imptact assessment jnnurms e-governance reforms 20412

8/13/2019 Imptact Assessment JnNURMs E-Governance Reforms 20412

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Department of Information Technology

Ministr y of Co mmunications and Information Technology

Government of India


Ministry of Communication and IT

Government of India

Electronics Niketan, 6 CGO Complex, Lodhi Road

New Delhi- 110003

www.mit.gov.in

ABOUT THE BOOK

The Government o f India is keen to understand the nature a nd quantum of impactcreated by e-Government projects that have been implemented by state and nationalagencies under the National e-Governance Plan (NeGP). The Department of InformationTechnology (DIT), Government of India as the nodal coordinating agency for the NeGP isdirected to carry out an impact assessment study of mature state and national projectsthat have been implemented in India.

The book presents an overall view of the impact of varying degrees of computerizationin the service delivery o f four ULBS-in New Delhi, Mumbai, Hyderabad and Ko lkata fromthe perspectiveof the citizens and businesses using the municipal services. The IndianInstitute of Management, Ahmedabad (IIMA) served as the technical advisor for the

Pvt. Ltd.

This book consists of two parts PART I: Report prepared by the Center for ElectronicGovernance, IIMA and PART II: Report prepared by Nielsen ORG Centre for SocialResearch. The book is also available in the public domain on the DIT web site athttp://www.mit.gov.in

s

Impact Assessment

JnNURMs

2010Reformse-Governance

of


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Impact Assessment

of JnNURM's e-Governance Reforms

2010

Assessment of Delivery of Key Services:

The Citizens Perspective

Based on

Survey of Citizens in 4 Urban Local Bodies (Municipalities) in Four States of India

Commissioned by


Ministry of Communications and Information Technology

Government of India


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Ministr y of Co mmunications and Information Technology

Government of India


Ministry of Communication and IT

Government of India

Electronics Niketan, 6 CGO Complex, Lodhi Road

New Delhi- 110003

www.mit.gov.in

ABOUT THE BOOK

The Government o f India is keen to understand the nature a nd quantum of impactcreated by e-Government projects that have been implemented by state and nationalagencies under the National e-Governance Plan (NeGP). The Department of InformationTechnology (DIT), Government of India as the nodal coordinating agency for the NeGP isdirected to carry out an impact assessment study of mature state and national projectsthat have been implemented in India.

The book presents an overall view of the impact of varying degrees of computerizationin the service delivery o f four ULBS-in New Delhi, Mumbai, Hyderabad and Ko lkata fromthe perspectiveof the citizens and businesses using the municipal services. The IndianInstitute of Management, Ahmedabad (IIMA) served as the technical advisor for the

Pvt. Ltd.

This book consists of two parts PART I: Report prepared by the Center for ElectronicGovernance, IIMA and PART II: Report prepared by Nielsen ORG Centre for SocialResearch. The book is also available in the public domain on the DIT web site athttp://www.mit.gov.in

s

Impact Assessment

JnNURMs

2010Reformse-Governance

of


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Copyright 2010 Department of Information Technology, Ministry of Communications and Information Technology.

No part of this report may be reproduced in any publication or for any commercial purpose without prior permission

from the copyright holder.


Ministry of Communications and Information TechnologyElectronics Niketan, 6 CGO Complex, Lodhi Road

New Delhi 110 003

www.mit.gov.in

Indian Institute of Management

Vastrapur, Ahmedabad 380 015

Printed by:

Nutech Photolithographers

Okhla Industrial Area, Phase-I, New Delhi-20


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Project Team


Mr. Abhishek Singh, Director, Department of Information Technology

Mr. Anurag Goyal, Director, Department of Information Technology

Ms. Vineeta Dixit, Principal Consultant, NeGP-Project Management Unit

Ms. Sulakshana Bhaacharya, Consultant, NeGP-Project Management Unit

Ms. Shiffy Varkey, Assistant Manager, NeGP-Project Management Unit

Indian Institute of Management, Ahmedabad

Prof. Subhash Bhatnagar, Study Coordinator

Prof. T.P. Rama Rao

Ms. Nupur Singh

Ms. Anuradha Parekh


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Acknowledgements

The team from IIMA would like to acknowledge the contribution of the Department of

Information Technology (DIT), Government of India, which funded the study. Mr. Abhishek

Singh, Director, DIT and Ms. Sulakshana Bhaacharya, Consultant, PMU were involved

at different stages of the study. We are thankful to Mr. Anurag Goyal, Director, DIT, Ms.

Vineeta Dixit, Principal Consultant, PMU and Ms. Shiffy Varkey, Assistant Manager, PMU

for their contribution to this study.


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Preface

The Government of India is keen to understand the nature and quantum of impact created

by e-Governance projects that have been implemented by state and national agencies under

the National e-Governance Plan (NeGP). The Department of Information Technology

(DIT), Government of India as the nodal coordinating agency for the NeGP is directed to

carry out an impact assessment study of mature state and national projects that have been

implemented in India.

The assessment is to focus on the nature and quantum of impact on users (citizens

and businesses). Assessment of impact on other stakeholders such as the department

implementing the project was not taken up. As a part of the first phase of assessmentstudies, three state-level e-Government projects vehicle registration, property registration

and land records were selected for assessment in twelve states across India. Three national-

level projects implemented by the Income Tax department, the Ministry of Corporate Affairs

(MCA), and the issue of passport by Regional Passport Offi ces were also assessed in 2008.

The report is available on the DIT website.

Impact assessment of municipalities under JnNURM e-Governance Project, Impact

Assessment of the Commercial Taxes project in five states and Baseline Study of the

e-District project were taken up in the current cycle of assessment studies. The Department

of Information Technology (DIT) empanelled market research (MR) agencies for carryingout the field work. Each agency was assigned the task of assessing the impact of the

respective projects and preparing an individual report for each project. The Indian Institute

of Management, Ahmedabad (IIMA) served as the technical advisor for the proposed study.

A team from IIMA worked closely with the team from DIT in the implementation of the

assessment study and provided feedback to the MR agencies at key points in the study. The

field survey of citizens in five states was carried out by AC Nielsen ORG-MARG Pvt. Ltd.

This book consists of two parts PART I: Report prepared by IIMA and PART II: Report

prepared by Nielsen ORG Centre for Social Research. The book is also available in the

public domain on the DIT web site.


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PART I

Report by Indian Institute of ManagementAhmedabad

(Page No 7 to 48)


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Executive Summary

Assessment of Delivery of Key Services: The Citizens Perspective

The report presents an overall view of the impact of varying degrees of computerization in

the service delivery of four ULBS-in New Delhi, Mumbai, Hyderabad and Kolkata from the

perspective of the citizens and businesses using the municipal services. This report is based

on the Market Research agency report which provides a detailed analysis of impact for each

ULB for each service on a variety of parameters which were included in the questionnaires

administered to users of manual and computerized services.

An overall conclusion on the impact of computerization in the 4 ULBs is one of marginalimpact on the users. Amongst the services, there was moderate positive impact on clients in

Renewal of Licenses and payment of Property Tax and Utility Bills. Important services like

issue of Birth Certificates show hardly any improvement from the users perspective. While,

there is some reduction in bribery, there is hardly any improvement in other elements of cost

such as number of trips and waiting timeacross services and ULBs. Post computerization

the performance varies widely on these parameters. All the ULBs assessed in the study had

started to replace the erstwhile manual system almost a decade back in a phased manner.

Most of the ULBs have automated their backend systems and put in work flow for many

of the services to be able to deliver the services on line through assisted counters in service

centers. The MR agency has observed that the transaction time for processing an applicationfor service at the counter has reduced- a user can be processed in a maximum of 2-3 minutes

for many services. However, this improvement in productivity does not result in benefit in

terms of time and cost saved for the consumers. Users reporting on their counter experience

complained of long queues at the counters and long waiting time. Therefore the operations

of a center have to be beer managed. The number of service counters that are operational

must match the demand. The investment in creating new counters is not large in comparison

to the benefits that result for the clients. The queues have to be managed well.

