1 Chandigarh UT s e-governance Roadmap An Initiative of Chandigarh Administration Under National e-governance Plan (NeGP) PwC 2006
2 2 Acknowledgements PricewaterhouseCoopers Pvt. Ltd would like to thank the Chandigarh Administration for the opportunity given to undertake this challenging assignment. PwC would like to thank the nodal officers of various departments for the time & efforts spent on this exercise & for holding discussions, sometimes even at short notices, in spite of their hectic schedules. They played a vital role in collection of information required for developing the e-governance Roadmap for Chandigarh Union Territory. Finally, PwC is grateful to Mr. R.S. Sandhu, Finance Secretary; Mr. Manjit Singh Brar, Director IT and Mr. Vivek Atray, Former Director IT for their guidance & inputs and all the staff of the Department of Information Technology for coordination & logistical support provided in undertaking this assignment.
3 3 Table of Contents S. No. Title Page No. 1 Preface 4 2 List of Abbreviations 5 3 Introduction 6 4 Chandigarh An Overview 10 5 e-governance in Chandigarh 17 6 Institutional Framework for Implementation of Roadmap 32 7 Measures 43 8 Next Steps 45 9 Annexure I Framework for Prioritization of Services Annexure II Output of Service Value Analysis Annexure III National e-governance Plan (NeGP) Annexure IV Department Questionnaire used for the Study Annexure V Participating Departments Annexure VI Department Reports 82
4 4 Preface Today, the Internet and technology are fundamentally changing the way government operates. But it s not just about giving the residents and businesses the ability to interact with government over the Internet. Rather, it s changing the way the government delivers services to the residents and businesses. The government at all levels and in all global regions are embracing e-government and they are adopting proven best practices and technologies for improving customer service and business performance. Government of India (GoI) has approved the National e-governance Plan (NeGP) that seeks to lay the foundation for the long term growth of e-governance in the country. NeGP is aimed at improving the quality, accessibility and effectiveness of government services to citizens and businesses with the help of information and communication technology. NeGP is structured on the philosophy of a centralized initiative with decentralized implementation. GoI plays a co-ordination role at the centre with the respective state governments / UT administrations managing the implementation of the planned e-governance initiatives. Considering the nature and scale of e-governance initiatives planned under NeGP, the role of the State Government / UT Administration in managing these initiatives is seen as critical. It is also well recognized that for State/UT to play its role effectively, significant capacities need to be built/upgraded. Thus, for the success of NeGP, it is necessary to build a strategic roadmap and enhance the capacities in the State/UT and its nodal agency to enable issues to be dealt with in a competent manner, with a holistic perspective & with speed. In this context, pwc have been engaged by the Chandigarh Administration to prepare strategic e-government and Capacity Building roadmaps for the UT. While the preparation of the e-government Road Map (EGRM)is aimed at detailing the strategic priorities of the UT and ensuring that they are in alignment with NeGP, the Capacity Building Road Map(CBRM) addresses the issue of Capacities required by the Government (from a resourcing perspective) to implement the EGRM. This report articulates the e-governance Roadmap (EGRM) for Chandigarh U.T. in alignment with the objectives and guidelines of NeGP.
5 5 List of Abbreviations ACA BOOT BPR CIO DeMT DoIT / DIT DR GoI IAS ICT IT ITES LAN MMP NeGP NIC PeMT PIO PIU PSU PwC RDBMS RFP SDC SeMT SPIC SWAN UT Additional Central Assistance Build, Own, Operate, Transfer Business Process Reengineering Chief Information Officer Department e-governance Mission Team Department of Information Technology Disaster Recovery Government of India Indian Administrative Service Information and Communication Technology Information Technology IT Enabled Services Local Area network Mission Mode Project National e-governance Plan National Informatics Centre Project e-governance Mission team Public Information Officer Project Implementation Unit Public Sector Undertaking PricewaterhouseCoopers Pvt. Ltd. Relational Data Base Management System Request For Proposal State Data Centre State e-governance Mission Team Society for Promotion of IT in Chandigarh State Wide Area Network Union Territory
6 6 1 Introduction Objective of the Study While, the primary objective of the roadmap is to align the UT Administration plan for e-governance in line with the national strategy, there are multiple objectives for preparation of the roadmap including: Articulate the e-governance vision for the Chandigarh UT Understand the UT s priorities and develop a strategic approach for achieving the e-governance vision of the UT Bring citizen focus in the e-governance Define the immediate action points based upon the UT s priorities Scope of Work The scope of work for the assignment has been structured across three key areas relating to: 1. Design of e-governance roadmap for the Chandigarh UT that includes: Preparing a blueprint for the UT that documents the overall strategy and action plan for development of e-governance in Chandigarh Identify high pay-off e-governance initiatives that are aligned with NeGP Plan for implementing the recommended e-governance initiatives 2. Design of capacity building roadmap for Chandigarh that includes: Administrative structure for implementing the e-governance plan Assessment of the capacity gaps for implementing the e-governance initiatives Sourcing plan for bridging the capacity gaps 3. Detailed Project Report with details of funding requirements for implementation of the capacity building plan: Budget estimate for implementation of the sourcing strategy and bridging the capacity gaps This report dwells on the first part of the scope of work i.e. the e-governance roadmap.
