Background

e-Governance activities in Gujarat have been initiated by numerous government entities and at different levels such as departments, district offices, commissioners and also other state agencies. These have been in the form of electronic documentation and information exchange, information and service delivery to citizens, process automation and smaller computerization initiatives. One such initiative has been taken in the Godhra district of Gujarat. This project is known as ‘Mahitishakti’ (“power of information”).

The Mahitishakti project was started in 2001 and has facilitated information access for the rural citizens of the Panchmahal district. The project is implemented through about 80 information centres (Mahiti Shakti Kendras) through which citizens can access various types of information, Gujarat Geographic Information System (GGIS) maps, medical information, legal aid, online submission of applications, e-Darbar and opinion poll facility, grievance redressal, Mahiti Mahisagar ( an electronic newsletter), photo gallery, entertainment like music, magazines, other useful Internet sites, etc. The project was supported by UNDP, the state government and actively promoted by Gujarat Informatics Ltd.

Objectives and Goals

1. Electronic/online form submission, transactions and information exchange (e.g. citizen-government). 
2. Immediate access to information on government schemes and subsidies, etc. 
3. Online grievance redressal. 
4. Enhanced and effective citizen-to-government interaction. 
5. Dissemination of useful citizen-centric information, transactions and services.

The broad goals of the project are:

• Transparency - Periodic display of the progress/status of schemes and plans. 
• Right to Information - Empowering the consumer of information. 
• Demystifying the office - Addressed with due support and access mechanisms.

Planning

The Collector of Godhra held discussions with the Concept Centre for Electronic Governance (CCEG) of the Indian Institute of Management (IIM), Ahmedabad in October 2000 to develop a portal for enabling Citizen to Government (C2G) and Government to Citizen (G2C) transactions using IT as a medium. This was based on Participatory Rural Appraisal exercises carried out by various NGOs. In October 2001, the project was launched by converting 14 STD/Public Call Offices as Mahiti Shakti Kendras (MSKs).

Services Provided

Over 200 forms have been made available for transactions between citizens and the government. These forms carry details of the documents to be attached with the main form at the time of submission. The forms and checklists have been made available as a printout at a prescribed fee at the MSKs. Information pertaining to ongoing schemes like those under the District Rural Development Agency (DRDA) and District Planning Board (DPB), Tribal Area Sub Plan (TASP) and scarcity relief works, etc., are also available. The Web-enabled version of the GGIS developed by Remote Sensing and Communication Unit (RESECO) gives details of the resources available in every village of the district which are available in a query-based system. An electronic newsletter known as Mahiti Mahisagar featuring medical help, legal help, a science corner, a children's corner, etc., is published. There is also a grievance redressal forum for citizens to voice their specific complaints. Electronic form submission for applications such as National Old Age Pension Scheme (NOAPS) are available, as well as water-related grievances and ration card applications. The applicant fills the form at the kiosk. The back-end process is carried out by the government staff and the final reply is sent to the applicant by e-mail and post. The portal also provides a chatting session with the ministers and senior officers of the district. There is useful information on over 30 specific crops grown in Panchmahals, giving details of the seeds, fertilizers, insecticides , pesticides and organic manure, etc., exclusively prepared for the portal by the Gujarat State Fertilizer Corporation (GSFC) Foundation. Access to the electoral roll is also available.

Target Group and Intended Beneficiaries

Having been established in a backward area, the primary focus is on the tribal communities and families living below the poverty line (BPL). The secondary focus is on the general citizens of the Godhra district.

Institutional Arrangements

A trust has been set up at the district level under the chairperson of the Collector Panchmalals with other district officials as its members. Each MSK is charged with an annual empanelment fee of Rs 8,000. The legal enabling framework between the trust and the MSKs is attained through a detailed contract agreement. The district information officer of NIC does the monitoring and is also the web master of the website. Data entry operators process the data for the portal. The line departments upgrade and update the information. NIC, RESECO and GIL provide the technological support to the MSKs.

Technologies

This project focuses on leveraging existing infrastructure with minimal additional costs/resources such as converting the MSKs from existing STD/PCO booths. These MSKs consists of a computer with 128 MB RAM, 1.7 Ghz, 40 GB HDD and a dot matrix printer. A portal has been developed in ASP, Java and HTML whereas the database is in Access and Oracle. The client-end is in Windows 98. This portal has been developed by IIM Ahmedabad. GIL and Adit Microsys (a private agency) manages the server whereas connectivity is established through a dial-up modem.

Primary Access Points

The primary access points are the nearest MSKs. There are 73 MSKs (48 STD booths and 25 dairy cooperatives).

Capacity Building

The MSK operators are provided with on-the-job training on using the computer and the portal.

