2nd ARC Report - Promoting E-Governance:

The 2nd ARC Report “Promoting E-Governance: The Smart Way Forward” explores strategic approaches for advancing electronic governance to enhance efficiency and effectiveness in public administration.

Table of Contents

REDEFINING E-GOVERNANCE

E-Governance, also known as electronic governance, entails harnessing Information and Communication Technology (ICT) to streamline governmental processes, with the goal of achieving Simple, Moral, Accountable, Responsive, and Transparent (SMART) governance. Government agencies embrace ICT for various purposes, such as exchanging information with citizens, businesses, or other government departments; enhancing the speed and efficiency of public service delivery; optimizing internal operations; reducing costs and increasing revenue; restructuring administrative processes; and elevating the quality of services. E-Governance ultimately aims to provide citizens with better access to information and high-quality services, promoting simplicity, efficiency, and accountability within the government, and expanding the reach of governance.

IDENTIFYING THE IMPETUS FOR E-GOVERNANCE

Governance primarily revolves around citizen welfare, encompassing the protection of legal rights and ensuring equitable access to public services and economic benefits. The “e” in e-Governance signifies electronic, indicating the utilization of Information and Communications Technology (ICT) to carry out governance functions and achieve desired outcomes. The global trend toward e-Governance is fueled by several factors:
The evolving complexity and diversity of governance in recent decades.
Escalating expectations from citizens prompt governments to adapt and modernize.
The inherent capabilities of ICT, include efficient data storage and retrieval, instantaneous information transmission, rapid processing of data, expedited decision-making, increased transparency, and enforced accountability.
E-Governance plays a pivotal role in expanding the government’s reach both geographically and demographically, aiming to improve the effectiveness of governmental functions. Achieving this transformation requires a fundamental shift within the government itself, encompassing changes in processes, outlook, laws, rules, regulations, and citizen interactions. To successfully implement e-Governance, capacity building within the government and widespread awareness among citizens are essential. The introduction of e-Governance tools is seen as a crucial step toward reforming governmental processes, instilling accountability, transparency, and a citizen-centric approach.

CONCEPTUALIZING E-GOVERNANCE: A FRAMEWORK

The advent of Information and Communication Technology (ICT) has revolutionized communication, data management, and information exchange across individuals, groups, businesses, organizations, and governments. For governments, the integration of computerization and internet connectivity, coupled with process re-engineering, promises faster and improved information processing. This, in turn, facilitates quicker and higher-quality decision-making, extends government reach, ensures accountability, optimizes resource utilization, and contributes to overall good governance.
On the citizens’ front, ICT holds the potential to provide enhanced access to information and government services, streamline service delivery, and foster transparency in interactions with the government. As citizens become more aware of their rights and expectations from the government, the governance paradigm has shifted. Today, governments are expected to operate transparently, be accountable for their actions, and respond promptly. In this evolving landscape, the use of ICT becomes imperative for any governance agenda aspiring to achieve excellence.

DEFINING E-GOVERNANCE IN THE INDIAN CONTEXT

The interpretation of the term “e-governance” varies among governments and organizations, tailored to align with their specific aims and objectives. The Indian experience reveals a phased progression in the adoption of e-Governance:
Computerization: The initial phase saw the introduction of personal computers in numerous government offices, initiating computer-based tasks such as word processing and data processing.
Networking: Subsequently, selected units within government organizations started connecting through hubs, facilitating information sharing and data flow among different governmental entities.
Online Presence: The advent of increased Internet connectivity prompted the establishment of a web presence. Government departments and entities began maintaining websites containing information about organizational structures, contact details, reports, publications, objectives, and vision statements.
Online Interactivity: As a natural evolution of online presence, communication channels opened between government entities and citizens, civil society organizations, etc. The focus was on minimizing personal interfaces by providing downloadable forms, instructions, acts, and rules. This transition has, in some instances, enabled online submission of forms, with the potential for most citizen-government transactions to shift to e-governance mode.

