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6IMPLEMENING e-GOVERNANCE REFORMS6.1 Te Challenge

6.1.1 e-Governane has to e implemented aross dierent departments and organizations

with a wide spetrum o ativities and with varying levels o readiness or e-Governane.

Ahieving the desired results would, thereore, require the ullest politial aking, a

determined and resolute approah y all organizations and departments o Governmentas well as ative and onstrutive partiipation y the puli. It would require providing

institutional and physial inrastruture or taking e-Governane initiatives aross our

ultural and regional diversities; more importantly it would require the reation o an

environment that would enourage the adoption o Ic. Tus, apart rom the tehnial

requirement, suess o e-Governane initiatives would depend on apaity uilding and

reating awareness within government and outside it.

6.1.2 Dr. APJ Adul Kalam, ormer President o India and a visionary in the eld o

e-Governane has aptly summarized the asi hallenge lying eore the ountry in thisregard:

e-Governance,hastobecitizen-friendly.Deliveryofservicestocitizensisconsidered

a primary unction o the government. In a democratic nation o over one billion

people like India, e-Governance should enable seamless access to inormation andseamless fow o inormation across the state and central government in the ederal setup.No country has so far implemented an e-Governance system for one billion

people. It is a big challenge before us.65(emphasis added)

based on the ore priniples enumerated in the earlier chapter, the implementation oe-Governane would require the administrative measures mentioned elow.

6.2 Building a Congenial Environment

6.2.1 As government organizations untion at varying degrees o I-preparedness, there is

rst o all a need or uilding an environment within government organizations at various

levels whih is onduive to e-Governane. Tis would require omputerization o the

65Inaugural address at II Delhi during International conerene on e-Governane, 18th Deemer, 2003; (reprodued in compendium o eGovernaneInitiatives in India, ed. Piyush Gupta & R.K. bagga; https://www.si-sigegov.org/puliations.htm)


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lowest possible unit, as well as building apaity at the individual level whih reognizes

the need or reorms in proesses using modern tehnology. Te essential elements in this

phase are as ollows:

i. Te will to change: Deades o ollowing a partiular mode o governane

proedure tends to develop inertia and resistane to hange. Further, old

skills and habits will require to be replaed with new skills and new proesses

i e-Governane is to sustain. Tere has to be a strong will rom within the

government itsel to rossover rom the present system to e-Governane.

ii. Political support at the highest level: Te vast sope o e-Governane ombined

with the enormous task o proess re-engineering whih will be neessary at

various levels and the inrastrutural and nanial requirement neessarily allor ommitment to the vision o e-Governane at the highest politial level. A

bottom-up approah will not sue.

iii. Incentives: Weaning government entities rom the mehanial appliation

o tehnology to adoption o e-Governane tools will require inentivising

e-Governane among dierent entities and individuals. Tese inentives need

to be refeted in the budgetary alloations.

iv. Awareness: Apart rom building apabilities within the government, there is need

or generating widespread awareness among the publi at large. Te suess oe-Governane lies in inreasing the number o eletroni interations between

itizens and the government and not merely in building the inrastruture o

e-Governane. In addition to governmental measures, a proative approah

rom ivil soiety groups would also generate greater demand and aeptane

or e-Governane initiatives. Further, this would also require the adoption o

quality as a mission o governane, as was done in Japan.

v. Overcomingresistancetochange: e-Governane has to be a olletive eort.

However, in every organization, there are people who would not be onvined

about its benets or who would pereive it as a hallenge to ertain entrenhed

interests. Suh resistane would need to be overome by demonstrating the

potential benets o e-Governane; how it strengthens the organization

internally, reates goodwill externally and above all, enhanes itizens

satisation.

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vi. raining and capacity building: raining would have to e imparted togovernment oials starting right rom the utting edge level so that any

apprehensions o intrusive tehnology is removed and e-Governane is aepted

as an ahievale and desirale target.

6.2.2 Recommendations

a. Building a congenial environment is a sine qua non or successul

implementation o eGovernance initiatives. Tis should be achieved by:

i. Creating and displaying a ill to change ithin the government

ii. Providing political support at the highest level

iii. Incentivising eGovernance and overcoming the resistance to change

ithin government

iv. Creating aareness in the public ith a vie to generating a demand

or change.

6.3 Identication o eGovernance Projects and Prioritisation

6.3.1 Within the overall ramework o governane reorm, e-Governane initiatives are

undertaken to serve some asi needs:

i. to provide inormation and servies to the itizen whih are qualitatively

superior to those urrently availale and are provided in a less umersome

manner.

ii. to re-engineer governmental proesses to ahieve the aove and also to make

the system more eient, transparent, aountale and ost-eetive.

iii. to strengthen the deision-making proess through onnetivity and transmission

and analysis o large amounts o data.

Te National Knowledge commission has reommended:

o make an immediate impact on citizens it is critical to identiy and simpliyimportant processes and services, say 10 to 20 to begin with, which are currentlycumbersome, bureaucratic and prone to unnecessary delays and even corruption. Tese

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4

processescanbesimpliedandmadeavailableasweb-basedservices.Initially,these

servicescouldincludebirthcerticate,deathcerticate,proofofresidence,ration/

IDcards,etc.Otherprocessescanbeaddedoveraperiodoftime.Tisapproach

will require each state to implement these processes in concert and learn from eachother.

6.3.2 Te Organisation or Eonomi co-operation and Development (OEcD) has defned

our stages o e-government, eah one more demanding than the next.66 Tese are:

i. Information: putting inormation on we-sites

ii. Interaction: allowing itizens to enquire aout servies, proedures et. andflling up orms and sumitting them online

iii. ransaction: allowing payments online

iv. ransformation: a mix o all the aove and allowing the itizen to partiipatein governane through Ic.

6.3.3 Te asi approah in ase o e-Governane projets should e to ous on KISS:

Keep it Small and Simple priniple. Tus, frst o all, government entities should identiy

projets whih would lead to providing useul and timely inormation to itizens. Tere is

need to go eyond the requirements o Setion 4(1) o the Right to Inormation At, 2005

and provide aessile inormation to itizens on the asis o an analysis o their pereived

needs. Many o the wesites o government agenies do not go eyond rudimentary

inormation and inormation to e provided under the RI At. Further, the wesites also

suer rom non-updation o inormation. However, many agenies have taken pro-ative

steps and are providing a wide range o inormation on their wesites. For example, the

wesite o the Delhi Development Authority (DDA) provides inormation, inter alia, aout

the ollowing: (i) organizational details and Annual Reports, (ii) planning, (iii) housing, (iv)

lands, (v) uran heritage, (vi) proedures, (vii) noties, (viii) sports and greens, (ix) vigilane

and (x) inormation under the RI At, 2005. A similar approah has to e adopted y

other agenies regarding dissemination o inormation.

6.3.4 Seondly, those e-Governane projets should e identifed whih do not require the

immediate reation o a historial dataase or providing servies. Suh initiatives ould

inlude servies suh as registration o irths and deaths, aleit, prospetively. Suh servies

do not require prior reation o a dataase. However, the design o the interae should e

66Soure: Te Eletroni bureaurat; A speial report on tehnology and government; Te Eonomist, Feruary 16th, 2008; pages 6-7



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suh that it should enale the ativity to ater to uture needs. Tus, in the ase o registration

o irths and deaths, the ativity should lead to uilding up o a dataase prospetively rom

suh registrations. Gradually, the past registrations ould also e inluded in the dataase.

6.3.5 Tirdly, those projets ould e identied whih allow or making elementary online

transations inluding payment or servies. Payment o eletriity ills et. ome under this

ategory. Suh initiatives are easier to implement and provide pereptile improvements in

the quality o servies delivered to itizens.

6.3.6 Fourth, are initiatives whih require veriation o inormation/data sumitted online.

A higher level o tehnologial and proess re-engineering required is represented y initiatives

whih ater to provision

o servies suh as issuingo lienes, registration

o r P D S ( P u l i

Distriution System),

et. hese initiatives

require veriation o the

data sumitted online.

Suh initiatives should

orm the next level o

implementation.

6.3.7 Finally, those

pro j e t s should e

i d e n t i i e d w h i h

require reation o and

integration into omplex

dataases. Tese would

e represented y initiatives whih would involve reation o omplex dataases suh as

the National citizen ID, whih would then e linked to other dataases and servies. It

would also inlude initiatives suh as omputerization o land reords, whih would urtherrequire integration o various dataases inluding land surveys, manual reords, satellite

data et. and involve many agenies.

