dpr_ bihar

Ministry of Panchayati Raj

ePRI Study Project - Phase IV

Detailed Project Report

for

Panchayati Raj Institutions

in

State of Bihar

By

National Informatics Centre Services Inc.

March, 2010

ePRI Study Project (Phase IV) Detailed Project Report - Bihar

National Informatics Centre Services Inc. of 164

Confidentiality Statement

This report is intended solely for the information and use of the Ministry of Panchayati Raj, Government of India, State Panchayati Raj Department, Government of Bihar, National Informatics Centre and should not be used, circulated, quoted or otherwise referred to for any other purpose by any institution or individual other than the Ministry, State PR department and National Informatics Centre, nor included or referred to in whole or in part in any document without the prior consent of National Informatics Centre Services Inc. or the Ministry.



Acknowledgment The ePRI Mission Mode Project holds great promise for the rural masses as it aims at streamlining the delivery of government services to them through Panchayats. This is a one of its kind nation-wide IT initiative initiated by Ministry of Panchayati Raj, Government of India (GoI). Being a part of this endeavor to computerize the Panchayati Raj Institutions has been an enriching experience for the entire e-PRI team. On Behalf of National Informatics Centre Services Inc. (NICSI), we would like to express our gratitude towards all the officials of Central Line Ministries, all the State Government officials, all the State Panchayati Raj departments, all the officials and stakeholders at various PRIs, for their kind support and guidance during the course of study. We would like to extend special thanks to Shri. A.N.P. Sinha, Secretary, MoPR for his continued support and thought leadership in defining the vision and objectives for this study. Also, we are thankful to Shri. D.K. Jain, Joint Secretary, MoPR, for providing continuous guidance and support in formulating the contours of the project and intervening at crucial times to iron out issues faced by us during the process of interactions with various government officials. Our sincere thanks are due to Dr. B.K. Gairola, Director General, NIC for providing opportunity to participate in this unique initiative with potentially far reaching impact, for sharing his vision and insights on empowerment of Panchayati Raj Institutions through computerization and also for providing his valuable guidance and directions to the team for effectively executing the project. Our special thanks to Mr. D.C. Misra, Senior Technical Director, NIC and Ms. Rama Hariharan, Technical Director, NIC in setting overall guidelines and roadmap for project execution, in thrashing out critical issues faced by the field teams, in ensuring support from NIC state and District officials and in proactively addressing the issues to ensure timely execution at each step of the project. The availability of right infrastructure is one of the critical elements in smooth execution of a project and we would like to extend our thanks to Ms. Junu Kailay, MD, NICSI who ensured a smooth take off for the project. The constant guidance and coordination support extended by the State Informatics Officers of NIC state units and the various District Informatics Officers of NIC District units was a considerable enabler for us as it helped in completing the state and district level study and carrying out extensive interactions with senior officials in the state and districts within the stipulated time.



Last but not the least; we take this opportunity to thank all the members of the central team, consisting of Ms. Anjali Dhingra, Technical Director, NIC, Shri. Adesh Gupta, Senior Systems Analyst, NIC, Ms. Meghna Shrimali, Principal Consultant, Mr. Anand Dubey, Senior Consultant, Mr. Ashish Nasa, Senior Consultant, Ms. Barkha Shah, Senior Consultant and Ms. Seela Swain, Senior Consultant who have admirably rendered their responsibilities with team spirit through out the execution and management of this huge study project. The involvement and support of all these senior officials has enabled us to understand the expectations of the project clearly. This will go a long way in defining the overall success of the project.

ePRI Study Project Team - Bihar

Mr. Santosh Kumar, SIO Mr. Ashok Kumar, Principal System Analyst

Mr. Ram Bhagwan Singh DIO, East Champaran Mr. S.N. Behra DIO, Gaya

Mr. Tarun Kumar Sinha, Sr. System Analyst NIC, Gaya Mr. Sameer Sharma, Principal Consultant

