Cyber Security Fundamentals of Information Security - BLOCK I - UNIT II: MODELS OF E-GOVERNANCE

 2.1 LEARNING OBJECTIVES

After going through this unit, you will be able to:

• Define E-Governance.

• Understand the goals of e-governance.

• Know the benefits of e-governance.

• Understand the different stages of e-governance.

• Differentiate between various models of e-governance.

• Understand legal and policy framework for facilitating ICT in e-governance.

• Understand e-governance maturity models.

 

2.2 E-GOVERNANCE

Electronic governance12 or e-governance is the application of information and communication technology (ICT) for delivering government services, exchange of information communication transactions, integration of various stand-alone systems and services between government- tocustomer (G2C), government-to-business (G2B), government-to-government (G2G) as well as

back office processes and interactions within the entire government framework. Through egovernance, government services are made available to citizens in a convenient, efficient and transparent manner. The three main target groups that can be distinguished in governance concepts are government, citizens and businesses/interest groups. In e-governance there are no

distinct boundaries. The goals of e-Governance are13:

a. Better service delivery to citizens

b. Ushering in transparency and accountability

c. Empowering people through information

d. Improved efficiency within Governments

e. Improve interface with business and industry.

2.2.1 Benefits of e-governance

E-Governance is about reform in governance, facilitated by the creative use of Information and

Communications Technology. It is expected that this would lead to:

i. Better access to information and quality services for citizens: ICT would make available timely and reliable information on various aspects of governance. In the initial phase, information would be made available with respect to simple aspects of governance such as forms, laws, rules, procedures etc later extending to detailed information including reports (including performance reports), public database, decision making processes etc. As regards services, there would be an immediate impact in terms of savings in time, effort and money, resulting from online and one-point accessibility of public services backed up by automation of back end processes. The ultimate objective of e-Governance is to reach out to citizens by adopting a life-cycle approach i.e. providing public services to citizens which would be required right from birth to death.

ii. Simplicity, efficiency and accountability in the government: Application of ICT to governance combined with detailed business process reengineering would lead to simplification of complicated processes, weeding out of redundant processes, simplification in structures and changes in statutes and regulations. The end result would be simplification of the functioning of government, enhanced decision making abilities and increased efficiency across government – all contributing to an overall environment of a more accountable government machinery. This, in turn, would result in enhanced productivity and efficiency in all sectors.

iii. Expanded reach of governance: Rapid growth of communications technology and its adoption in governance would help in bringing government machinery to the doorsteps of the citizens. Expansion of telephone network, rapid strides in mobile telephony, spread of internet and strengthening of other communications infrastructure would facilitate delivery of a large number of services provided by the government. This enhancement of the reach of government – both spatial and demographic – would also enable better participation of citizens in the process of governance. Generally four type of communication in e-governance:

    a. G2G (Government to Government)– In this case, Information and Communications Technology is used not only to restructure the governmental processes involved in the functioning of government entities but also to increase the flow of information and services within and between different entities. This kind of interaction is only within the sphere of government and can be both horizontal i.e. between different government agencies as well as between different functional areas within an organisation, or vertical i.e. between national, provincial and local government agencies as well as between different levels within an organisation. The primary objective is to increase efficiency, performance and output.

      b. G2C (Government to Citizens) – In this case, an interface is created between the government and citizens which enables the citizens to benefit from efficient delivery of a large range of public services. This expands the availability and accessibility of public services on the one hand and improves the quality of services on the other. It gives citizens the choice of when to interact with the government (e.g. 24 hours a day, 7 days a week), from where to interact with the government (e.g. service centre, unattended kiosk or from one’s home/workplace) and how to interact with the government (e.g. through internet, fax, telephone, email, face-to-face, etc). The primary purpose is to make government, citizen-friendly.

    c. G2B (Government to Business) – Here, e-Governance tools are used to aid the business community – providers of goods and services – to seamlessly interact with the government. The objective is to cut red tape, save time, reduce operational costs and to create a more transparent business environment when dealing with the government. The G2B initiatives can be transactional, such as in licensing, permits, procurement and revenue collection. They can also be promotional and facilitative, such as in trade, tourism and investment. These measures help to provide a congenial environment to businesses to enable them to perform more efficiently.

    d. G2E (Government to Employees) – Government is by far the biggest employer and like any organisation, it has to interact with its employees on a regular basis. This interaction is a two-way process between the organisation and the employee. Use of ICT tools helps in making these interactions fast and efficient on the one hand and increase satisfaction levels of employees on the other.

