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Transcript of Imptact Assessment JnNURMs E-Governance Reforms 20412
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Department of Information Technology
Ministr y of Co mmunications and Information Technology
Government of India
Department of Information Technology
Ministry of Communication and IT
Government of India
Electronics Niketan, 6 CGO Complex, Lodhi Road
New Delhi- 110003
www.mit.gov.in
ABOUT THE BOOK
The Government o f India is keen to understand the nature a nd quantum of impactcreated by e-Government projects that have been implemented by state and nationalagencies under the National e-Governance Plan (NeGP). The Department of InformationTechnology (DIT), Government of India as the nodal coordinating agency for the NeGP isdirected to carry out an impact assessment study of mature state and national projectsthat have been implemented in India.
The book presents an overall view of the impact of varying degrees of computerizationin the service delivery o f four ULBS-in New Delhi, Mumbai, Hyderabad and Ko lkata fromthe perspectiveof the citizens and businesses using the municipal services. The IndianInstitute of Management, Ahmedabad (IIMA) served as the technical advisor for the
Pvt. Ltd.
This book consists of two parts PART I: Report prepared by the Center for ElectronicGovernance, IIMA and PART II: Report prepared by Nielsen ORG Centre for SocialResearch. The book is also available in the public domain on the DIT web site athttp://www.mit.gov.in
s
Impact Assessment
JnNURMs
2010Reformse-Governance
of
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Impact Assessment
of JnNURM's e-Governance Reforms
2010
Assessment of Delivery of Key Services:
The Citizens Perspective
Based on
Survey of Citizens in 4 Urban Local Bodies (Municipalities) in Four States of India
Commissioned by
Department of Information Technology
Ministry of Communications and Information Technology
Government of India
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Department of Information Technology
Ministr y of Co mmunications and Information Technology
Government of India
Department of Information Technology
Ministry of Communication and IT
Government of India
Electronics Niketan, 6 CGO Complex, Lodhi Road
New Delhi- 110003
www.mit.gov.in
ABOUT THE BOOK
The Government o f India is keen to understand the nature a nd quantum of impactcreated by e-Government projects that have been implemented by state and nationalagencies under the National e-Governance Plan (NeGP). The Department of InformationTechnology (DIT), Government of India as the nodal coordinating agency for the NeGP isdirected to carry out an impact assessment study of mature state and national projectsthat have been implemented in India.
The book presents an overall view of the impact of varying degrees of computerizationin the service delivery o f four ULBS-in New Delhi, Mumbai, Hyderabad and Ko lkata fromthe perspectiveof the citizens and businesses using the municipal services. The IndianInstitute of Management, Ahmedabad (IIMA) served as the technical advisor for the
Pvt. Ltd.
This book consists of two parts PART I: Report prepared by the Center for ElectronicGovernance, IIMA and PART II: Report prepared by Nielsen ORG Centre for SocialResearch. The book is also available in the public domain on the DIT web site athttp://www.mit.gov.in
s
Impact Assessment
JnNURMs
2010Reformse-Governance
of
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Copyright 2010 Department of Information Technology, Ministry of Communications and Information Technology.
No part of this report may be reproduced in any publication or for any commercial purpose without prior permission
from the copyright holder.
Department of Information Technology
Ministry of Communications and Information TechnologyElectronics Niketan, 6 CGO Complex, Lodhi Road
New Delhi 110 003
www.mit.gov.in
Indian Institute of Management
Vastrapur, Ahmedabad 380 015
Printed by:
Nutech Photolithographers
Okhla Industrial Area, Phase-I, New Delhi-20
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Project Team
Department of Information Technology
Mr. Abhishek Singh, Director, Department of Information Technology
Mr. Anurag Goyal, Director, Department of Information Technology
Ms. Vineeta Dixit, Principal Consultant, NeGP-Project Management Unit
Ms. Sulakshana Bhaacharya, Consultant, NeGP-Project Management Unit
Ms. Shiffy Varkey, Assistant Manager, NeGP-Project Management Unit
Indian Institute of Management, Ahmedabad
Prof. Subhash Bhatnagar, Study Coordinator
Prof. T.P. Rama Rao
Ms. Nupur Singh
Ms. Anuradha Parekh
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Acknowledgements
The team from IIMA would like to acknowledge the contribution of the Department of
Information Technology (DIT), Government of India, which funded the study. Mr. Abhishek
Singh, Director, DIT and Ms. Sulakshana Bhaacharya, Consultant, PMU were involved
at different stages of the study. We are thankful to Mr. Anurag Goyal, Director, DIT, Ms.
Vineeta Dixit, Principal Consultant, PMU and Ms. Shiffy Varkey, Assistant Manager, PMU
for their contribution to this study.
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Preface
The Government of India is keen to understand the nature and quantum of impact created
by e-Governance projects that have been implemented by state and national agencies under
the National e-Governance Plan (NeGP). The Department of Information Technology
(DIT), Government of India as the nodal coordinating agency for the NeGP is directed to
carry out an impact assessment study of mature state and national projects that have been
implemented in India.
The assessment is to focus on the nature and quantum of impact on users (citizens
and businesses). Assessment of impact on other stakeholders such as the department
implementing the project was not taken up. As a part of the first phase of assessmentstudies, three state-level e-Government projects vehicle registration, property registration
and land records were selected for assessment in twelve states across India. Three national-
level projects implemented by the Income Tax department, the Ministry of Corporate Affairs
(MCA), and the issue of passport by Regional Passport Offi ces were also assessed in 2008.
The report is available on the DIT website.
Impact assessment of municipalities under JnNURM e-Governance Project, Impact
Assessment of the Commercial Taxes project in five states and Baseline Study of the
e-District project were taken up in the current cycle of assessment studies. The Department
of Information Technology (DIT) empanelled market research (MR) agencies for carryingout the field work. Each agency was assigned the task of assessing the impact of the
respective projects and preparing an individual report for each project. The Indian Institute
of Management, Ahmedabad (IIMA) served as the technical advisor for the proposed study.
A team from IIMA worked closely with the team from DIT in the implementation of the
assessment study and provided feedback to the MR agencies at key points in the study. The
field survey of citizens in five states was carried out by AC Nielsen ORG-MARG Pvt. Ltd.
This book consists of two parts PART I: Report prepared by IIMA and PART II: Report
prepared by Nielsen ORG Centre for Social Research. The book is also available in the
public domain on the DIT web site.
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PART I
Report by Indian Institute of ManagementAhmedabad
(Page No 7 to 48)
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Executive Summary
Assessment of Delivery of Key Services: The Citizens Perspective
The report presents an overall view of the impact of varying degrees of computerization in
the service delivery of four ULBS-in New Delhi, Mumbai, Hyderabad and Kolkata from the
perspective of the citizens and businesses using the municipal services. This report is based
on the Market Research agency report which provides a detailed analysis of impact for each
ULB for each service on a variety of parameters which were included in the questionnaires
administered to users of manual and computerized services.
An overall conclusion on the impact of computerization in the 4 ULBs is one of marginalimpact on the users. Amongst the services, there was moderate positive impact on clients in
Renewal of Licenses and payment of Property Tax and Utility Bills. Important services like
issue of Birth Certificates show hardly any improvement from the users perspective. While,
there is some reduction in bribery, there is hardly any improvement in other elements of cost
such as number of trips and waiting timeacross services and ULBs. Post computerization
the performance varies widely on these parameters. All the ULBs assessed in the study had
started to replace the erstwhile manual system almost a decade back in a phased manner.
Most of the ULBs have automated their backend systems and put in work flow for many
of the services to be able to deliver the services on line through assisted counters in service
centers. The MR agency has observed that the transaction time for processing an applicationfor service at the counter has reduced- a user can be processed in a maximum of 2-3 minutes
for many services. However, this improvement in productivity does not result in benefit in
terms of time and cost saved for the consumers. Users reporting on their counter experience
complained of long queues at the counters and long waiting time. Therefore the operations
of a center have to be beer managed. The number of service counters that are operational
must match the demand. The investment in creating new counters is not large in comparison
to the benefits that result for the clients. The queues have to be managed well.
