of any previous service rendered in a Corporation established by or under any Central Act or State Act or a Government company owned or controlled by the Central Government or the State Government, his salary in respect of the service as the Chief Information Commissioner or an Information Commissioner shall be reduced by the amount of pension equivalent to the retirement benefits: Provided also that the salaries, allowances and other conditions of service of the Chief Information Commissioner and the Information Commissioners shall not be varied to their disadvantage after their appointment. (6)
The Central Government shall provide the Chief Information Commissioner and the Information Commissioners with such officers and employees as may be necessary for the efficient performance of their functions under this Act, and the salaries and allowances payable to and the terms and conditions of service of the officers and other employees appointed for the purpose of this Act shall be such as may be prescribed.
14 (1 )
Subject to the provisions of sub-section (3), the Chief Information Commissioner or any Information Commissioner shall be removed from his office only by order of the President on the ground of proved misbehaviour or incapacity after the Supreme Court, on a reference made to it by the President, has, on inquiry, reported that the Chief Information Commissioner or any Information Commissioner, as the case may be, ought on such ground be removed.
(2)
The President may suspend from office, and if deem necessary prohibit also from attending the office during inquiry, the Chief Information Commissioner or Information Commissioner in respect of whom a reference has been made to the Supreme Court under SUb-section (1) until the President has passed orders on receipt of the report of the Supreme Court on such reference.
(3)
Notwithstanding anything contained in sub-section (1), the President may by order remove from office the Chief Information Commissioner or any Information Commissioner if the Chief Information Commissioner or a Information Commissioner, as the case may be (a)
is adjudged an insolvent; or
(b)
has been convicted of an offence which, in the opinion of the President, involves moral turpitude; or
(c)
engages during his term of office in any paid employment outside the duties of his office; or
Appendices
257
(d)
is, in the opinion of the President, unfit to continue in office by reason of infirmity of mind or body; or
(e)
has acquired such financial or other interest as is likely to affect prejudicially his functions as the Chief Information Commissioner or a Information Commissioner. If the Chief Information Commissioner or a Information Commissioner in any way, concerned or interested in any contract or agreement made by or on behalf of the Government of India or participates in any way in the profit thereof or in any benefit or emolument arising there from otherwise than as a member and in common with the other members of an incorporated company, he shall, for the purposes of subsection (1), be deemed to be guilty of misbehavior.
(4)
CHAPTER IV The State Information Commissio 15 (1 )
Every State Government shall, by notification in the Official Gazette, constitute a body to be known as the ......... (name of the State) Information Commission to exercise the powers conferred on, and to perform the functions assigned to, it under this Act. The State Information Commission shall consist of -
(2)
(a)
the State Chief Information Commissioner, and
(b)
such number of State Information Commissioners, not exceeding ten, as may be deemed necessary.
(3)
The State Chief Information Commissioner and the State Information Commissioners shall be appointed by the Governor on the recommendation of a committee consisting of(i)
the Chief Minister, who shall be the Chairperson of the committee;
(ii)
the Leader of Opposition in the Legislative Assembly; and
(iii)
a Cabinet Ministrer to be nominated by the Chief Minister. Explanation - For the purposes of removal of doubts, it is hereby declared that where the Leader of Opposition in the Legislative Assembly has not been recognised as such, the Leader of the single largest group in opposition of the Government in the Legislative Assembly shall be deemed to be the Leader of Opposition.
(4)
The general superintendence, direction and management of the affairs of the State Information Commission shall vest in the State Chief Information Commissioner who shall be assisted by the State Information Commissioners and may exercise
258
E-Governance
all such powers and do all such acts and things which may be exercised or done by the State Information Commission autonomously without being subjected to directions by any other authority under this Act. (5)
The State Chief Information Commissioner and the State Information Commissioners shall be persons of eminence in public life with wide knowledge and experience in law, science and technology, social service, management, journalism, mass media or administration and governance.
(6)
The State Chief Information Commissioner or a State Information Commissioner shall not be a Member of Parliament or Member of the Legislature of any State or Union territory, as the case may be, or hold any other office of profit or connected with any political party or carrying on any business or pursuing any profession.
(7)
The headquarters of the State Information Commission shall be at such place in the State as the State Government may, by notification in the Official Gazette, specify and the State Information Commission may, with the previous approval of the State Government, establish offices at other places in the State.
