Information
and Communication Technology (ICT) in Governance: A Stepping Stone for Smart
Governance
Dr. Biju S K
Assistant Professor of Commerce
Government Arts College,
Trivandrum, Kerala
9446552703
Abstract
The
movement from computerization to e-governance is the corner stone in the use of
ICT in Governance. The use of Information and Communication Technology (ICT) is
a major innovation of modern governance systems contributed towards
transparency in administration and accountability. It is argued that the
introduction of ICT in governance provided for a participant and vibrant
democratic culture. It follows that the digital culture automatically retains
its foot prints in the local governance environment. Thus local governance is
facing a digital transformation. The
necessity of transformation being accredited, the imminent issue is the
implementation and management of these transition. In this background the paper
examines the use of ICT in State and Local Self Government Institutions and its
implications in the governance process in the state of Kerala.
- Back Drop
Even though the Government of India (GoI), established
the Department of Electronics in 1970, the establishment of the National Informatics centre (NIC) in 1977 was the first
corner stone towards Information and Communication Technology (ICT) based
governance. This move brought ‘information’
and its communication as the focus in governance. In the early 1980s, use of computers was confined to very few organizations. The
advent of personal computers brought the
storage, retrieval and processing capacities of computers to Government offices
by the late 1980s, a large number of government officers
had computers but they were mostly used
for ‘word processing’. Gradually, with the introduction of better softwares,
computers were put to other uses like
managing databases and processing information. Advances in communications technology further improved the
versatility and reach of computers, and
many Government departments started using ICT for a number of applications like
tracking movement of papers and files, monitoring of
development programmes, processing of employees’ pay
rolls, generation of reports etc.
However, the main thrust for ICT
enabled Governance was provided by the launching of NICNET in 1987 – the
national satellite-based computer network. This was followed by the launch of the District Information System of the
National Informatics centre (DISNIc) programme
to computerize all district offices in the country for which free hardware and software was offered to the State Governments. NIcNET
was extended via the State capitals to all district
headquarters by 1990. (Pankaj, S., 2004)
In the ensuing years, with ongoing computerization, tele
connectivity and internet connectivity brought
a large number of ICT enabled Governance initiatives, in the governance of
Union State levels and local. A National Task Force on
Information Technology and Software Development was constituted in May 1998. (Prabhu, CSR, 2004). While recognising
Information Technology as a frontier area
of knowledge per se, it focused on utilizing it as an enabling tool for
assimilating and processing all
other spheres of knowledge. It recommended the launching of an ‘Operation Knowledge’ aimed at universalizing computer literacy and
spreading the use of computers and IT in education. In 1999, the Union Ministry
of Information Technology was created. by
2000, a 12-point minimum agenda for ICT enabled Governance was identified by GoI
for implementation in all the Union Government Ministries/Departments.
- ICT enabled
Governance
The
use of Information and Communication Technologies (ICTs) at various levels of
the government and in the public sector for the purpose of improving governance
is popularly known as e-governance. It
can bring forth new concepts of citizenship, both in terms of citizen needs and
responsibilities. Its objective is to engage, enable and empower the citizen. Marche &
McNiven (2003) defines E-Governance as, “a technology-mediated
relationship between citizens and their governments from the perspective of
potential electronic deliberation over civic communication, over policy
evolution, and in democratic expressions of citizen will”. In the course of
time it became an inevitable future of modern governance. (Gasco, 2003). It is argued that the internet
and new technologies possess a vulnerable potential to revitalize the political
communications in democracy. (Coleman &
Blumer, 2009).
The
importance of internet and new social media is well acknowledged by major state
actors all over the world. With over Two Billion internet connections and an
amazing growth rate of 480% (During 2000-2010) the internet is becoming a
popular tool in developing social contacts and in organizing social actions.
According to International Telecommunication Union (ITU) estimates, 45% of the
world’s Internet users are below the age of 25.This provides further
rationality for the acceleration of
E-Governance initiatives.