If more services can be offered through portals by computerizing end-to-end process
of delivery including document submission, payment and delivery of digitally signed
documents, and citizens are incentivized to use the portal, the work load on physical servicecenter will automatically reduce. Qualitative feedback from clients suggests that the new
way of working of the system in some of the services across many ULBs is not clear to
many clients. Such clients therefore opt for using agents rather than availing the service
themselves. There is need to create an awareness through campaigns to explain to the
consumers how the new system is designed to reduce service access costs, improve quality
and governance for those who avail the service themselves, as was done by the Greater
Hyderabad Municipal Corporation(GHMC). The focus of computerization seems to have
been on automation rather than on re-engineering processes.
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An analysis of aributes that are seen to be important by the respondents of the 4 ULBs
indicates that aributes related to governance and quality need to be improved acrossall the ULBs. Clarity and simplicity of rules and procedures is mentioned in New Delhi
Municipal Corporation (NDMC) and Brihannanana Mumbai Municipal Corporation (BMC).
Corruption in the working of the system is mentioned in 3 of the 4 ULBs for most of the
services offered by the ULBs.
Further computerization of the ULBs under the JNNURM should aim to provide all
municipal services end-to-end through a portal aer simplifying procedures, and automating
information flow and work flow to process a request for a service.
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Abbreviations and Acronyms
BMC Brihanna Mumbai Municipal Corporation
CFC Citizen Facilitation Centre
CSCs Common Service Centres
DIT Department of Information Technology
G2B Government to Business
G2C Government to Citizen
G2G Government to Government
GHMC Greater Hyderabad Municipal Corporation
IIMA Indian Institute of Management, Ahmedabad
IT Information Technology
JNNURM Jawaharlal Nehru Urban Renewal Mission
KMC Kolkata Municipal Corporation
MR Agencies Market Research Agencies
NDMC New Delhi Municipal CoporationNeGP National e-Governance Plan
NIC National Informatics Centre
NMMP National Mission Mode Programme
PMU Program Management Unit
RFP Request for Proposal
ULB Urban Local Body
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Table of Contents
Acknowledgements ..........................................................................................................................4
Preface .................................................................................................................................................5
Executive Summary ..........................................................................................................................9
Abbreviations and Acronyms ....................................................................................................... 11
Preamble ........................................................................................................................................... 15
1. Role of IIMA in The Assessment Study ............................................................................. 172. Status of Computerization of ULBs Assessed in The Study ........................................... 18
3. Research Methodology .........................................................................................................19
4. Sampling Methodology and Sample Size ..........................................................................19
5. Field Work and Data Quality ............................................................................................... 21
6. Analysis of Survey Data ....................................................................................................... 23
7. Cost Element Wise Impact ................................................................................................... 25
7.1 Profile of Respondents ............................................................................................... 25
7.2 Costs of Availing Service ............................................................................................ 25
7.2.1 Number of Trips .............................................................................................25
7.2.2 Waiting Time (In Minutes) ...........................................................................27
7.2.3 Elapsed Time .................................................................................................. 28
7.2.4 Proportion Paying Bribe (%) ........................................................................29
8. Service Wise Impact ............................................................................................................30
8.1 Birth Certificate ...........................................................................................................30
8.2 Payment of Property Tax and Utility Bills .............................................................. 30
8.3 Issue of New Trade License .......................................................................................31
8.4 Renewal of Trade License ..........................................................................................33
8.5 Redressal of Grievances .............................................................................................34
9. Learnings for Future Implementation of E-Governance .................................................36
10. Limitations of The Study ...................................................................................................... 40
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List of Tables
Table 1: Service Categories .............................................................................................................19
Table 2: Framework of The Study ................................................................................................. 20
Table 3: Sampling Units And Sample Sizes ................................................................................. 22
Table 4: Reasons for Additional Trips .......................................................................................... 37
Table 5: Reasons for Long Wait ..................................................................................................... 37
Table 6: Important Aributes Across ULBs And Services (By % of Responses) .................... 39
List of Figures
Figure 1: Number of Trips .......................................................................................................... 26
Figure 2: Waiting Time (In Minutes) ........................................................................................ 27
Figure 3: Elapsed Time (In Days) .............................................................................................. 28
Figure 4: Proportion Paying Bribes (%) .................................................................................... 29
Figure 5: Purpose of Obtaining A Birth Certificate ................................................................ 30
Figure 6: Birth Certificate .......................................................................................................... .31
Figure 7: Payment of Property Tax And Utility Bills ............................................................. 32
Figure 8: Issue of New Trade License ....................................................................................... 33
Figure 9: Renewal of Trade License ..........................................................................................34
Figure 10: Redressal of Grievances ............................................................................................. 35
List of Annexure
Annexure I Service Delivery Process ................................................................................ 41
Annexure II Outline of The Survey Instrument ............................................................... 43
Annexure III Profile of Respondents for Each ULB ........................................................... 44
Annexure IV Frequency Distribution for Number of Trips ............................................... 48
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Preamble
In view of the proposed roll out of the ambitious National e-Governance Program (NeGP),
the Government of India was keen to understand the nature and quantum of impact created
by e-government projects that had already been implemented by local, state and national
Government agencies. In the first phase of the assessment program initiated in 2008, the
Department of Information Technology (DIT) had commissioned impact assessment studies
of nearly forty mature e-Governance projects implemented by state and central agencies.
Reports analyzing the impact on the basis of these studies were put out in the public
domain. These reports were also discussed in workshops organized by IIM Ahmedabad in
November 2009 in which many of the representatives of the agencies which were assessedhad participated. These workshops provided a forum for discussing the validity of the results
and also provided inputs for improving the conceptualization and design of new projects.
For the second phase of assessment initiated in 2009, the Indian Institute of Management,
Ahmedabad (IIMA) was contracted by the Department of IT, Government of India to become
a knowledge Partner. Projects covering four ULBs; collection of commercial taxes in ten states
and a base line survey for e-district program in five states were taken up in the 2nd phase.
This report covers the assessment of delivery of services by Urban Local Bodies (ULB) in four
states. As per the 2001 population census the urban population in India constitutes 27.8% of
the total population of the country. A large number of services are provided to millions of
citizens residing in the urban areas by the municipalities. The National e-Governance Plan
(NeGP), Government of India includes a National Mission Mode Programme (NMMP) for
e-Governance in municipalities. The NMMP intends to carry out e-Governance in
municipalities on a nation-wide basis and has now been included as a part of the Jawaharlal
Nehru Urban Renewal Mission (JnNURM). The entire project is divided into two components
first the Urban Infrastructure and Governance (UIG) component and second consists of Basic
Services to the Poor.
The project envisages covering Urban Local Bodies (ULBs) in 35 mission identified cities.
The overall structure for the NMMP scheme has been divided into three tiers i.e. Centre,
State and Urban Local Body (ULB) level. NMMP, in its current form, envisages covering allULBs in class 1 cities (423 in total) during the period 2006-07 to 2010-11. The total outlay of
the project is Rs. 7870 million.
Major objectives of the JnNURM project include : to improve effi ciency and effectiveness
in interaction between local-government and its citizens and other stakeholders; to bring
about transparency and accountability in the governance of urban local bodies; to enhance
interface between urban local bodies and citizens; and help improve delivery of services to
citizens.
During the first phase, eight (8) civic services / management functions have been selected to
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be taken up in 35 Mission cities identified covering approximately 80 ULBs. These mission
cities have been so identified on the basis of having a population of 10 lakhs or more asper the 2001 census. The 8 major services delivered under this project are: Registration and
issue of birth and death certificate; Payment of property tax, Utility Bills and Management
of Utilities that come under ULBs; Grievances and suggestions; Building plan approvals;
Procurement and monitoring of projects; Health programs; Accounting system and Personnel
Information System. Two sets of mandatory reforms are proposed to be undertaken. The
core reforms at ULB level aims at process re-engineering through deployment of technology
to enable more effi cient, reliable and timely services in a transparent manner. The other set
consists of State level reforms.
