Case Studies on e-Governance in India – 2013 - 2014
SCA Performance Assessment & CSC Survey in Maharashtra
Rajesh Aggarwal, IAS Virendra Singh, IAS
Nikhil Pande
Case Studies on e-Governance in India – 2013 - 2014
SCA Performance Assessment & CSC Survey in Maharashtra
Rajesh Aggarwal, IAS Virendra Singh, IAS Nikhil Pande
Case Studies on e-Governance in India – 2013 - 2014 Page | i
About the Initiative
This publication is a part of the Capacity Building initiative under the National e-Governance
Plan (NeGP) by NeGD with an aim to draw out learnings from various projects implemented
in various States/ UTs and sharing this knowledge, in the form of case studies, with the
decision makers and implementers to benefit them, by way of knowledge creation and skill
building, from these experiences during planning and implementation of various projects
under NeGP.
Conceptualised and overseen by the National e-Governance Division (NeGD) of Media lab
Asia/DeitY these case studies are submitted by e-Governance Practitioners from
Government and Industry/Research Institutions. The cases submitted by the authors are
vetted by experts from outside and within the Government for learning and reference value,
relevance to future project implementers, planners and to those involved in e-governance
capacity Building programs before they are recommended for publication. National Institute
for Smart Government (NISG), working on behalf of this NeGD provided program
management support and interacted with the authors and subject matter experts in
bringing out these published case studies. It is hoped that these case studies drawn from
successful and failed e-Governance projects would help practitioners to understand the
real-time issues involved, typical dilemmas faced by e-Governance project implementers,
and possible solutions to resolve them.
Acknowledgment
NISG sincerely thanks all the authors for documenting and sharing their rich experiences in
terms of challenges and lessons learned and allowing us to publish and use these case
studies in various training programs of NeGD and NISG. NISG also thanks all the external and
internal experts who helped review the submitted cases, providing critical observations and
for helping in articulating and presenting the case studies, both for class room use as well as
a reference article.
Copyright License
This case study submitted by author/s and accepted for publication under the project of
National e-Governance Division (NeGD), Ministry of Communications and Information
Technology, Government of India by NISG, the program management agency, is governed
by the following license of the Creative Commons. For any specific permission/feedback the
publisher may be contacted.
Case Studies on e-Governance in India – 2013 - 2014 Page | ii
(cc) Creative Common License - Attribution-Share Alike 2.5 Generic
The user is therefore free to make derivative works, with credit to the original author.
http://creativecommons.org/licenses/by-sa/2.5/in/
Disclaimer
This publication is a work product produced by external authors with information sourced
from their own sources as provided under reference in respective articles and is based on
experiences with Projects undertaken directly or as research initiatives closely working with
the project owners or with their consent to publish the findings. The authors have provided
a plagiarism declaration as per project guidelines and National Institute for Smart
Government (NISG) has put in best efforts to validate the authenticity and learning value of
the article submitted. NISG has acted mainly as a content reviewer with support from
identified expert resources. NISG is not responsible for any plagiarism violations or copyright
infringements and respective authors are fully responsible for the same as per respective
declarations provided by them. The case study should not be used as a definite source of
data.
The case studies are meant for use as a background and quick reference on the topic(s) by
e-Governance practitioners, and should not be treated as a guideline and/or instructions for
undertaking the activities covered under any e-Governance project/s. It may also be used in
a classroom for discussion by the participants undergoing e-Governance related training
programs. The document by no means has any commercial intention and is solely developed
for the purpose of knowledge sharing.
NISG-CBKM 103-200/Case Study/05-2014/V1 Printed & Published by
National Institute for Smart Government, www.nisg.org
on behalf of the Department of Electronics & Information Technology,
Government of India
Case Studies on e-Governance in India – 2013 - 2014 Page | iii
Table of content
1. Abstract .......................................................................................................................................................... 1
2. Keywords ........................................................................................................................................................ 4
3. Note to the Practitioners/Instructors ............................................................................................................. 5
4. Project Context ............................................................................................................................................... 7
5. Project Overview .......................................................................................................................................... 10
6. Issues and Challenges Faced During Implementation .................................................................................. 24
7. Key Lessons ................................................................................................................................................... 25
a. Corrective Actions ................................................................................................................................... 27
8. Methodology Adopted for Case Writing ...................................................................................................... 30
9. References .................................................................................................................................................... 33
Authors ................................................................................................................................................................. 34
Project Case Fact Sheet ........................................................................................................................................ 35
Case Studies on e-Governance in India – 2013 - 2014 Page | 1
1. Abstract
Government of Maharashtra in its continuous endeavor to ensure that government, private
and social sector services are available to all its citizens near their residences, has
established ~8000 Citizen Service Centers (CSCs) across the state. These centers are called
Maha eSeva Kendras which provide both Government to Citizens (G2C) and Business to
Citizens (B2C) services. These centers are operated by residents of villages called as Village
Level Entrepreneurs (VLEs) and managed by Service Center Agencies (SCAs).
In order to check the quality of service being provided at the CSCs, the largest survey of its
kind in the country was carried out by Directorate of Information Technology (DIT). 300+
centers across the state were covered over a period of 2 months. The survey was performed
from an Android app that enabled the team to gather data and upload the details to the
server in real time. In addition a performance assessment exercise was conducted at the
SCA headquarters where adherence to clauses defined in Master Services Agreement (MSA)
was cross checked.
The results obtained from the surveys have thrown light on the quality of service being
provided to the citizens and also the challenges being faced by the VLEs while delivering the
services.
Some key findings are listed below.