7 7 Approach to the Study The approach followed for developing the e-governance roadmap report is as follows: Comprehensive understanding of the UT developed by reading the UT development report and secondary research reports Undertaking of a strategic workshop involving the key officials of the UT representing various departments. The objective of the workshop was to: Make the department officials aware of the importance of the present exercise Get the acceptance of the department officials on the approach and time lines for the exercise Detailed interactions with the key officials in the prioritised departments for: Understanding the vision and objectives of the department Key services provided by the department to citizens, businesses or other government departments e-readiness assessment of the departments covering current and planned e-governance initiatives, detailed IT infrastructure assessment of the department Assessment of the current capacity within the department Analysis for identifying key e-governance initiatives Drafting of the hypothesis for UT-level e-governance roadmap Preparing the e-governance blueprint for the UT Finalize the strategy and action plan for the UT; and Articulating the recommendations and finalization of the roadmap Key Design Considerations The e-governance roadmap consisting of the vision and strategy for the UT have emerged out of a number of given considerations. The key considerations and its implications are discussed below: 1. Developmental priorities of the UT The UT Administration has identified Information Technology (IT) and Tourism as the core sectors as part of ensuring comprehensive and sustainable development of the city. 2. Alignment with NeGP
8 8 NeGP 1 is designed at a national level with a focus on the citizen, service delivery and on undertaking projects on a mission mode. Alignment of UT s plan with that of national level plan is an important consideration. 3. Right To Information Act This is a recent legislation passed by Government of India aimed at increasing the accountability of the government officials. The citizen can now demand the requisite information and if denied, can escalate to higher authorities or demand an explanation. This legislation would drive streamlining of processes in all the citizen facing departments. The application of information technology in automation of the processes would greatly facilitate compliance to the legislation. Limitations of the Study Indicated below are some of the key limitations of the study and approach to the assignment that may have implications on the recommendations contained in the e-governance roadmap report: The study is limited to 17 departments within the UT. It is assumed that this is a sufficient and representative sample for the roadmap formulation exercise. In line with the terms of reference, the report is based on the inputs provided by the departments during the interactions with PwC consultants. No separate field visits/detailed study has been undertaken to validate the inputs provided by the UT administration departments The report is expected to set the agenda for e-governance in the UT. Thus, the extent of detailing captured in this report needs to be evaluated against a ten week time frame provided to PwC for the study. It is expected that departmental plans would be prepared separately in detail based upon the direction and strategies contained in this document While, the roadmap bases its strategy taking into account all common e- Governance initiatives in the UT and those in the 17 prioritized departments, there are bound to be independent and isolated initiatives that do not form part of the study and thus do not reflect in the roadmap. However, this should not restrict them to pursue other initiatives, as long as they are in conformance with the overall UT e-governance roadmap. Structure of the Report This report comprises the following chapters: Chapter I introduces the subject, highlights its need in the present context and details the approach followed for preparation of the report; 1 An Overview of the National e-governance Plan is provided in the Annexure 4
9 9 Chapter II provides an overview of Chandigarh and presents some statistics about the city; Chapter III describes in detail the e-governance vision of the city, the strategy for UT to achieve the vision and the various components of the strategy; Chapter IV presents the institutional framework for UT for implementation of the e-governance roadmap; Chapter V details the measures to check if the progress made on the roadmap is as per the conceived plan, and lists quantitative measures to check the progress; Chapter VI talks about the steps needed to be taken by the administration to implement the roadmap, in the immediate time frame; Annexure I details the framework used for prioritization of the services; Annexure II details the output of the service value analysis; Annexure III presents a snapshot on the National e-governance Plan; Annexure IV lists the department questionnaire used for performing this study; Annexure V lists the participating departments; and Annexure VI contains brief reports on the participating departments.