If more services can be offered through portals by computerizing end-to-end process

of delivery including document submission, payment and delivery of digitally signed

documents, and citizens are incentivized to use the portal, the work load on physical servicecenter will automatically reduce. Qualitative feedback from clients suggests that the new

way of working of the system in some of the services across many ULBs is not clear to

many clients. Such clients therefore opt for using agents rather than availing the service

themselves. There is need to create an awareness through campaigns to explain to the

consumers how the new system is designed to reduce service access costs, improve quality

and governance for those who avail the service themselves, as was done by the Greater

Hyderabad Municipal Corporation(GHMC). The focus of computerization seems to have

been on automation rather than on re-engineering processes.


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An analysis of aributes that are seen to be important by the respondents of the 4 ULBs

indicates that aributes related to governance and quality need to be improved acrossall the ULBs. Clarity and simplicity of rules and procedures is mentioned in New Delhi

Municipal Corporation (NDMC) and Brihannanana Mumbai Municipal Corporation (BMC).

Corruption in the working of the system is mentioned in 3 of the 4 ULBs for most of the

services offered by the ULBs.

Further computerization of the ULBs under the JNNURM should aim to provide all

municipal services end-to-end through a portal aer simplifying procedures, and automating

information flow and work flow to process a request for a service.


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Abbreviations and Acronyms

BMC Brihanna Mumbai Municipal Corporation

CFC Citizen Facilitation Centre

CSCs Common Service Centres

DIT Department of Information Technology

G2B Government to Business

G2C Government to Citizen

G2G Government to Government

GHMC Greater Hyderabad Municipal Corporation

IIMA Indian Institute of Management, Ahmedabad

IT Information Technology

JNNURM Jawaharlal Nehru Urban Renewal Mission

KMC Kolkata Municipal Corporation

MR Agencies Market Research Agencies

NDMC New Delhi Municipal CoporationNeGP National e-Governance Plan

NIC National Informatics Centre

NMMP National Mission Mode Programme

PMU Program Management Unit

RFP Request for Proposal

ULB Urban Local Body


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Table of Contents

Acknowledgements ..........................................................................................................................4

Preface .................................................................................................................................................5

Executive Summary ..........................................................................................................................9

Abbreviations and Acronyms ....................................................................................................... 11

Preamble ........................................................................................................................................... 15

1. Role of IIMA in The Assessment Study ............................................................................. 172. Status of Computerization of ULBs Assessed in The Study ........................................... 18

3. Research Methodology .........................................................................................................19

4. Sampling Methodology and Sample Size ..........................................................................19

5. Field Work and Data Quality ............................................................................................... 21

6. Analysis of Survey Data ....................................................................................................... 23

7. Cost Element Wise Impact ................................................................................................... 25

7.1 Profile of Respondents ............................................................................................... 25

7.2 Costs of Availing Service ............................................................................................ 25

7.2.1 Number of Trips .............................................................................................25

7.2.2 Waiting Time (In Minutes) ...........................................................................27

7.2.3 Elapsed Time .................................................................................................. 28

7.2.4 Proportion Paying Bribe (%) ........................................................................29

8. Service Wise Impact ............................................................................................................30

8.1 Birth Certificate ...........................................................................................................30

8.2 Payment of Property Tax and Utility Bills .............................................................. 30

8.3 Issue of New Trade License .......................................................................................31

8.4 Renewal of Trade License ..........................................................................................33

8.5 Redressal of Grievances .............................................................................................34

9. Learnings for Future Implementation of E-Governance .................................................36

10. Limitations of The Study ...................................................................................................... 40


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List of Tables

Table 1: Service Categories .............................................................................................................19

Table 2: Framework of The Study ................................................................................................. 20

Table 3: Sampling Units And Sample Sizes ................................................................................. 22

Table 4: Reasons for Additional Trips .......................................................................................... 37

Table 5: Reasons for Long Wait ..................................................................................................... 37

Table 6: Important Aributes Across ULBs And Services (By % of Responses) .................... 39

List of Figures

Figure 1: Number of Trips .......................................................................................................... 26

Figure 2: Waiting Time (In Minutes) ........................................................................................ 27

Figure 3: Elapsed Time (In Days) .............................................................................................. 28

Figure 4: Proportion Paying Bribes (%) .................................................................................... 29

Figure 5: Purpose of Obtaining A Birth Certificate ................................................................ 30

Figure 6: Birth Certificate .......................................................................................................... .31

Figure 7: Payment of Property Tax And Utility Bills ............................................................. 32

Figure 8: Issue of New Trade License ....................................................................................... 33

Figure 9: Renewal of Trade License ..........................................................................................34

Figure 10: Redressal of Grievances ............................................................................................. 35

List of Annexure

Annexure I Service Delivery Process ................................................................................ 41

Annexure II Outline of The Survey Instrument ............................................................... 43

Annexure III Profile of Respondents for Each ULB ........................................................... 44

Annexure IV Frequency Distribution for Number of Trips ............................................... 48


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Preamble

In view of the proposed roll out of the ambitious National e-Governance Program (NeGP),

the Government of India was keen to understand the nature and quantum of impact created

by e-government projects that had already been implemented by local, state and national

Government agencies. In the first phase of the assessment program initiated in 2008, the

Department of Information Technology (DIT) had commissioned impact assessment studies

of nearly forty mature e-Governance projects implemented by state and central agencies.

Reports analyzing the impact on the basis of these studies were put out in the public

domain. These reports were also discussed in workshops organized by IIM Ahmedabad in

November 2009 in which many of the representatives of the agencies which were assessedhad participated. These workshops provided a forum for discussing the validity of the results

and also provided inputs for improving the conceptualization and design of new projects.

For the second phase of assessment initiated in 2009, the Indian Institute of Management,

Ahmedabad (IIMA) was contracted by the Department of IT, Government of India to become

a knowledge Partner. Projects covering four ULBs; collection of commercial taxes in ten states

and a base line survey for e-district program in five states were taken up in the 2nd phase.

This report covers the assessment of delivery of services by Urban Local Bodies (ULB) in four

states. As per the 2001 population census the urban population in India constitutes 27.8% of

the total population of the country. A large number of services are provided to millions of

citizens residing in the urban areas by the municipalities. The National e-Governance Plan

(NeGP), Government of India includes a National Mission Mode Programme (NMMP) for

e-Governance in municipalities. The NMMP intends to carry out e-Governance in

municipalities on a nation-wide basis and has now been included as a part of the Jawaharlal

Nehru Urban Renewal Mission (JnNURM). The entire project is divided into two components

first the Urban Infrastructure and Governance (UIG) component and second consists of Basic

Services to the Poor.

The project envisages covering Urban Local Bodies (ULBs) in 35 mission identified cities.

The overall structure for the NMMP scheme has been divided into three tiers i.e. Centre,

State and Urban Local Body (ULB) level. NMMP, in its current form, envisages covering allULBs in class 1 cities (423 in total) during the period 2006-07 to 2010-11. The total outlay of

the project is Rs. 7870 million.

Major objectives of the JnNURM project include : to improve effi ciency and effectiveness

in interaction between local-government and its citizens and other stakeholders; to bring

about transparency and accountability in the governance of urban local bodies; to enhance

interface between urban local bodies and citizens; and help improve delivery of services to

citizens.

During the first phase, eight (8) civic services / management functions have been selected to


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be taken up in 35 Mission cities identified covering approximately 80 ULBs. These mission

cities have been so identified on the basis of having a population of 10 lakhs or more asper the 2001 census. The 8 major services delivered under this project are: Registration and

issue of birth and death certificate; Payment of property tax, Utility Bills and Management

of Utilities that come under ULBs; Grievances and suggestions; Building plan approvals;

Procurement and monitoring of projects; Health programs; Accounting system and Personnel

Information System. Two sets of mandatory reforms are proposed to be undertaken. The

core reforms at ULB level aims at process re-engineering through deployment of technology

to enable more effi cient, reliable and timely services in a transparent manner. The other set

consists of State level reforms.