Mr. Amit Shukla, Principal Consultant Mr. Rahul Singh, Senior Consultant

Mr. Robin Mathew, Senior Consultant Mr. Atul Mohan, Junior Consultant

Mr. Harshwardhan Jaju, Junior Consultant



Table of Contents

SECTION A.......................................................................................................................................................................... 8 1 EXECUTIVE SUMMARY........................................................................................................................................ 8 2 PROJECT BACKGROUND................................................................................................................................... 11 3 APPROACH AND METHODOLOGY................................................................................................................. 22 SECTION B ........................................................................................................................................................................ 25 4 ASSUMPTIONS / PRE REQUISITES.................................................................................................................. 25 5 REQUIREMENTS FOR EPRI APPLICATION DEVELOPMENT ................................................................ 28 6 REQUIREMENTS FOR ICT AND CONNECTIVITY TECHNOLOGY SOLUTION ................................. 72 7 CIVIL INFRASTRUCTURE REQUIREMENT.................................................................................................. 81 8 CAPACITY BUILDING ......................................................................................................................................... 82 9 CHANGE MANAGEMENT................................................................................................................................. 106 SECTION C...................................................................................................................................................................... 113 10 IMPLEMENTATION STRATEGY .................................................................................................................... 113 11 PROJECT MANAGEMENT STRUCTURE...................................................................................................... 123 12 FINANCIAL SOLUTION..................................................................................................................................... 138 SECTION E ...................................................................................................................................................................... 143 13 RECOMMENDATION AND CONCLUSION................................................................................................... 143 14 WAY FORWARD .................................................................................................................................................. 148 SECTION F ...................................................................................................................................................................... 149 I. ANNEXURE ........................................................................................................................................................... 149 II. ANNEXURE ........................................................................................................................................................... 157



List of Tables

Table 5.1 Various Users with purpose of using ePRI system ..................................................37 Table 5.2 Access Channels for G2C component .......................................................................38 Table 5.3: Service Delivery Channels for G2G Services ..........................................................40 Table 5.4: Interaction of External Interfaces with ePRI Application ........................................55 Table 5.5 Functionality of G2C Application Layer Modules......................................................59 Table 5.6: Functionality of G2G Application Layer Modules ....................................................62 Table 5.7: Functionality of Service Component Layer Modules ..............................................65 Table 5.8: Functionality of Support Functions Application Layer Modules ............................68 Table 5.9: Functionality of Core Technology Layer Modules ...................................................70 Table 6.1: Administrative Units .....................................................................................................72 Table 6.2: BoM for ICT specification ............................................................................................79 Table 8.1: Stakeholder analysis and benefit realisation............................................................84 Table 8.2 Manpower gap at three tiers of PRIs ..........................................................................88 Table 8.3: Training Needs Analysis (a)........................................................................................93 Table 8.4: Training Needs Analysis (b)........................................................................................96 Table 8.5: Training details..............................................................................................................98 Table 9.1: Stakeholder Mapping .................................................................................................107 Table 9.2: Macro level awareness and communication plan for various stages of implementation ..............................................................................................................................109 Table 9.3: Communication Plan for Citizens.............................................................................110 Table 9.4: Communication Plan for PRIs ..................................................................................111 Table 9.5: Communication Plan for Government Dept. / Offices ..........................................112 Table 10.1: Key Parameters and their impact ..........................................................................118 Table 10.2: Key activities - Phase Wise ....................................................................................118



List of Figures

Figure 5.1: Envisaged Scenario: G2G Service Delivery ...........................................................31 Figure 5.2: Logical Architecture of proposed system for PRIs.................................................37 Figure 5.3: Application Architecture .............................................................................................58 Figure 6.1: Deployment Architecture............................................................................................75 Figure 6.2: Network Architecture ..................................................................................................77 Figure 6.3: Security Architecture ..................................................................................................78 Figure 8.1: Approach for enhancing the capacities of PRIs .....................................................83 Figure 8.2: Capacity Building and Training Framework ............................................................87 Figure 9.1: Change Management Framework..........................................................................106 Figure 11.4 :SPMU Structure ......................................................................................................130



SECTION A

1 Executive Summary

The Ministry of Panchayati Raj (MoPR), as part of its mandated responsibility to strengthen the Panchayati Raj Institutions (PRIs) across the country, is keen to introduce e-Governance in all the PRIs of the country. The e-PRI Mission Mode project is a project of immense stature initiated by MoPR in association with National Informatics Centre (NIC). The needs of PRIs and citizens vary from state to state, due to variations in level of governance in PRIs and ICT readiness of states and PRIs. The e-PRI MMP was therefore, preceded by a comprehensive study to assess the current information and services needs of citizens, PRIs and other stakeholders (ISNA), identify the scope for re-engineering various functions and services carried out by PRIs, (BPR) culminating in the cost estimate for implementing the recommendations in a state wise Detailed Project Report (DPR). In Bihar, the study was conducted at state capital Patna, districts Gaya and East Champaran, blocks Bodhgaya and Har Sidhi and villages Mora Mardana and Harpur Rai. Intent of DPR - The DPR serves as the roadmap for operationalization of the e-PRI MMP in Bihar. It provides details of the estimated cost for implementing the MMP in Bihar which includes ICT infrastructure requirements, state-specific software applications, data digitization requirements, training & capacity building, project management cost etc. The implementation plan for a period of 3 years is also provided. The DPR also proposes the Project Management and Monitoring structure for supervising the implementation. Proposed Implementation Plan – Implementation of the ePRI project in the state of Bihar is proposed to be undertaken in a Service Procurement Model (SPM) whereby a Service Procurement Agency (SPA) would be selected through a competitive and transparent bidding process. The SPA would provide the required ICT Infrastructure as well as provide trained computer literate manpower. The SPA would be provided adequate monthly service charges, as defined through the bidding process, to carry out the desired tasks. The implementation would be spread over a period of 3 years and would comprise of the following phases: • RFP Phase – In this phase the RFP template provided by the MoPR will be customised to

reflect the State-specific requirements. The outcome of this phase would be the selection of the Service Agency (SA).