Types of Interactions in e-Governance:

E-Governance facilitates interactions between various stakeholders in governance, categorized as follows:

G2G (Government to Government): ICT is employed to restructure governmental processes and enhance information and service flow within and between government entities.
G2C (Government to Citizens): Establishing an interface between the government and citizens enables efficient delivery of a broad range of public services.
G2B (Government to Business): E-Governance tools aid the business community, allowing providers of goods and services to seamlessly interact with the government. The goal is to streamline processes, save time, reduce operational costs, and foster a transparent business environment in government dealings.
G2E (Government to Employees): Given that the government is a significant employer, interactions with employees are crucial. The use of ICT tools contributes to increased employee satisfaction by facilitating regular communication and efficient engagement.

E-GOVERNANCE: INITIATIVES IN INDIA

The development of e-Governance in India has witnessed significant milestones over the years:

1970: The Government of India established the Department of Electronics.
1977: The establishment of the National Informatics Centre (NIC) marked a pivotal step, focusing on ‘information’ and its communication in the context of e-governance.
1980s: While computer usage was limited, the introduction of personal computers to government offices expanded storage, retrieval, and processing capabilities. Initially, computers were primarily used for word processing.
1987: The launch of NICNET, a national satellite-based computer network, became a cornerstone for India’s e-Governance. The District Information System of the National Informatics Centre (DISNIC) program followed, offering free hardware and software to state governments for computerizing all district offices.
1990: NICNET expanded to connect all district headquarters via state capitals.
1999: The Union Ministry of Information Technology was established.
2000: The government identified a 12-point minimum agenda for e-Governance.

The subsequent years saw the implementation of various e-Governance initiatives by Union and State Governments. These initiatives were categorized into Government to Citizen (G2C), Government to Business (G2B), and Government to Government (G2G).

CORE PRINCIPLES OF E-GOVERNANCE

Drawing on prior experiences and considering initiatives in other countries, core principles crucial for e-governance success were identified. These principles gain particular relevance with the extensive National e-Governance Plan (NeGP) implementation across the country.

Clarity of Purpose: Emphasizes the need for a clear understanding of the purpose and objectives of e-Governance initiatives, ensuring alignment with citizens’ needs rather than merely technological capabilities.
Environment Building: Calls for a change in the mindset of stakeholders, including politicians, government officials, and civil society. This requires a collective will among governance stakeholders to embrace change.
E-Governance as an Integral Part of Governance Reform: Stresses that e-Governance should not be seen as a separate entity but an integral part of the overall governance structure and processes. It emphasizes the integration of e-Governance into the broader governance framework.
The integration of e-governance modules within every government organization, program, and policy is imperative. Rather than being an afterthought or introduced as an adjunct, e-Governance should seamlessly embed itself within the fabric of each entity.
E-preparedness and a Step-wise Approach: The nationwide introduction of e-Governance across all government organizations simultaneously is not practical. Recognizing that different organizations are at varying levels of e-preparedness, a step-wise approach is necessary. This ensures optimal outcomes and allows citizens to experience early benefits from e-Governance.
Disciplined Way of Working: Implementing e-Governance demands a disciplined and systematic approach within organizations. Given that most technologies assume rational user behavior, emphasizing this aspect during capacity building and throughout the project lifecycle is crucial.
Monitoring and Evaluation: Rigorous monitoring during the pilot phase and the operational stage of scaled projects is essential for early issue detection and corrective actions. Additionally, independent agencies should evaluate the impact of e-Governance initiatives against predefined parameters to determine their success.
Developing Secure, Fail-safe Systems, and Disaster Recovery: Considering the scale and data flow of potential e-Governance applications, technological architectures must be secure and fail-safe. Incorporating mechanisms that activate a ‘safe mode’ during crises is vital.
Sustainability: Sustaining e-governance initiatives is crucial once their effectiveness is established. Avoiding relapses based on expediency is key, as reforms may be challenging to implement but deliver optimal results once firmly rooted.
Allowing Horizontal Applicability: A coordinating mechanism is necessary to prevent redundant efforts. Sharing successful e-Governance initiatives across states and organizations minimizes costly repetitions and, in many cases, failures.
Development of Local Language Interfaces: Given India’s multilingual society, e-Governance interfaces should cater to citizens in their respective local languages. Utilizing localized displays, keys, and multimedia instructions enhances accessibility in rural areas with lower literacy rates.
E-Governance: A Continuing Process: E-Governance signifies a paradigm shift in governance reforms. Its implementation should be viewed as an ongoing and evolving process, acknowledging the dynamic nature of technological advancements and societal needs.