6.3.8 I all these initiatives are undertaken at one go, then there is every possiility o

ostly and rustrating delays and reation o ineetive systems whih would lead to

dissatisation. Tus, as mentioned in the hapter on ore priniples, prioritization is



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required to provide early enefts to itizens. Te fve levels o projets mentioned aove

also represent the fve levels o prioritization ased on ease in implementation, time taken in

implementation and impat on the itizens. Dierent organizations ould ollow the same

priniples in prioritizing projets. However, another riterion or working out the priorityo e-Governane projets ould e on the asis o the needs o itizens. In some ases, these

may not suggest to adoption o the easy path. Although, it is advisale that projets easy to

implement should e taken up frst, ut at the same time, it is neessary to ensure that the

needs o the itizens are also given due importane while prioritizing e-Governane projets.

It also needs to e reognized that dierent government organizations/departments, oth

at the Union and State Government levels, are est plaed to identiy the initiatives whih

would require prioritization on the twin asis o ease in implementation and the needs o

the itizens. Tus, a road ramework o initiatives at dierent levels o omplexity would

have to e reated y the organizations/departments themselves. It would e the role o therespetive I departments to oordinate the ativities o various organizations/departments

in this endeavour and provide them tehnial support i needed.


a. Government organizations/departments at Union and State Government

levels need to identiy e-Governance initiatives which could be undertaken

within their unctional domain, keeping the needs o the citizens in mind.

Such initiatives may be categorized as ollows:

i. Initiatives which would provide timely and useul inormation to

the citizens.

ii. Initiatives which would not require the creation o a database or

providing useul services to the citizens. Tis may include initiatives

where database may be created prospectively without waiting or the

updation o historical data.

iii. Initiatives which allow or making elementary online transactions

including payment or services.

iv. Initiatives which require verifcation o inormation/data submitted

online.

v. Initiatives which require creation and integration o complex

databases.



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67Mihael Hammer & James champy, Reengineering the corporation A Maniesto or business Revolution, Harper business Essentials, 2003

b. Instead o implementing all such initiatives at one go, these should be

implemented ater prioritizing them on the basis o ease o implementation,

hich ould generally ollo the categories mentioned above in that order.Hoever, suitable modications in their prioritization may be made by

organizations/departments on the basis o the needs o and likely impact

on citizens.

c. Respective Departments o Inormation echnology at the Union and

State Government levels should coordinate beteen organizations and

provide technical support i needed, in the task o identication and

prioritisation.

6.4 Business Process Reengineering (BPR)

6.4.1 As mentioned in the earlier hapter, the proesses and strutures in government

organizations generally owe their existene to and are regulated y statutes, rules, regulations

et. In India, the way government institutions ondut their usiness has evolved over time

and is odied in dierent Statutes, Rules, Regulations and proedural manuals enated

or ormulated over a wide span o time (with many proesses even ontinuing rom the

olonial period). On the other hand, the sope and omplexities o governane along with

the government mahinery have expanded over time. Te advent o Ic has led to the

reognition that these tehnologies provide a unique opportunity to redesign governmentproesses not only to provide etter servies and reliale inormation to itizens ut also

to improve eieny and eetiveness within government institutions.

6.4.2 Te asi idea ehind suh re-engineering is to avail o the opportunity provided

y Ic in transorming governmental proesses and not just in modiying them. Mihael

Hammer and James champy, who in their landmark ook Reengineering the corporation

A Maniesto or business Revolution (1993) introdued the onept o usiness proess

re-engineering, have the ollowing to say in this regard:

Re-engineering is the undamental rethinking and radical redesign o businessprocesses to achieve dramatic improvements in critical, contemporary measures operormance, such as cost, quality, service, and speed.67

6.4.3 Te usiness proess re-engineering model has een urther developed y James champy

(see box 6.1). Tus, rst, there has to e onvition within the organization that proess

re-engineering will lead to greater eieny and eay. However, this onvition should

lead to the realization that Ic oers the opportunity to aomplish it now and not later.



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Seond, the rationale

or eah step involved

in a proess - oth or

ativities whih lie totallywithin the organization

and those whih involve

outside entities needs

to e examined with the

express aim o identiying

the steps whih an e

simplied or eliminated

altogether. One this

has een aomplished,the need or redesigning

the proesses a initio

immediately arises. In

the ase o government

organizations, the needs

o the itizens assume

entre-stage.

6.4.4 Presently, in India,dierent government

organizations, oth at

the Union and State

Government levels, are

engaged in arrying out

a study o their usiness

proesses with the

ojetive o re-designing

them using Ic. Tese

eorts are at various

stages o planning/

ompletion. One o the

earliest organizations

to undertake suh a

study is the Inome

ax Department whih

Box 6.1: X-engineering

James champy, one o the o-authors o the ook Re-engineering the corporation A Maniesto or business Revolution, has now put orward the idea o

X-engineering whih, riefy, involves the ollowing steps:

i. Step one: o get others within the organization to understand how tehnologyand partiularly the Internet an really drive the organization to a wholenew level o eieny. In other words, to get others within the organization tounderstand the potential o tehnology.

ii. Step two: o atually start to redesign all the proesses that govern the way theorganization does usiness. In doing so, these proesses are to e examined romeginning to end - and rom oth inside and outside the organization - anddeide what an e simplied or eliminated. At the ore o X-engineering, then,is the need to understand the rationale or every step in a proess.

iii. Step three: o redesign the proesses jointly with the entities with whih the

organization deals with.

iv. Step our: Internal re-engineering should allow the organization to do thingswhih are really important to it. o ahieve this, there is need or reatingstandards. Tis would inlude standardization o tehnology eing used.

Source: Adapted from: Expert Voice: James Champy on Re-Engineering, 2002;http://www.cioinsight.com/c/a/Expert-Voices/Expert-Voice-James-Champy-on-ReEngineering/;(extractedon24.09.2008)

Box 6.2: National Knowledge Commission onGovernment Process Re-engineering

Government proess re-engineering eore any omputerization at present thee-governane eorts are primarily ased on omputerizing age-old proesses letehind y british Raj and ompounded y a plethora o new layers and silos y Indianureauray, eah working within departmental oundaries and pet-priorities. As aresult, we are omputerizing umersome proesses and hene not ommensuratelyeneting rom it. Simply digitizing the existing government proesses merely addsan additional layer o expense, omplexity, delay and onusion. In our judgment,now is a unique opportunity in the history o India to leave ehind the britishRaj and re-engineer and modernize Government proesses to uild a new India

o the 21st entury. Hene, it is essential that we rst redesign the governmentproesses keeping the itizen at the entre, providing hassle-ree enalement oitizens, usinesses, produers and onsumers, replaing the old mistrust andontrol regime rom the british Raj. Tis redesigning o government proesses willdrastially redue the numers and duration o suessive steps required to otainservies. It will also provide traeale reords; enale enorement o individualperormane, aountaility, eieny, produtivity as well as transpareny opoliies and proesses.

Source: http://www.knowledgecommission.gov.in/downloads/recommendations/eGovernanceLetterPM.pdf



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reated a separate Diretorate o business Proess Re-engineering (bPR) or the purpose in

May 2006. An external onsultant was appointed through a gloal tendering proess or

arrying out the bPR Projet. Te projet ommened in May 2007 and was ompleted

with the nalization o 18 reports within a time rame o eight months (see box 6.3). oegin with, awareness was reated

aout the need or suh an exerise

through meetings with employees as

well as their assoiations/unions. Tis

was aimed at developing a sense o

ownership within the workore. In

the end, more than 800 departmental

personnel rom chie commissioners

to Group c employees partiipatedin the exerise. Further, ustomer

views were asertained through

speially designed questionnaires

administered to dierent ategories o

taxpayers and onsultants. Te study

inluded an As-is study phase aimed

at mapping o existing proesses

ollowed y a gap analysis to identiy

prolem areas and ottleneks. Tese,along with est gloal praties in

the eld o tax administration, were

inorporated in re-designing the

proesses and suggesting o-e

models. Suh o-e models and

reommendations have een prepared

in respet o the ollowing:68

BulkOperationsDivision

i n l u d i n g R e g i o n a lProessing centre

FacilitationCentres and

Reeipt and Despath

Units

ChangestoPAN/TANIssuanceandManagement

AssesseeTaxCreditAccountingSystem

Box 6.3: Business Process Reengineering Project oIncome ax Department

Te Union Finane Minister announed in his budget Speeh o2006 aout usiness proess reengineering (bPR) in the Inomeax Department. A Diretorate o bPR was reated within theDepartment in May 2006 whih launhed this exerise with theollowing ojetives:

Re-evaluationofallcurrentprocessestoremoveredundantandosolete proesses and redesign/reate new proesses

Identicationof stakeholdersfor information,convenienceofling tax returns & douments, payment o taxes and speedierissue o reunds and the ways in whih the organization anmeet them

Increasealignmentbetweenpeople,processesandtechnology

Enhance employee involvement, skills and organizationalreativity

Te study has een ompleted with nalization o 18 reportswhih oused on the key strategi areas o tax administration i.e.pre-assessment, assessment, post-assessment and appellate/disputeavoidane as well as key enaling proesses suh as inormationtehnology, human resoures, inrastruture et. Tis projet wasundertaken in two phases: an As-is study phase and a o-eModel stage. It was onduted at 15 loations whih inludedmetros (Delhi, Mumai, Kolkata), mid-size ities (Hyderaad,Nagpur, Patna, bhopal, Mysore, Luknow, Guwahati, Ludhianaand Shillong) and mousil areas (Hajipur, Mandya, Itarsi).