The
introduction of E-Governance in State and local governance brings in better
governance. (Odendaal, 2003; Garretta & Jensen, 2011). To them
Internet can play an important role in linking individuals and groups of
stakeholders outside the regime with political authorities, promoting a more
communication- centric vision of democratic governance. E-Governance also ensures smooth
organizational management. Secondly elected officials can become more self
sufficient and independent with the digital personal aids and the resultant
data sources. Their constituency relations remains vibrant and active as people
establish online contacts with the representatives. This facilitates better
democratic deliberations. With regards to delivery in policies, ICT can enhance
decision making process by providing ample data and better resources. Physical
service delivery competencies were also enhanced with New ICT.
- ICT in Governance:
Kerala Experience
The state of Kerala has
always been a role model for all other states in the use of ICTs. It has been observed that technology is considered as a
crucial engine of economic growth and as a tool for increasing productivity,
speed and transparency in governance. (Kurian,
2006).
A government is well evaluated by the results it produces. The
results in the receivers perception immediately depends on the quality and
quantity of services offered. This is very particular to the Kerala scenario
where Local Self Government Institutions (LSGIs) are in charge of majority of
citizen services. The Panchayats are given due powers for the planning,
coordination, implementation and evaluation of these welfare programmes.
(Gangadharan, 2010). But the problem is with delivery mechanisms and policy
commitments. The traditional delivery channels seem to be ill equipped to meet
the new demands. This was further complicated by the social transformation
initiated by neo liberalism and globalization. A snap shot of ICT enabled
governance initiatives are given in Table 1.
Table 1: Kerala’s ICT Projects
and objectives
|
#
|
Projects
|
Objectives
|
|
1
|
FRIENDS (Fast, Reliable, Instant and Effective Network for
disbursement of Services), Introduced in 2000.
|
·
Single window for integrated remittance centre
·
Accept payment of
Kerala
State Electricity Board
Kerala
Water Authority
Local
Bodies
Revenue
Department
Motor
Vehicles Department
Universities
in Kerala
BSNL
Electrical
Inspectorate
|
|
2
|
Akshaya
|
IT literacy for all, introduced in 2002
|
|
3
|
E-Pay
|
Electronic Payment of utility bills
|
|
4
|
E- Krishi
|
A to Z solution for agriculture through online
|
|
5
|
E-Vidhya
|
Advanced IT learning for e-literates
|
|
6
|
E-Ticketing
|
Online tickets for state transports
|
|
7
|
PMRY-online registration
|
PMRY- online registration
|
|
8
|
SWAN (Secretariat)
|
Integration of Secretariat, Vikas Bhavan and Public Office.
Paper less Filing.
|
|
9
|
SWAN (State)
|
Integration of various District Headquarters with Capital.
|
|
10
|
SPARK
|
G2E Web based Personal Administration for service, Salary, IT
and Account Matters.
|
|
11
|
KISSAN
|
Agriculture Information System
|
|
12
|
KPCS.org
|
Transparent Window for Recruiting Govt. Officials in
Kerala
|
|
13
|
E-nabling Paddy
Procurement
|
Using IT for Procurement, Processing, Marketing and
Distribution.
|
|
14
|
E-Filing of commercial
tax returns
|
Paperless,
Error free and Transparent tax collection
|
|
15
|
ATI
|
Avail Information about Kerala University at any Time.
|
|
16
|
SWEET
|
All Information and Services Relating to Kerala University
Examination.
|
|
17
|
e-Law
|
Digital filing, Speedy Digital Advice.
|
|
18
|
VDCCs
|
e-Literacy, Digital Inclusion with Social Equity.
|
|
19
|
IDEAS
|
File Tracking System for Government Offices
|
|
20
|
Sutharyakeralam.
|
Compliant and Grievance Handling directly by the
Chief Minister
|
|
21
|
MESSAGE
|
Internet based application for the citizen services
|
|
22
|
IT@school
|
Computer education to High School Students
|
|
23
|
Dr. SMS
|
Mobile Health Information System, introduced in 2008
|
|
24
|
Others
|
|
Source: Different web sites of Government of Kerala.
- Achievements
of Kerala in the ICT enabled initiatives
The initiatives of the government of Kerala attained many
appreciation and awards from various agencies. These achievements in ICT
enabled governance (www.itmission.kerala.gov.in)are listed here under.
4.1.
As per the Dataquest Survey of
e-readiness of States 2013, our state Kerala has emerged as the
winner in the following category.