2.2.2 Evlolution of e-governance in India

Recognising the increasing importance of electronics, the Government of India established the Department of Electronics in 1970. The subsequent establishment of the National Informatics Centre (NIC) in 1977 was the first major step towards e-Governance in India as it brought ‘information’ and its communication in focus. 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 e-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. In the ensuing years, with ongoing computerization, teleconnectivity and internet connectivity, came a large number of e-Governance initiatives, both at the Union and State levels. A National Task Force on Information Technology and Software Development was constituted in May 1998. While recognizing 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 e- Governance was identified by Government of India for implementation in all the Union Government Ministries/Departments. The agenda undertaken included the following action points:

i. Each Ministry/Department must provide PCs with necessary software up to the Section Officer level. In addition, Local Area Network (LAN) must also be set up.

ii. It should be ensured that all staff who have access to and need to use computer for their office work are provided with adequate training. To facilitate this, inter alia,

Ministries/Departments should set up their own or share other’s Learning Centres for decentralized training in computers as per the guidelines issued by the MIT.

iii. Each Ministry/Department should start using the Office Procedure Automation software developed by NIC with a view to keeping a record of receipt of dak, issue of letters, as well as movement of files in the department.

iv. Pay roll accounting and other house-keeping software should be put to use in day-today operations.

v. Notices for internal meetings should be sent by e-mail. Similarly, submission of applications for leave and for going on tour should also be done electronically. Ministries/Departments should also set up online notice board to display orders, circulars etc. as and when issued.

vi. Ministries/Departments should use the web-enabled Grievance Redressal Software developed by the Department of Administrative Reforms and Public Grievances.

vii. Each Ministry/Department should have its own website.

viii. All Acts, Rules, Circulars must be converted into electronic form and, along with other published material of interest or relevance to the public, should be made available on the internet and be accessible from the Information and Facilitation Counter.

ix. The websites of Ministries/Departments/Organisations should specifically contain a section in which various forms to be used by citizens/customers are available. The forms should be available for being printed or for being completed on the computer itself and then printed out for submission. Attempts should also be made to enable completion and submission of forms online.

x. The Hindi version of the content of the websites should as far as possible be developed simultaneously.

xi. Each Ministry/Department would also make efforts to develop packages so as to begin electronic delivery of services to the public. 

xii. Each Ministry/Department should have an overall IT vision or strategy for a five year period, within which it could dovetail specific action plans and targets (including the minimum agenda) to be implemented within one year.

Many countries have initiated e-Governance programmes in order to make government and its

agencies efficient, more responsive and transparent. Some of these initiatives can be found at:

2.3AIM OF E-GOVERNANCE

The complete transformation of the processes of Governance using the implementation of Information & Communication Technology is called E-Governance14. It aims at bringing in faster and transparent service delivery, accountability, information sharing and people participation in the decision making and govt. processes.

S - Simple: Simplification of rules and procedures of Government making it user-friendly.

M-Moral: Infusing ethics and morals into officers again since anti-corruption and vigilance

agencies improving.

A- Accountable: ICT helps set standards of performance and efficiently measures it.

R- Responsive: Efficient service delivery and government that is in tune with the people.

T- Transparent: Information confined to secrecy is out in the public domain bringing equity

and rule of law in public agencies.

SMART Governance enables:

1. People participation

2. Accountability and efficiency

3. Transparency

4. User friendly government processes

5. Removal of hierarchical barriers and red tape

6. Better service delivery

 

2.4 STAGES OF E-GOVERNANCE

1. Simple Information Dissemination - A one way broadcasting of information stage from

Govt. to the constituents.

2. Two-Way Communication - A request and response form of communication which is

generally done in the manner of emails, website form filling, etc.

3. Online Service Transactions - Citizens can perform a number of online services and

financial transactions on a website in a self service form.

4. Integration (Vertical & Horizontal) - Via this method the government attempts inter &

intra-governmental integration by means of ICT to remove the hierarchical barriers

inducing red-tapism in service delivery and information dissemination.

5. Political Participation - Online voting, online polling, online public forums and wider

interaction with the government. 

2.5 MODELS OF E-GOVERNANCE15

Digital Governance models keep on expanding and evolving as new applications of ICTs come

to light and to deal with new issues in the area of governance. There are no rigid or finite models of Digital Governance. In fact developing countries are experimenting on their own to find

which models will works for them and will best serve their needs. Some of these models may be

technologically simple but are changing the way information is distributed and used in the

society. Based on primary experimentation and secondary research, a few generic models which

have emerged and are being practiced have been identified.

These Digital Governance models should be examined in light of:

• Emergence of knowledge societies and knowledge networkers

• Role of information in governance process, and

• Link between ICT and governance.

 

2.5.1 Broadcasting Model

Broadcasting model is based on mass dissemination of governance-related information which is

already available in the public domain into the wider public domain using ICTs. This raises

awareness among the citizens about ongoing governance processes and government services that

are available to them and how they can benefit from them. It allows citizens to form an opinion

of the government and its administration based on services delivered to them - whether the

government services were available to them, and the quality of service received. This could be

judged in terms of time spent, number of visits required and level of bureaucracy encountered to

avail the services. Equipped with this information, the citizens can feel more empowered to voice

their concerns and influence governance processes to make them more efficient. The application

of this model using appropriate technologies, could reduce the "information failure situations"

where citizens are unaware of new and existing services being provided by the government. It

can also provide as alternative channel to people to stay updated of governance related

information and to validate information received from other sources.

Applications

• Putting governmental laws and legislations online

• Making available the names, contact addresses, emails, mobile numbers of local/

regional/ national government officials online.

• Make available information such as governmental plans, budgets, expenditures, and

performance reports online.

• Putting key judicial decisions which are of value to general citizens and create a

precedence for future actions online. viz. key environmental decisions, state vs. citizen

decisions etc.