Te bPR exerise has ome up with, inter alia, a majorreommendation o untionally segregating the working o theDepartment aross two road lines a bulk Operations Division(bOD), handling routine and repetitive ativities not requiringthe use o disretion and amenale to large sale automation and acompliane Operations Division (cOD) to arry out speialized

ativities. currently, the same set o people is doing oth thesejos. cbD has aepted a majority o the reommendations.

Soure: http://www.inometaxindia.gov.in/arhive/NoteonbPR_26082008.pd

68Soure: http://www.inometaxindia.gov.in/arhive/NoteonbPR_ 26082008.pd



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CoreProcessesRedesignAssessment

CoreProcessesRedesignPostAssessment

CoreProcessesRedesignAppellate

RiskAssessmentSystem

KnowledgeManagementSystem

RecordManagementSystem

HumanResourcesandInfrastructure

GrievanceRedressalManagement

ChangeManagement

6.4.5 Te lessons whih emerge rom this projet are three-old:

i. the workore has to believe in the benefts o business proess re-engineering

through Ic;

ii. there is no shortut to step-by-step examination o all business proesses

resulting in re-designing o these proesses; and

iii. eah government organisation will have its own speif set o design outomes

whih would require lose interation between tehnologial solution providers

and the domain experts.

6.4.6 As mentioned earlier, identiying hanges in the legal and regulatory ramework

lies at the heart o business proess re-engineering in government organizations, as many

o the governmental proesses, inluding the steps involved in them, arise out o the

provisions ontained in dierent legislations, rules, regulations and proedural manuals/

odes. Proess re-engineering in the sense mentioned above would require reormulation

o suh provisions. Tis was visualized by the Standing committee on Inormation

ehnology (2005-06, Fourteenth Lok Sabha) in its 22nd Report entitled Implementation

o e-Governane Projets(Deember 2005). Te committee took note o the evidenegiven by a representative o the National Institute o Smart Governane (NISG):

As regards process, in most o the departments, we are governed by more than hundredyears old acts and rules. Tese are driving ineciency. I you put the same thing in thecomputers, a hundred-year-old process, it will get ineciency in a very ecient way.We will be enlarging that ineciency. We have to change the process behind this. A loto legislative efort at the highest level is also needed in this process area69

69Paragraph 106; Implementation o e-Governane Projets; wenty-Seond Report o the Standing committee on Inormation ehnology (2005-2006), Fourteenth Lok Sabha, dated Deember 2005.



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6.4.7 Te committee engaged in urther disussions with various I Servie and Solution

providers and reommended the ollowing:

Te Committee observe that the age-old statutes and regulations governing themanual process will not be suitable or governing the electronic processes whichrequire altogether a dierent set o legal ramework and guidelines to make the

e-Governance successul. Tey are o the strong opinion that the legal and regulatorychanges in the processes would be able to deliver the services more eciently andeectively and remove a lot o other hurdles o manual regulatory mechanism. TeCommittee, thereore, recommend that a comprehensive review o all relevant statutes

and regulations should urgently be done to bring about suitable changes therein soas to make them compatible with the cyber age technology enabling the citizens to

obtain maximum advantage o e-Governance projects. Tey urther recommend thatpossibility o bringing a new legislative mechanism may also be explored, i need be,to ensure that the implementation o e-Governance projects delivers the citizen-centric

services in an eective and successul manner.70

6.4.8 In response, the Union Department o Inormation ehnology stated in their

Ation aken Notes that they along with DAR&PG will jointly examine and review

relevant statutes and regulations and the possiility o a new legislation in order that

the itizens otain maximum advantage rom NeGP. However, the committee elt that

no onrete steps have een taken regarding a omprehensive review o all relevant

statutes and regulations governing manual proesses speially when a dierent set

o legal ramework and guidelines may e required or the purpose o e-Governane.

In their Tirty Seventh Report (Deemer 2006), the committee stated the ollowing

while expressing their onern:

In the changing scenario, it calls or immediate attention o the Government. Keepingin view the urgency involved in reviewing the relevant statutes and regulations, theCommittee desire that the matter be accorded top priority and pursued to its logicalconclusion71

6.4.9 Te commission agrees with the views o the Standing committee. Te task involving

omplete re-engineering o usiness proesses in government is in itsel stupendous. Without

providing the legal struture and mandate, it would e diult to ahieve it within any

realisti time-rame. In at, in a later hapter, the commission has reommended that

the whole ramework o e-Governane should e given a statutory aking. Even the US

legislation has provided this ramework to government entities. Tus, Setion 202 o itle

70Iid; Reommendation 54.71Paragraph 35; Tirty-Seventh Report on Ation aken y Government on the Reommendations/Oservations o the committee ontained in theirwenty-Seond Report on Implementation o e-Governane Projets; Deemer 2006



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II o the E-Government Act o 2002 prescribes Federal Agency Responsibilities in the

ollowing manner:

a) Te head o each agency shall be responsible or:

1) Complying with the requirements o this Act (including the amendmentsmade by this Act), the related inormation resource management policiesandguidanceestablishedbytheDirectoroftheOceofManagementand

Budget,andtherelatedinformationtechnologystandardspromulgated

by the Secretary o Commerce;

2) Ensuringthattheinformationresourcemanagementpoliciesandguidance

establishedunderthisActbytheDirector,andtherelatedinformation

technology standards promulgated by the Secretary o Commerce arecommunicated promptly and efectively to all relevant ocials withintheir agency; and

3) Supporting the eorts of the Director and the Administration of the

General Services Administration to develop, maintain, and promotean integrated Internet-based system o delivering Federal GovernmentInormation and services to the public under Section 204.

b) Perormance Integration

1) Agencies shall develop perormance measures that demonstrate howelectronic government enables progress toward agency objectives, strategic

goals, and statutory mandates.

2) In measuring perormance under this section, agencies shall rely onexisting data collections to the extent practicable.

3) Areas o perormance measurement that agencies should consider

include-

a. Customer service;

b. Agency productivity; and

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c. Adoption o innovative inormation technology, including theappropriate use o commercial best practices.

4) Agencies shall link their perormance goals, as appropriate to key groups,including citizens, businesses, and other governments, and to internal

Federal Government operations.

5) As appropriate, agencies shall work collectively in linking theirperformancegoalstogroupsidentiedunderparagraph(4)andshall

use inormation technology in delivering Government inormationand services to those groups.

c) AvoidingDiminishedAccess:Whenpromulgatingpoliciesandimplementing

programs regarding the provision o Government inormation and services overthe Internet, agency heads shall consider the impact on persons without accessto the Internet, and shall, to the extent practicable-

1) Ensurethat theavailabilityofGovernment informationand services

has not been diminished or individuals who lack access to the Internet;and

2) Pursue alternate modes o delivery that make Government inormation

and services more accessible to individuals who do not own computersor lack access to the Internet.

d) AccessibilitytoPeoplewithDisabilities:AllactionstakenbyFederaldepartments

and agencies under this Act shall be in compliance with section 508 o theRehabilitation Act o 1973 (29 U.S.C. 794d).

e) Sponsored Activities: Agencies shall sponsor activities that use inormationtechnology to engage the public in the development and implementation o policies and programs.

6.4.10 In eet, y providing a lear-ut mandate and presriing the deliverales, the

US law has ensured that usiness proess re-engineering in government entities gets the

attention it deserves.