1. There are on an average 38 walk-ins per day in a CSC
2. ~6 supporting documents have to be attached in the main form for a G2C case to be
processed
3. Average of 7 days are taken (end to end) to issue a G2C certificate
4. Performance issues in Mahaonline portal have been encountered by VLEs; support
by government officials in signing certificates also a concern
5. ~44% VLEs prominently display service list with fees which brings in transparency
6. ~45% of citizens availing services at CSCs have monthly income < Rs. 3000/-
7. ~38% of citizens availing services of CSC have education level up to “10+2”
8. ~64% of citizens avail CSC services at least once in 6 months
9. Citizens have to travel 3-6 Kms to reach a CSC center
10. ~1-3 trips required to be made by a citizen to avail a service
11. Avg. charges paid by citizens to avail a service is ~Rs. 47/- ;
Case Studies on e-Governance in India – 2013 - 2014 Page | 2
12. CSC staff is courteous to citizens in majority of the cases & respond to queries of
citizens in a timely manner (~81%), ~80% citizens satisfied by the overall quality of
service provided by CSCs
13. Word of mouth information through “Neighbours/Relatives” the main source of
awareness about CSC services; promotion through Newspapers & Television low
14. Overall ~31% of VLEs are “Very Satisfied” with the CSC business & majority would
like their family members to continue with operation of CSCs
Further details are provided under section “Project Overview” (Outcomes) and “Key
Lessons”
Analysis of the results (geography wise) is provided in the section “Project Case Fact Sheet”
Data collected through CSC survey and audit at SCAs headquarters has enabled the State to
get a clear picture regarding the reach of CSCs to its citizens.
Rollout Status
Transaction Status
Approximately 2% of CSCs have high number of transactions, 21% Medium and 77% Low
transactions.
# Division Target CSCs Rolled Out CSCs % Roll Out
1 Amravati 2,020 1,137 56%
2 Aurangabad 2,396 2,345 98%
3 Nashik 1,361 942 69%
4 Konkan 1,804 788 44%
5 Pune 1,887 1,171 62%
6 Nagpur 2,354 1,797 76%
Total 11,822 8,180 69%
Case Studies on e-Governance in India – 2013 - 2014 Page | 3
Transactions (from April-July 2013)
Transaction Category Transaction Range*
Low Transaction 0-120
Medium Transaction 121-1000
High Transaction 1001 and above
* Transaction range considered for a period of 4 months (even if 1 certificate issued by the
VLE per day, 120 transactions should have been recorded)
Based on the results, certain corrective actions have been taken by the Government which
include the following:
Termination of contract of non performing SCAs & VLEs
Gap filling at commercially non-viable regions and blind pockets at government
expenses
Instructions to SCAs to focus on marketing activities & increase visibility of CSCs &
services offered amongst citizens
Directives to software implementation vendor (MahaOnline) to resolve portal
related performance issues on an immediate basis
Issuance of a Government Resolution (GR) where affidavits are no longer required
for G2C services availed by the citizens.
More details in “Corrective Actions”
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Low Txns. Medium Txns. High Txns.
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2. Keywords
# Term Description
1 B2C Business to Citizens
2 BC Business/Bank Correspondents
3 CA Chartered Accountant
4 CMMi Capability Maturity Model Integration
5 CSC Citizen Service Centers
6 DIT Directorate of Information Technology
7 DR Disaster Recovery
8 eGov eGovernance
9 FS Financial Statement
10 G2C Government to Citizens
11 GOM Government of Maharashtra
12 HR Human Resource
13 INR Indian Rupees
14 ISO International Organization for Standardization
15 IT Information Technology
16 LD Liquidated Damages
17 MIS Management Information System
18 MOL MahaOnline
19 MSA Master Services Agreement
20 RFP Request for Proposal
21 SCA Service Centre Agencies
22 SDA State Designated Agencies
23 SRS System Requirement Specification
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# Term Description
24 TDS Tax Deducted at Source
25 UID Unique Identification (Aadhaar)
26 VLE Village Level Entrepreneur
27 W3C World Wide Web Consortium
28 WCAG Web Content Accessibility Guidelines
3. Note to the Practitioners/Instructors
Practitioners
The objective of the project was to check the quality of services being offered to the citizens
by the CSCs and analyze the impact on the citizens using the services. The findings and
recommendations of the study may be extrapolated and implemented for the entire
population. Regional trends and observation may be used to arrive at suggestion for better
services being offered at the regional CSCs for service delivery. The case study may be
adopted as a standard for doing similar studies across the country and may be instrumental
in coming up with similar recommendation for providing better services – the ultimate aim
of the CSC Mission Mode Project.
In order to avoid bias in results, centers to be covered were chosen based on a random
number generation model. The project also throws light on the importance of Third Party
Audits (TPAs) for on-going e-Governance projects. Team with adequate ‘independence’ and
with least conflict of interest may be selected from a group of co-workers for such exercise.
Instructors
The following questions can be posed by the instructors to the students:
1. What are the relevant questions that can be asked in a survey to the following
stakeholders:
a. Citizens
b. VLEs
c. District Officials
2. Which section of society is most likely to avail the services provided at CSC (low/high
income, educated/illiterate etc.)
3. What kind of support can be provided by district officials to VLEs to reduce the
average time required to issue a G2C certificate
Note: Signature from a designated district official is required on a G2C certificate
Case Studies on e-Governance in India – 2013 - 2014 Page | 6
4. For centers where total number of transactions in 3 months is less than 100, what
initiatives can be taken up by SCAs to improve the situation?
5. Internet connectivity at district level is a major challenge faced by VLEs. What
options available in the market can be used to ensure 99% uptime
6. Can factors like overall ambience & size of CSCs have an impact on the number of
walk-ins?
7. How can VLEs ensure repeat walk-ins by customers
Hint: Provide B2C services, improve quality of service, publicity etc
8. In addition to basic refresher courses, what kind of support and encouragement can
be given by the SCAs to VLEs?
9. Should SCAs provide Insurance cover to VLEs (cash loss, physical damage to centers)?
Will this be a viable business model for the SCAs?
10. What parameters can be used by the SCAs to track the performance of VLEs (during
surprise visits)?