The IIMA report presents an overall view of the impact of varying degrees of computerization

in the service delivery of four ULBs-in New Delhi; Mumbai, Hyderabad and Kolkata from

the perspective of the citizens and businesses using the municipal services. This report has

been compiled on the basis of a detailed report submied by the MR agency. The MR agency

report provides detailed analysis of impact for each ULB for each service on a variety of

parameters which were included in the questionnaires administered to users of manual and

computerized services. The two report should therefore be seen together for an in depth

understanding of the impact.

__________1Source: Website of Ministry of Urban Development, Government of India, hp://jnnurm.nic.in/2

Source: Website of Ministry of Urban Development, Government of India, hp://jnnurm.nic.in/


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Impact Assessment of JnNURM's e-Governance Reforms 2010

1. Role of IIMA in the Assessment Study

In its advisory role, IIMA was involved

in providing inputs to the DIT and the

Market Research agencies over the entire

life cycle of the study. IIMAs effort was

directed at ensuring that a consistent

framework was used across ULBs; the MR

agency understood the refinements to the

assessment framework made for the 2nd

phase; good quality data was collected;impact could be estimated accurately;

results could be projected to the entire

population; results could be compared

across different ULBs; and overall

conclusions could be drawn on the impact

of e-Governance. The following inputs

were provided at important stages of the

study:

IIMA had developed a framework

for assessment covering the key

dimensions on which impact on

citizens (users of a service) would

be measured. On the basis of this

framework, a template of the survey

instrument for the e-District study

was developed by IIMA and pro-

vided to the MR agency.

IIMA provided a framework

for assessment covering the keydimensions on which impact on

citizens (users of a service) was to

be measured. The framework was

similar to the one used in Phase

I studies. The scope of the study

was marginally widened to get

an understanding of the reasons

why clients made each trip (in case

additional number of trips were

made); or paid bribes or used agents.

The MR agencies were le free to add

any items beyond those specified

in the framework in designing the

survey instrument.

The MR agency was asked to submit

a proposal for the study of four ULBs

based on the proposed framework.

The proposal was discussed in a

meeting held in IIMA which was

aended by representatives of DIT,

IIMA team and the MR Agency team.

The IIMA team provided feedback

on the proposal including the survey

instrument for each ULB to ensure

that the survey complied with the

proposed framework.

Guidelines were framed for the

sampling methodology to be used

by the MR agencies to determine a

sampling plan and the sample size.

Design of a sampling plan and sample

size was reviewed by the IIMA team

and feedback was provided on

selection of locations from where

respondents were to be selected.

Templates were provided for

analysis of data to ensure that for

each project the key impacts were

reported. Formats for a set of tables

were provided for reporting data

on impact with the associated levels

of significance. Tables were also

specified to ascertain adherence to

the proposed sampling plan and to

assess the response rate. Agencies


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were asked to report on data quality

by performing analysis to checkinternal consistency of results

Feedback was provided in several

rounds on the tables for correctness

of computation, and unacceptable in

level of accuracy.

A format was provided for the

reports to be submied by the agency,

outlining different sections that were

to be included. Agencies were free toinclude any additional material that

advanced the understanding of the

extent of impact or the reasons for a

certain kind of impact. Feedback was

provided on the report.

On the basis of the MR agency report and

some further analysis of raw data IIMA has

compiled this report to highlight service wise

and location wise impact of computerization

in 4 ULBs, The report includes a discussionof some lessons for further computerization

of the ULBs.

2. Status of Computerization ofULBs Assessed in The Study

At present most of the citizen services

offered by the municipalities in all the four

states have been computerized under the

JNNURM project.

The Brihannanana Mumbai Municipal

Corporation (BMC) has established

computerized Citizen Facilitation centres

(CFCs) in every ward for additional

convenience to the citizens. These CFCs

are enabled with multiple counters and

electronic queuing system. To make the

payment of property tax and water tax bills

simpler BMC provides multiple service

delivery channels. Citizens can makepayments; online through the BMC website

using ITZ cash cards, at registered SIFY

internet cafes across the city, ITZ cash service

providers, CFCs and via SMS. Facility

of filing grievances and suggestions is

available on BMC website as well as at the

CFCs. This service is currently provided

only by two ULBs (BMC and GHMC)

amongst the surveyed states.

Citizens in Kolkata can now access several

computerized services at the head offi ce of

the Kolkata Municipal Corporation (KMC),

borough offi ces in different wards as well

as through recently opened e-CSCs. KMC

is the only ULB amongst others surveyed

which provides the service for Mutation

of Property. Also there is integration done

between the Hospitals, maternity homes,

clinics, crematoriums, burial grounds,

license centres etc and KMC borough offi cesthrough a Central data centre.

Greater Hyderabad Municipal Corporation

(GHMC) provides the facility of

downloading online forms for birth/death

registration. Citizens have the facility of

checking whether their name is registered

or not through the website and thus geing

their records updated. Payments of Utility

Bills can be done online. Citizens can also

avail services at the e-Seva Kendras set up at

various places. Grievances and suggestions

can filed online with the GHMC website

and the status of the complaint filed can be

tracked online too. Also searching of Trade

Identification Number (TIN) is available on

its website.

The New Delhi Municipal Corporation

_____3

The Market Research Agency undertaking the survey was ORG Centre for Social Research, A division of the Nielson Company


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(NDMC) which caters to a small population

offers the facility of obtaining online formsfor services like birth/death registration and

geing a building approval. Also additional

citizen service centres called the Palika

Suvidha Kendras (PSKs) have been set up

to provide few services such as collection of

birth/death certificates and making Utility

Bill payments. Table 1 below provides a

detailed description of the computerized

services offered by each ULB.

Annexure I provides a brief description of

procedures for availing different services in

Table 1: Service Categories

Category of Service BMC GHMC KMC NDMC

Transaction (w/overification)

Utility Bill Payment,Trade License -Renewal

Utility Bill Payment,Trade License -Renewal

Utility BillPayment, TradeLicense - Renewal

Utility BillPayment

Transaction (requiringverification ofdocuments)

Birth Certificate,Death Certificate



BirthCertificate,Death

CertificateTransaction(requiring personalinterface/ field visits/verifications)

Trade License - New Trade License -New, BuildingApproval

Trade License -New, BuildingApproval,Mutation

BuildingApproval

Grievance RedressalSystem

Grievance Grievance

the manual and the computerized system.

3. Research Methodology

For the purposes of analyzing the impactof the computerized system the unit of

analysis was the catchment or service

area of each ULB that was assessed.

The research methodology used for the

study is discussed below. A measurement

framework identifying key areas of direct

and indirect economic impact on citizens,

and indicators on which qualitative impact

can be measured (see Table 2) was used. The

framework had been used in phase I of the

Impact Assessment Studies.