The Broadcasting Model is a stepping stone to more complex Digital Governance models. It is

also the most fundamental model as it enhances 'access' and 'flow' of information to all segments

of the society, which is essential to bringing good governance. In several developing counties,

even the basic governance-related information is unavailable, for instance, the opening and

closing times of government offices, or information government department and units which deal

with specific issues such as agricultural subsidies or getting licence for opening a business.

Central and state governments in developing countries need to aggressively adopt this model to

provide greater governance services to their constituencies, and to enhance the participation of

citizens in governance processes. Simultaneously, the civil society groups should demand for

such models to enable access to governance information which can improve the quality of lives

of people. The model can lose its effectiveness in societies, where the free-flow of information is

not possible. This can happen in countries where freedom of speech and expression, or political

freedom is restricted, or there are tight governmental controls to censor information. The model

also loses its effectiveness in situation of optimal ignorance. This happens when citizens are

indifferent / not motivated to act upon information available to them, or when governments and

decision-makers take wrong decisions, not because of absence of information, but complete

disregard of available information.

2.5.2 Comparative Analysis Model

Comparative Analysis Model is one of the least-used but a high potential e-governance model for

developing countries. The model can be used to empower people by comparing cases of bad

governance with those of good governance and identifying specific aspects of bad governance,

the reasons and people behind them, and how the situation can be improved.

The model is based on using immense capacity of ICT and social media tools to explore given

information sets with comparable information available in the public or private domain. For

instance, if a given amount of money can build 5 primary schools in District 'A' in a country,

then why does the same amount of money build only 2 schools in District 'B'? Could this be

because of corruption of officials and contractors involved, or siphoning of money for other

things? The outcomes are strategic learnings and empowerment, and can lay the basis for

possible action, eg: filing of right to information (RTI) to find where the money went.

Essentially, the model continuously assimilates “best practices” in different areas of governance

and uses them as benchmark to evaluate other governance practices. It then uses the result to

advocate positive changes or to influence 'public' opinion on existing governance practices. The

comparison could be made over a time scale to get a snapshot of the past and the present situation or could be used to compare the effectiveness of an intervention by comparing two

similar situations.

The strength of this model lies in the infinite capacity of digital networks to store varied

information and retrieve and transmit it instantly across all geographical and hierarchical

barriers.

Application

This model could be applied in the following possible ways:

• To learn from past policies and actions and derive learning lessons for future policymaking.

• To evaluate the effectiveness of the current policies and identify key learnings in terms of

strengths and flaws in the policies.

• To effectively establish conditions of Precedence, especially in the case of Judicial or

legal decision-making (example for resolving patent-related disputes, public goods

ownership rights), and use it to influence/ advocate future decision-making.

• To enable informed decision-making at all levels by enhancing the background

knowledge and also providing a rationale for action.

• To evaluate the performance and track-record of a particular decision-maker/ decisionmaking body.

Developing countries could very effectively use this comparative model as ICT opens their

access to the global and local knowledge products at a relatively low -cost. The model is very

much based on the existing sets of information but requires the ability to analyse and bring out

strong arguments which could then be used to catalyze existing efforts towards self governance.

There is a vast scope of application of this model for judicial advocacy as landmark/key

judgments of the past could be used as precedence for influencing future decision- making.

Further, watch-guard organizations and monitor-groups can use this model to continuously track

the governance past record and performance and compare with different information sets. The

model however becomes ineffective in absence of a strong civil society interest and public

memory which is essential to force decision-makers to improve existing governance practices.

2.5.3 Critical Flow Model

The model is based on broadcasting information of 'critical' value (which by its very nature will

not be disclosed by those involved with bad governance practices) to targeted audience using

ICTs and other tools. Targeted audience may include media, affected parties, opposition parties,

judicial bench, independent investigators or the general public.

Those who would divulge such information could include upright officials and workers,

whistleblowers, affected parties and those who were themselves involved in bad governance

practices but have now changed their minds or may wish to trade such information for lenient

punishments.

The use of this model requires a foresight of:

• Understanding the "critical and use value" of a particular information set

• How or from where this information could be obtained

• How could the information be used strategically

• Who are the best target group for such information- the users for whom the availability of

this information will make a huge difference

 

The strength of this model is that the concept of 'distance' and 'time' becomes redundant when
information is hosted on a digital network. Once available on the digital network, the information
could be used advantageously- by instantly transferring the critical information to its user group
located anywhere or by making it freely available in the wider public domain. 

Applications

This model could be applied in the following possible ways:

• Making available corruption related data about a particular Ministry / Division/ Officials

online to its electoral constituency or to the concerned regulatory body.

• Making available Research studies, Enquiry reports, Impact studies commissioned by the

Government or Independent commissions to the affected parties.

• Making Human Rights Violations cases violations freely available to Judiciary, NGOs

and concerned citizens.

• Making available information that is usually suppressed, for instance, Environmental

Information on radioactivity spills, effluents discharge, information on green ratings of

the company to concerned community.

This model is more directed and evolved in comparison to the Broadcasting/Wider
Dissemination Model. Different organizations can use it differently depending on the aspect of
governance they situation they want to address. By focusing on the critical aspect of information
and locating its likeable users, the model corrects information failure, raising awareness about
the bad governance practices, and acts as a hindrance to bad governance practices. 