NATIONAL E-GOVERNANCE PLAN

In the 1980s and early 1990s, initial forays into e-Governance focused on networking government departments and developing in-house applications for functions such as defense, economic monitoring, and data-intensive tasks related to elections, census, and tax administration. However, these efforts are primarily aimed at automating internal government functions rather than enhancing service delivery to citizens.
Over the past decade, various e-governance initiatives have sprouted across national, state, district, and block levels in the country. While some have achieved notable success and are deemed replicable, it became apparent that accelerating e-Governance across different government arms and levels required a programmatic approach guided by a shared vision, strategy, and approach. This led to the formulation and approval of the National e-Governance Plan (NeGP) on May 18, 2006, spearheaded by the Department of Information Technology (DIT) and the Department of Administrative Reforms & Public Grievances (DAR&PG).
The NeGP, comprising 27 Mission Mode Projects (MMPs) and 10 components, seeks to enhance the delivery of government services to citizens and businesses with a central vision.

The implementation strategy and methodology of NeGP incorporate lessons learned from past experiences and successful e-Governance applications:

Common Support Infrastructure
Centralized Initiative, Decentralized Implementation
Public-Private Partnerships (PPP) Model
Integrative Elements in Planning
Programme Approach at National and State Levels
Facilitatory Role of DIT
Ownership of Ministries

To sustain NeGP projects, establishing the right governance and institutional mechanisms, creating core infrastructure, formulating key policies and standards, and providing a legal framework are crucial. This effort also involves channeling private sector technical and financial resources into national e-Governance initiatives. Key components have been identified to support and cut across various projects in this regard.

Foundational Infrastructure (SWAN, NICNET, SDCs, etc.)
Auxiliary Infrastructure (CSCs, etc.)
Research and Development
Capacity Building and Training
JAKOITAR
Education and Evaluation
Structures of Organizations

Institutional Framework: Macro (National and State) Level: With the proliferation of projects under the NeGP, it is imperative to guarantee alignment with overarching policies. Both the Union and State Governments necessitate empowered institutional arrangements for overseeing, driving, and managing the implementation of these diverse projects across departments.
Foundational Infrastructure: The challenges associated with Common Support Infrastructure, specifically State Data Centers (SDC), State Wide Area Network (SWAN), and Common Service Centers (CSCs), are discussed in the following paragraphs

State Data Centre (SDC): These centers are designed to consolidate services, applications, and infrastructure to facilitate the efficient electronic delivery of Government-to-Government (G2G), Government-to-Citizen (G2C), and Government-to-Business (G2B) services. This is achieved through a common delivery platform seamlessly supported by the State Wide Area Network (SWAN), connecting even the remotest villages through the Common Service Centers (CSCs). Despite being a core element of the National e-Governance Plan (NeGP), delays in implementation have arisen due to the absence of a fixed timeframe. Additionally, institutional challenges have emerged, such as some state departments opting to establish their own data centers for control over data, disaster management, and recovery. Given the sensitivity of data and security concerns, the implementation of SDCs is recommended to fall within the domain of government agencies like the National Informatics Centre (NIC).
State Wide Area Network (SWAN): This initiative aims to establish Wide Area Networks across all States and Union Territories (UTs) in the country, extending from the headquarters of each State/UT to the Blocks. SWAN is instrumental in providing G2G and G2C services, particularly supporting various Mission Mode Projects envisioned under the National e-Governance Plan.
The Common Service Centres (CSCs): These centers are designed to function as integrated front-end delivery points for government, private, and social sector services, catering to rural citizens across India. The initiative aims to establish approximately 100,000 Common Service Centres nationwide, with one dedicated to every six-census village. The objective is to create a platform that facilitates alignment between government, private, and social sector organizations, working towards the social and commercial welfare of the rural population in the farthest reaches of the country. These CSCs provide a diverse range of services in areas such as e-governance, education, health, agriculture, commerce, retail, and more.

Mission Mode Projects (MMPs): The current status of the implementation of MMPs at the Union and State Government levels, along with integrated MMPs, is outlined below.