4. Sampling Methodology and Sample

Size

The basic survey instrument was prepared by

the Market Research Agency incorporating

the key dimensions in the measurement

framework for each ULB in the local

language of the state. The questionnaire

was pre-tested on 20 respondents in each

ULB between February & March 2009

and modified on the basis of feedback. A

common questionnaire was prepared for

capturing responses on the manual system

for all services in the ULBs. A separate

questionnaire was designed for each

computerized service taking into accountthe variation in the steps to be followed and

the level of complexity involved. An outline

of the survey instrument used and the

sections included are given inAnnexure II

Given that a sample size of 800 per city

had been agreed upon, the sampling

methodology for the impact assessment

was designed in such a way as to provide


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Cost of Availing Service Measured Directly

Number of trips made for the service

Average travel cost of making each trip

Average waiting time in each trip

Estimate of wage loss due to time spent in availing the service

Total time elapsed in availing service

Amount paid as bribe to functionaries

Amount paid to agents to facilitate service

Overall Assessment

Preference for manual versus computerized systems

Composite score: Measured on a 5-point scale factoring in the key aributes of a delivery system thatare seen as being important by users

Quality of Service: Interaction with staff, complaint handling, privacy, accuracy measured on a 5-pointscale

Satisfaction with the location of the service delivery center/offi ce

Convenience of working hours of the service delivery center/offi ce

Overall aitude of the functionaries in terms of courteousness and friendliness

Timeliness of response to queries by clients

Satisfaction with the mechanism for complaint handling and problem resolution

Perception about the confidentiality and security of data

Satisfaction with the overall quality of service

Quality of Governance: Transparency, participation, accountability, corruption measured on a 5-pointscale

Level of corruption in the current working system

Awareness about the citizen charter

Adherence of the time frame for service delivery (elapsed time) to that specified in citizens charter

Financial loss due to delay in availing the service

Type/kind of financial loss incurred due to delay in availing the service

Extent to which government offi cials can be held accountable for their actions

Whether the rules and procedures are simple and stated clearly

Whether the agency takes responsibility for the information shared

Does the agency provide any feedback and what is the quality of response to queries?

Perception about the overall quality of governance

Table 2: Framework of the Study

accurate estimates of cost of access and other

variables collectively for all the sampled

municipalities of a city.

For the purpose of this study, clustering

of the sample was done at the following

levels: ULBs/ municipalities in each city,

geographical units within each ULB and

wards within each geographical unit. For a

given sample size, increasing the number of

wards from which samples were drawn was

seen to be capturing the maximum amount

of variability on factors that determine

the service delivery performance4. For

detailed explanation see the Phase I Impact

Assessment Report5.


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In each city one ULB was selected for purpose

of the survey. This selection was done basedon the activity levels or population covered

by each of them. The total sample size for

each ULB was 800 respondents across

computerized and manual services in each

city. This provided statistically valid samples

at 95% Confidence Level and 5 % margin of

error for each of computerized and manual

services. In each city, the administrative

area of each ULB was divided into 4

geographical units. The population in eachward for each of these units was obtained

through secondary sources and arranged

in descending order for each geographical

unit. Population was taken as a proxy for

activity levels in the ward. The median value

of ward population for each geographic unit

was obtained and one ward from each half

was taken up for survey. Therefore a total

of 8 wards were selected from each city. In

each selected ward, all service offi ces werepicked up for survey (tracer); boosters were

taken if required through a house-to-house

systematic random survey in each selected

ward for each service.

Proportionate allocation for each service

was done in each selected centre per ULB to

the total sample size of 800 depending upon

the volume of transaction of that service in

that centre. Accordingly respondents were

chosen through tracer interview6from theseselected centres. In cities/ULBs like Kolkata/

KMC that have gone for eGovernance of

more complicated citizen centric services

like mutation and building approvals, the

sample for these are further sub-divided

to include representative interviews from

agents/middlemen who are involved in

facilitation of such services.

Since the manual service is not available

anymore for the assessed services in the

ULBs, the only way of interviewing the

respondents to assess performance of the

erstwhile manual system was through the

recall method. In this method, the survey

team essentially interviewed only those

users who had availed services of the

manual system at least once, prior to using

the computerized system. Table 3 lists the

actual number of users surveyed (inclusive

of the intermediaries surveyed) in each state

and the number of sampling units from

which these were drawn.

5. Field Work and Data Quality

A 3 day training session was organized by

the MR agency in the month of April 2009

in Delhi, Mumbai, Kolkata and Hyderabad

__________

4 Sample size is determined by the desired effect size that we would like to be able to statistically detect with the desired precision (power)needed for the study. Effect size is used to measure the magnitude of impact (of computerization, in this case) and can be computed as thestandardized difference between two means. Effect sizes can be defined as small (between 0 and 0.2), medium (> 0.2 and = 0.8). The primary criterion for determining sample size in an impact analysis is the ability to detect an impact of a desired magnitudewith a high degree of confidence the Minimum Detectable Effect (MDE). In other words if we believe an impact of a certain magnitudehas policy relevance, then we should have the statistical power to test whether or not it is statistically different from zero. The smaller theMDE, the more likely we will be able to detect smaller impacts. The MDE depends on: The expected variance of the impact estimate; Theassumed significance level (selected to reduce Type 1 error), typically assumed to be 95%); The assumed power level (selected to reduceType 2 error). The typical level chosen is 80%. At this level we would have a 80 percent chance of detecting an effect as big as the MDE.

5 Department of Information technology, Government of India 2008. Impact assessment of e-governance projects. hp://www.mit.gov.in/download/ImpactAssessmentReportDra.pdf. Accesses April 11, 2009.

6 Tracer Survey is a technique wherein a survey team is employed for a period of time at the delivery centre to obtain the names andaddresses of ALL persons who visit the centre during those days. These names and addresses of people are entered into a rost-er. Oncethe number of required people are obtained (typically these would be 5 times the sample size), this activity would be discontinued; thesurvey team would then do a systematic random sampling on the names of the people who have been entered into the roster, and would

visit these sampled households to administer the questionnaire on them.


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Table 3: Sampling Units and Sample Sizes

ULB

Service

Proposed Sample Size Actual Sample SizeTotal Total

Manual Computerized

BMC

Utility Bill Payment 504 261 243

Trade License - Renewal 107 67 40

Birth Certificate 149 94 55

Death Certificate 42 33 9

Trade License - New 121 65 56

Mutation 2 2 -

Grievance 60 36 24

Total 800 985 558 427

GHMC

Utility Bill Payment 392 578 392 186

Trade License - Renewal 273 174 99

Birth Certificate 64 241 213 28


Trade License - New 310 251 195 56

Building Approval 83 71 12

Mutation 7 7 -

Grievance 34 53 33 20

Total 800 1,670 1,265 405

KMC


Trade License - Renewal 162 82 80Birth Certificate 45 159 75 84


Trade License - New 200 100 50 50

Building Approval 20 20 10 10

Mutation 20 20 10 10

Casual Permission 5 - - -

Total 800 801 401 400

NDMC


Trade License - Renewal 4 4 -

Birth Certificate 100 84 44 40

Death Certificate 21 11 10Trade License - New 7 7 -

Building Approval 20 40 10 30

Booking of Barat Ghar 10 - - -

Total 800 818 403 415

for supervisors and investigators to brief

them about the project and the conduct of

the survey. One observer from PMU, DIT

was present at the briefing centre. A mock

testing exercise was also conducted at the

end of the briefing among all interviewers

and supervisors. A Fieldwork Instruction

manual was prepared in the local language

of the ULB as a reference guide. As per the

report of the MR agency, field investigators

were accompanied by the supervisor for

25% of the calls. Supervisors performed


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various checks at each stage to assess the

data accuracy. At the end of each day, thesupervisor checked all filled up schedules

and data formats for consistency, and to

ensure that there were no data gaps. The

field executives monitored the performance

of the surveyors based on daily reports,

visited the survey sites to observe quality

of data being gathered and effi cacy of the

supervisors, checked about 10% of the

completed interviews for each field team

randomly and also organized debriefingand feedback sessions, whenever required.

As soon as the survey was completed

for 50 respondents in each centre, the

questionnaires and data formats were sent

to Delhi research offi ce, where a team of

coders went through the questionnaires for

consistency checks and coding, to prepare

the schedules for data entry. The coding

teams were provided with 1 day training. A

team of 10 coders and 2 coding supervisorsundertook the scrutiny and coding activity.

The analysis team from the ORG Centre for

Social Research prepared the Data entry

program in CS Pro, which has in built

consistency checks. The programme was

checked, validated & finalized with 2%

questionnaires. Data entry was undertaken

in Delhi using the finalized version of

the data entry programme. In spite of the

elaborate process put in place by the MRagency, several data errors were discovered

by the IIMA team, which were corrected

later.