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4. Project Context
CSCs across Maharashtra
The CSC project since its inception in Sep. 2008 in Maharashtra not only provides G2C and
B2C services to its citizens but also promotes rural entrepreneurship amongst the villagers –
also known as Village Level Entrepreneurs (VLEs). The project is currently being executed by
4 Service Center Agencies (SCAs) – CMS, Basix, Spanco and Reliance
CSC Rollout Status
# SCA Division Target CSCs Rolled Out CSCs % Roll Out Total
%
Roll
Out
Rural
CSCs
Urban
CSCs
Total CSCs
Mandated
Rural
CSCs
Urban
CSCs
Total
CSCs
Rolled
Out
Rural
CSCs
Urban
CSCs
Total
CSCs
Rolled
Out
1 CMS Amravati 1,837 183 2,020 920 217 1,137 50% 119% 56% 79%
Aurangabad 2,129 267 2,396 1,914 431 2,345 90% 161% 98%
2 Basix Nashik 1,223 138 1,361 788 154 942 64% 112% 69% 69%
3 Spanco Konkan 1,489 315 1,804 544 244 788 37% 77% 44% 53%
Pune 1,677 210 1,887 853 318 1,171 51% 151% 62%
4 Reliance Nagpur 2,132 222 2,354 1,635 162 1,797 77% 73% 76% 76%
Total 10,487
1,335
11,822 6,654
1,526
8,180 63% 114% 69% 69%
*As of 31st July 2013
Case Studies on e-Governance in India – 2013 - 2014 Page | 8
CSC Distribution
Legend
Population
Population Category % Distribution Population Range – Per
square Km.
Scarce Population 33% 0-600
Moderate Population 34% 601-1400
Dense Population 33% 1401-26000
Case Studies on e-Governance in India – 2013 - 2014 Page | 9
Transactions (from April-July 2013)
Transaction Category Transaction Range Legend
Low Transaction 0-120
Medium Transaction 121-1000
High Transaction 1001 and above
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5. Project Overview
a. Project Description
Government of Maharashtra (GoM) is implementing the Common Service Centers (CSCs)
scheme under the aegis of the National e-Governance Plan (NeGP), funded by
Government of India as one of its Mission Mode Projects for delivery of government,
private & social sector services (G2C/B2C services) to the citizen at a location near
his/her residence. The project was started to develop a platform that can provide
services to the rural population in the remote corners of the country. These centers are
called Maha e Seva Kendras. The Maha eSeva Kendra scheme envisages establishment
of a network of 11,822 IT enabled centers across the State. Of the planned CSCs, 8,180
CSCs have been rolled out across Maharashtra.
In order to check the performance of the SCAs across the state, a Third Part Audit (TPA)
was carried out by Government of Maharashtra (GoM) – the biggest and most
comprehensive exercise ever conducted in the country. The main objective of the survey
was to check the quality of service being provided to the citizens by the VLEs and
identify the areas where it can be improved.
Members of the State eGovernance Mission Team (SeMT) visited 300+ CSCs across the
state – largest survey of centers conducted in India. In order to streamline the survey, a
mobile app was developed and the same was used by the consultants to capture and
upload the data. Details for 85 questions covering 3 key areas namely Village Level
Entrepreneur, CSC Infrastructure & Citizen Services were gathered.
In addition, visits were made to the SCA headquarters to check the conformance to the
clauses as defined in the Master Services Agreement (MSA) and Request for Proposal
(RFP). The SCAs were evaluated across 45 parameters covered across Technical,
Operational & Financial areas.
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SCA Performance Assessment
A 5 step evaluation process was undertaken to assess the performance of the SCAs
The SCAs were evaluated across three key areas: Technical, Operational and Financial
• SCA assessment process initiated by DIT
• Evaluation methodology discussed and finalized
• Evaluation to be done on Technical, Operational & Financial parameters (based on RFP & MSA
Stage 1
• Document with evaluation parameters circulated to the SCAs
• Queries from SCAs on documentary evidence received and clarifications provided
Stage 2
• Visits made to each of the SCA headquarters for a period of 1-3 days (based on number of clarifications pending)
• Face to face discussion and clarifications received from SCAs
• CSC center survey started by district consultants
Stage 3
• Final scoring by core team for each assessment area / section
• Presentation of draft SCA assessment (Phase 1) report to key stakeholders
Stage 4
• Feedback received from SCAs & incorporated into report
Stage 5
•Key technical areas covering Connectivity, IT Architecture, Infrastructure, Software, Support Technical
•Spread across operation related sections: Services, Infrastructure Management, Operations Management, Communication Management Capacity Building, HR Management
Operational
•Financial areas covering Roll out of CSC, Submission of FS, Deposit of Government monies, Statutory compliance, Recon and control
Financial
Case Studies on e-Governance in India – 2013 - 2014 Page | 12
The overall evaluation framework & weights assigned to the categories are listed below:
CSC Survey
300+ centers were selected for the survey based on a random number generator formula.
More details in “Random number generation model”. Three months (Apr-June 13) were
chosen for survey and analysis as the transactions during these 3 months are representative
of both low and high transactions across G2C and B2C categories. E.g.
# Category Apr-13 May-13 Jun-13 Total
1 G2C 7,51,249 7,40,757 16,12,545 31,04,551
2 B2C 1,33,659 86,869 81,427 3,01,955
Total 8,84,908 8,27,626 16,93,972 34,06,506
This was the largest survey of CSCs that has been conducted in the country so far. The
survey was conducted by a team comprising of 35 SeMT district consultants, eDistrict
Project Managers and Mahaonline Coordinators
Case Studies on e-Governance in India – 2013 - 2014 Page | 13
A 5 step evaluation process was undertaken to assess the performance of the CSCs
• CSC survey assessment process initiated by DIT
• Survey team for each district finalized (district consultants, eDPM and MOL coordinators)
• Questions to be covered in the survey discussed and finalized
• Requirements document prepared and provided to application development team
Stage 1
• App developed and tested and feedback provided to development team
• Tabs required for the survey distributed to the district consultants
• Process of centre selection discussed and finalized (random number generator)
• Selected centre list distributed to district consultants
Stage 2
• Visits made by district consultants to each of the selected CSC to conduct the survey
• Responses taken from VLEs, citizens and district officials
Stage 3
• Data uploaded to the server by the district consultants
• Data extracted from the server by DIT
• Analysis conducted and inferences drawn based on survey data
• Presentation of draft CSC Survey Report (Phase 2) report to SDA
• Report shared with the SCAs
Stage 4
• Presentation of results of the findings to all key stakeholders (SDA and SCAs)
Stage 5
Case Studies on e-Governance in India – 2013 - 2014 Page | 14
80+ questions were covered as part of the survey were divided into 3 sections: Village Level
Entrepreneur, CSC Infrastructure and Citizen Services
# Category Sub Category No of Questions
1 Village Level Entrepreneur(VLE) 34
1.1 Profile 14
1.2 Service 10
1.3 Feedback 10
2 CSC Infrastructure 12
3 Citizen Services 39
3.1 Profile 10
3.2 Awareness 4
3.3 Services Provided 15
3.4 Service Quality 5
3.5 Governance 5
TOTAL 85
b. Objectives
1. SCA Performance Assessment
The key objective of the project was to check the performance of the SCAs across the
following areas:
a. Technical
i. Connectivity: Whether connectivity available at CSCs, how has last mile
connectivity been achieved?
ii. IT Architecture: Is IT architecture blueprint in place for SCA headquarters and
CSCs?
iii. Infrastructure: Is data center and Disaster Recovery (DR) site present. How are
server backups taken?