Constraints and Implementation Challenges

The district of Panchmahals (Godhra) faced the worst ever communal riots lasting for six months in 2002, which hampered the growth of the project drastically. STD/PCO booth operators have high expectations, which became difficult to manage through the basic ICTs that were deployed. There is a paucity of online dynamic data on the network, as mostly static data is being used. The management of the servers by Adit Microsys, located hundreds of kilometres away from the project site, also hampers the efficient management of the network. The apathy of government officials of line departments and technical departments is also a major implementation challenge. There is a conflicting situation between NIC and Gujarat State Wide Area Network (GSWAN), so much so that they are grossly underutilized. Large files take a lot of time to download due to poor connectivity. Internet connectivity is poor as only six out of 80 MSKs have Internet connections. Frequent interruptions caused by irregular power cuts for three hours in the daytime obstruct the smooth functioning of the MSKs. Backend processing of the information received from MSKs is non-existent.

Project Outcomes

As many as 200 forms have been made available online. Some process reengineering has also taken place after approval of the government, reducing paperwork, for instance, in the national old age pension scheme, the applicant does not now need to append the proof of age, income and residence while submitting the form. The Mahitishakti website is available on a 24x7 basis and it facilitates online filling of forms, complaints, applications, etc. The most commonly used service is downloading the government forms. In all MSKs, 85 percent of the revenue is generated from downloading these forms. Most of the MSKs are not connected to the Internet. There is no intranet connectivity at the kiosks. Most of the MSKs are using CDs to download government forms, voter lists, BPL list and list of development works, etc.

Key Lessons Learnt

The project underlines the importance of an assessment of community needs before planning community network. The strategy of converting existing STD/PCOs into MSKs is quite practical as already established infrastructure can be optimally utilized for information and communication needs. The project highlights the importance of intranet networks in rural settings as Internet connectivity is still very poor, especially in rural areas. The innovative use of Geographical Information Systems (GIS) for citizens is a pioneering application. The project also effectively uses the local language in the network, which facilitates usage by citizens.

Sustainability

The project has converted existing STD/PCO booths and milk cooperative into MSKs. No project funding has been provided for this conversion; entrepreneurs have financed their own MSKs. However, the financial sustainability of these MSKs is doubtful. Internet connections are not available in most MSKs. Online transactions are also not taking place properly. The whole project is centred on downloading government forms whereas these forms cannot be submitted online. Each MSK has invested Rs 50, 000 to set up the kiosk but the return on investment is poor. Most MSKs earn less than Rs 750 per month. The sustainability of the project is further undermined by the fact that there has hardly been any addition in the services offered by the project since December 2002.

Replication and Scaling Up

A total of 84 outlets at Dairy Cooperatives and 22 outlets of the District Cooperative Banks are planned to provide information at the grassroots level. The state government has been planning for funding support from the UNDP to scale-up the project in 28 districts of Gujarat. It has signed an MoU with N-Logue Communications Pvt Ltd  to provide CorDECT technology for 10,000 villages in the Gyan Ganga project. Electronic payments of electricity bills, water bills, telephone bills, property taxes, etc., are also planned for this implementation.

Recommendations

Most of the data on this rural portal is static and online transactions are not taking place. However, it is recommended that electronic payments of different dues and taxes should only start after ensuring e-readiness of the network. The absence of land records in the project slows down the growth. Income at most MSKs comes fromdownloading government forms and is therefore very low, which is causing anxiety and unrest amongst MSK owners. Procedural restructuring and reengineering of government processes has not been taken up. Other income generating sources like stamp vending, deed-petition writing, etc., could also be added. It is also recommended that backend processing should be urgently improved, as it has become a major hindrance in the growth of the project. It is also recommended that e-education, e-health and e-commerce activities be included in the project. The capacity building of government officials managing the project is far from satisfactory and needs to be improved. There is a need to increase utilization of land and GSWAN for the betterment of the project. It is also recommended that a Management Information System (MIS) should be developed for the network. It is essential that all the services of the network should be made functional and operational, and sustainability and its viability should be assessed before scaling up the project.

Human Interest Stories

From a Bookstore to the MSK

After completing his graduation, Girishbhai Joshi started working at the Pathik General Store, owned by his parents. The shop sold books and stationery items. He later provided STD/PCO and photocopier services in the store. In September 2001, he took a bank loan of Rs 47,000 under the Pradhan Mantri Rojgar Yojana. Out of the money he borrowed from the bank, he bought a Pentium III computer, HP inkjet printer, a webcam and a UPS in order to start MSK services from his bookstore. He has earned Rs 134, 000 from selling 9,900 forms. He also provides Internet browsing at the cost of Rs 20 per hour and has also undertaken desktop publishing work. He says, “I use to earn Rs 4,000 per month from the STD booth in my store earlier. With a gross reduction in the STD charges, this income has plummeted to only Rs 1,000”. He feels online registration for employment and availability of land records could further improve the profitability of the MSK.

Contact Information

E-mails: godhra@guj.nic.net, md@gujaratinformatics.com, satyarth@aditimicrosys.com