The IIMA report presents an overall view of the impact of varying degrees of computerization
in the service delivery of four ULBs-in New Delhi; Mumbai, Hyderabad and Kolkata from
the perspective of the citizens and businesses using the municipal services. This report has
been compiled on the basis of a detailed report submied by the MR agency. The MR agency
report provides detailed analysis of impact for each ULB for each service on a variety of
parameters which were included in the questionnaires administered to users of manual and
computerized services. The two report should therefore be seen together for an in depth
understanding of the impact.
__________1Source: Website of Ministry of Urban Development, Government of India, hp://jnnurm.nic.in/2
Source: Website of Ministry of Urban Development, Government of India, hp://jnnurm.nic.in/
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Impact Assessment of JnNURM's e-Governance Reforms 2010
1. Role of IIMA in the Assessment Study
In its advisory role, IIMA was involved
in providing inputs to the DIT and the
Market Research agencies over the entire
life cycle of the study. IIMAs effort was
directed at ensuring that a consistent
framework was used across ULBs; the MR
agency understood the refinements to the
assessment framework made for the 2nd
phase; good quality data was collected;impact could be estimated accurately;
results could be projected to the entire
population; results could be compared
across different ULBs; and overall
conclusions could be drawn on the impact
of e-Governance. The following inputs
were provided at important stages of the
study:
IIMA had developed a framework
for assessment covering the key
dimensions on which impact on
citizens (users of a service) would
be measured. On the basis of this
framework, a template of the survey
instrument for the e-District study
was developed by IIMA and pro-
vided to the MR agency.
IIMA provided a framework
for assessment covering the keydimensions on which impact on
citizens (users of a service) was to
be measured. The framework was
similar to the one used in Phase
I studies. The scope of the study
was marginally widened to get
an understanding of the reasons
why clients made each trip (in case
additional number of trips were
made); or paid bribes or used agents.
The MR agencies were le free to add
any items beyond those specified
in the framework in designing the
survey instrument.
The MR agency was asked to submit
a proposal for the study of four ULBs
based on the proposed framework.
The proposal was discussed in a
meeting held in IIMA which was
aended by representatives of DIT,
IIMA team and the MR Agency team.
The IIMA team provided feedback
on the proposal including the survey
instrument for each ULB to ensure
that the survey complied with the
proposed framework.
Guidelines were framed for the
sampling methodology to be used
by the MR agencies to determine a
sampling plan and the sample size.
Design of a sampling plan and sample
size was reviewed by the IIMA team
and feedback was provided on
selection of locations from where
respondents were to be selected.
Templates were provided for
analysis of data to ensure that for
each project the key impacts were
reported. Formats for a set of tables
were provided for reporting data
on impact with the associated levels
of significance. Tables were also
specified to ascertain adherence to
the proposed sampling plan and to
assess the response rate. Agencies
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Impact Assessment of JnNURM's e-Governance Reforms 2010
were asked to report on data quality
by performing analysis to checkinternal consistency of results
Feedback was provided in several
rounds on the tables for correctness
of computation, and unacceptable in
level of accuracy.
A format was provided for the
reports to be submied by the agency,
outlining different sections that were
to be included. Agencies were free toinclude any additional material that
advanced the understanding of the
extent of impact or the reasons for a
certain kind of impact. Feedback was
provided on the report.
On the basis of the MR agency report and
some further analysis of raw data IIMA has
compiled this report to highlight service wise
and location wise impact of computerization
in 4 ULBs, The report includes a discussionof some lessons for further computerization
of the ULBs.
2. Status of Computerization ofULBs Assessed in The Study
At present most of the citizen services
offered by the municipalities in all the four
states have been computerized under the
JNNURM project.
The Brihannanana Mumbai Municipal
Corporation (BMC) has established
computerized Citizen Facilitation centres
(CFCs) in every ward for additional
convenience to the citizens. These CFCs
are enabled with multiple counters and
electronic queuing system. To make the
payment of property tax and water tax bills
simpler BMC provides multiple service
delivery channels. Citizens can makepayments; online through the BMC website
using ITZ cash cards, at registered SIFY
internet cafes across the city, ITZ cash service
providers, CFCs and via SMS. Facility
of filing grievances and suggestions is
available on BMC website as well as at the
CFCs. This service is currently provided
only by two ULBs (BMC and GHMC)
amongst the surveyed states.
Citizens in Kolkata can now access several
computerized services at the head offi ce of
the Kolkata Municipal Corporation (KMC),
borough offi ces in different wards as well
as through recently opened e-CSCs. KMC
is the only ULB amongst others surveyed
which provides the service for Mutation
of Property. Also there is integration done
between the Hospitals, maternity homes,
clinics, crematoriums, burial grounds,
license centres etc and KMC borough offi cesthrough a Central data centre.
Greater Hyderabad Municipal Corporation
(GHMC) provides the facility of
downloading online forms for birth/death
registration. Citizens have the facility of
checking whether their name is registered
or not through the website and thus geing
their records updated. Payments of Utility
Bills can be done online. Citizens can also
avail services at the e-Seva Kendras set up at
various places. Grievances and suggestions
can filed online with the GHMC website
and the status of the complaint filed can be
tracked online too. Also searching of Trade
Identification Number (TIN) is available on
its website.
The New Delhi Municipal Corporation
_____3
The Market Research Agency undertaking the survey was ORG Centre for Social Research, A division of the Nielson Company
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Impact Assessment of JnNURM's e-Governance Reforms 2010
(NDMC) which caters to a small population
offers the facility of obtaining online formsfor services like birth/death registration and
geing a building approval. Also additional
citizen service centres called the Palika
Suvidha Kendras (PSKs) have been set up
to provide few services such as collection of
birth/death certificates and making Utility
Bill payments. Table 1 below provides a
detailed description of the computerized
services offered by each ULB.
Annexure I provides a brief description of
procedures for availing different services in
Table 1: Service Categories
Category of Service BMC GHMC KMC NDMC
Transaction (w/overification)
Utility Bill Payment,Trade License -Renewal
Utility Bill Payment,Trade License -Renewal
Utility BillPayment, TradeLicense - Renewal
Utility BillPayment
Transaction (requiringverification ofdocuments)
Birth Certificate,Death Certificate
Birth Certificate,Death Certificate
Birth Certificate,Death Certificate
BirthCertificate,Death
CertificateTransaction(requiring personalinterface/ field visits/verifications)
Trade License - New Trade License -New, BuildingApproval
Trade License -New, BuildingApproval,Mutation
BuildingApproval
Grievance RedressalSystem
Grievance Grievance
the manual and the computerized system.
3. Research Methodology
For the purposes of analyzing the impactof the computerized system the unit of
analysis was the catchment or service
area of each ULB that was assessed.
The research methodology used for the
study is discussed below. A measurement
framework identifying key areas of direct
and indirect economic impact on citizens,
and indicators on which qualitative impact
can be measured (see Table 2) was used. The
framework had been used in phase I of the
Impact Assessment Studies.