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6.4.11 Several experts have underlined the importane o government proesses

re-engineering:

re-engineering administrative processes and re-organization o inormation ownershipis the most important step or implementing an e-government application. Governmententities would be required to implement substantive reorms in organizationalstructures, initiate a change in culture and mindsets, train and improve skills o its

people and put in place appropriate supporting IC inrastructure to enable onlineprocesses that are timely and ecient or both the government entity and the entities itinteracts with. Tus, the business processes would in efect be changed undamentallyto allow the eciency and transparency gains associated with e-government.72

6.4.12 Te commission has onsidered the issues involved in re-engineering o usinessproesses in government entities. It is o the view that or every untion a government

entity perorms and every servie or inormation it is required to provide, there should e a

step-y-step analysis o eah proess involved on the anvil o rationality and simpliity. Suh

analysis should inorporate the viewpoints o all stakeholders. Ater identiying steps whih

are redundant or whih require simpliation, the provisions o the law, rule, regulation,

instrution, ode, manual et. whih orm the asis o suh steps should also e identied.

Tis should e ollowed y prioritizing the untions o the government entity. Following

this exerise, proesses should e re-designed using the tools provided y Inormation

and communiations ehnology keeping in mind the ojetives o speeding up deision

making, maximizing outputs, minimizing osts, improving servie delivery and quality

o inormation to e provided et. Tis should e aompanied y re-ormulation o the

legal/regulatory ramework whih underly governmental proesses.

6.4.13 Te wholehearted partiipation o government oials within an organization

annot e overemphasized while re-engineering usiness proesses as in the end, the

tehnologial solutions would have to e put to eetive use only y them. In at, eah

government organization would e required to onstitute a separate team drawing rom

expertise availale within the organization at various levels o untioning.

6.4.14 One the usiness proesses have een re-engineered and the tehnologial

solutions developed, these should e tested in real lie situations to assess their untioning.

e-Governane projets should not e implemented on a large sale in the very rst instane.

Te pilot projet should e designed to work in the most diult irumstanes so that

the ottleneks and shortomings are identied during the pilot stage isel whih ould e

redressed eore any eort to upsale the projet is taken. However, there should e fexiility

72Suhash bhatnagar; e-Government From Vision to Implementation; Sage Puliations, 2004



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within the whole initiative to adjust to prolems thrown up at the pilot stage and a two-way

eedak proess should e ensured etween the bPR exerise and the pilot stage with the

bPR leading to the pilot stage and pilot stage leading to urther hanges in the bPR. Te

whole exerise should ous on orms, proesses, strutures and laws regulations.

6.4.15 o sum up, the commission eels that the entire gamut o ativities under business

Proess Re-engineering ould e lassied into the ollowing our heads:

a. clear assessment o itizens needs.

. Analysis o the existing proesses and identiation o the weaknesses and

redundanies.

. Redesigning o proesses and the required hanges to e made in the statuesand regulations.

d. bringing aout hanges in orms, proesses, strutures and statutes.


a. For every unction a government organisation perorms and every service

or inormation it is required to provide, there should be a stepbystep

analysis o each process to ensure its rationality and simplicity.

b. Such analysis should incorporate the viepoints o all stakeholders, hile

maintaining the citizencentricity o the exercise.

c. Ater identiying steps hich are redundant or hich require simplication,

and hich are adaptable to eGovernance, the provisions o the la, rules,

regulations, instructions, codes, manuals etc. hich orm their basis should

also be identied.

d. Folloing this exercise, governmental orms, processes and structures

should be redesigned to make them adaptable to eGovernance, backedby procedural, institutional and legal changes.

6.5 Capacity Building and Creating Aareness

6.5.1 Te suess o an e-Governane projet would depend on uilding human apaities

in terms o neessary knowledge and skills to oneptualize, initiate, implement and

sustain e-Governane initiatives aross government as also on the ultimate use y itizens



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o the ailities reated. Te India: e-Readiness Assessment Report 2006 has prepared an

e-readiness status report or the States using the three major omponents o environment,

readiness and usage. In this Report, the general e-readiness o the Indian States along

with their status ater allowing or a weightage o 10% or size and population has eenpresented as ollows (ale 6.1):

Table 6.1: Comparison of e-Readiness Index

e-Readiness e-Readiness_mod Levels

(with size friction points)

chandigarh Karnataka

Delhi Andhra Pradesh

Haryana chandigarhKarnataka Haryana

Punja Delhi L1

Andhra Pradesh Maharashtra

Kerala amil Nadu

amil Nadu Uttar Pradesh

Maharashtra Punja

Gujarat Kerala

Uttar Pradesh Rajasthan L2

Goa Gujarat

Rajasthan West bengal

West bengal Goa

Himahal Pradesh chhattisgarh

chhattisgarh Himahal Pradesh L3

Jharkhand Madhya Pradesh

Jharkhand

Mizoram Orissa

Orissa MizoramPuduherry Puduherry

Madhya Pradesh Sikkim

Sikkim Uttarakhand L4

Meghalaya Meghalaya

Uttarakhand Assam



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able 6.1: Comparison o eReadiness Index

eReadiness eReadiness_mod Levels

(ith size riction points)

Contd.

Assam Nagaland

Nagaland bihar

Andaman & Nioar Island Andaman & Nioar Island L5

Lakshadweep Lakshadweep

bihar Jammu & Kashmir

ripura ripura

Manipur Manipur

Daman & Diu Daman & Diu L6

Jammu & Kashmir Arunahal Pradesh

Dadra & Nagar Haveli Dadra & Nagar Haveli

Arunahal Pradesh

(L1indicateshigherstateofe-readiness)

6.5.2 clearly, the States that are lagging ehind outnumer those that have ahieved

higher levels o readiness. Tis implies that the speed and suess in implementation o

various projets will vary signiantly aross States. An important element or improvingthe e-readiness o any State would e the apaity uilding o its employees in general and

those dealing with e-Governane initiatives, in partiular.

6.5.3 As stated earlier, e-Governane represents a paradigm shit in the manner o delivery

o government servies. Tis shit requires onsiderale enhanement in managerial and

tehnial apailities o government organizations as well as o government servants.

Aove all, it requires a asi hange in the outlook and untioning o government, so

that it eomes itizen-entri rather than proess-entri. Tis would neessarily involve

a omprehensive apaity uilding exerise.

6.5.4 Te commission in its enth Report has plaed emphasis on apaity uilding o ivil

servants at all levels through ompulsory indution and mid-areer trainings. Te commission

has earlier stated that a major part o e-Governane is governane reorms and only a small

part is Ic. Tereore, apaity uilding eorts should also e proportionately alloated.

e-Governane reorms require a wide range o apailities oneptualization o reorms, poliy

analysis, preparing road maps, alternatives analysis, prioritization, appliation o tehnology,

projet implementation et. Tese apailities an e lassied into our road ategories:



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a) coneptual

) Sujet matter related

) ehnologial

d) Projet management.

6.5.5 Eah one o these ategories has a hierarhy o skills/ompetenies/apailities

ranging rom operational apailities to managerial apailities. Te apailities required

an e presented in the orm o a matrix, as shown in ale 6.2

able 6.2: Te Capabilities Required for e-Governance

Conceptual

Visionoftheorganization

Understandingo externalenvironment

Constraints

Appreciationofitizens need

Assessmentofinternal strength

echnological

Broadappreiation otehnology

Strengthsandweaknesses o atehnology

Capability

to modiytehnology

Operationaldetails otehnology

ProjectImplementation

Projectormulation

Projectmanagement

Changemanagement

Resourcemanagement

Controlmanagement

Monitoringandsupervision

Subject Matter

Knowledgeoflaws

Knowledgeo rules andregulations

Appreciationofproesses

Understandingo orms

Managerial

Operational

6.5.6 It may not generally e easile to develop all the required ompetenies within

an organization. Te tehnologial apailities in the feld o Ic advane rapidly oten

rendering existing tehnology osolete. It is thereore advisale that these apailities

are outsoured. Very large organizations may develop some in-house tehnologialapailities, ut even they would, on oasions, have to take reourse to outsouring.

However, oneptualisation and sujet matter knowledge are est developed among the

employees o an organization. Similarly, it is advisale to develop the projet management

apailities within an organization as it leads to ownership o the projet and hene etter

implementation.



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6.5.7 Tus, with the matrix given in ale 6.2 as the akground, eah government

organization must arry out a apaity assessment and on that asis the personnel o the

organization should e trained. Eah organization should prepare a roadmap or enhaning

the apailities o its individuals as well as to develop organizational apailities.

6.5.8 It needs to e laried that there is a popular ut erroneous misoneption that

capaity building relates only to training and imparting new skills to employees and

improving their existing skills. In at, capaity building is muh more than training,

and has two major omponents, namely:

Individualdevelopment

Organizationaldevelopment.