Case Studies on e-Governance in India – 2013 - 2014 Page | 15
iv. Software: Is a portal for enabling access to non-government services (B2C)
operational? Is the SCA ISO certified?
v. Support: Are training manuals and user guides made available to the CSC
operators?
b. Operational
i. Services: What has been the contribution of the SCA in G2C and B2C
transactions? Whether UID centers and Business Correspondents (BCs) active?
ii. Infrastructure Management: Are arrangements for physical security made at
the CSC centers by the SCAs? How the compliance to branding/logo/colour
scheme ensured by the SCA at the CSC centers?
iii. Operations Management: Are SLAs for performance evaluation of CSCs being
tracked? Is a performance report submitted to SETU Maharashtra? Is a wallet
recharge mechanism being used by the VLEs to recharge wallets? Are
complaints of citizens being tracked properly?
iv. Communication Management: Is a centralized MIS report available to track
transaction volumes, disputed transaction etc.? Have all statutory clearances
been obtained for providing services (G2C, B2C, B2B) at the CSCs?
v. Capacity Building: Has adequate training been provided by the SCAs to the
VLEs before they start operating the CSC centers? What is the schedule of
refresher courses to be provided to the VLEs?
vi. HR Management: Are agreement copies with VLEs available ( including profit
sharing arrangement, photos, educational qualifications and others)
c. Financial
i. Roll out of CSC: Is there a certificate from SDA/other government body that all
CSC in the allotted division of SCA have been rolled out and operational?
Whether CSCs have been rolled out as per contract terms?
ii. Submission of Financial Statements: Certified financial statement submitted
by the SCAs (quarterly, half yearly and yearly)
iii. Deposit of Government monies: Whether share of SDA is being deposited by
the SCAs on a timely basis?
iv. Statutory compliance: Whether service tax and TDS is being paid to
government as per due date?
v. Reconciliation and Control: Whether account reconciliation is being
performed, whether MIS reports are available
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2. CSC Survey
The key objective of the survey was to check the quality of service being provided to
the citizens by the VLEs. Key areas covered were as follows:
a. Village Level Entrepreneur
i. Whether VLEs have identity cards
ii. Whether VLEs have UID/EID
iii. Number of walk-ins per day in the center
iv. Number of printouts required to process a G2C case
v. Key concerns of VLEs
vi. Number of days taken to issue a G2C certificate
vii. Level of satisfaction in conducting the CSC model
b. CSC Infrastructure
i. Ambience of the CSCs
ii. Overall size of the CSCs
iii. Whether service list is prominently displayed at the centers
iv. Type of connection being used by the VLEs
c. Citizens Services
i. Average income of citizens availing services from CSCs
ii. Number of times in a year any service is availed from the CSCs
iii. Distance the citizens have to travel and money they have to spend to reach
the CSCs
iv. Number of trips that have to be made to a center to avail a service
v. Whether working hours are convenient
vi. Mode of publicity through which citizens know of the services
c. Stakeholders
The key stakeholders of the project are:
1. Government of Maharashtra
a. Directorate of Information Technology
b. District officials (Collector, Tehsildars, Talathi)
Case Studies on e-Governance in India – 2013 - 2014 Page | 17
2. Citizens
3. Service Center Agencies
a. Village Level Entrepreneurs
d. Client / Beneficiaries
The main beneficiaries of the CSC project & the performance assessment exercise are the
citizens of the state of Maharashtra (~5.8 Cr –as per Census 2011) who avail services from
the CSCs. Details in “Project Case Fact Sheet”
e. Governance services offered
G2C
G2C services offered across 12 categories (as of May 2013)
# Service Category
1 7/12 service
2 8A Service
3 Affidavits
4 Certificates
5 Employment Exchange
-
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Population Distribution Across Districts of MH
Case Studies on e-Governance in India – 2013 - 2014 Page | 18
6 G2C Applications
7 G2C Licenses
8 Land & Revenue
9 Other G2C Services
10 Ration card
11 Right To Information Act
12 Social welfare schemes
B2C
B2C services offered across 15 categories (as of May 2013)
# Service Category
1 Bus Services
2 DigiTech Services
3 Education services
4 Employment Exchange
5 Health services
6 Insurance Services
7 IRCTC Train Ticket
8 JOBEX
9 Mobile/DTH Recharge
10 MSEDCL
11 NPS Lite Services
12 Other Commercial services
Case Studies on e-Governance in India – 2013 - 2014 Page | 19
# Service Category
13 Placement Services
14 Sale of Applications
15 UTI-PAN
f. Outcomes
CSC Survey
The survey of CSCs across the state enabled the Government of Maharashtra to cross check
the quality of services being provided by the VLEs to the citizens. The key findings are listed
below:
# Section Findings
1 Village Level
Entrepreneur
~31% of VLEs have identity cards; Basix highest with ~40%, Reliance
lowest
Overall ~89% VLEs have UID/EID; Reliance highest with ~94%
~72% centres being operated by individuals on whose name CSC is
registered
Avg. 38 walk-ins per day; Amravati and Aurangabad > 60 walk-ins
~6 printouts required for a G2C case; highest in Nagpur division with
avg. of 8
Avg. 7 days taken to issue a G2C certificate; Amravati, Nashik &
Nagpur division highest with ~9 days
Performance issues in Mahaonline portal; support from Govt. admin
a key concern
Large section of VLEs (~50%) interested in delivering both G2C & B2C
services
Overall ~31% of VLEs are “Very Satisfied” with the CSC business; VLEs
of Basix and CMS most positive
Majority of VLEs would like their family members to continue with
operation of CSCs
2 CSC
Infrastructure
50% CSCs have overall good ambience; Basix & Spanco CSCs with ~55-
60%
Case Studies on e-Governance in India – 2013 - 2014 Page | 20
# Section Findings
~31% of CSC have an area between 150-200 sq. ft
~44% VLEs prominently display service list with fees; CMS and
Reliance lowest
Majority of CSCs (~63%) have 1 computer in their premises
74% connections are from BSNL broadband
3 Citizen
Services
~45% of citizens availing services at CSCs have monthly income < Rs.