16 (1 )
The State Chief Information Commissioner shall hold office for a term of five years from the date on which he enters upon his office and shall not be eligible for reappointment: Provided that no State Chief Information Commissioner shall hold office as such after he has attained the age of sixty-five years.
(2)
Every State Information Commissioner shall hold office for a term of five years from the date on which he enters upon his office or till he attains the age of sixty-five years, whichever is earlier, and shall not be eligible for reappointment as such State Information Commissioner: Provided that every State Information Commissioner shall, on vacating his office under this sub-section, be eligible for appointment as the State Chief Information Commissioner in the manner specified in SUb-section (3) of section 15: Provided further that where the State Information Commissioner is appOinted as the State Chief Information Commissioner, his term of office shall not be more than five years in aggregate as the State Information Commissioner and the State Chief Information Commissioner.
(3)
The State Chief Information Commissioner or a State Information Commissioner, shall before he enters upon his office make and subscribe before the Governor or some other person appOinted by him in that behalf, an oath or affirmation according to the form set out for the purpose in the First Schedule.
(4)
The State Chief Information Commissioner or a State Information Commissioner may, at any time, by writing under his hand addressed to the Governor, resign from hilo; office:
259
Appendices
Provided that the State Chief Information Commissioner or a State Information Commissioner may be removed in the manner specified under section 17.
(5)
The salaries and allowances payable to and other terms and conditions of service of(a)
the State Chief Information Commissioner shall be the same as that of an Election Commissioner;
(b)
the State Information Commissioner shall be the same as that of the Chief Secretary to the State Government: Provided that if the State Chief Information Commissioner or a State Information Commissioner, at the time of his appointment is, in receipt of a pension, other than a disability or wound pension, in respect of any previous service under the Government of India or under the Government of a State, his salary in respect of the service as the State Chief Information Commissioner or a State Information Commissioner shall be reduced by the amount of that pension including any portion of pension which was commuted and pension equivalent of other forms of retirement benefits excluding pension equivalent of retirement gratuity: Provided further that where the State Chief Information Commissioner or a State Information Commissioner if, at the time of his appointment is, in receipt of retirement benefits in respect of any previous service rendered in a Corporation established by or under any Central Act or State Act or a Government company owned or controlled by the Central Government or the State Government, his salary in respect of the service as the State Chief Information Commissioner or the State Information Commissioner shall be reduced by the amount of pension equivalent to the retirement benefits: Provided also that the salaries, allowances and other conditions of service of the State Chief Information Commissioner and the State Information Commissioners shall not be varied to their disadvantage after their appointment.
(6)
The State Government shall provide the State Chief Information Commissioner and the State Information Commissioners with such officers and employees as may be necessary for the efficient performance of their functions under this Act, and the salaries and allowances payable to and the terms and conditions of service of the officers and other employees appointed for the purpose of this Act shall be such as may be prescribed.
17 (1 )
Subject to the provisions of sub-section (3), the State Chief Information Commissioner or a State Information Commissioner shall be removed from his office only by order of the Governor on the ground of proved misbehaviour or incapacity after the Supreme Court, on a reference made to it by the Governor, has on inquiry, reported that the State Chief Information Commissioner or a State Information Commissioner, as the case may be, ought on such ground be removed.
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E-Governance
The Governor may suspend from office, and if deem necessary prohibit also from attending the office during inquiry, the State Chief Information Commissioner or a State Information Commissioner in respect of whom a reference has been made to the Supreme Court under sUb-section (1) until the Governor has passed orders on receipt of the report of the Supreme Court on such reference.
(2)
I I
Notwithstanding anything contained in sUb-section (1), the Governor may by order remove from office the State Chief Information Commissioner or a State Information . Commissioner if a State Chief Information Commissioner or a State Information Commissioner, as the case may be -
(3)
(a)
is adjudged an insolvent; or
•
(b)
has been convicted of an offence which, in the opinion of the Governor, involves moral turpitude; or
(c)
engages during his term of office in any paid employment outside the duties of his office; or
(d)
is, in the opinion of the Governor, unfit to continue in office by reason of infirmity of mind or body; or
(e)
has acquired such financial or other interest as is likely to affect prejudicially his functions as the State Chief Information Commissioner or a State Information Commissioner. If the State Chief Information Commissioner or a State Information Commissioner in any way, concerned or interested in any contract or agreement made by or on behalf of the Government of the State or participates in any way in the profit thereof or in any benefit or emoluments arising therefrom otherwise than as a member and in common with the other members of an incorporated company, he shall, for the purposes of sub-section (1), be deemed to be guilty of misbehaviour.