6.5.9 Individual Development involves the development o human resoures inluding

enhanement o an individuals knowledge, skills and aess to inormation whih

enales him/her to improve perormane and that o the organization. Organizational

Development, on the other hand, is aout enaling an organization to respond to two

major hallenges that it has to onront:

Externaladaptationandsurvival

Internalintegration.

6.5.10 External adaptation and survival has to do with how the organization opes with its

onstantly hanging external environment. Tis involves addressing the issues o

mission,strategiesandgoals

meanstoachievethegoalswhichincludesselectionofappropriatemanagement

strutures, proesses, proedures, systems o inentives and rewards et.

measurement,whichinvolvesestablishingappropriatekeyresultareasorcriteria

to determine how well individuals and teams are aomplishing their goals.

6.5.11 Internal integration is aout estalishing harmonious and eetive working

relationships in the organization, whih involves identiying means o ommuniation

to develop shared values, power and status o groups and individuals, and rewards

and punishment or enouraging desirale ehaviour and disouraging undesirale

ehaviour.



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6.5.12 Te task o uilding organizational apaities is more omplex and demanding

than the requirement o skills upgradation o individuals partly on aount o the hitherto

omplete neglet o this aspet and partly due to more omplex initiatives required to ahieve

this goal. Organizational apaity uilding is, to a large extent, dependent on ormulation othe appropriate reruitment and personnel poliies and fnding the right mix o in-house

provision o servies and out-souring o untions. Organisational apaity uilding would

inlude designing appropriate strutures within the organisation, re-engineering internal

proesses, delegation o authority and responsiility, reation o enaling legal ramework,

developing management inormation systems, institutionalising reward and punishment

systems and adopting sound human resoure management praties.

6.5.13 Organisational apaity uilding should not e taken to mean that the organisation

aquires all the skills and knowledge required to perorm its tasks. With gloalisationand lieralisation, a large numer o agenies have developed ertain speialised skills.

Prudene demands that any organisation should have the option o tapping suh skills rather

than spending a large amount o resoures in aquiring suh skills themselves. Evolving

partnerships, developing networks and outsouring untions are all methods o enhaning

the apaility o an organisation.

6.5.14 Te orporate setor has made eient use o Ic tools in their internal management

proesses. Sharing experienes with them, having exhange programmes, seeking their

expertise et. ould help in enhaning the apailities o government organization. Apart

rom the institutional arrangements made at the State Government level or apaity

uilding among Government oers, there is need to take advantage o ompetenies

availale with private institutions, and ommuniation experts or augmenting the eorts

towards apaity uilding o oth institutions and individuals in the government. Further,

government servants should e motivated to innovate and use reative methodology.

6.5.15 DI has taken the initiative to prepare capaity building Roadmaps (cbRMs) or

all the States whih learly identiy the mehanisms/institutions, apaity uilding and

training needs and the means o ulflling them along with the fnanial requirements. Te

capaity building Guidelines or developing institutional mehanism was prepared y DIin onsultation with the Planning commission and was issued to all the State Governments

and Us. Tese guidelines take ognizane o the at that States are at dierent levels

o readiness or e-Governane and have dierent levels o aspirations. capaity gaps are

thereore not viewed in an asolute ontext ut relative to the goals set out y the respetive

State Government or itsel. Te apaity gaps that need to e addressed inlude engaging

experts, developing skills and imparting training. Te capaity building Sheme is aimed



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at addressing the aove hallenges in a holisti manner inluding support or reation o

State e-Governane Mission eams (SeM), and Projet e-Governane Mission eams

(PeM).73 Te guidelines identiy three spei apaity gaps:74

a. Lak o Personnel with appropriate akground and aptitude

. Inadequate skills sets o personnel already deployed

. Lak o appropriate institutional ramework to handle the programme.

6.5.16 In these guidelines, the approah towards apaity uilding at the State level is

proposed as ollows:75

eStateGovernmentshoulddesignateaStateNodalOrganisation,whichwoulde responsile or initiating and implementing apaity uilding. Tis State Nodal

Organisation would e providing servies like seletions, ontrating o external

agenies/persons/servies and administrative support to SeM.

eStateGovernmentshouldreleasethefundstothisdesignatedStateNodal

Organisation.

eStateGovernmentshouldhavetheoptionofeitherdesignatinganexisting

ageny or setting up a new ageny as a State Nodal Organisation. I the State

Government so deides, it an diretly undertake apaity uilding. However, thismay entail operational ottleneks and should, ordinarily, not e resorted to.

IftheStatedecidestoformanewagencyforthepurpose,thesameneedstobe

registered, either as a ompany or as a soiety. (In suh a ase, the State Government

as an interim measure may transer the unds to an appropriate ody and ensure that

this ody would transer the unds to the new/designated State Nodal Organisation

ater it gets registered as a company/Soiety).

IftheStatedecidestodesignateanexistingagencyasaStateNodalOrganisation,

the ollowing issues need to e kept in view:

a. It should e a State Government owned/ontrolled ageny working in the

area o Inormation ehnology and registered as a ompany/soiety.

. Te ompany/soiety should e a going onern in a healthy nanial

ondition and the net-worth o the ompany/soiety should e positive.

73http://www.mit.gov.in/deault.aspx?id=85174http://www.mit.gov.in/download/capaity%20building%20Guidelines-21st%20Marh,%2005.pd (extrated on 07.08.2008)75iid



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. e-Governane and the apaity building ativity should nd neessary

prominene within the organization and not get relegated to insigniane

by other ativities.

d. Te ageny should have its own inrastruture and logistis support.

e. It is possible that the designated ageny or apaity building is/would also

be involved in the implementation o e-Governane projets. Tereore,

there is a potential onfit o interest in the two roles. As a part o SeM,

the role would be to monitor and oversee the projet implementation and

as an implementation ageny it would be involved in atual deliverables.

In suh a situation, due are would have to be taken to ensure that the

SeM members, though tehnially working or a designated ageny, arenot involved in e-Governane implementation work in any manner.

6.5.17 Aordingly, it has been proposed that apaity building by the State Governments

should be undertaken through an appropriate ombination o the ollowing two options:

a. From soures present within the Government or PSUs or any State ageny

or entral ageny, with the required bakground and experiene. In suh

ases, where required, posts may be reated in the onerned department or

State Nodal Organisations identied as a vehile or setting up the apaity

and personnel to be taken on deputation. For domain expertise in PeM, re-employment o retired personnel ould also be onsidered.

b. From outside the Government set-up - by engaging onsulting agenies having

requisite skill sets. While doing so, the State would ollow an appropriate

seletion proess. Alternatively, the State ould avail o the advie and assistane

o NISG to undertake this task on their behal. However, suh support would

be under the overall diretion o the State Government. Additionally, i

onsidered neessary and with the onurrene o the Planning commission

& DI, ontrats ould be entered into with individuals.

6.5.18 Te commission would like to re-emphasise the importane o building in-house

apaity in government departments or the implementation o e-Governane projets. Te

rst step in this regard would be to make an assessment o present apaity levels ollowed by

preparation o a road map or enhaning these apabilities both in respet o employees and

organizations. Most States have well-established Administrative raining Institutes (AIs),

with adequate inrastruture or onduting training programmes or Government oials.



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However, adequate ous is not eing given to e-Governane as an important sujet in

these institutions. Lak o experiened aulty in e-Governane is one o the main reasons.

It is possile and neessary to strengthen these institutions in the area o e-Governane.

Tis needs to e redressed y suitaly strengthening AIs in this area.

6.5.19 he commission in its enth Report entitled Reurishing o Personnel

Administration has reommended that there should e mandatory indution training or

all government servants. Te commission would like to emphasise that all these training

programmes should have an appropriately designed Ic module.

6.5.20 Suh institutional approahes apart, there is also need or learning rom the suessul

implementation o e-Governane programmes. For example, the Bhoomi projet in

Karnataka showed how a well-dened training plan made a major ontriution to projetsuess. Under a well-planned and well exeuted training programme, more than 10,000

government oials and over 700 village oials were trained on data preparation and

validation proess extending to a period o 60 weeks. Similarly, the experiene o Andhra

Pradesh shows that reation o adequate numer o e-champions y taking senior oers

through a 10-week programme on e-Government is an important step in uilding a orpus

o trained government oers who an implement the e-Governane vision emodied in

the NeGP.