10 10 2 Chandigarh An Overview Chandigarh is India's youngest city, planned by the famous French architect Le Corbusier. It is Capital of the States of Punjab and Haryana but does not belong to either of them. Instead, it is a Union Territory. It means that the City is under the direct administration of the Government of India and not constituted as a state with its own legislative assembly. Chandigarh is known for: Planning and Architecture Quality of Life High Educational Level Pollution-free Environment Low Crime Rate Aware & Active Citizens
11 11 Population: In terms of population, the figures of the 2001 Census, it is clear that Chandigarh is overwhelmingly urban. Population Density: The urban area of Chandigarh is about four times more densely settled than its rural area Total Area of Chandigarh: Chandigarh's urban area is much larger than its rural area Male/Female Population Ratio and Sex Ratio: Men outnumber women in Chandigarh. One reason for this is that many men who are employed in the city find it more affordable or convenient to leave their wives and children in their native village or towns. Population Growth between 1991 and 2001 and Growth Rate: Chandigarh has grown very rapidly over the past 10 years. Total Literacy: Nearly 82 per cent of Chandigarh's population is literate. This is much higher than the national figure of 65 per cent. (All figures as per 2001 census) History India attained Independence in 1947; but in the process the territory of British India was partitioned to form India and Pakistan. The large and prosperous Province of Punjab was divided and Lahore, its capital, fell within the borders of Pakistan, leaving Indian Punjab without a capital. The loss of Lahore, a city much loved by its inhabitants, was keenly felt by those who had been compelled to migrate to India. In March, 1948, the Government of Punjab in consultation with the Government of India approved a sq. km tract of land at the foot of the Shivalik Hills in Ropar district as the site of the new capital. An existing village gave its name (Chandi - Goddess of Power + garh - fortress) to the new city. The decision to build a new city seemed like an extravagant decision to some at the time, but there were practical justifications. After partition, the population of all the existing towns in East Punjab had more than doubled on account of the migration of displaced persons from Pakistan. As a government publication pointed out: "Most of these towns, even before partition, lacked essential amenities such as adequate drainage and water supply and none of them had schools or hospitals which could meet the normal needs of the population according to modern standards for such services."
12 12 The new city was needed not only to serve as a capital but also to resettle thousands of refugees who had been uprooted from West Punjab. India's first Prime Minister, Jawaharlal Nehru enthusiastically supported the project and look sustained interest in its execution. When he visited the project on April 2, 1952, he declared: "Let this be a new town symbolic of the freedom of India, unfettered by the traditions of the past, an expression of the nation's faith in the future...the new capital of Punjab will be christened as Chandigarh-a name symbolic of the valiant spirit of the Punjabis. Chandigarh is rightly associated with the name of Goddess Chandi -- Shakti, or power." The Site After an extensive aerial survey, then the Capital Project Administrator, P.N. Thapar and Chief Engineer, P.L. Verma selected the site -- a sub-mountainous area of the then Ambala district about 240 km north of New Delhi, the capital of the republic. The area was a flat, gently sloping plain of agricultural land dotted with groves of mango trees which marked the sites of 24 villages or hamlets -- one of which was named Chandigarh on account of its temple dedicated to the goddess. The general ground level of the site ranges from 305 to 366 meters with a 1 per cent grade giving adequate drainage. To the northeast are the foothills of the Himalayas -- the Shivalik Range -- rising abruptly to about 1524 meters and a dramatic natural backdrop. One seasonal stream, the Patiali ki Rao, lies on the western side of the city and another, the Sukhna Choe, on the eastern side. A third, smaller seasonal stream flows through the very center of Chandigarh. The area along this streambed has been turned into a series of public gardens called the Leisure Valley. Chandigarh at a Glance Figures at a glance Number of districts 1 Total Rural Urban 2 Area in sq. kms Total Population Persons Males Females
13 13 4 Decadal Population Growth Absolute Percentage Population Density (persons per sq. km) 6 Sex Ratio (no. of females per 1000 males) 7 Population of 0-6 yrs* Absolute % of Total Population 8 Literacy Absolute Literacy Rate * 6 yrs means completed 6 years as on Urban Slum Population Persons Males Females Persons Males Females Persons Males Females Persons Males Females Total Rural Urban Persons
14 14 Males Females Sex Ratio of Urban Slum Population Slum Population of 0-6 yrs Absolute % of Total Population 12 Slum Literacy Absolute Literacy Rate Persons Males Females Persons Males Females Persons Males Females Persons Males Females Administrative Set-up Gen. (Retd.) S.F Rodrigues, PVSM, VSM, is the Governor of Chandigarh. He comes in place of Former Chief Justice of the Kerala High Court, Om Parkash Verma (66). The various departments of the administration are listed below: 1. Municipal Corporation 2. Estate Office 3. Information Technology
15 Agriculture 6. Fisheries 7. Urban Planning 8. Animal Husbandry 9. Weights & Measures 10. District Administration 11. Economic & Statistics 12. Employment Exchange 13. Education 14. Engineering 15. Environment 16. Estate Office 17. Excise & Taxation 18. Finance 19. Fisheries 20. Food & Supply 21. Forests & Wildlife 22. Health 23. Home 24. Housing 25. Industries 26. Printing & Stationary 27. Rural Development 28. Sports & Youth 29. Social Welfare 30. Tourism 31. Transport 32. Vigilance The contacts numbers of the head of departments are available on the website:
16 16 Information and Communication Technology (ICT) Website: Chandigarh Administration has laid down an action plan for the next five years in order to enable all sections of society to benefit from the application of information technology. I.T. for Society is the main component of the I.T. Vision 2010, which has been announced by the Administration. Chandigarh is the first planned city in the country and still maintains its status as one of the best managed cities in the country. The excellent social infrastructure, large green spaces, and its compact size, make Chandigarh an ideal work destination. The quality of life in the City Beautiful is comparable to the best cities across the world. The Jan Sampark Project which is an e- Governance project involving the settingup of more than fifty information kiosks in the city, is the main project being undertaken by the Administration for the common man. The Headquarters of the Department of Information Technology are at the following address: Department of Information Technology 5th Floor, Additional Deluxe Building, Sector 9-D, Chandigarh (India) Tel: Fax:
17 17 3 knowledgecitybycreatingatechnology-enabledcommunity,andembrace innovationineveryaspectofgovernmentservicetoensureanytime anywhereservices. Toserveallresidents,businesses,localgovernmentsandemployeesofthis Chadigarh s e-governance vision is as follows: e-governance in Chandigarh The vision statement clearly articulates the key themes of the city s future e- Governance direction, which are: Be people-centred by focusing on adding value to the customers Focus on development of the society by leveraging information Promote creation and sharing of information and knowledge through various channels The e-governance roadmap of the U.T. has been driven by the need to achieve the above mentioned overall vision of the U.T. As part of the roadmap, the U.T. administration identified 17 priority departments for participation in the e- Governance roadmap preparation. This identification was done based upon aspects such as degree of citizen interface, development priority of the state, NeGP focus and the revenue generation potential for the U.T. The key strategic goals that can be derived from the vision statement are: 1. Convenience and Satisfaction: Provide services anytime, anyhow, anywhere 2. Integration and Efficiency: Provide services that are integrated, customercentric and operationally efficient The Strategy The basic strategy of the Chandigarh Administration is to transform governance: e-governance for e-society. The UT administration is setting out a change agenda for the governance by transforming Chandigarh into an e-society though guaranteeing quality services for all, and improving access to those services. The strategy for UT defines the central role of e-government in this agenda. Modern technology can be used to transform the relationship between citizens and administration as it offers ways to:
18 18 Design services around citizen needs; Make services more accessible; Provide better information, at all places; Increase efficiency in service transactions; and Increase people s participation in governance. All this will lead to utmost citizen satisfaction, which is the primary purpose of the e- Governance initative of the UT, as well as the aim of NeGP. Increase people s participation in governance Increase efficiency in service transactions Utmost Citizen Satisfaction Design services around citizen needs Provide better information, at all places Make services more accessible
19 19 Front Office Services The key elements to consider in achieving progress on the front office are: 1. Customers; The customers could be citizens, businesses or other government departments 2. Services identified for delivery through the channels 3. Channels for exchange of information / delivery Each of the elements is discussed in detail below. Customers The customers can be classified into three key segments viz., Residents (e.g. citizens, residents and tourists), Businesses operating in UT and Business Partners (e.g. suppliers and other governmental organizations). The UT Administration customers can be grouped under the following categories based on the type of the relationship they have with government. These categories are: Citizens: The citizens are the residents and tourists of Chandigarh. Residents constitute the largest customer segment and the most frequent users of the majority of services of the UT administration departments and information. Their relationship with government can be summarized as follows: 1. Use the government infrastructure in terms of roads, drainage networks, hospitals, public parks, etc. 2. Access the departmental services such as payment of taxes, registration of transactions, issue of various types of certificates, etc. 3. Report problems and provide suggestions. Businesses: This refers to the public and private sector organizations that access the services and information from the Government departments. Their relationship with UT administration can be summarized as follows: 1. Pre-establishment services such as registration, licenses, etc. 2. Post-establishment services such as payment of taxes, filing of returns, etc Employees: The employees working for the government constitute this segment. They avail services from the government such as payroll, benefits, etc. The key customer requirements that need to be addressed by e-government are:
20 20 1. Simple and accessible windows for various segments of customers through e-government to all Government information and services 2. Minimize the time spent on repeated visits to government offices. 3. Customers should not no longer be required to submit the same information/documents repeatedly 4. Feedback mechanism to be established Customer feedback Departments that interface with the customers need to regularly evaluate their performance in actions such as offering services, policy formulation etc. A feedback mechanism should be established to collect customer opinion on a range of issues including convenience, services provided, and security etc., designed as per the expectations. Based on the variables to be evaluated for feedback, appropriate data sources / channels can be designed and established. Such a mechanism will enhance the citizen participation in the government. This system can be integrated with the grievance redressal system being conceptualized by the UT administration. Services A service is defined as an interaction or a set of interactions that involves exchange of information / documents between the customer and the government as part of compliance to legislation(s). Every government department provides a set of services to its identified customer base. The delivery of such services would develop an image of the government among the customers and so making the delivery of services customer-friendly is the objective of this study. Classification of Services The services can be classified as follows: i) Informational Services; includes those services that solely provide information to customers and does not involve processing of any transactions or documents. For example, advertising the bus routes of public transport. Informational services have relatively simple back-office operations and can be easily be e-government-enabled. ii) Transactional Services; includes those services where customers require specific actions to be taken by the department. For example, issue of a driving license. Transactional services mandate a higher degree of customer interaction and more complex delivery operations than informational services.
21 21 Dimensions for Services i) Breadth of Access ; provides a qualitative review of the breadth of services and information which can be accessed by the customer through a specific delivery channel. ii) Depth of Delivery ; provides a qualitative review of the depth of process that is simplified / automated for service delivery through a delivery channel. Breadth of Access The services provided by the participating departments are analyzed using the PwC framework Service Value Analysis. The methodology is explained in detail in the Annexure I and the services are prioritized and grouped into four waves as summarized below: Table 1: Wave Number of Services The detailed list of services under each of the groups is presented in the Annexure II. Depth of Delivery The different kinds of service transactions offered by the government departments are largely categorized into three types as mentioned below: Type I - Transaction without personal interface: Services which can be availed remotely without any personal interface fall under this category. Currently, they typically include services such as payment of taxes, payment of duties, reservations, submission of annual returns etc. Type II Transactions requiring personal interface / verification of original documents: Services that require physical presence of the customer or his representative before the government official or copies of original documents are required for validation of the photo copies submitted etc. fall under this category. Such kinds of requirements are primarily driven by the rules of the legislations. For example: Registration of properties, Issue of international driving license, Issue of marriage certificate etc. With the application of technology some of the Type II services can be moved to Type I services. Verification of original documents can be done away with in most of the cases, if the databases of the respective departments / organizations are available to the officials of other departments for online verification. Similarly some
22 22 of the legislations can be reviewed from the perspective of technology application so that some more Type II services can be moved to Type I category. For example: Though an Encumberance Certificate can be availed online by the customer, it is considered invalid unless it is stamped and signed by the concerned Sub-Registrar Officer as per the rules framed under The Registration Act, Type III Transactions requiring personal interface / field verifications: Services that require field verification fall under this category. Examples include Issue of Passport, Sub-division of survey numbers etc. Every service life-cycle typically has the following six stages. Availing a service by a citizen involves spending energy and resources at each of the stages as briefed below: 1. Information Availability: The information required before availing a service such as the need to avail the service, process to be followed including whom to contact, the forms and supporting documents required, fees to be paid etc. should be available and accessible to the target customers. 2. Availability of Forms: Gathering the forms required for application as part of availing a service and the understanding the instructions for filling the form itself is a task. Citizens visit 1-2 times just for this task. 3. Submission of Application: Submission of the completely filled in application to the respective department authority with the necessary statutory fees if any is the next task. The task ends with collecting the acknowledgement for the submitted application. 4. Service Delivery: After the application is processed with due diligence by the government authorities, the delivery of the service is made which could be issue of a certificate, license, permit, updation of registers for returns etc. Currently, the delivery of certificates / licenses / permits is made directly to the customer. 5. Tracking of Application Status: If the transaction takes more than a day or the process is complex with multiple steps then the facility to track the status of the application at any point of time would add lot of value to the customer. Customer sometimes pays a dedicated visit for the knowledge of the status. Such a facility would also help implement SLAs within the government and improve the accountability. The consideration for Right to Information can be built into such a facility. 6. Filing Complaint: There should be a facility for the customer to file a complaint with the respective authorities and an escalation mechanism for their action.