(4)
CHAPTER V Powers and functions of the Information Commissions, appeal and penalties 18 (1 )
Subject to the provisions of this Act, it shall be the duty of the Central Information Commission or State Information Commission, as the case may be, to receive and inquire into a complaint from any person (a)
who has been unable to submit a request to a Central Public Information Officer or State Public Information Officer, as the case may be, either by reason that no such officer has been appointed under this Act, or because the Central Assistant Public Information Officer or State Assistant Public Information Officer, as the case may be, has refused to accept his or her application for information or appeal under this Act for forwarding the same to the Central Public Information Officer or State PUBlic
261
Appendices
Information Officer or senior officer specified in sUb-section (1) of section 19 or the Central Information Commission or the State Information Commission, as the case may be; (b)
who has been refused access to any information requested under this Act;
(c)
who has not been given a response to a request for information or access to information within the time limit specified under this Act;
(d)
who has been required to pay an amount of fee which he or she considers unreasonable;
(e)
who believes that he or she has been given incomplete, misleading or false information under this Act; and
(f)
in respect of any other matter relating to requesting or obtaining access to records under this Act.
(2)
Where the Central Information Commission or State Information Commission, as the case may be, is satisfied that there are reasonable grounds to inquire into the matter, it may initiate an inquiry in respect thereof.
(3)
The Central Information Commission or State Information Commission, as the case may be, shall, while inquiring into any matter under this section, have the same powers as are vested in a civil court while trying a suit under the Code of Civil Procedure, 1908, in respect of the following matters, namely:
(4)
(a)
summoning and enforcing the attendance of persons and compel them to give oral or written evidence on oath and to produce the documents or things;
(b)
requiring the discovery and inspection of documents;
(c)
receiving evidence on affidavit;
(d)
requisitioning any public record or copies thereof from any court or office;
(e)
issuing summons for examination of witnesses or documents; and
(f)
any other matter which may be prescribed. Notwithstanding anything inconsistent contained in any other Act of Parliament or State Legislature, as the case may be, the Central Information Commission or the State Information Commission, as the case may be, may, during the inquiry of any complaint under this Act, examine any record to which this Act applies which is under the control of the public authority, and no such record may be withheld from it on any grounds.
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E-Governance
19 (1)
Any person who, does not receive a decision within the time specified in subsection (1) or clause (a) of sUb-section (3) of section 7, or is aggrieved by a decision of the Central Public Information Officer or State Public Information Officer, as the case may be, may within thirty days from the expiry of such period or from the receipt of such a decision prefer an appeal to such officer who is senior in rank to the Central Public Information Officer or State Public Information Officer as the case may be, in each public authority: Provided that such officer may admit the appeal after the expiry of the period of thirty days if he or she is satisfied that the appellant was prevented by sufficient cause from filing the appeal in time.
(2)
Where an appeal is preferred against an order made by a Central Public Information Officer or a State Public Information Officer, as the case may be, under section 11 to disclose third party information, the appeal by the concerned third party shall be made within thirty days from the date of the order.
(3)
A second appeal against the decision under sUb-section (1) shall lie within ninety days from the date on which the decision should have been made or was actually received, with the Central Information Commission or the State Information Commission: Provided that the Central Information Commission or the State Information Commission, as the case may be, may admit the appeal after the expiry of the period of ninety days if it is satisfied that the appellant was prevented by sufficient cause from filing the appeal in time.
(4)
If the decision of the Central Public Information Officer or State Public Information Officer, as the case may be, against which an appeal is preferred relates to information of a third party, the Central Information Commission or State Information Commission, as the case may be, shall give a reasonable opportunity of being heard to that third party.
(5)
In any appeal proceedings, the onus to prove that a denial of a request was justified shall be on the Central Public Information Officer or State Public Information Officer, as the case may be, who denied the request.
(6)
An appeal under sUb-section (1) or sUb-section (2) shall be disposed of within thirty days of the receipt of the appeal or within such extended period not exceeding a total of forty-five days from the date of filing thereof, as the case may be, for reasons to be recorded in writing.
(7)
The decision of the Central Information Commission or State Information Commission, as the case may be, shall be binding.