4. Sampling Methodology and Sample
Size
The basic survey instrument was prepared by
the Market Research Agency incorporating
the key dimensions in the measurement
framework for each ULB in the local
language of the state. The questionnaire
was pre-tested on 20 respondents in each
ULB between February & March 2009
and modified on the basis of feedback. A
common questionnaire was prepared for
capturing responses on the manual system
for all services in the ULBs. A separate
questionnaire was designed for each
computerized service taking into accountthe variation in the steps to be followed and
the level of complexity involved. An outline
of the survey instrument used and the
sections included are given inAnnexure II
Given that a sample size of 800 per city
had been agreed upon, the sampling
methodology for the impact assessment
was designed in such a way as to provide
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Impact Assessment of JnNURM's e-Governance Reforms 2010
Cost of Availing Service Measured Directly
Number of trips made for the service
Average travel cost of making each trip
Average waiting time in each trip
Estimate of wage loss due to time spent in availing the service
Total time elapsed in availing service
Amount paid as bribe to functionaries
Amount paid to agents to facilitate service
Overall Assessment
Preference for manual versus computerized systems
Composite score: Measured on a 5-point scale factoring in the key aributes of a delivery system thatare seen as being important by users
Quality of Service: Interaction with staff, complaint handling, privacy, accuracy measured on a 5-pointscale
Satisfaction with the location of the service delivery center/offi ce
Convenience of working hours of the service delivery center/offi ce
Overall aitude of the functionaries in terms of courteousness and friendliness
Timeliness of response to queries by clients
Satisfaction with the mechanism for complaint handling and problem resolution
Perception about the confidentiality and security of data
Satisfaction with the overall quality of service
Quality of Governance: Transparency, participation, accountability, corruption measured on a 5-pointscale
Level of corruption in the current working system
Awareness about the citizen charter
Adherence of the time frame for service delivery (elapsed time) to that specified in citizens charter
Financial loss due to delay in availing the service
Type/kind of financial loss incurred due to delay in availing the service
Extent to which government offi cials can be held accountable for their actions
Whether the rules and procedures are simple and stated clearly
Whether the agency takes responsibility for the information shared
Does the agency provide any feedback and what is the quality of response to queries?
Perception about the overall quality of governance
Table 2: Framework of the Study
accurate estimates of cost of access and other
variables collectively for all the sampled
municipalities of a city.
For the purpose of this study, clustering
of the sample was done at the following
levels: ULBs/ municipalities in each city,
geographical units within each ULB and
wards within each geographical unit. For a
given sample size, increasing the number of
wards from which samples were drawn was
seen to be capturing the maximum amount
of variability on factors that determine
the service delivery performance4. For
detailed explanation see the Phase I Impact
Assessment Report5.
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In each city one ULB was selected for purpose
of the survey. This selection was done basedon the activity levels or population covered
by each of them. The total sample size for
each ULB was 800 respondents across
computerized and manual services in each
city. This provided statistically valid samples
at 95% Confidence Level and 5 % margin of
error for each of computerized and manual
services. In each city, the administrative
area of each ULB was divided into 4
geographical units. The population in eachward for each of these units was obtained
through secondary sources and arranged
in descending order for each geographical
unit. Population was taken as a proxy for
activity levels in the ward. The median value
of ward population for each geographic unit
was obtained and one ward from each half
was taken up for survey. Therefore a total
of 8 wards were selected from each city. In
each selected ward, all service offi ces werepicked up for survey (tracer); boosters were
taken if required through a house-to-house
systematic random survey in each selected
ward for each service.
Proportionate allocation for each service
was done in each selected centre per ULB to
the total sample size of 800 depending upon
the volume of transaction of that service in
that centre. Accordingly respondents were
chosen through tracer interview6from theseselected centres. In cities/ULBs like Kolkata/
KMC that have gone for eGovernance of
more complicated citizen centric services
like mutation and building approvals, the
sample for these are further sub-divided
to include representative interviews from
agents/middlemen who are involved in
facilitation of such services.
Since the manual service is not available
anymore for the assessed services in the
ULBs, the only way of interviewing the
respondents to assess performance of the
erstwhile manual system was through the
recall method. In this method, the survey
team essentially interviewed only those
users who had availed services of the
manual system at least once, prior to using
the computerized system. Table 3 lists the
actual number of users surveyed (inclusive
of the intermediaries surveyed) in each state
and the number of sampling units from
which these were drawn.
5. Field Work and Data Quality
A 3 day training session was organized by
the MR agency in the month of April 2009
in Delhi, Mumbai, Kolkata and Hyderabad
__________
4 Sample size is determined by the desired effect size that we would like to be able to statistically detect with the desired precision (power)needed for the study. Effect size is used to measure the magnitude of impact (of computerization, in this case) and can be computed as thestandardized difference between two means. Effect sizes can be defined as small (between 0 and 0.2), medium (> 0.2 and = 0.8). The primary criterion for determining sample size in an impact analysis is the ability to detect an impact of a desired magnitudewith a high degree of confidence the Minimum Detectable Effect (MDE). In other words if we believe an impact of a certain magnitudehas policy relevance, then we should have the statistical power to test whether or not it is statistically different from zero. The smaller theMDE, the more likely we will be able to detect smaller impacts. The MDE depends on: The expected variance of the impact estimate; Theassumed significance level (selected to reduce Type 1 error), typically assumed to be 95%); The assumed power level (selected to reduceType 2 error). The typical level chosen is 80%. At this level we would have a 80 percent chance of detecting an effect as big as the MDE.
5 Department of Information technology, Government of India 2008. Impact assessment of e-governance projects. hp://www.mit.gov.in/download/ImpactAssessmentReportDra.pdf. Accesses April 11, 2009.
6 Tracer Survey is a technique wherein a survey team is employed for a period of time at the delivery centre to obtain the names andaddresses of ALL persons who visit the centre during those days. These names and addresses of people are entered into a rost-er. Oncethe number of required people are obtained (typically these would be 5 times the sample size), this activity would be discontinued; thesurvey team would then do a systematic random sampling on the names of the people who have been entered into the roster, and would
visit these sampled households to administer the questionnaire on them.
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Table 3: Sampling Units and Sample Sizes
ULB
Service
Proposed Sample Size Actual Sample SizeTotal Total
Manual Computerized
BMC
Utility Bill Payment 504 261 243
Trade License - Renewal 107 67 40
Birth Certificate 149 94 55
Death Certificate 42 33 9
Trade License - New 121 65 56
Mutation 2 2 -
Grievance 60 36 24
Total 800 985 558 427
GHMC
Utility Bill Payment 392 578 392 186
Trade License - Renewal 273 174 99
Birth Certificate 64 241 213 28
Death Certificate 184 180 4
Trade License - New 310 251 195 56
Building Approval 83 71 12
Mutation 7 7 -
Grievance 34 53 33 20
Total 800 1,670 1,265 405
KMC
Utility Bill Payment 510 199 99 100
Trade License - Renewal 162 82 80Birth Certificate 45 159 75 84
Death Certificate 141 75 66
Trade License - New 200 100 50 50
Building Approval 20 20 10 10
Mutation 20 20 10 10
Casual Permission 5 - - -
Total 800 801 401 400
NDMC
Utility Bill Payment 670 662 327 335
Trade License - Renewal 4 4 -
Birth Certificate 100 84 44 40
Death Certificate 21 11 10Trade License - New 7 7 -
Building Approval 20 40 10 30
Booking of Barat Ghar 10 - - -
Total 800 818 403 415
for supervisors and investigators to brief
them about the project and the conduct of
the survey. One observer from PMU, DIT
was present at the briefing centre. A mock
testing exercise was also conducted at the
end of the briefing among all interviewers
and supervisors. A Fieldwork Instruction
manual was prepared in the local language
of the ULB as a reference guide. As per the
report of the MR agency, field investigators
were accompanied by the supervisor for
25% of the calls. Supervisors performed
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various checks at each stage to assess the
data accuracy. At the end of each day, thesupervisor checked all filled up schedules
and data formats for consistency, and to
ensure that there were no data gaps. The
field executives monitored the performance
of the surveyors based on daily reports,
visited the survey sites to observe quality
of data being gathered and effi cacy of the
supervisors, checked about 10% of the
completed interviews for each field team
randomly and also organized debriefingand feedback sessions, whenever required.
As soon as the survey was completed
for 50 respondents in each centre, the
questionnaires and data formats were sent
to Delhi research offi ce, where a team of
coders went through the questionnaires for
consistency checks and coding, to prepare
the schedules for data entry. The coding
teams were provided with 1 day training. A
team of 10 coders and 2 coding supervisorsundertook the scrutiny and coding activity.
The analysis team from the ORG Centre for
Social Research prepared the Data entry
program in CS Pro, which has in built
consistency checks. The programme was
checked, validated & finalized with 2%
questionnaires. Data entry was undertaken
in Delhi using the finalized version of
the data entry programme. In spite of the
elaborate process put in place by the MRagency, several data errors were discovered
by the IIMA team, which were corrected
later.