At the same time, the model exerts indirect pressure on the concerned governance institution /

policy-making body to move away from optimal ignorance attitude to reform, and take into

cognizance the interest and opinion of the masses in decision- making processes.

The model may not work in cases where the governance mechanism does not allow public

debates and opinions, and censures all information of critical nature. This model unlike the

Broadcasting/ Wider-Dissemination model would be more effective in situations of Optimal

Ignorance of the Government. Optimal ignorance occurs when injudicious decisions are taken

not in the absence of availability of enough information but because of disregard of information

by the decision-makers.

2.5.4 E-Advocacy Model

E-Advocacy / Mobilization and Lobbying Model is one of the most frequently used Digital

Governance model and has often come to the aid of the global civil society to impact on global

decision-making processes. The model is based on setting-up a planned, directed flow of

information to build strong virtual allies to complement actions in the real world. Virtual communities are formed which share similar values and concerns, and these communities in turn

link up with or support real-life groups/ activities for concerted action. The model builds the

momentum of real-world processes by adding the opinions and concerns expressed by virtual

communities. The strength of this model is in its diversity of the virtual community, and the

ideas, expertise and resources accumulated through this virtual form of networking. The model is

able to mobilize and leverage human resources and information beyond geographical,

institutional and bureaucratic barriers, and use it for concerted action.

Applications

This model could be applied in the following possible ways:

• Fostering public debates on issue of larger concerns, namely on the themes of upcoming

conferences, treaties etc.

• Formation of pressure groups on key issues to force decision-makers to take their

concerns into cognisance.

• Making available opinions of a suppressed groups who are not involved in the decisionmaking

process into wider public domain.

• Catalysing wider participation in decision-making processes.

• Building up global expertise on a particular theme in absence of localised information to

aid decision-making.

This model has grown manifold since the onset of debates on the Seattle round of World Trade

Organisation in 1999, which saw the formation of several virtual communities to express their

concerns in the WTO agreements. The display of a unified, informed civil society force at Seattle

was in some ways a result of the intensive interaction and exchange of opinion happening over

the virtual networks months prior to this WTO summit. There was a lot of concerted actions at

the Regional level as an end result of such discussions which built into the global movement.

The model enhances the scope of participation of individuals and communities in debates which

affect them and help them build a global alliance. A community may no longer find itself

isolated but may find an ally for mobilizing effective action through this model. It also creates an

effective deterrent for governments and decision-making bodies who are responsive to people's

opinion to provide better governance.

The model could also be used favourably by the government in a positive manner to encourage

public debates on issues where the opinion and expertise of civil society is of great importance

and therefore could become a tool to enhance democratic practises and improve governance

practices (especially in Developing Countries).

2.5.5 Interactive Service Model

Interactive-Service model is a consolidation of the other digital governance models and opens up

possibilites for one-to-one and self-serviced participation of individuals in governance processes.

ICTs have the potential to bring every individual into a digital network and enable interactive

(two-ways or multiple-ways) flow of information among them. This potential of ICTs is fully

leveraged in this model. As the participation is direct and not through representatives, it can

bring greater objectivity and transparency in decision-making processes, and give a greater

feeling of involvement and empowerment, provided that individuals are willing to engage in the

governance processes.

Under this model, the various services offered by the Government become directly available to

its citizens in an interactive manner. It does so by opening up an interactive Government to

Consumer to Government (G2C2G) channel in various aspects of governance, such as election of

government officials (e-ballots); decision to make on specific issues (eg: health plans), delivery

of individualised government services, gauging public mood and opinions, targeting specific

communities for specific governance advice or services, bringing mass awareness.

Applications

This model could be applied in the following possible ways:

• To establish an interactive communication channels with key policy-makers and

members of planning commissions.

• To conduct electronic ballots for the election of government officials and other office

bearers.

• To conduct public debates / opinion polls on issues of wider concern before formulation

of policies and legislative frameworks.

• Filing of grievances, feedback and reports by citizens with the concerned governmental

body.

• Establishing decentralize forms of governance.

• Performing governance functions online such as revenue collection, filing of taxes,

governmental procurement, payment transfer etc.

The model firmly relies on the interactive applications of ICT and therefore is a technology and

cost - intensive model which will require a transition period before being adopted on a wider

scale, especially in the developing countries. It would also require elemental familiarity of ICT

among the citizens to fully benefit from this model. Nevertheless, the diminishing costs of ICT

and the advantages offered by this technology would certainly catalyze the penetration of this

model. Intermediary organisations, knowledge networkers and middlemen will play a

tremendous role to play in widespread replication of this model.

2.6 LEGAL AND POLICY FRAMEWORK FOR FACILITATING

ICT IN E-GOVERNANCE

1. Information Technology Act 2000 - The objective of this Act is "to provide legal

recognition for transactions carried out by means of electronic data interchange and other

means of electronic methods of communication commonly referred as "electronic means

of communication and storage of information" to facilitate electronic filing of documents

with the govt. agencies, and further to amend the IPC, Indian Evidence Act 1872 and the

Banker's book Evidence Act 1891 and the Reserve Bank of India Act 1934 and for

matters connected therewith or incidental thereto." E-Governance and E-Commerce

transactions are covered under the ambit of this Act which facilitates acceptance of

electronic records and digital signature. It provides legal framework so that legal sanctity

is accorded to all electronic records and other activities carried out by electronic means.