(8)
In its decision, the Central Information Commission or State Information Commission, as the case may be, has the power to -
Appendices
263 (a)
require the public authority to take any such steps as may be necessary to secure compliance with the provisions of this Act, including (i)
by providing access to information, if so requested, in a particular form;
(ii)
by appointing a Central Public Information Officer or State Public Information Officer, as the case may be;
(iii) by publishing certain information or categories of information;
.
(iv) by making necessary changes to its practices in relation to the maintenance, management and destruction of records; (v)
by enhancing the provision of training on the right to information for its officials;
(vi) by providing it with an annual report in compliance with clause (b) of SUb-section (1) of section 4; (b)
require the public authority to compensate the complainant for any loss or other detriment suffered;
(c)
impose any of the penalties provided under this Act;
(d)
reject the application.
(9)
The Central Information Commission or State Information Commission, as the case may be, shall give notice of its decision, including any right of appeal, to the complainant and the public authority.
(10)
The Central Information Commission or State Information Commission, as the case may be, shall decide the appeal in accordance with such procedure as may be prescribed.
20 (1 )
Where the Central Information Commission or the State Information Commission, as the case may be, at the time of deciding any complaint or appeal is of the opinion that the Central Public Information Officer or the State Public Information Officer, as the case may be, has, without any reasonable cause, refused to receive an application for information or has not furnished information within the time specified under sub-section (1) of section 7 or malafidely denied the request for information or knowingly given incorrect, incomp,lete or misleading information or destroyed information which was the subject of the request or obstructed in any manner in furnishing the information, it shall impose a penalty of two hundred and fifty rupees each day till application is received or information is furnished, so however, the total amount of such penalty shall not exceed twenty-five thousand rupees: Provided that the Central Public Information Officer or the State Public Information Officer, as the case may be, shall be given a reasonable opportunity of being heard before any penalty is imposed on him:
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E-Governance
Provided further that the burden of proving that he acted reasonably and diligently shall be on the Central Public Information Officer or the State Public Information Officer, as the case may be. (2)
Where the Central Information Commission or the State Information Commission, as the case may be, at the time of deciding any complaint or appeal is of the opinion that the Central Public Information Officer or the State Public Information Officer, as the case may be, has, without any reasonable cause and persistently, failed to receive an application for information or has not furnished information within the time specified under sub-section (1) of section 7 or malafidely denied the request for information or knowingly given incorrect, incomplete or misleading information or destroyed information which was the subject of the request or obstructed in any manner in furnishing the information, it shall recommend for disciplinary action against the Central Public Information Officer or the State Public Information Officer, as the case may be, under the service rules applicable to him.
CHAPTER VI Miscellaneous 21
No suit, prosecution or other legal proceeding shall lie against any person for anything which is in good faith done or intended to be done under this Act or any rule made thereunder.
22
The provisions of this Act shall have effect notwithstanding anything inconsistent therewith contained in the Official Secrets Act, 1923, and any other law for the time being in force or in any instrument having effect by virtue of any law other than this Act.
23
No court shall entertain any suit, application or other proceeding in respect of any order made under this Act and no such order shall be called in question otherwise than by way of an appeal under this Act.
24 (1 )
Nothing contained in this Act shall apply to the intelligence and security organisations specified in the Second Schedule, being organizations established by the Central Government or any information furnished by such organizations to that Government: Provided that the information pertaining to the allegations of corruption and human rights violations shall not be excluded under this sub-section: Provided further that in the case of information sought for is in respect of allegations of violation of human rights, the information shall only be provided after the approval of the Central Information Commission, and notwithstanding anything contained in section 7, such information shall be provided within forty-five days from the date of the receipt of request.
265
Appendices
(2)
The Central Government may, by notification in the Official Gazette, amend the Schedule by including therein any other intelligence or security organisation established by that Government or omitting therefrom any organization already specified therein and on the publication of such notification, such organisation shall be deemed to be included in or, as the case may be, omitted from the Schedule.
(3)
Every notification issued under sUb-section (2) shall be laid before each House of Parliament.
(4)
Nothing contained in this Act shall apply to such intelligence and security organisation being organizations established by the State Government, as that Government may, from time to time, by notification in the Official Gazette, specify: Provided that the information pertaining to the allegations of corruption and human rights violations shall not be excluded under this sUb-section: Provided further that in the case of information sought for is in respect of allegations of violation of human rights, the information shall only be provided after the approval of the State Information Commission and, notwithstanding anything contained in section 7, such information shall be provided within forty-five days from the date of the receipt of request.