There were some problems encountered
during the survey in terms of obtaining
adequate samples for each service. For
services like application for new Trade
license and death certificate the sample
size at one of the ULBs like NDMC was
too small for any statistical analysis (See
Table 3).For example the field team in Delhicould not find enough respondents either
at the NDMC centres or at the ward levels
who had come to apply fresh for a Traders
License or had just applied for one. Similarly
for death registration, the sample size was
small for NDMC, BMC and GHMC (only
computerized for BMC and GHMC). None
of the leading section questions or those
pertaining to the key issues of enquiry in
the study like costs, governance and servicequality had problems of low responses.
6. Analysis of Survey Data
The MR agency submied a report providing
an assessment of the citizen impact on the
following dimensions for each of the four
ULBs for key services offered by them:
Factors contributing to cost of access
(number of trips needed, waiting time,travel costs, payment of bribes)
Elapsed time (total time taken for receipt
of final document)
Quality of service assessed along
aributes such as responsiveness of
staff, convenience of location of offi ce
and work timings, and facilities at the
service center.
Quality of governance assessed on
aributes such as transparency, reduced
corruption, fairness of treatment, quality
of feedback and level of accountability.
Overall impact measure (preference
between manual and computerized
systems)
A single composite rating on a five point
scale of improvements perceived aer
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computerization. Respondents were
asked to rate the improvements on acommon set of twenty aributes covering
cost of access, convenience, quality of
delivery, and quality of governance. For
each project the respondents were also
asked to select the three most desirable
aributes. Based on the responses
on desirability, a weighting scheme
was generated for each of the twenty
aributes reflecting the importance of the
aribute. Using the weighting schemeand the responses on a 5-point scale, a
single composite score for improvement
was generated.
Monetized cost of access by adding travel
cost, wage loss and bribe payments.
Using the analysis provided in the MR
agency report, the following sections present
a comparative picture of the performance of
the four ULBs in two ways:
Cost element-wise impact: An aggregate
picture of overall impact for a given project
covering all dimensions across all states.
Service-wise impact: Variation acrossULBs of the impact on each of the above
dimensions for a given service.
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7.1 Profile of Respondents
An analysis of the profile of respondents
from all the four ULBs reveals that users
are primarily in the age bracket of 30
years or more. The proportion of younger
respondents (below 30) varies from 0-33%
for different services in the 4 ULBs. GHMC
has a distinctly younger user group of
users for every service, particularly for thecomputerized delivery. In terms of education
levels the sample in NDMC is very largely
literate (at least matriculation) whereas in
other 3 ULBs the proportion of semi literates
is significant- varies from 5 to 51%. There
are hardly any illiterate users in the4 ULBs
sample except in 2 services in GHMC where
the proportion is touching 10%. In NDMC
the respondents are largely from lower
middle and middle income groups andvery few are poor or from the labor class.
In KMC the sample is largely poor (with
income less than Rs. 5000 per month) and
in BMC and GHMC somewhat less so. BMC
has the largest proportions of labor as the
occupation of the respondents varying from
14 to 44% for non Trade services. The sample
is predominantly males in KMC, BMC and
GHMC, whereas in NDMC nearly 30% of
the respondents are females. (See detailed
tables for each ULB in (Annexure III). Even
though the respondents were chosen from
urban municipal areas in all the states, some
variations were observed in their profile.
7.2 Costs of Availing Service
7.2.1 Number of Trips
Figure 1below presents the number of trips
averaged over all the users for a service in
a particular ULB. Unlike many previous
projects/services that were assessed, there
seems to be no significant reduction in the
number of trips aer computerization.
There has been a marginal reduction in the
number of trips across all ULBs for services
such as Utility Bill payment and Renewal
of Traders license. However, the number of
trips has increased across all ULBs for issue
of a new Trade license post computerization.
This is due to an additional trip to the State
Industries Commission Offi ce needed to
procure the Type of Business Certificate.
Malfunctioning of computers, checking
the application status are other reasons for
citizens to make a trip. The increase in trips
may also be due to the increased level of
activity in the years that computerization
has been in place.
For services such as obtaining a Birth
Certificate, except in BMC the number
of trips has increased as compared to the
manual system. In BMC aer obtaining
the certificate from the CFC counter the
applicant can get it signed from the medical
offi cer present at the CFC center on the same
day. In other ULBs this procedure generally
requires one more trip as the medical offi cer
sits in another department/offi ce of the
ULB. Respondents indicated that additional
trips are required to collect information on
procedures, non-submission of documents
at the first time, and due to absence of offi cial
required for authentication.
The number of trips should not be more
than one for payments of Utility Bills
(property tax, electricity, water tax etc) and
for collection of certificates for Birth and
7. Cost Element Wise Impact
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Death. The chart in (Annexure IV) presents
the proportion of respondents availing abirth certificate in 1, 2, 3 or 4 trips in the 4
ULBs aer computerization. Only in BMC
and KMC, 50-60% respondents could do it
in one trip, whereas in other ULBs hardly
a few could get a Birth Certificate in one
trip. For other complex services the trips
should not be more than 2 (1 for submission
of forms and documents and 1 for collection
of the required certificate).
Simple process reforms and effective
supervision at delivery centers can reducethe number of trips and bring about a
great deal of improvement. Process reform
(clear information on procedures, reducing
number of steps in the delivery of a service,
quick information flow between different
agencies) has to be a priority in the next
phase of computerization. Ideally, if the
services can be designed to be delivered from
a Portal and citizens are incentivized to use
__________
7The colored bars in all the figures (1 to 10) represent the values of manual and computerized system.
Figure 1: Number of Trips7
Manual Computerised
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the Portal, there need not be any trips to an
offi ce for most of the simple services. Thiswill reduce the burden at the counters for
people without easy access to the Internet.
7.2.2 Waiting Time (In Minutes)
Figure 2 presents the average waiting
time in minutes for each trip made for the
service. Overall, the waiting time is high
(40-85 minutes) in most services in manual
delivery. Similar wait time was reported
for land records, transport and propertyregistration services assessed in phase I.
Computerization has reduced the wait
by 15-50% for Utility Bill Payments across
ULBs. Filing grievances on the portal
reduces the wait time to zero and makestracking of complaints easier. However, for
services such as obtaining Birth Certificate
the impact of computerization on wait time
has been negative i.e. in 3 ULBs the wait
time has gone up. In Issue and Renewal of
Trade license, the impact is marginal except
in KMC where a significant reduction has
been achieved. Some of the reasons cited for
long wait at the counters are large number of
applicants, non-functional counters as wellas frequent system breakdown-problems
that can be fixed through beer operational
management. Since some ULB have been
Figure 2: Waiting Time (In Minutes)
Manual Computerised
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__________
8 Kolkata Municipal Corporation. Reforming governance systems in Kolkata, hp://www.metropolis.org/metropolis/sites/default/files/comisiones/2009-2011/c2/Case%20Study%20Kolkaa.pdf. Accessed Feb 20, 2010.
able to reduce the average wait time to 30
minutes for different types of service, itshould be possible for others to achieve
similar results.
7.2.3 Elapsed Time
Figure 3presents the elapsed time in days
between application for a service and its
final delivery. Overall, the average elapsed
time has increased aer computerization
for most services across all ULBs. The only
due to the integration of information flow
between the hospitals, maternity homes,clinics, crematoriums, burial grounds,
license centers etc and KMC borough
offi ces through a Central Data Centre8. In
other ULBs because of poor communication
between the hospitals and ULBs the
applicant needs to make multiple trips to
the hospital to expedite the process.