6.5.21 Along with apaity uilding eorts in Government, there is also a need to make

the people aware aout the enets o e-Governane and to make them more onversantwith tehnologial interaes introdued through e-Governane projets. Tis moilization

programme should e ale to use resoures like internet, television, radio inluding

ommunity radio and the loal language press. Te ontents o the ommuniations or

generating suh awareness should e tailored to suit loal environments. Tis would take

e-Governane to the interior parts o the ountry and will e ale to provide puli servies

to important setors suh as health, eduation, agriulture, environment and usiness

related servies. Te commission, in its earlier Reports, has also oused on generating

awareness among the people, espeially the rural population or suessul implementation

o programmes. Tus, in its Seond Report entitled Unloking Human capital (on theimplementation o NREGA) it had reommended (paragraph 5.2.1.6):

a. Awareness generation programmes should be taken up by all State Governments.

Te publicity and guidance material should be available in local languages.Te eectiveness o these programmes should be measured through independentsample surveys.



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b. IntensiveuseofAllIndiaRadioandDoordarshanshouldbemadeinlocal

languages as is done in the case of Sarva Shiksha Abhiyan and National Rural

Health Mission.

Te commission is o the view that a similar approah may e adopted in reating awareness

among the people with regard to e-Governane initiatives.


a. Capacity building eforts must attend to both the organizational capacity

building as also the proessional and skills upgradation o individuals

associated with the implementation o e-Governance projects.

b. Each government organization must conduct a capacity assessment whichshould orm the basis or training their personnel. Such capacity assessment

may be carried out by the State Department o Inormation echnology

in case o State Governments, and the Union Department o Inormation

echnology in the Centre. Organisations should prepare a roadmap or

enhancing the capabilities o both their employees and the organization.

c. A network o training institutions needs to be created in the States with the

Administrative raining Institutes at the apex. Te Administrative raining

Institutes in various States should take up capacity building programmesin e-Governance, by establishing strong e-Governance wings. AIs need

to be strengthened under the NeGP.

d. State Governments should operationalise the Capacity Building Roadmap

(CBRMs), under the overall guidance and support o the DI, Government

o India.

e. Lessons learnt rom previous successul e-Governance initiatives should

be incorporated in training programmes.

. Te recommendations made by the Commission in its Second Report

entitled Unlocking Human Capital in paragraph (5.2.1.6) should be

adopted or creating awareness among people with regard to e-Governance

initiatives.



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6.6 Developing echnological Solutions

6.6.1 Adopting/Developing the Right ehnologial Solution

6.6.1.1 Modern Ic helps in the governane proess y providing a spetrum o tehnologial

solutions. Te rapid strides whih have een made in development o Inormation and

communiations ehnology in reent years have made a wide variety o tehnologial

options availale. Some o these novel tehnologies are shown in box 6.5.

6.6.1.2 However, it would not e possile to presrie a denite tehnology or any

spei government untion as rstly, tehnology hanges rapidly and seondly, dierent

tehnologies may e required under dierent irumstanes. Tereore, one the usiness

proess re-engineering has een deided, the next logial step would e to design the

tehnologial interae. In doing so, it would e advisale, that the organizations adoptthe est possile tehnology, sujet to the standards, resoure limitation and needs o

the projet. In-house ompetenies would have to e developed whih would e ale to

demand tehnologial solutions to math the organisations needs and not go or o-the-

shel solutions. It needs to e reognized that government organizations in most ases would

need solutions whih are sustantially dierent rom those needed y the private setor.

Ideally the tehnologial solution should ensure the ollowing:

i. Aessiility (at the itizens doorsteps)

ii. user-riendly interae

iii. ost-eetiveness (e.g. making use o open soure sotware)

iv. Eieny

v. Flexiility

vi. Salaility

vii. Sustainaility

viii. Reliaility and seurity.

6.6.2 Standards and Inter-operaility

6.6.2.1 As mentioned in an earlier hapter, dierent government organizations at Union

and State levels have, in the past, implemented several e-Governane projets with varying



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degrees o suess. Te main driving ore ehind suh initiatives has een either providing

etter servies to the ommon man or simpliying internal governmental proesses to inrease

their eieny. Dierent organizations have adopted dierent tehnologial platorms and

arrived at their own solutions. Although many o the initiatives address onerns whihare ommon aross States, or aross dierent departments or organisations, solutions have

generally een developed in isolation with very little ommonality or oordination. Tis

has led to dupliation o eorts on the one hand and diulty in networking among

organizations on the other. Tere is need to address suh divergenes so that suesses are

repliated aross States and ailures are eliminated. Tis alls or ormulation o norms or

standardization and inter-operaility at the national level.

6.6.2.2 Eorts are already underway to arrive at suh standards at the national level.

An institutional mehanism has een put in plae y the Department o Inormationehnology (DI) with representation rom Government, bIS, sujet matter experts in

Industry, domain experts, aademia, NASScOM, et. Te National Inormatis centre

(NIc), a onstituent o DI, is steering and managing the standardization ativity.76

6.6.2.3 Te rst task in this regard is the reation o a set o standards and poliies, whih

would desrie the way in whih dierent organizations would interat with eah other.

Tis is generally known as an Inter-operaility Framework. Te purpose o this Inter-

operaility Framework is to ailitate inter-operaility with other systems as neessary,

while at the same time, providing fexiility in the hoie o hardware and systems and

appliation sotware used to implement solutions. Te Inter-operaility Framework

normally omprises a set o poliies, standards and guidelines pertaining to maintenane

and exhange o data tehnologial protools et. Some o the domains whih are eing

addressed presently are:

InformationAccess,Presentation&Archival

DataIntegration

DataInterchange

MetaData

Network

Security

6.6.2.4 Te seond task is to reate an Enterprise Arhiteture Framework whih would

identiy opportunities to simpliy proesses and uniy work aross the agenies and within

76Soure: Te details o ativities undertaken have een provided y NeGP PMU.



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the lines o usiness o the Union and State Governments. Te outome o this eort will

e a more itizen-entered, ustomer-oused government that maximizes tehnology

investments to etter ahieve projet outomes.

6.6.2.4.1 EnterpriseArchitecture(EA)is

the process o translating business visionand strategy into eective enterprisechange by creating, communicating andimproving the key principles and modelsthat describe the enterprises uture state

and enable its evolution. Te scope o theenterprise architecture includes the people,

processes, inormation and technology o theenterprise, and their relationships to one

another and to the external environment.Enterprisearchitectscomposeholistic

solutions that address the business challengeso the enterprise and support the governanceneeded to implement them.77

6.6.2.4.2 EA is a management engineering

disipline presenting a omprehensive

view o the enterprise, inluding strategi

planning, organizational development, relationship management, usiness proess

improvement, inormation and knowledge management, and operations. Te Arhiteture

o an organization onsists o models, diagrams, tales, and narrative, whih together

translate the omplexities o the ageny into simplied yet meaningul representations o

how the ageny operates (and intends to operate). Suh operations are desried in logial

terms (e.g., usiness proesses, rules, inormation needs and fows, users, loations) and

tehnial terms (e.g., hardware, sotware, data, ommuniations, and seurity standards

and protools). EA provides these perspetives oth or the enterprises urrent or as is

environment and or its target or to e environment, as well as a sequening plan thatharts the journey etween the two.78

6.6.2.4.3 A well onstruted Enterprise Arhiteture o an organization helps in understanding

the linkage etween vision, the mission and the untions o an organization. Tis exerise

aptures the inter-dependenies etween the dierent parts o an organization. It helps in

appreiation o the linkage etween the ojetives and ativities o an organisation and

the relationships etween the organizational proesses and the tehnology. In the end,

77Gartner G00141795: Gartner Denes the erm Enterprise Arhiteture, Anne Lapkin, July 2006, extrated rom: http://www.e.govt.nz/standards/ea78http://www.ms.hhs.gov/enterprisearhiteture/

Box 6.4: Common Standards

common StandardsAt present various State Governmentsare doing their own thing to seletively omputerize theirproesses and provide e-Governane. Many o theseprogrammes are vendor driven and not salale. It isritial to develop and enore itizen/usiness entitlementstandards uniormly over all states and entral ministriesand untions, spanning rom voting, taxes, ertiates,nanial produts, law-enorement and welare orindividuals, properties o land, institutions, usinesses

et. Tese standards should not e hardware-entri andvendor dependent ut should enale easy partiipationy any State, Panhayat Institution, usiness, NGO oritizen, whenever they deide. Tese standards, templatesand data ormats must e designed areully y teams oexperts drawn rom government, I ompanies, aademia,R & D institutions and users/stakeholders who understandlatest trends, tehnology, sotware, user interaes andinteroperaility requirements. We reommend these newstandards e ollowed y all state governments. At thesame time, we are onsious o the need to inorporatesome o the standards ollowed y State Governments.