UNION GOVERNMENT MMPs:

MCA21
Pension Portal
Income Tax Portal
Passport, Visa, and Immigration Portal
Banking Services
UID initiative
Insurance Portals
Integrated MMPs:
India Portal
National Service Delivery Gateway
e-Procurement Portal
e-Biz Portal State MMPs

LEGAL FRAMEWORK FOR E-GOVERNANCE

The Information Technology Act, of 2000 was enacted to provide legal recognition for transactions conducted through electronic data interchange and other electronic communication means, commonly referred to as “electronic commerce.” This law facilitates electronic filing of documents with government agencies and amends existing legislation such as the Indian Penal Code, the Indian Evidence Act, 1872, the Bankers’ Books Evidence Act, 1891, and the Reserve Bank of India Act, of 1934.

Need for Statutory Backing for E-Governance

E-Governance in India currently lacks a distinct enabling legal framework. The scope of the National e-Governance Plan (NeGP) is extensive, covering various aspects of governance, from service delivery and information provision to business process re-engineering across different government levels and institutions. Given the monumental task at hand, it would be advisable to implement a statutory framework to provide solid legal backing for the comprehensive objectives of NeGP.
Ensuring the realization of its vision, the National e-Governance Plan (NeGP) requires vigilant monitoring and regulation through a legal framework. The implementation of NeGP has brought forth various structural and institutional challenges, indicating a need for a statutory mandate to address these issues.
Some challenges pertain to the Empowered Committee’s role, responsibility, and financial powers. Policy changes for expeditious approval of Mission Mode Projects (MMPs) and a Special Scheme for State MMPs need to be addressed. Issues related to the roles and responsibilities of States, Union Line Ministries, and project-specific interfaces between them require urgent attention. The establishment of an organizational structure to handle post-implementation issues is also crucial.
The Government of India should devise a clear roadmap with milestones, aiming to transition citizen-government interactions to e-governance mode by 2020. This transformation should be enshrined in a legal framework, considering the monumental nature of the task, the required coordination between Union and State Governments, and the diverse field situations. The legal framework should include provisions regarding the definition, objectives, and role of e-Governance in the Indian context; parliamentary oversight; coordination mechanisms between government organizations at Union and State levels; roles, functions, and responsibilities of government organizations in e-governance initiatives, particularly business process re-engineering; financial arrangements; a strategic control framework for e-Government projects dealing with statutory and sovereign functions; a framework for digital security and data protection; and responsibility for selecting and adopting standards and interoperability frameworks.

KNOWLEDGE MANAGEMENT

Initially perceived as applying ICT tools to governance processes, e-governance has evolved to incorporate Knowledge Management (KM). KM is defined as a discipline that integrates the identification, capture, evaluation, retrieval, and sharing of enterprise information assets. KM is a continuous and systematic process that transfers knowledge from individuals and teams to the organization’s collective knowledge base, enhancing the entire organization’s effectiveness. It involves the systematic, explicit, and deliberate building, renewal, and application of knowledge to maximize an enterprise’s effectiveness and returns from its knowledge assets.

Knowledge Management within an organization comprises the following stages:

(a) Identification of both explicit and tacit knowledge assets within the organization

(b) Development of these identified knowledge assets

(d) Utilizing and sharing the accumulated knowledge.

In India, both Union and State governments have experienced sporadic Knowledge Management (KM) initiatives. These endeavors have been instigated either due to the interest of certain government officials or propelled by technology and consulting companies aiming to promote their products and services. Notably, there have been no instances of KM initiatives being undertaken as a systematic policy. It is recommended that Union and State Governments proactively take steps to establish Knowledge Management systems, considering them as a crucial component for administrative reforms in general and e-Governance in particular.

Practice Questions

What is e-Governance and why should we go for e-Governance?
How does a framework of e-governance help the government and the citizens?
“A transparent, smart e-Governance with seamless access, secure and authentic flow of information crossing the interdepartmental barrier and providing a fair and unbiased service to the citizen.” In light of the statement, discuss the aims and objectives of e-Governance in India.
What are the different types of interactions possible in a model of e-governance?
Discuss the evolution of e-governance in India. Analyze the core principles of e-governance in India?
Why was there a need felt for a National e-Governance Plan? Discuss the Implementation Strategy, Approach & Methodology of NeGP.
What is the legal framework for e-governance in India? Why is there a need for statutory backing for e-Governance?
What is the importance of Knowledge Management in Government?

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2nd ARC Report – Promoting E-Governance: The Smart Way Forward