2. Report Of The Working Group On Convergence And E-Governance 20012-07 -

This working group report proposed the need for administration to transform itself from

passive information and service provider to a platform for the active involvement of

citizens. However, the main drawback of this report was it focused only on public

investments and did not visualize the extent of private initiative in the convergence area

or in e-commerce and other allied segments. It advocated the need to set up a central

body for taking stock of the total IT picture in the country called 'Council for E- Governance' or ad hoc 'Commission on re-engineering Administrative procedures for EGovernance'.

Or a National Institute of Smart Governance could be set up.

3. Common Minimum Programme - The CMP inter-alia states that e-governance will be

promoted on a massive scale and solemnly pledged to the country's people that the UPA

govt. would be a corruption free, transparent and accountable government and its

administration would be a one that is responsible and responsive at all times.

4. National E-Governance Plan - The National E-Governance Plan which forms the core

infrastructure for effective service delivery has as its elements - Data centres, State wide

Area Networks and Common Service Centres to bring about transparency and citizen

centric approach in administration.

5. Expert Committee - This expert committee had been constituted for amendments in the

IT Act 2000 to include the technological developments post IT Act 2000 which submitted

its report in Aug 2005. Its recommendations have been displayed on the department of IT

to invite public view and suggestions. The expert committee took into consideration and

analyzed relevant experiences and international best practices to recommend in its report.

The twin objectives of using IT as a tool for socio-economic development and

employment generation; and further consolidation of India's position as a major global

player in the IT sector.

6. Right To Information Act 2005 - The Right To Information Act 2005 confers on the

citizens the right to:

a. Inspect works, documents and records of the govt. and its agencies.

b. Take notes, extracts or certified copies of documents or records.

c. Take certified samples of material.

d. Obtain information in form of print outs, diskettes, floppies, tapes, video cassettes

or in any other electronic mode.

This Act has facilitated a two way dialogue between the people and the govt. ensuring

transparent and accountable governance to the people in order to make well informed

decisions and tackle corruption as well as monitor the functioning of the government.

2.7 SIGNIFICANCE OF E-GOVERNANCE

ICT applications have the following significance in the process of E-Governance:

a. Administrative Development: ICTs help in reforming administrative processes to a

great extent. ICTs help in the following manners:

i. Automation of Administrative Processes - When there is minimal human

intervention and everything is system driven then this leads to effective and

efficient as well as timely services. Now departments are computerised and

connected through network and software has been built and designed around

government depts. ensuring efficiency in operations.

ii. The departments have launched their own individual websites carrying

information of their respective departments enabling online carrying of operations as well as budgeting, accounting, data flow, etc. have become

easy.

iii. Paper-Work Reduction- Paperwork is reduced to a great extent with

communication being enabled via electronic route and storage and retrieval of

information in the electronic form. In this concept files and mails (information)

are transmitted over wires to small computers at each employees desk and

everything is computer managed. SO there is reduction of physical movements

and consumption as well as storage of huge piles of paper.

iv. Quality Of Services - ICT facilitates Govt. to deliver services to the citizens with

greater accountability, responsiveness and sensitivity since now people are able to

get services efficiently and instantaneously as well as economically.

v. Online redressal of grievances ensures officials accountability and also sensitises

them. Video tele-conferencing monitoring has further facilitated central

supervision, reporting and face to face communication leading to better quality of

services.

vi. Elimination Of Hierarchy - Through the introduction of Intranet and LAN there

has been a reduction in procedural delays caused by hierarchical processed in

organisations as it has become possible to send and receive information and data

across various levels in an organisation instantaneously helping the involvement

of all levels in decision making.

vii. Change in Administrative Culture - With E-Governance public action has come

under public glare thus inducing norms and values of

accountability,openness,integrity,fairness,equity,responsibility and justice in the

administrative culture freeing it from 'bureau-pathology' and becoming efficient

and responsive.

b. Effective Service Delivery: The above mentioned has become possible since ICTs

ensure -

i. Transparency - Via dissemination and publication of information on the web

which involves detailed public scrutiny making the service delivery efficient and

accountable.

ii. Economic Development - ICTs reduce transaction costs making services cheaper.

To state an example - rural areas suffer on account of lack of information

regarding markets, products, agriculture, health, education, weather, etc. and

when all of this could be accessed online by them it would evidently lead to better

and more opportunities and prosperity in such areas.

iii. Social Development - Access to information empowers citizens as they can

participate and voice their concerns which could be accommodated in

programme/project formulation, implementation, monitoring and service delivery. Also, web enabled participation will counter the discriminatory factors affecting

our societal behavior.

iv. Strategic Information System - The competitiveness in the organizational sphere

today has forced public functionaries to perform to their best ability and this is

achieved only when information regarding all aspects are made available to the

management at every point in order to make routine as well as strategic decisions

which are done effectively via the use of ICTs.