3000/-
~38% of citizens availing services of CSC have education level up to
“10+2”
Majority of visitors to the centers are Male (~92%)
~64% of citizens avail CSC services once in 6 months
Citizens have to travel 3-6 Kms to reach a CSC center; highest in
Amravati ~6 Kms
~1-3 trips required to be made by a citizen to avail a service
Avg. charges paid by citizens ~Rs. 47/- ; Pune division avg. highest -
Rs. 65/-
Citizens spend on an average Rs. 20/- on travel to avail CSC services;
Amravati & Pune highest
In Amravati and Pune districts, citizens pay more on travel as
compared to cost of availing services
~78% citizens find working hours of CSCs to be convenient;
Aurangabad, Konkan & Nashik > 90%
CSC staff is courteous to citizens in majority of the cases & respond to
queries of citizens in a timely manner (~81%)
~80% citizens satisfied by the overall quality of service provided by
CSCs
Word of mouth information through “Neighbours/Relatives” the
main source of awareness about CSC services; promotion through
Newspapers & Television low
Case Studies on e-Governance in India – 2013 - 2014 Page | 21
SCA Performance Assessment
# Section Findings
1 Technical 1. SCAs have portals that are operational which are being used by the
VLEs.
2. Help desks are being maintained by the SCAs and VLEs contact them
to resolve any technical or operational issues
3. There is dependence on private operators (e.g. IDEA, Airtel) for CSCs
to obtain connection in remote areas, as obtaining last mile
connectivity from BSNL is a challenge in remote areas
4. IT architecture blueprint is available for SCAs headquarters,
however details at CSC centre are not available (infrastructure is the
responsibility of the VLE)
5. Details of software’s being used by VLEs are not maintained. No
check is done with respect to authenticity of the software’s
6. Servers and data backups of SCAs are present in other states. This
could be a risk with respect to data security. Disaster Recovery (DR)
is not fully operational in data centres
7. Portals of SCAs have to clear security certifications and also become
eGov standards compliant
8. Training material is not available on the portal maintained by the
SCAs
9. Not all SCAs are ISO certified and CMMi level compliant
2 Operational 1. G2C and B2C services are being delivered to the citizens (16
MahaOnline services through the MOL portal)
2. Rollout of CSCs in the range of ~50-80% has been achieved by the
SCAs. Focus has been more on urban than rural areas. The key
reason for this has been that specific pockets of the state are
commercially non-viable for the SCAs and have technology & power
issues
3. UID centres have been started by the SCAs with 123 centres
operational and 1.48 Lakh enrolments completed so far
4. 95 Business Correspondents from 2 SCAs have started operating in
the districts
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# Section Findings
5. Average login by VLEs into the system ~46% (ranges from 17 % to
67% )
6. ~18% VLEs with cumulative transactions >500 for 3 months. (ranges
from 0% - 29%)
7. All SCAs are using accounting software for accounting and
reconciliation
8. MIS reports are available on the SCAs portal to track transactions
9. Monthly progress reports are sent to DIT highlighting the progress &
issues
10. VLE agreement copies are available with the SCAs, however a
master database containing all details of the VLE is not maintained
(agreement date, operational date, refundable and non-refundable
deposit, refund amount)
11. Citizen complaints are not tracked proactively
12. Visits are made by district coordinators, however a formal checklist
is not used in all cases
13. Trainings are conducted on induction and when a new service is
added, however there is no formal training calendar being
maintained
14. There is no standardized mechanism to check the implementation
of logos at the centres
3 Financial 1. SCAs have provided both G2C and B2C services during these 5 years
period of Sep08 to May13. The share in terms of volume of
transactions between G2C and B2C services is 80:20. However this
share is vice-versa when compared in terms of revenue generation
as 30:70.
2. SCAs have managed to cover the sectors while providing B2C
services such as Insurance, Educational, Mobile recharge, Digitech,
Electric Bill payments, Train & Bus tickets, Employment & health.
However, the maximum revenue generated is from Mobile/DTH
recharge services is approx. 60% and MSED bill payment is approx
32%.
3. During the last 5 years from Sep08 to May13, SCAs have done
Case Studies on e-Governance in India – 2013 - 2014 Page | 23
# Section Findings
approx. 1.51 Cr. number of G2C transactions (excluding transaction
carried through Mahaonline). The revenue generated out of these
G2C transactions is approx. Rs 27.54 Cr. The revenue share between
different stakeholders is approx. – SCA 31%, VLE 46%, SDA & District
20% & others 3%.
4. The SCAs have developed their own portal for delivering the G2C
and B2C services to the citizens across the districts (except for 16
G2C services for which GoM has launched the Mahaonline portal
w.e.f. from Oct-12). Other G2C services are also being brought to
the same platform of Mahaonline portal to bring more transparency
and accessibility to citizens. The SCA will continue to deliver the B2C
and some G2C services through their own platform , however there
are few areas of improvement:
i) The charges for G2C services could be configured in the portal.
This will enable more transparency in the service charges being
paid by the services.
ii) Third parties accounts should be regularly reconciled to ensure
same balances reflect in the books of both the parties.
iii) Transactions report (district, Taluka and months wise) should
be configured properly to ensure there is no balance mismatch
in the reports.
5. SCA has quoted the negative bid money for operating the CSC. This
bid monies are not paid to the Government. The transaction shares
paid by SCA are not consistent every month. The SCA has not
submitted the quarterly and annual financial statement in respect of
CSC services carried out in the 5 years period and the revenue share
of same.
6. Statutory dues are not fully compliant:
i) The commissions paid to VLE are to be paid by SCA after
deducting TDS. It is noted that details of analysing the TDS
liabilities in respect of each VLE are not monitored consistently.
ii) Services rates prior to May-12 are inclusive of service taxes.