(i)
Platinum award winner for Dataquest-CMR
e-Readiness Awards 2013 (Large States)
(ii)
Platinum award winner for 100% CSC Roll
Out (large)
(iii)
Platinum award winner for Number and
Scope of e-Gov Programmes Rolled Out
(iv)
Gold award winner for Dataquest-CMR
e-Readiness Awards 2013 (Overall Ranks)
4.2.
India Geo Spatial leadership Award: Kerala State IT Mission won India Geo Spatial Leadership
Award on the occasion of India Geospatial Forum and the state has been selected
as the most progressive Geo Spatial state.
4.3.
CSI-Nihilent
e Governanace Award 2011-12:
One more accolade for IT Mission, Kerala. It won the CSI-Nihilent e Governanace
Award of excellence in project category-G2C
4.4.
eWorld
Award 2012: Kerala State IT
Mission's Intelligent Enforcement Automation System project won eWorld Jury
Choice Award for 'Best Initiative For Use of ICT in Public Safety, Security and
Disaster Management'.
4.5.
eWorld
Award 2011: KSITM bagged two
awards at the eWorld 2011 summit. The Mobile Governance Project "Em-Power
Kerala" was awarded as the second best initiative in the M-Governance
category and the cloud computing Testbed for Kerala State Data Centre bagged
the Best Jury Award under Cloud Computing Initiative.
4.6.
mBillionth South Asian Award 2011: The Mobile Governance Project of Kerala State IT Mission,
department of Information Technology , Government of Kerala, christened
"Em-power Kerala" which was in the news recently for bagging
International award has won the mBillionth South Asian Award 2011 under the
Mobile Governance Category.
4.7.
Computerworld
Honors Laureate awards 2011:
Kerala State IT Mission received Computerworld Honors Laureate awards, 2011 for
two of its projects the Mobile Governance Project was awarded under the
economic opportunity and DRSMS under the health category. The Awards are
instituted by International Data Group (IDG), the largest technology media, and
research organisation in the world with a presence in more than 90 countries
with headquarters at Boston, USA.
4.8.
National
E-governance Sectoral Focus Award 2011: National E-governance Sectoral Focus Award -
"Silver Icon" for the year 2011, instituted by Department of
Administrative Reforms and Public Grievances, Department of Information
Technology, Government of India has been given to KSITM's E-krishi project.
4.9.
E-India
2010 Awards: The Kerala Commercial Taxes has won the E-India 2010 Award
under the category "Government to Business - Initiative of the Year -
Jury's Choice" for the "E Tax Administrative Programme" from
amongst a field of over 70 nominations from India and abroad.
4.10. Recognition at
mBillionth Awards South Asia 2010:
The Grand Jury of the mBillionth Awards South Asia 2010 has recognised two
M-Gov Initiatives of KSITM with Certificates of Recognition.
4.11. National
E-Governance Awards 2009-10:
Kerala has bagged three awards in the National Awards for E-Governance 2009-10
jointly constituted by the Department of Administrative Reforms & Public
Grievances, Government of India and Department of Information Technology,
Government of India.
4.12. Higher Secondary
Centralized Allotment Processing,
has been won a Silver Award in the category 'Special Sectoral Award- Focus
sector - Education'; Sevena - Civil Registration System and Hospital Kiosks,
has won the Bronze Award in the category 'Outstanding performance in Citizen -
Centric Service Delivery'.
4.13. CSI- Nihilent
e-Governance Awards 2008- 2009:
Kerala bagged four CSI-Nihilent awards in 2009. Award of Excellence
–
(i)
Appreciation for Kannur District,
(ii)
Best G2C Project - hsCAPNIC,
(iii)
Best G2B Project - e-Krishi, and
(iv)
Best G2G Project - Sulekha Plan Monitoring System.
4.14. CSI- Nihilent
e-Governance Awards 2007- 2008:
Kerala bagged four CSI-Nihilent awards in 2008.
(i)
Best e-Governed project
- Excellent Project --'Digital workflow using MESSAGE':
(ii)
Best e-Governed Department - Joint Winner -
Motor Vehicles Department;
(iii)
Best e-District in
computerization - Winner - Palakkad, Kerala and
(iv)
Best e-Governed State -
Joint Runner-up --- Kerala.
4.15. Golden Nica 2005: Akshaya Project has been selected for the Golden Nica award
of Prix Ars Electronica in the Digital Community category for the year 2005.