There were some problems encountered

during the survey in terms of obtaining

adequate samples for each service. For

services like application for new Trade

license and death certificate the sample

size at one of the ULBs like NDMC was

too small for any statistical analysis (See

Table 3).For example the field team in Delhicould not find enough respondents either

at the NDMC centres or at the ward levels

who had come to apply fresh for a Traders

License or had just applied for one. Similarly

for death registration, the sample size was

small for NDMC, BMC and GHMC (only

computerized for BMC and GHMC). None

of the leading section questions or those

pertaining to the key issues of enquiry in

the study like costs, governance and servicequality had problems of low responses.

6. Analysis of Survey Data

The MR agency submied a report providing

an assessment of the citizen impact on the

following dimensions for each of the four

ULBs for key services offered by them:

Factors contributing to cost of access

(number of trips needed, waiting time,travel costs, payment of bribes)

Elapsed time (total time taken for receipt

of final document)

Quality of service assessed along

aributes such as responsiveness of

staff, convenience of location of offi ce

and work timings, and facilities at the

service center.

Quality of governance assessed on

aributes such as transparency, reduced

corruption, fairness of treatment, quality

of feedback and level of accountability.

Overall impact measure (preference

between manual and computerized

systems)

A single composite rating on a five point

scale of improvements perceived aer


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computerization. Respondents were

asked to rate the improvements on acommon set of twenty aributes covering

cost of access, convenience, quality of

delivery, and quality of governance. For

each project the respondents were also

asked to select the three most desirable

aributes. Based on the responses

on desirability, a weighting scheme

was generated for each of the twenty

aributes reflecting the importance of the

aribute. Using the weighting schemeand the responses on a 5-point scale, a

single composite score for improvement

was generated.

Monetized cost of access by adding travel

cost, wage loss and bribe payments.

Using the analysis provided in the MR

agency report, the following sections present

a comparative picture of the performance of

the four ULBs in two ways:

Cost element-wise impact: An aggregate

picture of overall impact for a given project

covering all dimensions across all states.

Service-wise impact: Variation acrossULBs of the impact on each of the above

dimensions for a given service.


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7.1 Profile of Respondents

An analysis of the profile of respondents

from all the four ULBs reveals that users

are primarily in the age bracket of 30

years or more. The proportion of younger

respondents (below 30) varies from 0-33%

for different services in the 4 ULBs. GHMC

has a distinctly younger user group of

users for every service, particularly for thecomputerized delivery. In terms of education

levels the sample in NDMC is very largely

literate (at least matriculation) whereas in

other 3 ULBs the proportion of semi literates

is significant- varies from 5 to 51%. There

are hardly any illiterate users in the4 ULBs

sample except in 2 services in GHMC where

the proportion is touching 10%. In NDMC

the respondents are largely from lower

middle and middle income groups andvery few are poor or from the labor class.

In KMC the sample is largely poor (with

income less than Rs. 5000 per month) and

in BMC and GHMC somewhat less so. BMC

has the largest proportions of labor as the

occupation of the respondents varying from

14 to 44% for non Trade services. The sample

is predominantly males in KMC, BMC and

GHMC, whereas in NDMC nearly 30% of

the respondents are females. (See detailed

tables for each ULB in (Annexure III). Even

though the respondents were chosen from

urban municipal areas in all the states, some

variations were observed in their profile.

7.2 Costs of Availing Service

7.2.1 Number of Trips

Figure 1below presents the number of trips

averaged over all the users for a service in

a particular ULB. Unlike many previous

projects/services that were assessed, there

seems to be no significant reduction in the

number of trips aer computerization.

There has been a marginal reduction in the

number of trips across all ULBs for services

such as Utility Bill payment and Renewal

of Traders license. However, the number of

trips has increased across all ULBs for issue

of a new Trade license post computerization.

This is due to an additional trip to the State

Industries Commission Offi ce needed to

procure the Type of Business Certificate.

Malfunctioning of computers, checking

the application status are other reasons for

citizens to make a trip. The increase in trips

may also be due to the increased level of

activity in the years that computerization

has been in place.

For services such as obtaining a Birth

Certificate, except in BMC the number

of trips has increased as compared to the

manual system. In BMC aer obtaining

the certificate from the CFC counter the

applicant can get it signed from the medical

offi cer present at the CFC center on the same

day. In other ULBs this procedure generally

requires one more trip as the medical offi cer

sits in another department/offi ce of the

ULB. Respondents indicated that additional

trips are required to collect information on

procedures, non-submission of documents

at the first time, and due to absence of offi cial

required for authentication.

The number of trips should not be more

than one for payments of Utility Bills

(property tax, electricity, water tax etc) and

for collection of certificates for Birth and

7. Cost Element Wise Impact


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Death. The chart in (Annexure IV) presents

the proportion of respondents availing abirth certificate in 1, 2, 3 or 4 trips in the 4

ULBs aer computerization. Only in BMC

and KMC, 50-60% respondents could do it

in one trip, whereas in other ULBs hardly

a few could get a Birth Certificate in one

trip. For other complex services the trips

should not be more than 2 (1 for submission

of forms and documents and 1 for collection

of the required certificate).

Simple process reforms and effective

supervision at delivery centers can reducethe number of trips and bring about a

great deal of improvement. Process reform

(clear information on procedures, reducing

number of steps in the delivery of a service,

quick information flow between different

agencies) has to be a priority in the next

phase of computerization. Ideally, if the

services can be designed to be delivered from

a Portal and citizens are incentivized to use

__________

7The colored bars in all the figures (1 to 10) represent the values of manual and computerized system.

Figure 1: Number of Trips7

Manual Computerised


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the Portal, there need not be any trips to an

offi ce for most of the simple services. Thiswill reduce the burden at the counters for

people without easy access to the Internet.

7.2.2 Waiting Time (In Minutes)

Figure 2 presents the average waiting

time in minutes for each trip made for the

service. Overall, the waiting time is high

(40-85 minutes) in most services in manual

delivery. Similar wait time was reported

for land records, transport and propertyregistration services assessed in phase I.

Computerization has reduced the wait

by 15-50% for Utility Bill Payments across

ULBs. Filing grievances on the portal

reduces the wait time to zero and makestracking of complaints easier. However, for

services such as obtaining Birth Certificate

the impact of computerization on wait time

has been negative i.e. in 3 ULBs the wait

time has gone up. In Issue and Renewal of

Trade license, the impact is marginal except

in KMC where a significant reduction has

been achieved. Some of the reasons cited for

long wait at the counters are large number of

applicants, non-functional counters as wellas frequent system breakdown-problems

that can be fixed through beer operational

management. Since some ULB have been

Figure 2: Waiting Time (In Minutes)

Manual Computerised


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__________

8 Kolkata Municipal Corporation. Reforming governance systems in Kolkata, hp://www.metropolis.org/metropolis/sites/default/files/comisiones/2009-2011/c2/Case%20Study%20Kolkaa.pdf. Accessed Feb 20, 2010.

able to reduce the average wait time to 30

minutes for different types of service, itshould be possible for others to achieve

similar results.

7.2.3 Elapsed Time

Figure 3presents the elapsed time in days

between application for a service and its

final delivery. Overall, the average elapsed

time has increased aer computerization

for most services across all ULBs. The only

due to the integration of information flow

between the hospitals, maternity homes,clinics, crematoriums, burial grounds,

license centers etc and KMC borough

offi ces through a Central Data Centre8. In

other ULBs because of poor communication

between the hospitals and ULBs the

applicant needs to make multiple trips to

the hospital to expedite the process.