These details are not available at each individual service on
monthly basis.
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6. Issues and Challenges Faced During Implementation
The key challenges faced during the project were as follows:
Operational
1. Visits to CSCs were made during the monsoons (Jun-July 2103). Accessibility to
centers in remote areas was a key challenge faced by the consultants
2. In specific centers, consultants faced non-cooperation from staff operating the
centers
Technical
3. The survey app has a facility to capture the GPS coordinates at the time data is
captured. In remote locations, there were connectivity related issues reported by
individuals conducting the survey.
4. The data captured as part of the survey also had to be synched to the server located
in Mumbai. A 3G connection was the preferable mode of transfer, which was not
available in remote locations. As a result there was a minor delay between the time
the data was captured and uploaded to the server.
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7. Key Lessons
The key findings & learning’s of the project are as follows:
# Finding Learning
1 There are on an average 38 walk-ins per
day in a CSC; Amravati and Aurangabad
have the highest (~60 walk-ins)
The walk-ins in a center are dependent
on multiple factors like distance of
center from citizens home, presence of
other CSCs in vicinity, quality of service
provided by VLEs to citizens etc.
2 ~6 supporting documents have to be
attached in the main form for a G2C case
to be processed; highest in Nagpur
division with avg. of 8
Requirement of documents like affidavit
to be attached for processing of a G2C
certificate leads to addition of multiple
pages in a case
3 Average of 7 days are taken (end to end)
to issue a G2C certificate; Amravati,
Nashik & Nagpur division highest with ~9
days
G2C certificates require signature from
district officials, which is a contributing
factor in the delay of issuance
4 Performance issues in Mahaonline portal
have been encountered by VLEs
Connectivity is a major challenge faced
by VLEs in districts
5 ~44% VLEs prominently display service
list with fees which brings in
transparency
Display of service charge list is an
essential component of service delivery
which gives promotes transparency
6 ~45% of citizens availing services at CSCs
have monthly income < Rs. 3000/-
Majority of the citizens availing services
of CSCs belong to the section of society
with low income
7 ~38% of citizens availing services of CSC
have education level up to “10+2”
A large section of society availing
services of CSCs do not possess any
formal education degrees
8 ~64% of citizens avail CSC services at
least once in 6 months
The VLE business model relies on
recurring business to make it a
sustainable one (B2C services a major
contributing factor)
Case Studies on e-Governance in India – 2013 - 2014 Page | 26
# Finding Learning
9 Citizens have to travel 3-6 Kms to reach a
CSC center; highest in Amravati ~6 Kms
Majority of the CSCs are located in areas
which are accessible by the citizens
10 ~1-3 trips required to be made by a
citizen to avail a service
Multiple follow-ups for a certificate are
required by the citizens (e.g. for cases
where certificates are required to be
sent to district offices for approval)
11 Avg. charges paid by citizens to avail a
service is ~Rs. 47/- ; Pune division avg.
highest - Rs. 65/-
For centers where service charges are
not prominently displayed, there is a
possibility of different rates being
charged by the VLEs to citizens (for same
set of services)
12 CSC staff is courteous to citizens in
majority of the cases & respond to
queries of citizens in a timely manner
(~81%), ~80% citizens satisfied by the
overall quality of service provided by
CSCs
The spirit of entrepreneurship to
successfully run a business is shown by
the VLEs, through good customer service
13 Word of mouth information through
“Neighbours/Relatives” the main source
of awareness about CSC services;
promotion through Newspapers &
Television low
In order to increase awareness amongst
citizens regarding CSC services, efforts
on publicity through print / digital media
have to be put in by SCAs
14 Overall ~31% of VLEs are “Very Satisfied”
with the CSC business & majority would
like their family members to continue
with operation of CSCs
The business model adopted by SCAs is a
viable one, with VLEs willing to continue
to operate
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a. Corrective Actions
Based on the findings of the SCA Performance Assessment & CSC survey, the following
decisions have been taken by the Rajya Setu Samiti:
1. Contracts for CMS & Spanco have been extended for the next 2 years from 01st Sep.
2013, based on the performance scores. Contract for Basix is valid for the next 3
years
2. Contract with Reliance has not been renewed and Mahaonline has been mandated
to spearhead the initiatives
3. New contract would have additional clauses to ensure better operations for the
success of the project:
a. IT infrastructure requirement
b. Size and citizen facilities at the centers
4. Gap filling at the commercially non-viable regions and blind pockets (technology and
power issues) will be done at government expenses.
5. VLEs with less than 100 transactions (cumulative of Apr, May and June 2013) under
Spanco and CMS will be given an opportunity to improve their performance during
the period 01st Sep. 2013 – 31st Dec 2013. Minimum of 100 transactions should be
executed in this time period (minimum 50 G2C). If the target is not achieved they will
automatically be removed from the VLE network with effect from 1st Jan 2014.
6. Instructions to SCAs to focus on marketing activities & increase visibility of CSCs
7. Directives to software implementation vendor (MahaOnline) to resolve portal
related performance issues on an immediate basis
8. Based on Memorandum of Understanding (MoU) signed with CSC SPV, UID and B2C
services will be provided by CSCs
Standardization of Services and Affidavit GR
Government of Maharashtra has initiated eDistrict project implementation in the State of
Maharashtra. eDistrict is a Mission Mode Project (MMP) under National e-Governance Plan
(NeGP) under the aegis of DeiTY, Government of India and aims to provide support to
“District Administration” to deliver Citizen Centric Services (G2C services) to the citizens in
more transparent, objective and user friendly manner.
1. Standardization of Services
67 services from 10 categories like Certificates and licenses, Right to Information, Public
Distribution System, Pensions, Utilities, Land Revenue Dues and Recoveries, Electoral,
Revenue Court etc. are covered under the eDistrict project. Of these, 35 services have been
Case Studies on e-Governance in India – 2013 - 2014 Page | 28
selected for priority implementation during the first phase of the state wide roll out. The
Business Process reengineering of these services have been completed. Standardization and
regulation of application forms and output formats, timelines and fees for processing of the
services have been covered under the same. Some of the salient features of the
standardised forms that are designed to be used in the CSCs are-
Standardized input forms across all services, comprising of – applicant details,
service specific details, self declaration and a list of documents to be attached
Applicant details so collected to aid in creation and maintaining citizen profile at
CSCs to increase citizen convenience
Digitally signed output certificates and licenses
Output forms to have 2D barcode for authentication and verification of document
offline
Feature for authentication of issued documents through SMS and though
MahaOnline portal
The Directorate of Information Technology is working closely with other departments whose
services are delivered though eDistrict project for preparing and issuing necessary
administrative approvals in the form of Government resolutions and Government orders for
the adoption of the standardization being implemented as part of the project. A GR for the
waiver of affidavits for services delivered through eDistrict has already been issued.