Akshaya is among the six winners of Prix Ars Electronica Award.
4.16. SILVER ICON AWARD
for Innovative Operations:
Akshaya project won Silver Icon award in Innovative Operations and Best
Practices - New Entrants for Exemplary Implementation of e-Governance
Initiatives for the Year 2004.
4.17. PC Quest Best IT
Implementation Award 2004:
Akshaya is selected by PC Quest for Best IT Implementation in 2004
- ICT
enabled Local Governance in Kerala
The vast potential of ICT in local governance is already
recognised by the state and central governments. The government of Kerala made
it mandatory that all the Panchayats in the state should have at least five
computers installed. (Govt. of Kerala, 2011). Later, the government issued
sanction to purchase a maximum number of nine computers for the use of Local
Self Government Institutions (LSGIs). (Govt. of Kerala, 2010a). In the state of Kerala the government
developed a number of softwares and products to promote E-governance in LSGIs.
The department of local self government in the state initiated a web portal, www.lsg.Kerala.gov.in. The site provides complete information about the
department and decentralization initiatives in the state. Details of all local
self government institutions in the state are incorporated in more than one
lakh web pages. Alongside with the government initiatives some Panchayats
created their own blogs. These blogs provide an interactive space for citizen.
The advent of E-Governance in the arena of LSGI is promising for
covering the service delivery crisis in local governance structures. It ensures
smooth, transparent and speedy transactions at lower costs. (Edmiston, 2003). Once the documents are
digitalized and information entered, the system goes on a sail. Issue of
certificates and documents becomes a matter of seconds against the traditional
‘apply and wait’ pattern. E-Governance ensures transparency and accountability
in transactions and thereby reduces corruption. The information is posted in
the public domain and irregularities can be checked by vigilant public. The
digital transactions are well archived and digital footprints erase any chances
of future manipulations.
5.1.
Initiatives in Local Governance
The Information Kerala Mission (IKM) is a key player in the
E-Governance initiatives in Local Self Government in Kerala. IKM was established in June 1999 with the objective
of implementing E-Governance in 1209 LSGIs in the state. This is the largest
local body computerisation project in India. (Krishnan, 2013). The functions of
IKM includes providing connectivity between LSGIs and state and district
planning offices, development of application softwares for deployment in
various LSGIs, provide hardware and software training to employees, maintain
and update database for E-Governance
system in LSGI and arrangement of technical assistance to the concerned
institutions in the field of E-Governance. The major objective of IKM is a phased
transformation of the existing systems to electronic systems. This
transformation trajectory is characterized with human centric innovations and
modalities. Process reformation and modernization is the top most agenda of the
organization and this is supposed to bring in faster and objective
decision-making, more citizen-friendly interfaces and better accountability in
local governance. With these
objectives IKM developed 17 softwares for E-Governance applications in LSGIs.Out
of these 17 softwares 12 are ready to be rolled out.
Table 2.Deployment of Softwares in Local
Government
|
#
|
Software
application
|
Deployed
|
Functional
|
Coverage (%)
|
|
1
|
Sulekha-Plan Monitoring System
|
1209
|
1209
|
100
|
|
2
|
Sevana-Civil Registration System
|
1043
|
1043
|
100
|
|
3
|
Sevana-Social Welfare Pension
|
1043
|
1043
|
100
|
|
4
|
Sevana-Common Marriage
|
1043
|
1036
|
99.33
|
|
5
|
Saankhya- Entry Accounting
|
1209
|
1209
|
100
|
|
6
|
Sthapana-Establishment
|
1056
|
1037
|
98.11
|
|
7
|
Soochika-File Tracking System
|
1001
|
981
|
92.81
|
|
8
|
Sachithra-Asset Management
|
1209
|
1209
|
100
|
|
9
|
Sachithra-Map Suite
|
821
|
821
|
78.72
|
|
10
|
Sugama-Cost Estimation Tool
|
1208
|
187
|
15.47
|
|
11
|
Sanchaya-Revenue and Licence
|
75
|
75
|
7.19
|
|
12
|
Sanchaya-e Payment
|
18
|
18
|
1.73
|
|
13
|
Common Marriage-e filing
|
1027
|
1027
|
98.47
|
|
14
|
Sanchitha-Act
and Rule
|
1209
|
1209
|
100
|
|
15
|
Samveditha-LSGD
Portal
|
1209
|
1209
|
100
|
|
16
|
Sanketham-Building permits
|
61
|
1
|
1.54
|
5.2.