Soure: National Knowledge commission



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it provides an overall view o the omplexities involved in the organizational proesses.

Tus, EA is not an end in itsel ut a means to optimize the ontriution o dierent parts

o the organisation. It also serves as an ideal platorm or initiating the usiness proess

re-engineering exerise. Te overall ojetive o having suh an arhiteture is to have etterdeision making.

6.6.2.4.4 For the past two deades, Enterprise Arhiteture (EA) has een implemented

suessully, y several large private setor organizations. but, in reent times, many

government organizations have sought to develop rameworks, models, and reerene

arhitetures, or implementing and managing e-government servies, and inormation and

tehnology resoures, in the orm o enterprise arhitetures. For example, Te clinger-

cohen At (USA) requires that every Federal ageny develop an Enterprise Arhiteture.

6.6.2.4.5 Te hallenges aed y the Union, State and loal government agenies in aligning

and organizing their proesses and integrating their e-government servies are numerous,

espeially in a senario where there are no fxed, ross-organizational proedures. Enterprise

arhitetures provide a vital means to a desired end suessul delivery o e-Governane

appliations, ensuring inter-operaility and avoiding dupliation o eorts.

6.6.2.4.6 In the Indian ontext, e-Governane appliations have already een introdued in

many government agenies. As these appliations evolve and eome more sophistiated,

resulting in undamental proess transormation, and as they extend eyond a single

government ageny, their suess will eome more dependent on whether they are defnedand introdued within the ontext o enterprise arhitetures. At present, reorms are not

ased on a systemati enterprise arhiteture. One reason or this state o aairs has een

that top managers in government organisations have not traditionally understood the

purpose and value o enterprise arhitetures, thus not giving them the priority attention

they deserve and require.

6.6.2.4.7 DI had onstituted a Working Group whih has already given its report and

presently an ageny is eing identifed whih would e responsile or:

Vericationofthe completeness of the EAFrameworkwith respect to its

appliaility at various levels and or dierent stakeholders.

DetailingoftheEAFrameworkcomponentswithrespecttomodelsandother

artiats in eah omponent.

EAFrameworkimplementationmethodologywithonepilotimplementationat

the Union and State levels.



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6.6.2.5 Te next task involves ormulating the standards or Network and Seurity. Tis

task has een assigned to the Standardisation esting and Quality certiation (SQc)

Diretorate under DI. Under the institutional mehanism or Standardization, an Expert

committee on Meta Data & Data Standard has een reated whih has prepared theollowing two drat standards: (a) Person Identiation codiation and () Land Region

codiation. Apart rom this, a Standards Proedure Doument is also eing prepared

whih would desrie the sope o standards ormulation proess, priniples o standards,

roles & responsiilities o stakeholders in the institutional mehanism and various stages o

standards ormulation. Te Working Groups, ask Fores, Expert committees et would

ollow this proedure or standards ormulation.

6.6.2.6 Use o data y various stakeholders would require reation o identity and aess

protools and standards whih would e appliale aross the ountry. A drat Poliydoument on Identity and Aess Management has already een prepared in this regard.

6.6.2.7 In order to ailitate standards ased inter-operaility and integration to existing

and new e-Governane appliations, a National e-Governane Servie Delivery Gateway

(NSDG), a middleware inrastruture, has een reated to at as a standards-ased routing

and a message swith or delinking the ak-end departments rom the ront-end servie

aess providers. Te system has now een installed at the NIc Data center, Hyderaad

and is ready or integration with various e-Governane projets at the Union / State levels.

currently, the planning and prourement or the Disaster Reovery site is in progress.

6.6.2.8 At the entre o all e-Governane ativities is the itizen. Tereore, on aount o

the diversity in languages aross the ountry, e-Governane initiatives have to e uilt on

a platorm whih supports interae in loal languages in order to reah out to those living

in rural areas. DI is already preparing Loalization and Language ehnology Standards

whih have the ollowing deliverales:

DraftCharacterEncodingStandardforIndianLanguages

DraftBestPractices/GuidelinesforIndianLanguagesFont

DraftReportonKeyboardLayout

BrowsersupportBestPractices/Guidelines

LexiconBuilding&ContentsCreationGuidelines



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6.6.2.9 Te success o various citizen-centric initiatives, especially those ocusing on

rural areas would depend on the successul and eective ormulation o these localization

standards.

6.6.2.10 Recommendation

a. Tere is a need to:

i. Develop a national e-Governance enterprise architecture framework

as has been done in some countries.

ii. Promote the use of enterprise architecture in the successful

implementation of e-Governance initiatives; this would require

building capacity of top level managers in all governmentorganizations.

6.7 Implementation

e-Governance projects could be o a

wide variety based on their objectives,

technological requirements, dependence

on databases, requirement o institutional

support etc. Tey may range rom simple

projects aimed at providing access to

inormation to complex ones which

require extensive business process re-

engineering and integration o databases

across organizations.

6.7.1 Implementat ion o S imple

e-Governance Projects

6.7.1.1 Te frst and perhaps the easiestactivity which comes within the ambit o

e-Governance is inormation dissemination

using modern inormation communication

technology. Tis is usually done by all

organizations through a website on their

own. Tis activity received a fllip with the

passage o the Right to Inormation Act,

Box 6.5: Some Novel echnological Solutions

(1)GIS for e-Governance and Grass-root level Planning:

Planning for sustainable development requires grass-root leveldecision-making. o develop such capacities, there is need tointegrate spatial data obtained through use of GeographicInformation System (GIS) with other databases. In thisregard, NIC has already set up a National GIS Framework

undertheSpatialDataInfrastructureforMulti-LayerGISfor Planning project, which is supported by the PlanningCommission.Te Department of Space and ISRO havea nodal role in creating the satellite systems required forwidespread application of GIS.

(2) Hand-Held Devices in e-Governance Projects forImproving Accessibility:

Various development programmes such as the the NationalRural Employment Guarantee Scheme, National RuralHealth Mission, Sarva Siksha Abhiyan etc are orientedtowards the rural areas. For proper management andmonitoring of these programmes, mobile hand-held devicescould prove handy to overcome the challenges thrown by pooror no connectivity and erratic power supply.

(3)Mobile-BasedE-Governance:

Te spectacular growth in use of mobile telephony in the ruralareas has opened up the possibility of their use in introducingelectronictransactions(includingnancialtransaction)andinternet facilities in rural areas thus opening up a newgateway to various citizen-friendly services provided bye-Governance initiatives.

Promoting e-Governance Te SMAR Way Forward


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2005 whih mandates all governmental organizations to put ertain types o inormation

in the puli domain. Te inormation whih is disseminated through the wesites an e

lassied into three ategories:

(a) Stati inormation

() Dynami inormation

() ransational inormation

Stati inormation is that inormation whih generally does not hange in short time rames.

Tese inlude inormation aout the organization, rules regulations and various proedures.

Dynami inormation on the other hand hanges quite oten and this inludes inormation

like various notiations speiying time limits, tender notiations, notiations allingor appliations et. Wesites having dynami ontent have to e updated quite requently.

Te third ategory o inormation transational inormation is inormation aout a

partiular transation in whih a itizen may e interested. Tis is usually in the orm o

the status o appliations made y itizens.

6.7.1.2 A asual survey o all organizations having wesites, reveals that the ous still is

to provide stati inormation and here also the inormation whih is displayed is what the

organization eels important rather that what the itizens want to know. It is, thereore,

neessary to arry out an independent evaluation o the type o inormation eing displayedso that the requirements o the itizens ould e asertained. Tis should e a periodi

exerise.

6.7.1.3 Few sites have dynami inormation. As ar as transational inormation is onerned,

this is limited to extremely ew organizations. In order to make the wesites useul to

itizens, it is neessary that organizations should gradually move rom stati inormation

to transational inormation.

6.7.1.4 Furnishing transational inormation may not e possile without ak-end

omputerization o proesses, ut ultimately omputerisation o all ak-end proesseswould result in generation o transational inormation in whih the itizens are interested.

Tereore, to egin with, the transational inormation may e o line whih ould e

up-dated at very short intervals, ut at the same time, the proess or omputerizing all

proesses should e taken up simultaneously and this should later on e linked to the

inormation dissemination system.



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6.7.2 Implementing complex e-Governane Projets

6.7.2.1 Implementation o omplex e-Governane projets, is as ompliated as the

exeution o a major onstrution projet. An e-Governane projet has a large numer oomponents and eah one o these has to e exeuted properly. More importantly, there is a

ertain amount o sequening and synhronizing involved in arrying out these omponents.