2. Affidavit GR
Today, an affidavit forms an integral part of the citizen’s application to avail G2C services. An
affidavit is a sworn statement voluntarily made by an applicant under an oath or affirmation
administered by a person authorized to do so by law. It is a declaration from the applicant
along with his photograph and signature that the information provided is true as per his
knowledge. Moreover, the applicant is liable for punishment as per sections of Indian Penal
code, if the information provided is found to be false. The affidavits are signed by the
authorized signatories as a proof of validity and are affixed with a court fee stamp of INR5 or
INR10 or INR20 etc.
However, getting an affidavit is in itself an incommodious process. It requires extra effort,
time and money from an applicant. No doubt, affidavits unnecessarily create slag in the
system and increases the processing time of the service delivery.
Government of Maharashtra in its continuous effort in bringing a citizen friendly experience
for applying the various G2C services to the citizens, has taken the landmark decision to
waive off the submission of the Affidavits required along with the application forms for most
of the services offered through the CSCs. The below have been decided:
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I. Application form itself as an Affidavit: It is decided that the affidavits shall be done
away and instead applicant shall be asked to file self declaration along with the
application form. The format of the Self Declaration shall be as below:
Self-Declaration (In English)
I _________________son/daughter of __________aged ______ occupation
_______________resident of ________________ hereby declare that the information
provided above is true and correct to the best of my personal knowledge, information and
belief. I fully understand the consequences of giving false information. If the information as
given above is found to be false, I shall be liable for prosecution and punishment under
section 199 and 200 of IPC 1960 and / or any other law applicable thereto.
Place : ______ Applicant Signature : ____________
Date : __ / __ / __ Applicant Name : ____________
I. Doing away with non–judicial stamp paper: The Declaration shall be a part of the
application form and hence requirement of non–judicial stamp paper is done away
with for these services.
The approved GR is already published and is available on the Government of Maharashtra
website. The same can be downloaded from:
https://www.maharashtra.gov.in/Site/Upload/Government%20Resolutions/English/201308
161456082111.pdf
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8. Methodology Adopted for Case Writing
Data for the case study was gathered through a combination of both primary and secondary
research.
Primary
A mobile app was developed by Government of Maharashtra and installed on tabs that
were handed over to 35 teams across the state. The tab was then used to capture data and
upload it to the server.
Usage of the mobile app to capture data in real time enabled the SeMT team to complete
the survey of 300+ centers in a short span of time.
# Screen Type Snapshot Description
1 Landing
Screen
1. Options available to a
user once they logged
into the app were as
follows:
Add Survey
Edit Survey
Delete Survey
Server Sync
Settings
Logs & Instructions
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# Screen Type Snapshot Description
2 Survey
Selection
(Live/Demo)
1. Once a new survey was
created, user could
select the mode
“Live/Demo”. Demo
was used for testing
purpose, the Live
version used for actual
survey
2. The GPS coordinates of
the location were
captured by the system
3 Survey
Selection
(Type of
Survey)
1. The app has multiple
surveys and the user
could select the
appropriate survey
type, i.e. “CSC Survey”
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# Screen Type Snapshot Description
4 Questions
1. The questions to be
covered as part of the
survey were traversed
through multiple pages
and responses entered
in the app
5 Server
1. Once the survey was
completed by the
consultants, the details
were uploaded to the
server. (through the
“Server Sync”
functionality in Point 1)
2. The progress of the
surveys was tracked
through the admin
console
3. The survey data for was
taken from the
development team and
inferences were drawn
(post analysis)
Secondary
Government resolutions, letters, Master Services Agreement with vendors, articles on
frameworks to analyze quality of service delivery to citizens were referred to while
compiling data for the case study
Case Studies on e-Governance in India – 2013 - 2014 Page | 33
9. References
1. GR No. DIT/2012/C.R.152/39 dated 23rd May 2012 (Harmonization of Rates for
Online Government Services):
https://www.maharashtra.gov.in/Site/Upload/Government%20Resolutions/English/
20120523173645545001.pdf
2. GR No. 1/2012/C.R.18/E-1 dated 31st March 2012 (Standardization and Regulation of
Formats given by the Revenue Department):
https://www.maharashtra.gov.in/Site/Upload/Government%20Resolutions/English/
20120417113808480001.pdf
3. Letter No. DIT 2011/CR/257/39 dated 03rd Jan 2013 regarding delivery of G2C
services through Mahaonline portal
4. Letter No. 2012/C.R. 368/39 dated 25th Oct 2012 regarding launch of 16 G2C services
from Mahaonline portal
5. Caste certificate Rajpatra dated 03rd Sep 2012, published by Social Justice
department
6. Master Services Agreement and Request for Proposals for SCAs
7. National eGovernance Policy (NeGP): http://deity.gov.in/content/national-e-
governance-plan
8. E-Governance Policy of Maharashtra
https://www.maharashtra.gov.in/PDF/e_governance_policy.pdf
9. Accountability Framework for eGovernance Initiatives, Subhash Bhatnagar, Honorary
Professor, IIM-AImpact Assessment of e-Governance Projects,
http://www.iimahd.ernet.in/egov/documents/impact-assessment-of-egovernance-
projects.pdf
10. Microsoft Office Help: http://office.microsoft.com
Case Studies on e-Governance in India – 2013 - 2014 Page | 34
10. Authors
1. Shri Rajesh Aggarwal (IAS), Principal Secretary IT, Government of Maharashtra
Mr. Rajesh Aggarwal, an IAS officer of the 1989 batch, is presently Principal Secretary
IT and Accounts and Treasuries with Govt. of Maharashtra. A B.Tech. in Computer
Science from IIT Delhi (1983-87), he has been a technology enthusiast focusing on a
wide array of aspects including Natural Language Understanding, Algorithms,
Artificial Intelligence, Fuzzy matching and de-duplication of databases, GIS, Analytics
and has the experience of working with very large citizen databases.