For procuring a new Trade license which is
a complex service (involving any steps) the
Figure 3: Elapsed Time (In Days)
average elapsed time in the computerized
system ranges from 10 to 20 days. As
compared to the manual system elapsed time
has in fact increased. The primary reason
for the increase is due to the mandatory
submission of the type of service delivery
certificate to be obtained from the State
Industries Department.
improvements are a one day reduction in
Birth Certificate in BMC and a significant
reduction in Renewal of Trade licenses
across all ULBs. The data shows a great
deal of variability in elapsed time for Birth
Registration ranging from 3 to 8 days across
ULBs aer computerization. Ability of KMC
to deliver a Birth Certificate in 2-3 days is
Manual Computerised
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7.2.4 Proportion Paying Bribe (%)
The incidence of bribe is spread across all
services in specific ULBs in the manual
system. There is a significant lowering of
bribes aer computerization in the ULBs
where the bribery in the manual system
was high. In general, post computerization
the incidence of bribery is low except in the
issue of Trade license in BMC and KMC and
in Renewal of Trade license in GHMC (See
Figure 4). The reasons cited for payment
of bribes are: expediting the process of
service delivery, to enable service to be
provided out of turn and to influence the
functionaries to manipulate record in favor
Figure 4: Proportion Paying Bribes (%)
of citizen. Therefore if process reform is
carried out, which makes the system moreeffi cient and takes away discretion to delay
or deny service from the functionaries,
bribery can be reduced. Proportion of
bribery (corruption) for making Utility
Bill payments in the manual system was
very low in all ULBs apart from GHMC.
Post computerization incidence of bribe
has almost been eliminated. Opening up of
multiple delivery centers, multiple payment
options in few ULBs and effi cient queuemanagement (BMC) has made offi ces more
client-friendly and reduced the need to
expedite delivery.
Manual Computerised
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Figure 5: Purpose of Obtaining A Birth Certificate
8.1 Birth Certificate
Nearly 16% of all respondents had obtained
a Birth Certificate in either the manual
or computerized mode. Birth Certificate
is a valued service as it is required for
employment and for other economic
activities such as applying for a loan. The
figure 5below analyzes the reasons for which
a Birth Certificate is obtained.
The impact of computerization is verymarginal across the 4 ULBs on all the
elements that constitute the cost of accessing
the service for a citizen(See Figure 6 below).
The waiting time reported below is the total
wait for all the trips that were made. GHMC
seems to have improved the perception of
governance and quality. Major contribution
to the improved perception is the significant
reduction in bribery (17% to 4 %) as well
use of intermediaries. (40%to 4 %). Given
the fact that a large proportion of citizens
amongst all users seek a Birth Certificate the
impact of computerization is insignificant.
Process reform in terms of improved sharing
and transfer of information from maternity
homes/hospitals to the municipalities needs
to be implemented to improve performance
on the hard elements of costs such as wait
time and number of trips.
8.2 Payment of Property Tax andUtility Bills
Almost 46% of all respondents paid
property tax or Utility Bill in a manual
or computerized mode across the ULBs.
However, for this largest group of users,
the impact of computerization is marginal
across ULBs. Some reduction in waiting
time (ranging from 16%-50%) has been
possible across the 4 ULBs but on all other
8. Service Wise Impact
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parameters the performance of the manual
and computerized system is equally
poor (See Figure 7 below). Bribery is not a
significant problem in 3 ULBs. In GHMC
computerization has helped eliminatebribery and that is why composite score of
GHMC has improved.
8.3 Issue of New Trade License
Application for New Trade license is the
second most used service at 3 of the ULBs
barring the NDMC. Nearly 16% of all
respondents in 3 ULBs used the service. The
service is more complex that payment of a
bill and the user is a Trader/ businessman
(See Annexure III). However the impact
of the computerized system has been
marginal across the three ULBs as indicated
inFigure 8below. Impact in terms of cost of
availing service (no of trips, waiting time
and elapsed time) has been negligible. Only
GHMC shows a significant reduction in the
percentage of users paying bribes (from
24% to 3 %) and also a reduction in the use
of intermediaries (from 45% to 7 %). This
is why GHMC scores much beer on the
perception of quality and governance as
compared to other ULBs.
Figure 6: Birth Certificate
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Figure 7: Payment of Property Tax and Utility Bills
Manual Computerised
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8.4 Renewal of Trade License
Application for Renewal of Trade license
is the second most used service at 3 of the
ULBs barring the NDMC. Nearly 16% of
all respondents in 3 ULBs used the service
(See Annexure III). Computerization has
created a modest positive impact on most
of the performance parameters assessed in
the study. There was marginal reduction
in number of trips, a moderate reduction
in total waiting times, and a significant
reduction in elapsed time. Bribery and
proportion using intermediaries has also
been reduced significantly and eliminated
in some cases (See Figure 9). Across the ULBs
there is improved perception of quality,
governance and the composite overall
performance. GHMC shows the maximum
improvement because the manual delivery
Figure 8: Issue of New Trade License.
Manual Computerised
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Impact Assessment of JnNURM's e-Governance Reforms 2010
was rated as poor on many dimensions.
Ideally, Renewal should be possible through
a web portal obviating the need for a visit to
the offi ce.
8.5 Redressal of Grievances
The results presented in Figure 10 suggest
that the impact of computerization on
Figure 9: Renewal of Trade License
initiating the Redressal of a Grievance has
been significant for both the ULBs. Waiting
time has been eliminated and bribery has
been reduced. However, the resolution of
Grievances has not improved as indicated
by longer elapsed times. GHMC seems to
have improved the perception of quality
and governance.
Manual Computerised
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Figure 10: Redressal of Grievances
Manual Computerised
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An overall conclusion on the impact of
computerization in the 4 ULBs is one of
marginal impact on the users. Amongst
the services, there was moderate positive
impact on clients in Renewal of Licenses
and payment of Property tax and Utility
Bills. Important services like issue of Birth
Certificates show hardly any improvement
from the users perspective. While, bribery
has been reduced in some cases, there is
hardly any improvement in other elements
of cost such as number of trips and
waiting time across services and ULBs.
Post computerization the performance
varies widely on these parameters
whereas IT enabled process reforms and
standardization should have produced a
more even performance.
All the ULBs assessed in the study hadstarted to replace the erstwhile manual
system almost a decade back in a phased
manner. Most of the ULBs have automated
their backend systems and put in work
flow for many of the services to be able
to deliver the services on line through
assisted counters in service centers. The
MR agency has observed in its report that
the transaction time for processing of
applications for services has reduced for theULBs to a considerable extent. For example,
the MR agency field staff observed that at
the counters each user can be processed by
the ULB counter assistant in a maximum of
2-3 minutes for many services. However, the
improvement in productivity in processing
does not result in benefit in terms of time
and cost saved for the consumers. Users
reporting on their counter experience
complained of long queues at the counters
9. Learnings for Future Implementation of e-Governance
and long waiting times. Long queues were
also observed by investigators during the
surveys-explaining why the benefit of
internal effi ciency in the ULB is not being
transferred to the consumer.
Table 4 below presents the reasons for
additional trips across all services. Long
queues are cited as a reason for every service
by a large proportion of users. Providingadequate number of counters can take care
of the problem. A well designed portal can
allow download of applications, checking
status and conveying the procedure for
obtaining a service in clear manner to obviate
the need for making a trip. Table 5 presents
the reasons for long wait at the center in the
manual and computerized systems across
all services. Too many customers, non
working counters, poorly trained staff is themain reasons cited by the users. Improved
operational management can take care of
some of these reasons
There are many types of actions that can
improve the impact on clients:
The operations of a center have to be
beer managed. This means that the
number of service counters that are
operational must match the demand.The investment in creating new counters
is not large in comparison to the benefits
that result for the clients. The queues
have to be managed well.
If more services can be offered through
portals by computerizing end-to-end
process of delivery including document
submission, payment and delivery of
digitally signed documents, and citizens
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__________
9In the survey questionnaire the respondents were asked to identify reasons for making additional trips to the centre for a particularservice (if no of trips =>3). This was a multiple response question. N is addition of the manual and computerized samples for each serviceof all 4 ULBs.10In the survey questionnaire the respondents were asked to identify reasons for long waiting time at the center particular service. This
was a multiple response question. N is addition of the manual and computerized samples for each service of all 4 ULBs.
incentivized to use the portal the work
load on physical service center will
automatically reduce.