SEVANA:
Technology for service delivery
The E-Governance initiatives in the LSGIs in
Kerala is revolutionalising the concept of service delivery.It can be rightly
remarked that service at fingertiphas already became a reality. This has been
made possible with the help of citizen friendly software solutions developed
and deployed by IKM in the LSGIs.
Sevana is a major software
solution developed by IKM. The Sevana civil registration is utilized to
register deaths and births in Panchayats and municipalities. Sevana kiosks were
installed in 455 hospitals in the state. Through these kiosks, deaths and
births are registered instantly. Citizen can download birth/death certificates
within 24 hours of registration at the kiosk.
These certificates are approved as official documents by the chief
registrar of births and deaths, Kerala. Marriage registration can also be done
through sevana civil registration software. In 2009-10 Sevana won Bronze medal
of National Awards for e-Governance under the category "Outstanding
performance in Citizen-Centric Service Delivery". The
sevana pension software provides information about social security pensions
disbursed through LSGIs. It contains the list of beneficiaries and the pension
allotment details. As such it provides more transparency and convenience in the
disbursal of pensions. Digitisation has been completed for distributing pension
to 14.5 lakh people. The processes of providing death and birth certificates
online have almost been completed in the LSGIs. E-payment of property tax is
available in 20 LSGIs. Projects worth 10,000 crores were processed through web
based application in 2013-14. All these figures signal more positive trends for
E-Governance in LSGIs in Kerala.
5.3.
Sulekha- Technology based
Planning and Monitoring
Sulekha software was
developed to monitor the annual plans of LSGIs in the State. Annual plans are
prepared, evaluated and approved in a time bound manner through this software.
Sulekha is installed in all LSGIs in the state. In the year 2009-10 Sulekha
won the Gold Medal in National Awards for e-Governance by Government of India
under the Category "Excellence in Government Process Re-Engineering".
In
the year 2012 Sulekha registered a phenomenal growth. During
this period 1,45,290
projects worth 3,175 crores were processed through Sulekha. (Narikkatteri, 2012). Previously plan processing was a
hilarious task to the officials and representatives. There was considerable
time lag in the approval process. Transparency was minimum and chances of
corruption were maximum. But with Sulekha transparency and accountability was
established. Citizens got freedom to verify the proposals and subject the same
to public scrutiny. Thus planning became participatory in flesh and spirit.
5.4.
SAANKHYA: Support of financial Management
‘SAANKHYA’ is major
software successfully implemented in LSGIs. It is an Accrual Based Double Entry
Accounting Software (ABDES) to smoothen the office transactions. It has
provisions for entering of daily transactions, generation of monthly
statements, and preparation of annual financial statements (Rajan J B &
Biju S K, 2013). With this financial
planning and reporting is made easy and smooth. It also provides for better
financial monitoring of the LSGIs. The Government of Kerala also mandated
SAANHYA application software in LSGIs. (Govt. of Kerala, 2010b).
5.5.
Other Initiatives
The Sanchaya software is
used to enumerate and deliver licenses. Sakarma Software aims to prepare
agenda of Panchayat meetings, documentation of minutes, etc. The decisions of
the committee should be published in Panchayath websites and should be made
available to public through touch screens installed in offices. Sanketham
software is developed for issuing building construction permit. Soochika
software is developed for file management and tracking in panchayat
administration. Now majority of GPs mainly using it only in front office
counter. It is expected that the same will be connected with the main office
shortly, and then tracking of the status of application becomes easy. KILA is
now conduction massive training for implementing this file tracking software in
all the offices under the control of LSGIs. Applicants can avail computer
generated receipts from soochika.
Other
major IKM softwares include
Samoohya-Citizen database software, Subhadra- financial management
system, Sthapana-Payroll, PF accounting, Sugama-Cost estimation tool for public
works , Saphalua- Human resource package, Sachithra-Map suite (GIS) and asset
register for LSGIs.
The
success of any E-Governance project depends on training and updation of skills.