For procuring a new Trade license which is

a complex service (involving any steps) the

Figure 3: Elapsed Time (In Days)

average elapsed time in the computerized

system ranges from 10 to 20 days. As

compared to the manual system elapsed time

has in fact increased. The primary reason

for the increase is due to the mandatory

submission of the type of service delivery

certificate to be obtained from the State

Industries Department.

improvements are a one day reduction in

Birth Certificate in BMC and a significant

reduction in Renewal of Trade licenses

across all ULBs. The data shows a great

deal of variability in elapsed time for Birth

Registration ranging from 3 to 8 days across

ULBs aer computerization. Ability of KMC

to deliver a Birth Certificate in 2-3 days is

Manual Computerised


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7.2.4 Proportion Paying Bribe (%)

The incidence of bribe is spread across all

services in specific ULBs in the manual

system. There is a significant lowering of

bribes aer computerization in the ULBs

where the bribery in the manual system

was high. In general, post computerization

the incidence of bribery is low except in the

issue of Trade license in BMC and KMC and

in Renewal of Trade license in GHMC (See

Figure 4). The reasons cited for payment

of bribes are: expediting the process of

service delivery, to enable service to be

provided out of turn and to influence the

functionaries to manipulate record in favor

Figure 4: Proportion Paying Bribes (%)

of citizen. Therefore if process reform is

carried out, which makes the system moreeffi cient and takes away discretion to delay

or deny service from the functionaries,

bribery can be reduced. Proportion of

bribery (corruption) for making Utility

Bill payments in the manual system was

very low in all ULBs apart from GHMC.

Post computerization incidence of bribe

has almost been eliminated. Opening up of

multiple delivery centers, multiple payment

options in few ULBs and effi cient queuemanagement (BMC) has made offi ces more

client-friendly and reduced the need to

expedite delivery.

Manual Computerised


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Figure 5: Purpose of Obtaining A Birth Certificate

8.1 Birth Certificate

Nearly 16% of all respondents had obtained

a Birth Certificate in either the manual

or computerized mode. Birth Certificate

is a valued service as it is required for

employment and for other economic

activities such as applying for a loan. The

figure 5below analyzes the reasons for which

a Birth Certificate is obtained.

The impact of computerization is verymarginal across the 4 ULBs on all the

elements that constitute the cost of accessing

the service for a citizen(See Figure 6 below).

The waiting time reported below is the total

wait for all the trips that were made. GHMC

seems to have improved the perception of

governance and quality. Major contribution

to the improved perception is the significant

reduction in bribery (17% to 4 %) as well

use of intermediaries. (40%to 4 %). Given

the fact that a large proportion of citizens

amongst all users seek a Birth Certificate the

impact of computerization is insignificant.

Process reform in terms of improved sharing

and transfer of information from maternity

homes/hospitals to the municipalities needs

to be implemented to improve performance

on the hard elements of costs such as wait

time and number of trips.

8.2 Payment of Property Tax andUtility Bills

Almost 46% of all respondents paid

property tax or Utility Bill in a manual

or computerized mode across the ULBs.

However, for this largest group of users,

the impact of computerization is marginal

across ULBs. Some reduction in waiting

time (ranging from 16%-50%) has been

possible across the 4 ULBs but on all other

8. Service Wise Impact


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parameters the performance of the manual

and computerized system is equally

poor (See Figure 7 below). Bribery is not a

significant problem in 3 ULBs. In GHMC

computerization has helped eliminatebribery and that is why composite score of

GHMC has improved.

8.3 Issue of New Trade License

Application for New Trade license is the

second most used service at 3 of the ULBs

barring the NDMC. Nearly 16% of all

respondents in 3 ULBs used the service. The

service is more complex that payment of a

bill and the user is a Trader/ businessman

(See Annexure III). However the impact

of the computerized system has been

marginal across the three ULBs as indicated

inFigure 8below. Impact in terms of cost of

availing service (no of trips, waiting time

and elapsed time) has been negligible. Only

GHMC shows a significant reduction in the

percentage of users paying bribes (from

24% to 3 %) and also a reduction in the use

of intermediaries (from 45% to 7 %). This

is why GHMC scores much beer on the

perception of quality and governance as

compared to other ULBs.

Figure 6: Birth Certificate


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Figure 7: Payment of Property Tax and Utility Bills

Manual Computerised


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8.4 Renewal of Trade License

Application for Renewal of Trade license

is the second most used service at 3 of the

ULBs barring the NDMC. Nearly 16% of

all respondents in 3 ULBs used the service

(See Annexure III). Computerization has

created a modest positive impact on most

of the performance parameters assessed in

the study. There was marginal reduction

in number of trips, a moderate reduction

in total waiting times, and a significant

reduction in elapsed time. Bribery and

proportion using intermediaries has also

been reduced significantly and eliminated

in some cases (See Figure 9). Across the ULBs

there is improved perception of quality,

governance and the composite overall

performance. GHMC shows the maximum

improvement because the manual delivery

Figure 8: Issue of New Trade License.

Manual Computerised


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was rated as poor on many dimensions.

Ideally, Renewal should be possible through

a web portal obviating the need for a visit to

the offi ce.

8.5 Redressal of Grievances

The results presented in Figure 10 suggest

that the impact of computerization on

Figure 9: Renewal of Trade License

initiating the Redressal of a Grievance has

been significant for both the ULBs. Waiting

time has been eliminated and bribery has

been reduced. However, the resolution of

Grievances has not improved as indicated

by longer elapsed times. GHMC seems to

have improved the perception of quality

and governance.

Manual Computerised


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Figure 10: Redressal of Grievances

Manual Computerised


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An overall conclusion on the impact of

computerization in the 4 ULBs is one of

marginal impact on the users. Amongst

the services, there was moderate positive

impact on clients in Renewal of Licenses

and payment of Property tax and Utility

Bills. Important services like issue of Birth

Certificates show hardly any improvement

from the users perspective. While, bribery

has been reduced in some cases, there is

hardly any improvement in other elements

of cost such as number of trips and

waiting time across services and ULBs.

Post computerization the performance

varies widely on these parameters

whereas IT enabled process reforms and

standardization should have produced a

more even performance.

All the ULBs assessed in the study hadstarted to replace the erstwhile manual

system almost a decade back in a phased

manner. Most of the ULBs have automated

their backend systems and put in work

flow for many of the services to be able

to deliver the services on line through

assisted counters in service centers. The

MR agency has observed in its report that

the transaction time for processing of

applications for services has reduced for theULBs to a considerable extent. For example,

the MR agency field staff observed that at

the counters each user can be processed by

the ULB counter assistant in a maximum of

2-3 minutes for many services. However, the

improvement in productivity in processing

does not result in benefit in terms of time

and cost saved for the consumers. Users

reporting on their counter experience

complained of long queues at the counters

9. Learnings for Future Implementation of e-Governance

and long waiting times. Long queues were

also observed by investigators during the

surveys-explaining why the benefit of

internal effi ciency in the ULB is not being

transferred to the consumer.

Table 4 below presents the reasons for

additional trips across all services. Long

queues are cited as a reason for every service

by a large proportion of users. Providingadequate number of counters can take care

of the problem. A well designed portal can

allow download of applications, checking

status and conveying the procedure for

obtaining a service in clear manner to obviate

the need for making a trip. Table 5 presents

the reasons for long wait at the center in the

manual and computerized systems across

all services. Too many customers, non

working counters, poorly trained staff is themain reasons cited by the users. Improved

operational management can take care of

some of these reasons

There are many types of actions that can

improve the impact on clients:

The operations of a center have to be

beer managed. This means that the

number of service counters that are

operational must match the demand.The investment in creating new counters

is not large in comparison to the benefits

that result for the clients. The queues

have to be managed well.

If more services can be offered through

portals by computerizing end-to-end

process of delivery including document

submission, payment and delivery of

digitally signed documents, and citizens


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__________

9In the survey questionnaire the respondents were asked to identify reasons for making additional trips to the centre for a particularservice (if no of trips =>3). This was a multiple response question. N is addition of the manual and computerized samples for each serviceof all 4 ULBs.10In the survey questionnaire the respondents were asked to identify reasons for long waiting time at the center particular service. This

was a multiple response question. N is addition of the manual and computerized samples for each service of all 4 ULBs.

incentivized to use the portal the work

load on physical service center will

automatically reduce.