2.8 CHALLENGES IN THE IMPLEMENTATION OF EGOVERENCE

In order to harness the benefits of ICT maximally, there is a need to develop sufficient and

adequate infrastructure, provide sufficient capital and investments, enable easy and wider

accessibility and generate ample, skillful HR. Let us discuss these challenges in detail.

i. Infrastructure - TO strengthen the infrastructure ' The National Task Force on

Information Technology and Software Development' in 1998 recommended broadband

connection (also known as 'the last mile') linkage for IT application Service Providers

(ASPs),Internet Services Providers(ISPs) and IT promotional organisations either by fiber

optics or by radio communication with the aim to ' boost efficiency and enhance market

integration' through Internet/Intranet for sustainable regional development.

ii. Capital - High rate of investment in IT capital and supportive environment is necessary

to achieve a digital economy. The economy is crunched on resources so the need is to

generate resources from the market and private sector. PPP is a step in the right direction

to achieve this.

iii. Access - Even though there are more than 10 million users of the Internet in the country,

more than 75% of these users are in urban India alone which exposes the reach of the

rural and disadvantaged sections. However, Gram Panchayats are being roped in to

expand ICTs reach. The National Informatics Centre (NIC) has developed a

comprehensive web-based software for Panchayati Raj and rural applications viz. Andhra

Pradesh which is a step in the right direction.

iv. Utility Of Information - Information which is of use should be provided in an

interesting and appealing manner. A vision document has been prepared for EGovernance

by the Government of India and the State Governments. Though Citizen's

Charters of many departments are available on the net,further publicity of such facilities

is required to enable the public to access the necessary information.

v. Human Resources Development - There exists a dearth of quality manpower in India

inspite of growing rate of employment in various sectors. A gap exists between demand

and supply in the IT Manpower market. To bridge this gap we need to have more

technical institutes to impart quality education and training to build a pool of human

resources in the field.

vi. Capacity Building - One needs to be trained in computer skills for effective service

delivery. Though this training is being carried out to all the basic public functionaries,yet

its effective use of ICT is yet to be seen. Also, there is a need to immediately launch a

nationwide 'Tain The Teachers' Programme(3T Programme) at all levels including

schools and colleges viz. combination of physical and virtual training.

vii. Changing the Mindset Of Government Functionaries - Govt. functionaries need to be

reminded and made aware that they are there to serve the people as per the policies and

programmes and in order to do that efficiently technological advancement is a facilitator

which solves the problems faced by the people. ICT is not a solution in itself. In order to

change this mindset of public functionaries there is a need to impart orientation and

training programmes to them emphasizing this.

viii. Language - Given the Indian social conditions, unless we develop interface in vernacular

languages, it would remain out of reach of many people who are not versed in English. It

may be mentioned here that this hurdle is being worked upon and organisations like

CDAC has developed multilingual software for this purpose.

ix. Standardisation in Data Encoding - Multiple access points maintained in various

languages at various levels need to be updated in conformity with similar standards for

data-encoding and application logic for a common horizontal application and data

dictionary. This is also important for finding aggregates in the national context.

x. Grievance Redressal Mechanism - Grievance redressal for various functions need to be

made necessarily. For this Interactive platforms on the internet may speed up the process

and be useful for this purpose.

xi. A good example of this is the BMC-Praja Foundation's joint initiative of the Online

Complaint Management System (OCMS) which is perhaps the world's first citizen-govt.

partnership for resolving public grievances in municipal services. It has been in operation

since April 2003 and efficiently uses IT as a tool for achieving its results.

xii. The Central Vigilance Commission has also provided such a platform for people to

register their complaints against corrupt officials.

However, such sporadic instances need to be made more broad-based and effective and

more public service agencies need to get into providing such facilities.

xiii. Cyber Laws - Appropriate laws need to be enacted by the govt. which are especially

necessary to enable transactions over the Internet. Safety concerns regarding the use of

credit cards or other modes of payment inhibits consumers from utilizing online facilities.

MTNL Delhi as an example has provided the online facility for payment of telephone

bills but not even one percent of its consumers avail it. Therefore, strict and robust cyber

laws need to be enacted and efficiently implemented so that confidence is generated in

the minds of consumers towards this system to provide online security.

2.9 EVOLUTION IN E-GOVERNANCE AND MATURITY MODELS

2.9.1 Difference between E-Government and E-Governance

Both terms are treated to be the same, however, there is some difference between the two. "Egovernment"

is the use of the ICTs in public administration - combined with organizational

change and new skills - to improve public services and democratic processes and to strengthen

support to public17. The problem in this definition to be congruence definition of e-governance is

that there is no provision for governance of ICTs. As a matter of fact, the governance of ICTs

requires most probably a substantial increase in regulation and policy-making capabilities, with

all the expertise and opinion-shaping processes along the various social stakeholders of these

concerns. So, the perspective of the e-governance is "the use of the technologies that both help

governing and have to be governed". The Public-Private Partnership (PPP) based e-governance

projects are hugely successful in India. United Telecoms Limited known as UTL is a major

player in India on PPP based e-governance projects . Each project had mammoth statewide area

networks in these states.

Many countries are looking forward to a corruption-free government. E-government is one-way

communication protocol whereas e-governance is two-way communication protocol. The

essence of e-governance is to reach the beneficiary and ensure that the services intended to reach

the desired individual has been met with. There should be an auto-response to support the

essence of e-governance, whereby the Government realizes the efficacy of its governance. Egovernance

is by the governed, for the governed and of the governed.