• Deployment Phase – This phase would comprise installation and commissioning of the hardware at all the PRIs as well as augmentation of ICT infrastructure at the State Data Centre or the NIC Data Centre for hosting the State-specific software applications, which will be developed at State level. Certain core common software applications have also been identified, which would be developed centrally by NIC and customised for each



State. Trainings will be provided on the usage of these software applications and one trained computer literate Panchayat Level Operator (PLO) will be provisioned at each PRI for backlog data entry and provision of services, both G2C and G2G, on an ongoing basis.

• Operations and Maintenance Phase – The manpower provisioned for data entry would continue providing operational support for a period of three years, during which the Panchayat officials / members are expected to enhance their skill sets and become sufficiently able to use computers including the various software applications.

To implement this project across the State in time-bound and effective manner the following 3-tier project management structure is proposed: 1. Central Level Body – Headed by Secretary, MoPR 2. State Level Body – Headed by Principal Secretary, PR Department, Bihar 3. District Level Body – Headed by CEO, ZP of the respective districts The State level body would also be supported by a Project Management Unit (PMU) for monitoring the implementation and operations of the project. Additionally, to ensure robust monitoring a Block Support Group (BSG), comprising of one resource at each block, is also envisaged. These resources would monitor the project activities at all PRIs in their assigned blocks and provide inputs to the PMU for monitoring. BIHAR -state cost estimates - The total ePRI project cost for the State of Bihar is estimated at Rs 381.47 cr., which includes costs for ICT (Rs 319.83 cr. approximately), Training (Rs 21.38 cr. approximately), IEC (Rs 1.84 cr. approximately), Project Management Unit (Rs 12.10 cr approximately) at the state level and Block Support Group (Rs.26.31 cr.) at block level. The ICT cost estimates include:

a) Costs for provision of ICT infrastructure to the PRIs at the State/ZP/Panchayat Samiti/GP level as well as to the data centre and the Project Management Units.

b) Cost of Application development- This includes cost of development of modules at the State and customization cost of modules developed at the Centre.

c) Cost for trained manpower to be deployed at all GP, Panchayat Samiti and ZP (Rs. 112.20 cr. Approximately)

Considering the above costs, the average monthly service charges for a ZP would be INR 24,000, PS would be INR 12,000 and for a GP INR 9,400 approximately. However, the actual payouts would be considerably reduced owing to the local market dynamics realized through the competitive bidding process. The suggested implementation strategy and estimated costs provided in this report have been calculated on certain underlying assumptions, both, common across the states and specific to the state of BIHAR. Some major common assumptions include:



• Using NICSI empanelment rates for costing • The implementation will start within one year of the release of this report • The civil infrastructure requirements of the PRIs, if any, will be funded by other sources

such as NREGS, BRGF, RGSY, Finance commission grants etc. • Provision for training to be made with respect to the ePRI application only Pre-requisites and assumptions specific to Bihar include: • State Service Agency will procure and install the required ICT infrastructure at the state

under the supervision of Bihar state Government. • CSCs will be available at Gram Panchayat (GP) at the time of implementation of ePRI

project. • SWAN is available at District and block level and the Zila Parishad and Panchayat Samiti

will be connected through SWAN. Internet connectivity to GP can be provided through BSNL broadband.

Subsequent to the presentation and approval of this document, the cost estimates in the State DPRs will be finalized. All the state DPRs would then be consolidated into a National DPR at the central level.