As discussed in the previous section,

in case of more complex services such

as mutation, Building Approvals, New

Traders Licenses and Grievances,

the client has hardly experienced any

improvement. Providing qualitative

feedback, clients reported that they didnot understand the new way of working

of the system in some of the services across

many ULBs. Many clients therefore opt

for using agents rather than availing the

service themselves. A possible solution

Table 4: Reasons For Additional Trips9

Reasons for Additional Trips(% of responses)

Services BirthCertificate

UtilityBill

NewTrade

License

TradeLicense

Renewal

Grievances

N=86 N=64 N=114 N=39 N=45

Processing time at the offi ce 63 49

All documents/forms were not submied the firsttime

35

To collect information on procedures andrequired documents

45 61 22

To obtain application form 18

Power failure/equipment breakdown at the

service area. 9 8 13

Long queues 30 100 56 92 24

Absence of offi cial required for authentication 20 4

To check application status 28 39 76

Table 5: Reasons For Long Wait10

Reasons Long wait at the center

(% of responses)


UtilityBill

NewTrade

License

TradeLicense

Renewal

Grievances

N=101 N=31 N=35 N=22 N=12

Many counters were not working 73 10 57

There were too many customers in the servicearea

78 58 26 100 58

Staff do not appear to be well trained , so areslow at processing application

77 13 6 58

Frequent system/equipment breakdown 26 26 40


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is to create an awareness campaign

explaining to the consumers how thenew system is designed to reduce

service access costs, improve quality

and governance for those who avail the

service themselves. Some efforts were

made at GHMC, through an awareness

campaign among the clients highlighting

the benefits of the computerized process

over the manual system. Moreover,

the GHMC website is used to educate

the users including options of searchand find, and preparation of system

generated dummy certificates for birth

and death registration. The process of

awareness creation has reduced the

usage of intermediaries for most services

across GHMC.

There is need for reengineering processes

for the delivery of services. A comparison

of the computerized and the manual

system for each of the services showsthat there is not much difference between

the two so far as the client is concerned.

The entire focus of improving delivery

times is through automation. Until and

unless there is a reduction in steps in

the processes needed to service a clients

application, it is diffi cult to impact the

cost to the client.

One of the important information gathered in the survey was users

response on which three of the twenty

aributes of service delivery (read

out from the survey instrument) were

considered important by the users of

each project in different states. Table 6

depicts the data from these responses in

terms of the aributes that were found

to be more important for each type of

project across states. The first learning

is that users perception of what is

important varies with the projects andstates. Therefore, user participation in the

design of the delivery system prior to its

implementation is extremely important.

Consultation with the users is seldom

done. There are five aributes which are

considered important in 4-5 states by

users of two of the three services.

An analysis of aributes that are seen to

be important by the respondents of the 4

ULBs indicates that aributes related to

governance and quality need to be improved

across all the ULBs. Clarity and simplicity

of rules and procedures is mentioned

in NDMC and BMC. Corruption in the

working of the system is mentioned in 3 of

the 4 ULBs for most of the services offered

by the ULBs. As reported earlier, corruption

is one area where some improvements have

occurred in many of the ULBs. In subsequent

computerization greater emphasis needs to

be paid on reducing the discretion of civil

servants in processing requests for services

and also in making the rules and procedures

simple and transparent.

Factors related to quality of service are also

mentioned in all the ULBs. These are areas

where it is easy to make improvements. For

example, queue management is mentioned

in 3 of the 4 ULBs. Queue management can bedone by puing a simple electronic system

of displaying a token number that is due for

processing at any counter. It is interesting

to note that the cost of availing services is

not seen to be important in ULB services,

whereas in many other services that were

assessed last year, cost was considered to be

quite important. The primary reason is that

ULB services are available locally within

a city and therefore cost of travel is not as


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large as for other services where long travel is involved.

Table 6: Important Aributes Across ULBs and Services (by % of Responses)


UtilityBill

NewTrade

License

TradeLicense

Renewal

Grievances

NDMC

Clarity and simplicity of rules and procedures 45.45 -

Ease of access to data 25.00 -

Ability to complain 25.00 -

Management of queuing system - 54.60Legibility of print outs - 26.07

Location of service center 27.27 34.05

Total 122.72 114.72

BMC

Clarity and simplicity of rules and procedures 22.22 - - 30.30 20.59

Communication by department on progress 20.00 21.96 - - -

Accountability of offi cers 17.78 - - 22.73 -

Corruption of working system 17.78 20.56 26.98 25.76 -

Convenience of working hours - - - 23.53

Design and layout of application form - - 10.63 - -

Responsiveness of functionaries 22.22 - - - 23.53Legibility of print outs 22.22 22.43 - - 26.47

Durability of certificates 20.00 - 22.22 - -

Effort in document preparation - - 20.63 - -

Total 142.22 64.95 80.46 78.79 94.12

KMC

Corruption of working system 52.00 37.37 48.00 34.15

Accountability of offi cers 33.33 36.36 - -

Ability to complain - 40.40 42.00 40.24

Management of queuing system 34.67 36.36 36.00 39.02

Total 120 150.49 126 113.41

GHMC

Corruption of working system - - - - 21.21

Dependence of intermediaries - - - - 21.21

Security of data 25.47 22.31 - - -

Management of queuing system - 22.31 - - -

Location of service center 39.62 35.90 30.99 32.37 -

Durability of certificates 31.13 30.51 27.84 25.43 -

Responsiveness of functionaries - - 27.32 27.75 27.27

Costs of availing service - - - - 30.30

Total 96.22 111.03 86.15 85.55 99.99

(%) based on number of responses Quality of governance Quality of service Cost of availing service


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10. Limitations of The Study

The sample size for new Trade licenses in

NDMC was very small; inadequate for any

statistical analysis. The field team of the

MR agency in Delhi could not find enough

respondents who had applied for a Traders

license either at the NDMC centers or at the

ward level. Similarly for Death Registration,

the sample size was small for NDMC for both

modes of delivery and for computerizedservices in BMC and GHMC.

A few limitations of the study should be

recognized while interpreting the results.

First, in the absence of any benchmark

surveys of the existing manual system, the

study relied on recall for eliciting experience

with manual delivery of the service. In some

cases, manual systems were completely

replaced by the current computerized

system about 8-10 years back and in othercases the frequency with which users avail

a service might be very low. This might

make recalling experience with the manual

system challenging for users. However, it

is not clear in which direction, if any, this

might bias the results.

Second, although all effort was made

to ensure that the sampled users were

representative of the broader population,

a complete list of users was not always

available from delivery centers that wereselected in the sample. Geing a list of

users that had used services in the manual

system was even more diffi cult. Therefore,

a sampling frame could not always be

drawn for randomly selecting respondents.

In such cases respondents were picked up

randomly by using a house to house survey.

Third, because of the sensitivity of certain

questions, it was diffi cult to get respondents

to answer some questions. In particular,eliciting data on bribery was diffi cult in some

ULBs, particularly if agents were used.


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Annexure II: Outline of The Survey Instrument

Section No. Dealing with questions related to

1 Identification of respondents: Name, address, status of the respondents, village/city,

taluka and district where he/she belongs to, residential address of the respondent

and status in the family.