Establishing the identity of the end beneficiary is a challenge in all citizen-centric services.

Statistical information published by governments and world bodies does not always reveal the

facts. The best form of e-governance cuts down on unwanted interference of too many layers

while delivering governmental services. It depends on good infrastructural setup with the support

of local processes and parameters for governments to reach their citizens or end beneficiaries.

Budget for planning, development and growth can be derived from well laid out e-governance

systems

Maturity models are models of organizational improvement that are built on the observation that

organisations involved in complex endeavors move through levels of effectiveness18. As

organisations become more experienced in those endeavors and develop effective systems

supporting the activities, they become more "mature" in their approach. A maturity model is a

method for judging the maturity of the processes of an organization and for identifying the key

practices that are required to increase the maturity of these processes.

However, in its simplest form, a maturity model is an enumeration of attributes for a sequence of

maturity levels19. An eGovernment maturity model provides us with guidance on how to gain

control of our processes for developing and maintaining eGovernment services and how to evolve toward a culture of excellence in providing and managing eGovernment(Windley P. J., 2002).

2.9.2 Levels of E-Governance

There are four levels in e-governance:

a. Level 1: Information : In the first phase e-governance means being present on the web,

providing the external public with relevant information. The format of the first

government websites is similar to that of a brochure or leaflet. The value to the public is

that government information is publicly accessible; processes are described and thus

become more transparent, which improves democracy and service. Internally (G2G) the

government can also disseminate information with static electronic means, such as the

Internet. In this phase it is all about information from a single page presence on the web

to a website with all relevant government information available to the public. Most

governments are at this stage in India, and therefore what they believe is the end of the

process is only the beginning.

b. Level 2: Interaction: In the second phase the interaction between government and the

public is stimulated with various applications. People can ask questions via e-mail, use

search engines for information and are able to download all sorts of forms and

documents. These functionalities save time. In fact the complete intake of applications

can be done online at all times of the day on all days of the year, instead of only being

possible at a physical counter during working hours. Internally government organizations

use local networks, intranets and e-mail to communicate and exchange data. The bottom

line is that more efficiency and effectiveness is achieved because a large part of the

intake is done online. However, you still have to go to the office to finalise the transaction, by paying a fee, handing over evidence or signing papers. A few progressive

governments in India started projects in some areas which allow this level of service to

occur.

c. Level 3: Transaction: With phase three the complexity of the technology is increasing,

but customer value will also be higher. Most complete transactions can be done without

going to a government office. Examples of online services are filing income tax, filing

property tax, extending/renewal of licenses, visa and passports and online voting. Phase

three is mainly complex because of security and personalization issues – e.g. digital

signatures are necessary to enable legal transfer of services. On the business side the

government is starting with e-procurement applications. In this phase, internal processes

have to be redesigned to provide good service. Now the complete process is online,

including payments and certification. Only one or two governments in India are at the

stage where they are providing this level of service across some functions in a

department. And probably there is none that is doing it for all functions in any one

department.

d. Level 4: Transformation: The fourth phase if the transformation phase in which all

information system are integrated and the public can get all services at one (virtual)

counter. One single point of contact for all services is the ultimate goal. The complex

aspect in reaching this goal is mainly on the internal side, e.g. the necessity to drastically

change culture, processes and responsibilities within the government institution.

Government employees in different departments have to work together in a smooth and

seamless way. In this phase cost savings, efficiency and customer satisfaction are

reaching highest possible levels.

2.9.2 e-Governance maturity model

E-Governance Maturity Model EMM V.1 (Dhingra & Misra, 2002) proposes some levels of

maturity, depending on the effectiveness with which the e-governance efforts have been

initiated, implemented or successfully completed.

− The model also provides for identification of key focus areas that need to be concentrated

for attaining a specific maturity level.

− The EMM version 1.0 proposes five levels of maturity, depending upon the effectiveness

with which the e-governance efforts have been initiated, pursued, utilized and

institutionalized.

LEVEL 1: Closed

− Here an organization does not use ICT as a facilitator for good governance and has no

plans to do so in the near future.

− Such situation may arise due to lack of exposure to ICTs and associated benefits that

again may depend upon a number of reasons: remoteness, lack of resources and strategic

thinking.

− As a result the organization is closed in terms of being connected and sharing of

information in the context of “E-governance”.

− However, even in this condition the organization may be efficiently functioning.

LEVEL 2: Initial

− This level corresponds to the stage when an organization has initiated the automation of

its processes but on a ad-hoc basis.

− No organized efforts are made to undertake the e-governance initiatives.

− May of such efforts are abandoned due to lack of proper direction

LEVEL 3: Planned

− This level comprises of systematic approaches with clearly defined vision, objectives and

goals for e- governance.

− Need assessments are made to prioritize the areas of implementation and measure the

extent of e-readiness.

− Taking necessary input from need assessment study, extensive planning has been carried

out indicating policies, strategies, various activities, stakeholders, roles and

responsibilities and resources required in terms of time, money and manpower to

undertake the e-governance exercise.

LEVEL 4: Realized

− This level corresponds to the stage when the organization actually realizes the complete

e-governance plan.