As Secretary to Government of Maharashtra over the last few years, he has been
instrumental in successfully leading multiple large initiatives like implementation of
UID and Financial Inclusion, Direct Benefit Transfer, e-Office implementation, e-
Tendering, implementation of State e-Governance Policy, focus on Accessibility and
localization, Training and Capacity building in e-Governance, delivery of e-Services to
citizens, implementation of Common Service Centers to ensure citizen services are
available at the doorsteps of citizens and implementation of Govt. cloud. Under his
leadership, the State Government has been rated as a leader in National e-Readiness
Surveys of Govt. of India and has received more than 60 national and international
awards for e-Governance in the last 2 years, including the prestigious National
Award for Innovation in UID being conferred on him by the Hon. Prime Minister in
2012.
He is also a prolific writer and has written numerous articles and papers on e-
Governance, including the much acclaimed paper titled ‘e-Gov 0.0 – the
fundamentals of e-Governance’.
2. Shri Virendra Singh (IAS), Director IT, Government of Maharashtra
Mr. Virendra Singh, an IAS officer of the 2006 batch, is presently Director IT with
Govt. of Maharashtra. With over 15 years of experience of working with various
Government organizations, he has been instrumental in implementation various
large e-Governance initiatives including e-Office. Earlier, as District Collector
Sindhudurg and CEO Zilla Parishad in Solapur, he had successfully implemented
various e-Governance initiatives including e-Drug Inventory for an entire district,
which is now getting replicated across the State. He has won multiple awards at
national forums for the work done in implementing e-Office, wherein Sindhudurg
became the first district in the country to become paperless.
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3. Nikhil Pande, Principal Consultant, State eGovernance Mission Team (SeMT)
Mr. Nikhil Pande is a Principal Consultant with more than 6 years of experience in
working in IT and e-Governance. Presently he is working with
PricewaterhouseCoopers and is associated with Govt. of Maharashtra for an e-
Governance assignment.
11. Project Case Fact Sheet
Centers Covered
# Division District No of centers
(District wise)
No of centers
(Division Wise)
1 Konkan Sindhudurg 9 53
Thane 9
Mumbai Suburban 10
Mumbai City 9
Raigad 9
Ratnagiri 7
2 Pune Pune 9 47
Kolhapur 9
Sangli 11
Solapur 10
Satara 8
3 Nashik Nashik 9 45
Dhule 8
Nandurbar 11
Jalgaon 9
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# Division District No of centers
(District wise)
No of centers
(Division Wise)
Ahmednagar 8
4 Aurangabad Aurangabad 10 67
Latur 9
Nanded 9
Beed 9
Parbhani 8
Jalna 7
Hingoli 9
Osmanabad 6
5 Nagpur Nagpur 9 54
Wardha 9
Bhandara 10
Gondia 9
Gadchiroli 6
Chandrapur 11
6 Amravati Amravati 13 52
Yavatmal 11
Washim 10
Akola 9
Buldhana 9
Total 318 318
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Random Number Generation Model
In order to avoid bias in selection of samples for the survey, a random number generator
formula was used to select 300+ centers
=INDEX(<Range of CSC Ids>,RANDBETWEEN(1,COUNTA(<Range of CSC Ids>)),1).
Example
# CSC Id
1 MH011700101
2 MH011700102
3 MH011700103
COUNTA (<Range of CSC Ids>) will return 3
RANDBETWEEN (1, COUNTA(<Range of CSC Ids>)) will return an integer number between 1
and 3
INDEX(<CSC Id>,RANDBETWEEN(1,COUNTA(<CSC Id>)),1) will return the CSC id selected
randomly
Details of excel functions can be found in the following links:
INDEX: http://office.microsoft.com/en-in/excel-help/index-function-
HP010069831.aspx
RANBETWEEN: http://office.microsoft.com/en-in/excel-help/randbetween-
HP005209230.aspx
COUNTA: http://office.microsoft.com/en-in/excel-help/counta-function-
HP010062493.aspx
Case Studies on e-Governance in India – 2013 - 2014 Page | 38
Distribution of Population across the state of Maharashtra (as per Census 2011)
# Division District Total Population-MH
1
Konkan
Mumbai City 17,11,650
Mumbai Suburban 50,25,165
Thane 58,79,387
Raigad 13,48,089
Ratnagiri 7,59,703
Sindhudurg 4,16,695
2
Nashik
Nashik 31,64,261
Dhule 10,55,669
Nandurbar 8,34,866
Jalgaon 21,97,835
Ahmednagar 23,48,802
3
Pune
Pune 49,36,362
Satara 15,12,524
Sangli 14,35,972
Solapur 22,33,778
Kolhapur 19,83,274
4
Aurangabad
Aurangabad 19,28,156
Jalna 10,15,116
Parbhani 9,46,185
Hingoli 6,09,386
Beed 13,52,468
Case Studies on e-Governance in India – 2013 - 2014 Page | 39
# Division District Total Population-MH
Nanded 17,32,567
Osmanabad 8,64,674
Latur 12,76,262
5
Amravati
Amravati 14,82,845
Buldhana 13,42,152
Akola 9,36,226
Washim 6,21,228
Yavatmal 14,25,593
6
Nagpur
Nagpur 23,88,558
Wardha 6,65,925
Gondia 6,62,524
Bhandara 6,04,371
Chandrapur 11,20,316
Gadchiroli 5,42,813
TOTAL 5,83,61,397
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26%
42%
15%
9% 7%
1%
Total G2C Transactions (Apr, May, June) ‘13
Amravati
Aurangabad
Nashik
Konkan
Pune
Nagpur
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20%
50%
7%
6%
5%
12%
Total B2C Transactions (Apr, May, June '13)
Amravati
Aurangabad
Nashik
Konkan
Pune
Nagpur
Case Studies on e-Governance in India – 2013 - 2014 Page | 43
-
500
1,000
1,500
2,000
2,500
3,000
3,500
CMS Basix Spanco Reliance
VLE Transactions (Apr, May, June '13)
>500
301-500
101-300
1-100
0
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