As discussed in the previous section,
in case of more complex services such
as mutation, Building Approvals, New
Traders Licenses and Grievances,
the client has hardly experienced any
improvement. Providing qualitative
feedback, clients reported that they didnot understand the new way of working
of the system in some of the services across
many ULBs. Many clients therefore opt
for using agents rather than availing the
service themselves. A possible solution
Table 4: Reasons For Additional Trips9
Reasons for Additional Trips(% of responses)
Services BirthCertificate
UtilityBill
NewTrade
License
TradeLicense
Renewal
Grievances
N=86 N=64 N=114 N=39 N=45
Processing time at the offi ce 63 49
All documents/forms were not submied the firsttime
35
To collect information on procedures andrequired documents
45 61 22
To obtain application form 18
Power failure/equipment breakdown at the
service area. 9 8 13
Long queues 30 100 56 92 24
Absence of offi cial required for authentication 20 4
To check application status 28 39 76
Table 5: Reasons For Long Wait10
Reasons Long wait at the center
(% of responses)
Services BirthCertificate
UtilityBill
NewTrade
License
TradeLicense
Renewal
Grievances
N=101 N=31 N=35 N=22 N=12
Many counters were not working 73 10 57
There were too many customers in the servicearea
78 58 26 100 58
Staff do not appear to be well trained , so areslow at processing application
77 13 6 58
Frequent system/equipment breakdown 26 26 40
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is to create an awareness campaign
explaining to the consumers how thenew system is designed to reduce
service access costs, improve quality
and governance for those who avail the
service themselves. Some efforts were
made at GHMC, through an awareness
campaign among the clients highlighting
the benefits of the computerized process
over the manual system. Moreover,
the GHMC website is used to educate
the users including options of searchand find, and preparation of system
generated dummy certificates for birth
and death registration. The process of
awareness creation has reduced the
usage of intermediaries for most services
across GHMC.
There is need for reengineering processes
for the delivery of services. A comparison
of the computerized and the manual
system for each of the services showsthat there is not much difference between
the two so far as the client is concerned.
The entire focus of improving delivery
times is through automation. Until and
unless there is a reduction in steps in
the processes needed to service a clients
application, it is diffi cult to impact the
cost to the client.
One of the important information gathered in the survey was users
response on which three of the twenty
aributes of service delivery (read
out from the survey instrument) were
considered important by the users of
each project in different states. Table 6
depicts the data from these responses in
terms of the aributes that were found
to be more important for each type of
project across states. The first learning
is that users perception of what is
important varies with the projects andstates. Therefore, user participation in the
design of the delivery system prior to its
implementation is extremely important.
Consultation with the users is seldom
done. There are five aributes which are
considered important in 4-5 states by
users of two of the three services.
An analysis of aributes that are seen to
be important by the respondents of the 4
ULBs indicates that aributes related to
governance and quality need to be improved
across all the ULBs. Clarity and simplicity
of rules and procedures is mentioned
in NDMC and BMC. Corruption in the
working of the system is mentioned in 3 of
the 4 ULBs for most of the services offered
by the ULBs. As reported earlier, corruption
is one area where some improvements have
occurred in many of the ULBs. In subsequent
computerization greater emphasis needs to
be paid on reducing the discretion of civil
servants in processing requests for services
and also in making the rules and procedures
simple and transparent.
Factors related to quality of service are also
mentioned in all the ULBs. These are areas
where it is easy to make improvements. For
example, queue management is mentioned
in 3 of the 4 ULBs. Queue management can bedone by puing a simple electronic system
of displaying a token number that is due for
processing at any counter. It is interesting
to note that the cost of availing services is
not seen to be important in ULB services,
whereas in many other services that were
assessed last year, cost was considered to be
quite important. The primary reason is that
ULB services are available locally within
a city and therefore cost of travel is not as
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large as for other services where long travel is involved.
Table 6: Important Aributes Across ULBs and Services (by % of Responses)
Services BirthCertificate
UtilityBill
NewTrade
License
TradeLicense
Renewal
Grievances
NDMC
Clarity and simplicity of rules and procedures 45.45 -
Ease of access to data 25.00 -
Ability to complain 25.00 -
Management of queuing system - 54.60Legibility of print outs - 26.07
Location of service center 27.27 34.05
Total 122.72 114.72
BMC
Clarity and simplicity of rules and procedures 22.22 - - 30.30 20.59
Communication by department on progress 20.00 21.96 - - -
Accountability of offi cers 17.78 - - 22.73 -
Corruption of working system 17.78 20.56 26.98 25.76 -
Convenience of working hours - - - 23.53
Design and layout of application form - - 10.63 - -
Responsiveness of functionaries 22.22 - - - 23.53Legibility of print outs 22.22 22.43 - - 26.47
Durability of certificates 20.00 - 22.22 - -
Effort in document preparation - - 20.63 - -
Total 142.22 64.95 80.46 78.79 94.12
KMC
Corruption of working system 52.00 37.37 48.00 34.15
Accountability of offi cers 33.33 36.36 - -
Ability to complain - 40.40 42.00 40.24
Management of queuing system 34.67 36.36 36.00 39.02
Total 120 150.49 126 113.41
GHMC
Corruption of working system - - - - 21.21
Dependence of intermediaries - - - - 21.21
Security of data 25.47 22.31 - - -
Management of queuing system - 22.31 - - -
Location of service center 39.62 35.90 30.99 32.37 -
Durability of certificates 31.13 30.51 27.84 25.43 -
Responsiveness of functionaries - - 27.32 27.75 27.27
Costs of availing service - - - - 30.30
Total 96.22 111.03 86.15 85.55 99.99
(%) based on number of responses Quality of governance Quality of service Cost of availing service
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10. Limitations of The Study
The sample size for new Trade licenses in
NDMC was very small; inadequate for any
statistical analysis. The field team of the
MR agency in Delhi could not find enough
respondents who had applied for a Traders
license either at the NDMC centers or at the
ward level. Similarly for Death Registration,
the sample size was small for NDMC for both
modes of delivery and for computerizedservices in BMC and GHMC.
A few limitations of the study should be
recognized while interpreting the results.
First, in the absence of any benchmark
surveys of the existing manual system, the
study relied on recall for eliciting experience
with manual delivery of the service. In some
cases, manual systems were completely
replaced by the current computerized
system about 8-10 years back and in othercases the frequency with which users avail
a service might be very low. This might
make recalling experience with the manual
system challenging for users. However, it
is not clear in which direction, if any, this
might bias the results.
Second, although all effort was made
to ensure that the sampled users were
representative of the broader population,
a complete list of users was not always
available from delivery centers that wereselected in the sample. Geing a list of
users that had used services in the manual
system was even more diffi cult. Therefore,
a sampling frame could not always be
drawn for randomly selecting respondents.
In such cases respondents were picked up
randomly by using a house to house survey.
Third, because of the sensitivity of certain
questions, it was diffi cult to get respondents
to answer some questions. In particular,eliciting data on bribery was diffi cult in some
ULBs, particularly if agents were used.
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Annexure II: Outline of The Survey Instrument
Section No. Dealing with questions related to
1 Identification of respondents: Name, address, status of the respondents, village/city,
taluka and district where he/she belongs to, residential address of the respondent
and status in the family.