(5)
Every notification issued under sub-section (4) shall be laid before the State Legislature.
25 (1 )
The Central Information Commission or State Information Commission, as the case may be, shall, as soon as practicable after the end of each year, prepare a report on the implementation of the provisions of this Act during that year and forward a copy thereof to the appropriate Government.
(2)
Each Ministry or Department shall, in relation to the public authorities within their jurisdiction, collect and provide such information to the Central Information Commission or State Information Commission, as the case may be, as is required to prepare the report under this section and comply with the requirements concerning the furnishing of that information and keeping of records for the purposes of this section.
(3)
Each report shall state in respect of the year to which the report relates (a)
the number of requests made to each public authority;
(b)
the number of decisions where applicants were not entitled to access to the documents pursuant to the requests, the provisions of this Act under which these decisions were made and the number of times such provisions were invoked;
(c)
the number of appeals referred to the Central Information Commission or State Information Commission, as the case may be, for review, the nature of the appeals and the outcome of the appeals;
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E-Governance
(d)
particulars ot any disciplinary action taken against any otticer in respect ot the administration of this Act;
(e)
the amount of charges collected by each public authority under this Act;
(f)
any facts which indicate an effort by the public authorities to administer and implement the spirit and intention of this Act;
(g)
recommendations for reform, including recommendations in respect of the particular public authorities, for the development, improvement, modernisation, reform or amendment to this Act or other legislation or common law or any other matter relevant for operationalising the right to access information.
(4)
The Central Government or the State Government, as the case may be, may, as soon as practicable after the end of each year, cause a copy of the report of the Central Information Commission or the State Information Commission, as the case may be, referred to in sub-section (1) to be laid before each House of Parliament or, as the case may be, before each House of the State Legislature, where there are two Houses, and where there is one House of the State Legislature before that House.
(5)
If it appears to the Central Information Commission or State Information Commission, as the case may be, that the practice of a public authority in relation to the exercise of its functions under this Act does not conform with the provisions or spirit of this Act, it may give to the authority a recommendation specifying the steps which ought in its opinion to be taken for promoting such conformity.
26 (1 )
The appropriate Government may, to the extent of availability of financial and other resources -
(2)
(a)
develop and organise educational programmes to advance the understanding of the public, in particular of disadvantaged communities as to how to exercise the rights contemplated under this Act;
(b)
encourage public authorities to participate in the development and organisation of programmes referred to in clause (a) and to undertake such programmes themselves;
(c)
promote timely and effective dissemination of accurate information by public authorities about their activities; and
(d)
train Central Public Information Officers or State Public Information Officers, as the case may be, of public authorities and produce relevant training materials for use by the public authorities themselves. The appropriate Government shall, within eighteen months from the commencement of this Act, compile in its official language a guide containing such information, in an easily comprehensible form and manner, as may reasonably be required by a person who wishes to exercise any right specified in this Act.
Appendices
267 The appropriate Government shall, if necessary, update and publish the guidelines referred to in sUb-section (2) at regular intervals which shall, in particular and without prejudice to the generality of sub-section (2), include -
(3)
(a)
the objects of this Act;
(b)
the postal and street address, the phone and fax number and, if available, electronic mail address of the Central Public Information Officer or State Public Information Officer, as the case may be, of every public authority appointed under sub-section (1) of section 5;
(c)
the manner and the form in which request for access to an information shall be made to a Central Public Information Officer or State Public Information Officer, as the case may be;
(d)
the assistance available from and the duties of the Central Public Information Officer or State Public Information Officer, as the case may be, of a public authority under this Act;
(e)
the assistance available from the Central Information Commission or State Information Commission, as the case may be;
(f)
all remedies in law available regarding an act or failure to act in respect of a right or duty conferred or imposed by this Act including the manner of filing an appeal to the Commission;
(g)
the provisions providing for the voluntary disclosure of categories of records in accordance with section 4;
(h)
the notices regarding fees to be paid in relation to requests for access to an information; and
(i)
any additional regulations or circulars made or issued in relation to obtaining access to an information in accordance with this Act.
(4)
The appropriate Government must, if necessary, update and publish the guidelines at regular intervals.
27 (1 )
The appropriate Government may, by notification in the Official Gazette, make rules to carry out the provisions of this Act.