For this purpose KILA imparts periodic training to the local self government
employees. For effective citizen delivery e-payment provisions are incorporated
in a handful of LSGIs. Now the citizen can directly pay taxes at the comfort of
their home or through Akshaya centers. With the
effective intervention of IKM, almost universal connectivity was attained in
the local self government institutions in Kerala. With regard to the software
deployment it was found that out of the 15 softwares deployed in local self
government Institutions six softwares achieved 100% operational status and four
softwares crossed the 90% functionality rate.These are Sulekha, Saankhya, Sevana
civil registration, Sevana social welfare, Sachithra asset management, Sanchita
acts and rules and Samveditha LSGD portal. It is to be acknowledged that most of these
softwares focus on citizen service delivery. If the current tempo can be
retained, E-Governance in LSGIs can become a reality very soon.
6. Concerns of Smart Governance
E- Governance is an effective tool for
ensuring smart governance in the State and Local Governance. The LSGIs in the
state are well equipped with ICT infrastructure to smoothen the digital
transitions along with the State. However there is still a wide gap between the
concept and actualization of E-Governance.
Training shortage is a major barrier in the usage of ICT in government.
The problem of security is another major concern for the successful operation
of E-Governance. The acceptance of
E-Governance systems is highly obstructed by the absence of trust in
E-Governance systems. It is found that none of the LSGIs sites in Kerala
contains a security declaration.( Thomas, Sabu, 2014).
The government is providing a number of ICT
solutions for smoothening the governance process. Computers were installed,
softwares developed and connectivity assured. But the offline reality is far
away from the online promises. With regard to ICT enabled Governance, the
acceptance level of the general public is still beyond satisfactory levels.
It was found that even though independent
web space is provided for each local body, the updating processes is very slow
and still a forgotten policy for majority of the players. The websites follow a
general pattern with no provision for innovation and aesthetics. Even though
computerisation of LSGIs is completed, touch screens in front office and
effective online services still remain a wish list for majority of LSGIs. The
use of unofficial online channels for public interaction is also rare. However
it is proved that ICT possess large potentials to ensure smooth governance and
service delivery.
7.
Shore up from the Government
The LSGIs in the state should approach E-Governance with a
more serious concern in par with state government. It is suggested that a
standing committee on ICT/E-Governance can be constituted for implementation of
E-Governance in LSGIs. The LSGIs should also focus IT development in their
budgets and policy documents. The State’s Akshaya project can become a
prospective partner in the implementation of specialised training for
E-Governance in LSGIs.
The Kerala Government issued free mobile connectivity to all
Panchayat presidents in Kerala. It is suggested that this move should be
followed by free or subsidised laptops and internet connectivity to all elected
representatives of LSGIs. The E-district project implemented in Kerala provides
efficient and economic channels of service delivery for the citizens. However
at present only revenue services are available through this project. Government
is looking for motivation the LSGIs to move in this direction. If the
E-district project can also accommodate LSGIs services, it will enhance delivery
capacity of LSGIs and may result in higher levels of citizen satisfaction. Once
the data and services are shifted to online mode, LSGIs can devote much of
their time for developmental activities.
8. Conclusion
The state of Kerala is far ahead of its counterparts in
implementing E-Governance programmes in State as well as in LSGIs. All the news and figures signals more positive trends for
E-Governance in different levels of governments in Kerala. At the same time
there are some issues and concerns that should be seriously attended by the
stake holders including the government. Though the ICT in State level
for education, health, and other departments file tracking and service
delivery, in the local governance system, it is for all walks of citizen’s
life. The computerisation process in the LSGIs is understood in terms of
computerisation of office work. The representatives should also be connected.
In connection with the online political participation, it is recommended that
the present local body websites should be completely revamped and content
management power should be vested with LSGIs. In the website of LSGIs, there
should be effective feedback provisions to elicit public response and comments.
Service delivery in LSGIs is facing many problems. Absence of informed planning and strong
policies also results in high delivery costs and public sufferings. These
issues can be well addressed with effective deployment of ICT in governance. In
order to create awareness of E-Governance in the grass roots, ICT tools should
be introduced in Gram Sabhas. SMS and E-Mail can be used for informing the
public about Gram Sabha meetings. These activities improve transparency in
governance. Thus the improved transparency will surely leads to accountability
and reduce corruption. It is hoped that this will pave way for good governance.
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