2 Awareness of the respondent regarding the computerized services: Duration and
source of awareness, actual user profile from the household at the computerized
centre
3 Services Availed: Incidence of services availed and date of actual availing of the
service
4 Costs of Availing Service: Distance, usual mode of travel, number of trips, traveltime and cost of each trip, waiting time, wage loss, service charges, errors in docu-
ments, number of trips, incidence of bribes, amount of bribe paid, purpose of paying
bribes, payments made to intermediaries, total payments made, level of anxiety in
order to obtain the service
5 Overall Assessment: Perception about improvement in 22 of attributes related to
costs, service quality and governance regarding manual vis--vis computerized
systems, ranking of 3 most important attributes out of the above, preference or
otherwise of the computerized land records centre vis--vis the manual land records
centre
6 Perception of the user about quality of governance and quality of service
7 Perception of user about eGovernance: General statements to understand the levelof liking or otherwise of the respondent to the eGovernance system
8 Respondent Profile: Gender, education, income, occupation, type of house
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Annexure III: Profile of Respondents for Each ULB
Profile of Respondents New Delhi Municipal Corporation (NDMC)
Background Characteristics
NDMC Services
Birth Certificate Death Certificate BuildingApproval
Utility BillPayment
M C M C M C M C
Number of Respondents 44 39 11 10 9 28 326 331
Age (in years) (%)
Less than 30 0 13 9.1 0 22 3.6 22 31
30-40 61 67 64 30 22 21 44 35
40 or more 39 21 27 70 56 75 33 35
Gender (%)Male 66 69 73 70 89 93 64 73
Female 34 31 27 30 11 7.1 36 28
Education (%)
Illiterate 4.5 0 0 0 0 0 1.2 2.1
Schooled 14 13 9.1 0 0 0 8.2 4.8
Matric and above 82 87 91 100 100 100 91 93
Occupation (%)
Cultivation/laborer/ worker 2.3 5.1 9.1 20 22 0 0.9 3
Executive /clerical 43 54 27 10 22 18 45 38
Businessman 18 5.1 27 50 44 75 12 15
Dependent/student 4.5 5.1 9.1 0 11 7.1 17 22
Other 32 31 27 20 0 0 25 22
Monthly Income (%)
Less than Rs. 5000 4.5 10 9.1 0 0 0 0 1.5
Rs. 5000-10000 18 31 9.1 0 44 0 29 25
Rs. 10000-30000 52 51 55 70 11 7.1 68 65
Rs. 30000 or more 25 7.7 27 30 44 93 3.4 8.5
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Profile of Respondents Brihannanana Mumbai Municipal Corporation
BackgroundCharacteristics
BMC Services
Birth
Certificate
Death
Certificate
Grievance Utility Bill
Payment
Trade
license new
Trade license
Renewal
M C M C M C M C M C M C
Number of Respondents 90 53 31 9 34 21 214 201 63 51 66 40
Age (in years) (%)
Less than 30 10 25 9.7 11 8.8 14 26 18 13 18 17 7.5
30-40 42 49 19 44 41 33 29 34 33 35 26 23
40 or more 48 26 71 44 50 52 46 47 54 47 58 70
Gender (%)Male 82 83 87 89 88 86 86 88 97 98 97 100
Female 18 17 13 11 12 14 14 12 3.2 2 3 0
Education (%)
Illiterate 0 0 0 0 0 4.8 2.8 4 0 0 0 0
Schooled 39 28 29 22 26 14 29 29 24 26 29 43
Matric and above 61 72 71 78 74 81 68 67 76 75 71 58
Occupation (%)
Cultivation/laborer/worker 26 23 16 44 18 14 15 21 4.8 2 1.5 7.5
Executive /clerical 13 23 16 22 38 24 18 21 7.9 5.9 11 2.5
Businessman 36 26 36 11 24 24 36 31 81 84 82 83Dependent/student 7.8 7.5 13 0 15 19 12 12 1.6 0 1.5 0
Other 18 21 19 22 5.9 19 19 14 4.8 7.8 4.5 7.5
Monthly Income (%)
Less than Rs. 5000 16 19 6.5 33 12 14 19 23 4.8 16 3 10
Rs. 5000-10000 58 49 65 56 56 19 52 42 49 43 56 53
Rs. 10000-30000 21 32 29 11 21 57 28 31 46 37 41 33
Rs. 30000 or more 5.6 0 0 0 12 9.5 1.9 4 0 3.9 0 5
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Profile of Respondents Kolkata Municipal Corporation (KMC)
Background Characteristic
KMC Services
BirthCertificate
DeathCertificate
Mutation
UtilityBill
Payment
Tradelicense new
Tradelicense
Renewal
M C M C M C M C M C M C
Number of Respondents 75 84 75 66 10 10 99 100 50 50 82 80
Age (in years) (%)
Less than 30 19 33 13 23 0 0 2 10 6 22 3.7 10
30-40 37 46 29 46 0 0 12 28 28 32 34 39
40 or more 44 20 57 32 100 100 86 62 66 46 62 51
Gender (%)
Male 51 51 71 65 90 100 86 78 98 98 95 98
Female 49 49 29 35 10 0 14 22 2 2 4.9 2.5
Education (%)
Illiterate 2.7 2.4 4 7.6 0 0 2 0 4 0 0 0
Schooled 48 51 49 41 0 10 35 26 30 28 34 30
Matric and above 49 46 47 52 100 90 63 74 66 72 66 70
Occupation (%)
Cultivation/laborer/worker 2.7 1.2 0 1.5 0 0 0 0 0 0 0 0
Executive /clerical 1.3 6 11 20 0 20 7.1 8 0 0 0 0
Businessman 36 33 33 32 20 40 30 40 1000 1000 98 99Dependent/student 8 3.6 20 9.1 70 40 43 26 0 0 0 1.3
Other 52 56 36 38 10 0 19 26 0 0 2.4 0
Monthly Income (%)
Less than Rs. 5000 64 64 65 83 10 40 58 48 62 68 76 51
Rs. 5000-10000 24 19 27 6.1 50 40 29 29 24 26 22 40
Rs. 10000-30000 12 11 5.3 9.1 20 20 8.1 19 12 2 1.2 6.3
Rs. 30000 or more 0 6 2.7 1.5 20 0 5.1 4 2 4 1.2 2.5
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Rofile of Respondents Greater Hyderabad Municipal Corporation (GHMC)
Background Characteristic
GHMC Services
BirthCertificate
DeathCertificate
Buildingapproval
UtilityBill
Payment
Tradelicense
new
Tradelicense
Renewal
Grievances
M C M C M C M C M C M C M C
Number of Respondents 212 28 180 4 71 12 390 186 194 55 173 92 33 20
Age (in years) (%)
Less than 30 15 29 15 25 8.5 42 15 26 16.5 38 16 24
30-40 31 54 42 50 34 25 38 31 45 51 45 57 39 10
40 or more 54 18 43 25 58 33 47 44 38 11 39 20 61 90
Gender (%)
Male 86 82 84 0 80 67 87 84 89 98 90 95 91 95
Female 14 18 16 100 20 33 13 16 11 2 10 5.4 9.1 5
Education (%)
Illiterate 9.9 7.1 8.9 25 11 0 7.4 6.5 5.2 0 4.6 0 3 0
Schooled 21 21 18 25 27 17 20 19 19.1 9 19 17 12 5
Matric and above 69 71 73 50 62 83 73 75 76 91 77 83 85 95
Occupation (%)
Cultivation/laborer/worker 7.5 7.1 3.3 0 7 0 5.4 11 4.1 0 2.9 0 0 0
Executive /clerical 6.1 3.6 8.3 0 4.2 50 5.4 13 6 4 3.5 1.1 3 5
Businessman 63 68 61 0 52 25 68 44 74 96 79 98 76 35
Dependent/student 8.5 3.6 12 0 14 25 9 13 8 0 6.9 1.1 3 0
Other 15 18 16 100 23 0 13 18 8.2 0 8.1 0 18 60
Monthly Income (%)
Less than Rs. 5000 24 14 16 0 28 0 17 24 7.2 0 7.5 1.1 0 0
Rs. 5000-10000 31 39 41 100 35 0 30 39 26.3 9.1 28 13 18 5
Rs. 10000-30000 37 46 42 0 34 83 45 33 54 69.1 57 78 79 90
Rs. 30000 or more 9 0 1.7 0 2.8 17 8.2 4.8 13 22 7.5 7.6 3 5
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Annexure IV: Frequency Distribution For Number of Trips
Birth Certificate
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PART II
Report