As mentioned earlier, e-Governane projets involve re-designing and installation o new

proesses, uilding o apailities o hardware and development o sotware. Eah one o

these, in turn, has several omponents whih would have to e perormed in a proper order.

Te general experiene has een that omprehensive planning or exeution or e-Governane

projets is not done, and this leads to delays on the one hand and wastage o eorts and

resoures on the other. Oten, the prourement o hardware is ast, ut other omponents

lag ar ehind. Further, it is also seen that tehnologial solution providers do not ullygrasp the untioning o government organisations while government untionaries have a

poor grasp o tehnology. Te ideal situation would e to fnd a government untionary

who is equally onversant with tehnology and plae him/her to manage implementation.

Sine this may not always e possile, domain speialists need to work in lose oordination

with the tehnology speialist.

6.7.2.2 Another important aspet o e-Governane projets is that any government

untion to e put in the e-Governane mode would normally have several parts. Some o

these parts lend themselves to Ic easily whereas, others would require more eort. Te

grievane redressal system Lokvaniis a good illustration. First o all, omputerization

o the entral aility or reeipt o petitions was done. Te logial next step perhaps would

e omputerization o all proesses in all the departments so that a petitioner an atually

trak his or her appliation. Te ultimate stage, would e a paperless oe, wherein, eah

movement o paper is on omputer and kept in the puli domain, so that all petitioners

are ale to atually see the movement o their request online.

6.7.2.3 Te commission is o the view that implementation o e-Governane projets would

involve a detailed projet management exerise whih should onsist o the ollowing

ativities:

1) Breakinguptheentiree-Governanceprojectsintocomponents/activities: Tis

would involve identifation and segregation o ativities into those whih are

sequential in nature and those whih ould e taken up in parallel.



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2) Preparing an implementation plan: Tis should inlude detailed plan andshedule or eah ativity. Standard projet management tools should e

used.

3) Allocating resources: One the ramework has een nalized, the human andnanial resoures would require to e alloated.

4) Commencement and continuous tracking: Te ativities would e required toommene as per the ramework and ontinuous monitoring o dierent

ativities would have to e ensured as they progress.

5) Mid-course correction: I need e and as determined through ontinuousmonitoring o ativities during implementation, mid-ourse orretion may

e resorted to in order to ahieve the outomes.

6.7.2.4 Change management: As e-Governane represents a paradigm shit in governanereorm, government organizations and individuals would have to hange their way o working

to e ale to adapt to and aommodate these hanges. Tis would require onduting a

hange management exerise within organizations in order to adapt to pereption o loss

o power, authority and disretion, inulate aith in digital douments and develop a sense

o ownership in the projets.

6.7.2.5 A World bank doument79

whih analysed how personnel issues slowed downe-Governane projets in dierent ountries identied ve hallenges whih need to e

addressed while ringing aout hange:

Treats o job losses increase resistance A real or pereived threat o jo loss shoulde addressed adequately to mitigate the damage to employees morale through

inaurate inormation and rumors. Employees need support and re-training or

a new set o skills.

Government sta may resent external sta Intrusion y external onsultants on to

what is onsidered their privileged domain reates sti resistane. It helps a greatdeal i external sta have the time and patiene to talk to employees.

High-level support does not ensure sta buy-in Even when top politial leaders

support an e-government projet, senior oials and their sta may remain

unommitted i they do not see enets rom moving to a new system.


79GSta inentives and projet implementation: Lessons rom e-government; World bank, Otoer 2005


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Staf are unenthusiastic when credit is not shared A ommon pereption is that an

e-government projet is an I department projet and i the projet is suessul,

the I department will get all the redit. Tis results in non-ooperation. ur

wars between departments also results in one department being in the limelightand taking all the redit. Tis undermines projet suess unless addressed

adequately.

Managers exaggerated risk aversion harms project credibility Fearing that new

systems may not deliver, managers tend to ontinue manual systems in parallel,

and thus there is no inentive or sta to swith over to the new system. It also

sends the signal that the new system is unreliable. Prolonging the trial period also

disourages users rom hanging old habits thus making the fnal swith over all

the more diult.

6.7.2.6 change Management has an organisational as well as a human angle and it needs

to be handled with utmost are. change Management requirements vary widely aross

organisations and aross employees within an organisation. A systemati and measured

approah is needed or undertaking change Management exerises as a neessary

onomitant to proess reorms, adoption o tehnology and apaity building. It may oten

be desirable to take the servies o organisations with expertise in change Management.

6.7.2.7 Recommendations

a. All organizations should carry out a periodic independent evaluation o

the inormation available on their ebsites rom the citizens perspective

and then re-design their ebsites on the basis o the eedback obtained.

b. Each government organization should prepare a time-bound plan or

providing o transactional inormation through their ebsites. To begin

ith, this could be done by updating the ebsites at regular intervals, hile

at the same time, re-engineering the back-end processes and putting them

on computer netorks. Ultimately, all the back-end processes should be

computerized.

c. Complex e-Governance projects should be planned and implemented like

any major project having several parts / components or hich Project

Management capability should be developed in-house.



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d. Implementation o eGovernance projects ould involve a detailed project

management exercise hich ould consist o the olloing activities:

i. Breaking up entire eGovernance projects into components/

activities

ii. Planning each activity in detail

iii. Allocating resources, both human and nancial

iv. Commencement o activities as per the plan and continuous

tracking

v. Needbased midcourse correction

e. while implementing transormational programmes like the NeGP, it

is essential to recognise o the importance o a structured approach to

Change Management the people side o transormation. It is necessary or

Government agencies, especially the nodal Ministries and the Administrative

Reorms and I Departments, to design appropriate Change Management

Strategies and Plans to accompany the eGovernance implementation.

6.8 Monitoring and Evaluation

6.8.1 Even though e-Governane projets are generally rolled out ater testing them at the

pilot stage, owing to the sale and omplexities o the roll-out, suh projets need ontinuous

monitoring. Suh monitoring ould e ased on a variety o parameters nanial viaility,

ease o use, assessment o in-house apaity, volume o transations, appropriateness o

tehnologial solutions, adequay o usiness proess re-engineering, aility to handle diult

situations et. Te asi ojetive would e to identiy prolems in a timely manner so that

orretive measures ould e taken. It would also involve nding out the implementation

status at any given point o time vis--vis the planned ramework, traking the inputs against

projeted estimates and identiying the orretive measures in ase o any variations. Tus,monitoring has to e done ontinuously y the implementing agenies.

6.8.2 Te suess or ailure o e-Governane projets would depend on the ahievement

or otherwise o the ojetives whih were set out initially. Teir evaluation ould e ased

on dierent parameters satisation level o itizens, ease o use y dierent stakeholders,

ost eetiveness o the tehnology, atual aeptane or otherwise y the target population,

nanial sustainaility, et. However, the evaluation o suess or ailure o the projet needs



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to e done y independent agenies in order to present a holisti and ojetive piture.

Te parameters or suh evaluation should e deided eorehand.


a. Monitoring o e-Governance projects should be done by the implementing

organization during implementation in the manner in which project

monitoring is done or large inrastructure projects. Even ater the project

has been implemented, constant monitoring would be required to ensure

that each component is unctioning as per the design.

b. Evaluation o success or ailure o e-Governance projects may be done by

independent agencies on the basis o parameters fxed beorehand.

6.9 Institutional Framework or Coordination and Sharing o Resources/Inormation

6.9.1 Te commission is o the view that the responsiility or efetive and eient

development, prourement and use o inormation tehnology and resoures as well as

the management and planning o inormation tehnology and e-Governane programmes

should vest with individual government agenies at the Union and State levels. In addition,

there would e need to put in plae an institutional mehanism in respet o those initiatives

where integration o multiple dataases and sharing o inormation etween agenies

is required eause ad ho ollaoration and poor oordination ould lead not only toinordinate delays in implementation o programmes ut also their total ailure. Also, sine

many e-Governane projets presently under implementation or eing envisaged have

ommonalities oth within and aross States right down to the loal sel government levels,

it would e very useul to reate an institutional repository o est praties and innovation

in all States/Us. Sharing o suh inormation ould greatly enourage easy repliation o

suh est praties and save valuale time and efort in avoiding those projets whih have

inherent deets and have ailed.

6.9.2 Government o India and a majority o State Governments have reated Departments

o I, however, there is need or lear distintion o the duties and responsiilities etweenthe respetive DI

Documents

E Governance Implementation