2 Awareness of the respondent regarding the computerized services: Duration and

source of awareness, actual user profile from the household at the computerized

centre

3 Services Availed: Incidence of services availed and date of actual availing of the

service

4 Costs of Availing Service: Distance, usual mode of travel, number of trips, traveltime and cost of each trip, waiting time, wage loss, service charges, errors in docu-

ments, number of trips, incidence of bribes, amount of bribe paid, purpose of paying

bribes, payments made to intermediaries, total payments made, level of anxiety in

order to obtain the service

5 Overall Assessment: Perception about improvement in 22 of attributes related to

costs, service quality and governance regarding manual vis--vis computerized

systems, ranking of 3 most important attributes out of the above, preference or

otherwise of the computerized land records centre vis--vis the manual land records

centre

6 Perception of the user about quality of governance and quality of service

7 Perception of user about eGovernance: General statements to understand the levelof liking or otherwise of the respondent to the eGovernance system

8 Respondent Profile: Gender, education, income, occupation, type of house


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Annexure III: Profile of Respondents for Each ULB

Profile of Respondents New Delhi Municipal Corporation (NDMC)

Background Characteristics

NDMC Services

Birth Certificate Death Certificate BuildingApproval

Utility BillPayment

M C M C M C M C

Number of Respondents 44 39 11 10 9 28 326 331

Age (in years) (%)

Less than 30 0 13 9.1 0 22 3.6 22 31

30-40 61 67 64 30 22 21 44 35

40 or more 39 21 27 70 56 75 33 35

Gender (%)Male 66 69 73 70 89 93 64 73

Female 34 31 27 30 11 7.1 36 28

Education (%)

Illiterate 4.5 0 0 0 0 0 1.2 2.1

Schooled 14 13 9.1 0 0 0 8.2 4.8

Matric and above 82 87 91 100 100 100 91 93

Occupation (%)

Cultivation/laborer/ worker 2.3 5.1 9.1 20 22 0 0.9 3

Executive /clerical 43 54 27 10 22 18 45 38

Businessman 18 5.1 27 50 44 75 12 15

Dependent/student 4.5 5.1 9.1 0 11 7.1 17 22

Other 32 31 27 20 0 0 25 22

Monthly Income (%)

Less than Rs. 5000 4.5 10 9.1 0 0 0 0 1.5

Rs. 5000-10000 18 31 9.1 0 44 0 29 25

Rs. 10000-30000 52 51 55 70 11 7.1 68 65

Rs. 30000 or more 25 7.7 27 30 44 93 3.4 8.5


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Profile of Respondents Brihannanana Mumbai Municipal Corporation

BackgroundCharacteristics

BMC Services

Birth

Certificate

Death

Certificate

Grievance Utility Bill

Payment

Trade

license new

Trade license

Renewal

M C M C M C M C M C M C

Number of Respondents 90 53 31 9 34 21 214 201 63 51 66 40

Age (in years) (%)

Less than 30 10 25 9.7 11 8.8 14 26 18 13 18 17 7.5

30-40 42 49 19 44 41 33 29 34 33 35 26 23

40 or more 48 26 71 44 50 52 46 47 54 47 58 70

Gender (%)Male 82 83 87 89 88 86 86 88 97 98 97 100

Female 18 17 13 11 12 14 14 12 3.2 2 3 0

Education (%)

Illiterate 0 0 0 0 0 4.8 2.8 4 0 0 0 0

Schooled 39 28 29 22 26 14 29 29 24 26 29 43

Matric and above 61 72 71 78 74 81 68 67 76 75 71 58

Occupation (%)

Cultivation/laborer/worker 26 23 16 44 18 14 15 21 4.8 2 1.5 7.5

Executive /clerical 13 23 16 22 38 24 18 21 7.9 5.9 11 2.5

Businessman 36 26 36 11 24 24 36 31 81 84 82 83Dependent/student 7.8 7.5 13 0 15 19 12 12 1.6 0 1.5 0

Other 18 21 19 22 5.9 19 19 14 4.8 7.8 4.5 7.5

Monthly Income (%)

Less than Rs. 5000 16 19 6.5 33 12 14 19 23 4.8 16 3 10

Rs. 5000-10000 58 49 65 56 56 19 52 42 49 43 56 53

Rs. 10000-30000 21 32 29 11 21 57 28 31 46 37 41 33

Rs. 30000 or more 5.6 0 0 0 12 9.5 1.9 4 0 3.9 0 5


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Profile of Respondents Kolkata Municipal Corporation (KMC)

Background Characteristic

KMC Services

BirthCertificate

DeathCertificate

Mutation

UtilityBill

Payment

Tradelicense new

Tradelicense

Renewal

M C M C M C M C M C M C

Number of Respondents 75 84 75 66 10 10 99 100 50 50 82 80

Age (in years) (%)

Less than 30 19 33 13 23 0 0 2 10 6 22 3.7 10

30-40 37 46 29 46 0 0 12 28 28 32 34 39

40 or more 44 20 57 32 100 100 86 62 66 46 62 51

Gender (%)

Male 51 51 71 65 90 100 86 78 98 98 95 98

Female 49 49 29 35 10 0 14 22 2 2 4.9 2.5

Education (%)

Illiterate 2.7 2.4 4 7.6 0 0 2 0 4 0 0 0

Schooled 48 51 49 41 0 10 35 26 30 28 34 30

Matric and above 49 46 47 52 100 90 63 74 66 72 66 70

Occupation (%)

Cultivation/laborer/worker 2.7 1.2 0 1.5 0 0 0 0 0 0 0 0

Executive /clerical 1.3 6 11 20 0 20 7.1 8 0 0 0 0

Businessman 36 33 33 32 20 40 30 40 1000 1000 98 99Dependent/student 8 3.6 20 9.1 70 40 43 26 0 0 0 1.3

Other 52 56 36 38 10 0 19 26 0 0 2.4 0

Monthly Income (%)

Less than Rs. 5000 64 64 65 83 10 40 58 48 62 68 76 51

Rs. 5000-10000 24 19 27 6.1 50 40 29 29 24 26 22 40

Rs. 10000-30000 12 11 5.3 9.1 20 20 8.1 19 12 2 1.2 6.3

Rs. 30000 or more 0 6 2.7 1.5 20 0 5.1 4 2 4 1.2 2.5


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Rofile of Respondents Greater Hyderabad Municipal Corporation (GHMC)

Background Characteristic

GHMC Services

BirthCertificate

DeathCertificate

Buildingapproval

UtilityBill

Payment

Tradelicense

new

Tradelicense

Renewal

Grievances

M C M C M C M C M C M C M C

Number of Respondents 212 28 180 4 71 12 390 186 194 55 173 92 33 20

Age (in years) (%)

Less than 30 15 29 15 25 8.5 42 15 26 16.5 38 16 24

30-40 31 54 42 50 34 25 38 31 45 51 45 57 39 10

40 or more 54 18 43 25 58 33 47 44 38 11 39 20 61 90

Gender (%)

Male 86 82 84 0 80 67 87 84 89 98 90 95 91 95

Female 14 18 16 100 20 33 13 16 11 2 10 5.4 9.1 5

Education (%)

Illiterate 9.9 7.1 8.9 25 11 0 7.4 6.5 5.2 0 4.6 0 3 0

Schooled 21 21 18 25 27 17 20 19 19.1 9 19 17 12 5

Matric and above 69 71 73 50 62 83 73 75 76 91 77 83 85 95

Occupation (%)

Cultivation/laborer/worker 7.5 7.1 3.3 0 7 0 5.4 11 4.1 0 2.9 0 0 0

Executive /clerical 6.1 3.6 8.3 0 4.2 50 5.4 13 6 4 3.5 1.1 3 5

Businessman 63 68 61 0 52 25 68 44 74 96 79 98 76 35

Dependent/student 8.5 3.6 12 0 14 25 9 13 8 0 6.9 1.1 3 0

Other 15 18 16 100 23 0 13 18 8.2 0 8.1 0 18 60

Monthly Income (%)

Less than Rs. 5000 24 14 16 0 28 0 17 24 7.2 0 7.5 1.1 0 0

Rs. 5000-10000 31 39 41 100 35 0 30 39 26.3 9.1 28 13 18 5

Rs. 10000-30000 37 46 42 0 34 83 45 33 54 69.1 57 78 79 90

Rs. 30000 or more 9 0 1.7 0 2.8 17 8.2 4.8 13 22 7.5 7.6 3 5


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Annexure IV: Frequency Distribution For Number of Trips

Birth Certificate


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PART II

Report

imptact assessment jnnurms e-governance reforms 20412

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