(2)
In particular, and without prejudice to the generality of the foregoing power, such rules may provide for all or any of the following matters, namely: (a)
the cost of the medium or print cost price of the materials to be disseminated under sub-section (4) of section 4;
(b)
the fee payable under sub-section (1) of section 6;
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E-Governance
(c)
the fee payable under sUb-sections (1) and (5) of section 7;
(d)
the salaries and allowances payable to and the terms and conditions of service of the officers and other employees under sub-section (6) of section 13 and subsection (6) of section 16;
(e)
the procedure to be adopted by the Central Information Commission or State Information Commission, as the case may be, in deciding the appeals under subsection (10) of section 19; and
(f)
any other matter which is required to be, or may be, prescribed.
28 (1 )
The competent authority may, by notification in the Official Gazette, make rules to carry out the provisions of this Act.
(2)
In particular, and without prejudice to the generality of the foregoing power, such rules may provide for all or any of the following matters, namely: (i)
the cost of the medilim- or print cost price of the materials to be disseminated under sub-section (4) of section 4;
(ii)
the fee payable under sUb-section (1) of section 6;
(iii)
(iv)
the fee payable under sub-section (1) of section 7; and
.
any other matter which is required to be, or may be, prescribed.
29 (1 )
Every rule made by the Central Government under this Act shall be laid, as soon as may be after it is made, before each House of Parliament, while it is in session, for a total period of thirty days which may be comprised in one session or in two or more successive sessions, and if, before the expiry of the session immediately following the session or the successive sessions aforesaid, both Houses agree in making any modification in the rule or both Houses agree that the rule should not be made, the rule shall thereafter have effect only in such modified form or be of no effect, as the case may be; so, however, that any such modification or annulment shall be without prejudice to the validity of anything previously done under that rule.
(2)
Every rule made under this Act by a State Government shall be laid, as soon as may be after it is notified, before the State Legislature.
30 (1 )
If any difficulty arises in giving effect to the provisions of this Act, the Central Goverment may, by order published in the Official Gazette, make such provisions not inconsistent with the provisions of this Act as appear to it to be necessary or expedient for removal of the difficulty: Provided that no such order shall be made after the, expiry of a period of two years from the date of the commencement of this Act.
Appendices
(2)
31
269 Every order made under this section shall, as soon as may be after it is made, be laid before each House of Parliament. The Freedom of Information Act, 2002 is hereby repealed.
THE FIRST SCHEDULE
[See sections 13(3) and 16(3)] Form of oath or affirmation to be made by the Chief Information Commissioner/the State Chief Information Commissioner/the State Information Commissioner "I, ..................... , having been appointed Chief Information Commissioner InformationCommissioner/State Chief Information Commissioner/State Information Commissioner swear in the name of Godsolemnly affirm that I will bear true faith and allegiance to the Constitution of India as by law established, that I will uphold the sovereignty and integrity of India, that I will duly and faithfully and to the best of my ability, knowledge and judgment perform the duties of my office without fear or favour, affection or ill-will and that I will uphold the Constitution and the laws.".
THE SECOND SCHEDULE (See section 24)
Intelligence and security organisation established by the Central Government 1.
Intelligence Bureau.
2.
Research and Analysis Wing of the Cabinet Secretariat.
3.
Directorate of Revenue Intelligence.
4.
Central Economic Intelligence Bureau.
5.
Directorate of Enforcement.
6.
Narcotics Control Bureau.
7.
Aviation Research Centre.
8.
Special Frontier Force.
9.
Border Security Force.
10.
Central Reserve Police Force.
11.
Indo-Tibetan Border Police.
270
E-Governance
12.
Central Industrial Security Force.
13.
National Security Guards.
14.
Assam Rifles.
15.
Special Service Bureau.
16.
Special Branch (CIO), Andaman and Nicobar.
17.
The Crime Branch -
18.
Special Branch, Lakshadweep Police.
C.I.O. -
eB, Oadra and Nagar Havell.
APPENDIX 3 Schedule For Data Collection BeneficiaryStudy SI. No.