− Consequently, an integrated system is established where all the internal processes of the

organization are computerized and there is a seamless information exchange among all

concerned entities.

− The organization starts delivering the services to its external as well as internal customers

in an effective manner.

− Complete realization of the plan, in a single instance, would entail enormous amount of

resources in terms of time, money and manpower which may necessitate adopting a

phased approached for operationalizing the e-governance services.

− Retrospected: At this level, the organization has retrospectively studied its business

processes in view of its vision, overall e-governance objectives, the service-oriented

approach and changes, if required, in the processes are initiated as a constant

evolutionary process.

− E-ready: In this stage, e-readiness essentials, which are also the building blocks for egovernance,

are ensured by the organization.

− Partially open: At this stage some of the e-governance services are operationalized

resulting in a partial information exchange among the entities both within and outside the

organization.

− Open: This sub-level of realized state implies complete deployment of e-governance

services that ensure an integrated system that is open to information exchange. The focus

here shifts from acquiring and implementing “e” enabling factors to effectiveness to deal

with the customer needs and is accountable for its services.

LEVEL 5: Institutionalized

− At this level, the organization sustains the realized state over a period of time so that egovernance

becomes part of its work culture. The e-governance services are effectively

utilized and accepted by the users. Several iterations between planned and realized state

lead to institutionalization , when e-governance becomes a way of life.

− E-Readiness Essentials

o presence of strategic thinking, leadership and commitment among top-level

decision makers

o Institutional Infrastructure

o ICT Infrastructure

o Human Capacities

o Legal Infrastructure

2.10 DIGITAL INDIA PROGRAM
The Digital India programme is a flagship programme of the Government of India with a vision
to transform India into a digitally empowered society and knowledge economy22. The journey of
e-Governance initiatives in India took a broader dimension in mid 90s for wider sectoral
applications with emphasis on citizen-centric services. Later on, many States/UTs started various
e-Governance projects. Though these e-Governance projects were citizen-centric, they could
make lesser than the desired impact. Government of India launched National e-Governance Plan
(NeGP) in 2006. 31 Mission Mode Projects covering various domains were initiated. Despite the
successful implementation of many e-Governance projects across the country, e-Governance as a
whole has not been able to make the desired impact and fulfill all its objectives.
It has been felt that a lot more thrust is required to ensure e-Governance in the country promote
inclusive growth that covers electronic services, products, devices and job opportunities.
Moreover, electronic manufacturing in the country needs to be strengthened.
In order to transform the entire ecosystem of public services through the use of information
technology, the Government of India has launched the Digital India programme with the vision
to transform India into a digitally empowered society and knowledge economy.
Digital India has three core components23. These include:

− The creation of digital infrastructure

− Delivering services digitally

− Digital literacy

There are nine pillars of Digital India Programme.

1. Broadband Highways

2. Universal Access to Mobile Connectivity

3. Public Internet Access Programme

4. e-Governance – Reforming Government through Technology

5. eKranti - Electronic delivery of services

6. Information for All

7. Electronics Manufacturing

8. IT for Jobs

9. Early Harvest Programmes 

2.10.1 Services
Some of the facilities which will be provided through this initiative are Digital Locker, eeducation,
e-health, e-sign and national scholarship portal. As the part of Digital India, Indian government planned to launch Botnet cleaning centers. 

1. DigiLocker: Digital Locker facility will help citizens to digitally store their important

documents like PAN card, passport, mark sheets and degree certificates. Digital Locker

will provide secure access to Government issued documents. It uses authenticity services

provided by Aadhaar. It is aimed at eliminating the use of physical documents and

enables sharing of verified electronic documents across government agencies.

2. Attendance.gov.in: Attendance.gov.in is a website, launched by PM Narendra Modi on 1

July 2015 to keep a record of the attendance of Government employees on a real-time

basis. This initiative started with implementation of a common Biometric Attendance

System (BAS) in the central government offices located in Delhi.

3. MyGov.in: MyGov.in is a platform to share inputs and ideas on matters of policy and

governance.

2.11 TOWARDS GOOD GOVERNANCE THROUGH EGOVERNANCE MODELS

The changes brought about in the citizen-government relationship through digital governance are

fourfold:

− They open up avenues for flow of information both vertically and laterally, and thus

encompass a wider foundation of the civil society. A greater density of information flow

is achieved – between government and civil society, amidst the government or within the

civil society itself. The right to voice and expression therefore gets more frequently

exercised by citizens who wish to engage in the political processes.

− Information becomes difficult to be capitalized by a few for political gains and at the

expense of ignorance of citizens. Digital governance ensures that the power-equations

shift from being concentrated and restricted at selected nodes to its more even and timely

distribution among citizens, opposition parties and watch guard groups.

− There is a greater scope to influence policy-makers and members of the civil society

through collective opinion casting, direct participation, participation in public debates,

and use of advocacy tools.

− Policy-makers become more aware of the voices of people and can effectively involve

them in policy-making mechanisms. They realize that their actions are under the scrutiny

of many more watch guard organizations and there are greater avenues available with

people to obtain or triangulate information from different sources. Information also

becomes difficult to obliterate and is forever archived to increase the institutional

memory of the society.