Statements
1
Majority of the e-governance beneficiaries in Orissa are literate
2
Opinion is divided as to e-governance has failed to serve the aspirations of the poor
3
Majority of the people has never listened about e-govemance
4
E-govemance means a just computerization of the governancesystem
5
E-governance reduces corruption in administration
6
E-govemance has made the delivery of services,easier
7
People are not satisfied with the technology based adflinistration
8
E-govemance has failed to reduce the crimes in the State
9
E-govemance has changed the mindset of the administrators
10
E-govemance can be more successful if participation of the beneficiaries is ensured
Yes
No
271
Appendices
11
E-governance has no role in solving the social problems like communalism, casteism etc.
12
Overall e-governance can bring good governance
APPIENDIX 4 United Nations E-Government Readiness Index (2005) Country's Rank (Source: United Nations)
1. United States
23. France
44. Romania
2. Denmark
24. Israel
45. Bulgaria
3. Sweden
25. Italy
46. Thailand
4. United Kingdom
26. Slovenia
47. Croatia
5. Republic of Korea
27. Hungary
48. Ukraine
6. Australia
28. Luxembourg
49. Uruguay
7. Singapore
29. Czech Republic
50. Russian Federation
30. Portugal
51. Belarus
31. Mexico
52. Mauritius
32. Latvia
53. Bahrain
33. Brazil
54. Colombia
34. Argentina
55. Venezuela
35. Greece
56. Peru
15. Iceland
36. Slovakia
57. China
16. Austria
37. Cyprus
58. South Africa
17. Switzerland
38. Poland
59. Jamaica
18. Belgium
39. Spain
60. Turkey
19. Estonia
40. Lithuania
61. Barbados
20. Ireland
41. Philippines
62. Qatar
21. Malta
42. United Arab Emirates
63. Seychelles
22. Chile
43. Malaysia
64. Panama
8. Canada 9. Finland 10. Norway 11. Germany 12. Netherlands 13. New Zealand 14. Japan
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E-Governance
65. Kazakhstan
95. Grenada
66. Trinidad and Tobago
96. Indonesia
127. United Republic of Tanzania
67. Bahamas
97. Belize
128. Cambodia
68. Jordan
98.
69. TFYR Macedonia
99. Egypt
130. Bhutan
70. Costa Rica
100. Guatemala
131. Gabon
71. Lebanon
101. Azerbaijan
132. Syrian Arab Republic
72. Saint Kitts and Nevis
102. Albania
133. Ghana
73. Brunei Darussalam
103. Cuba
134. Congo
74. Saint Lucia
104. Tonga
75. Kuwait
105. Vietnam
135. SaoTome and Principe
76. Kyrgyzstan
106. Armenia
77. Maldives
107. Paraguay
78. EI Salvador
108. Swaziland
79. Uzbekistan
109. Republic of Maldova
80. Saudi Arabia
110. Suriname
81. Fiji
111. Namibia
82. Dominican Republic
112. Oman
83. Georgia
113. Nicaragua
84. Bosnia and
114. Lesotho
He~~egovina
Iran
115. Honduras
85. Bolivia
116. Cape Verde
86. Antigua and Barbuda
117. Tajikistan
87. India
118. Iraq
88. Saint Vincent and the Grenadines
119. Dominica
89. Guyana 90. Botswana 91. Samoa 92. Ecuador 93. Mongolia 94. Sri Lanka
120. Zimbabwe 121. Tunisia 122. Kenya 123. Algeria 124. San Marino 125. Uganda 126. Nepal
129. Myanmar
136. Pakistan 137. Malawi 138. Morocco 139. Nigeria 140. Solomon Islands 141. Madagascar 142. Papua New Guinea 143. Rwanda 144. Timor-Leste 145. Cameroon 146. Mozambique 147. Lao P.D.R 148. Monaco 149. Djibouti 150. Sudan 151. Benin 152. Togo 153. Senegal 154. Yemen 155. Comoros 156. Serbia and Montenegro
Appendices
273
157. Eritrea
165. Vanuatu
173. Mali
158. Angola
166. Burundi
174. Niger
159. Andorra
167. Sierra Leone
175. Palau
160. Cote d'ivoire
168. Afghanistan
176. Micronesia
161. Liechtenstein
169. Chad
177. Marshal Islands
162. Bangladesh
170. Guinea
178. Tuvalu
163. Gambia
171. Ethiopia
179. Nauru
164. Mauritania
172. Burkina Faso
DOD
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www.goyernoeletronjco.goy.br www.webel-;ndia.com www.govt.nz www.worldbank.org www.hindystantimes.com wwwl.worldbank.org www';adb.org www.;cpbrasil.goy.br
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