2 Project Background Panchayati Raj Institutions (PRIs) in India are an indigenous concept of local self governance which promotes decentralized governance by participation of the ordinary public in their own governance. This process of democratic decentralization was set in motion with the Constitution (Seventy Third Amendment) Act passed by the Indian Parliament in 1992, which enabled decentralized governance through PRIs in rural areas. PRIs function at the village, intermediate (block) and district level. There are approximately 2,34,030 Gram Panchayats at the village level, 6,053 Janpad Panchayats at the block level and 535 Zila Panchayats at the district level. There are more than 31 lakh elected representatives at all three tiers. PRIs offer India’s rural villagers an opportunity to participate in village planning processes, to engage with the various developmental schemes being implemented by the Government and to interact with their elected representatives directly to ensure that their interests are being effectively served and their money properly spent. While local governance through PRIs is an excellent concept but has so far remained in theory, reality has been less positive, as many PRIs have been criticized for poor representation, failure to implement the participatory decisions of their constituencies and mismanagement of funds. In this context, citizen participation in panchayat institutions is more meaningful when people have the information to make informed choices and to participate in decision-making processes based on facts, not rumours and half-truths. The PRIs are also saddled with the problems of inadequate capacity vis-à-vis physical and financial resources, technical capabilities and extremely limited computerization. This has limited the usefulness of PRIs as the preferred delivery channel for the schemes of State and Centre as well as for citizen services. Computerization and IT enablement of government functioning has received a high impetus with the implementation of the National eGovernance Programme of Government of India and various states have realized the importance of eGovernance. This has led to a concerted thrust towards computerizing the functioning of the state line departments in most of the states. The result of this is cognizable and has brought in its wake significant efficiencies in the departmental functioning. While some computerization efforts for PRIs have been made by NIC over the years; unfortunately, the eGovernance revolution sweeping the country has not touched the PRIs yet



in significant measure. The Ministry of Panchayati Raj, Government of India has realized this and decided to take up the computerization of PRIs on a mission mode basis. The Ministry of Panchayati Raj is mandated to ensure effective local self governance in rural areas and is therefore committed to strengthening the PRIs. To achieve this MoPR in association with NICSI has conceptualized a nation-wide study to take stock of the needs and expectations of various stakeholders from PRIs and also the needs and expectations of PRIs from various stakeholders. This study is expected to result in drafting the requirements of computerization for PRIs across the country and is being undertaken across 27 states within duration of 23 weeks. This initiative poses unique challenges, as the coverage of the programme is in itself unprecedented not only in India but perhaps globally too. The geographic and demographic coverage of the programme, therefore, makes it a challenging initiative to rollout. In addition, the level of devolution of powers to PRIs across the country varies depending upon the provisions of the State Panchayati Raj Act and the spirit with which the devolution has been undertaken in a particular State/UT. This implies that the services that could be delivered to the citizens by Village Panchayats in one State/UT could differ from another. Consequently, design of the process re-engineering, computerization and capacity building programme would face significant challenges. This also leads to related challenges around stakeholders’ involvement in the programme. This project entails carrying out the following three activities: 1. Identification of Information and Services Needs of Stakeholders 2. Process Re-engineering and 3. Preparation of Detailed Project Report for the MMP The project execution primarily was carried out across the following five tiers: 1. Central Line Ministries level 2. State level 3. Zila Panchayat level 4. Block Panchayat level 5. Village Panchayat level

2.1 Introduction State of Bihar in the Union of India is the located in the eastern part of the country. In terms of geographical size, it is at number 12. It is an entirely land–locked state and lies between the State of West Bengal in the east and the Uttar Pradesh in the west. It is bounded by Nepal in the north and by Jharkhand in the south.



Bihar requires a legal framework for devolution of power to PRIs. As per the Bihar Panchayati Raj Act 2006 all 29 subjects specified in the 73rd amendment of constitution of India have been devolved. The state PR department has been asked to release the guidelines detailing out the roles and responsibilities of all three tiers of PRIs. Twenty one line departments have been issued government orders for devolution of funds, functions and functionaries to PRIs. But the implementation has not taken place as per the government orders. PRIs with meagre knowledge skills and resources do not have enough capability to implement these schemes. Bihar Panchayati Raj Act, 2006 recommends constitution of District Planning Committee, 7 standing committees at Zila Parishad and Panchayat Samiti level and 6 standing committees at Gram Panchayat level. These committees are neither having regular meetings nor are discharging their functions and duties. District level committees with functionaries from line department have been formed for managing funds for schemes of their respective departments and are performing all major functions for managing the scheme. Representatives from PRIs are in support role in these committees. Members of PRIs are not aware of their responsibilities and lack resources and skill sets for discharging their duties. The secretaries of committees are not actively involved in conducting regular meetings. Gram Sabha and Gram Panchayat meetings are not held regularly in the visited districts. However, Anganwadi and Vidyalaya Samiti are functional at Gram Panchayat and have appointed ward member as member of these committees. Panchayati Raj Department, Bihar has limited role in execution of the CSS implemented by PRIs. State Panchayati Raj Department, established in year 2007, does not receive any report from districts except for BRGF and 12th finance commission grant. Departmental officers at districts play a pivotal role in implementation of their department’s scheme and they report only to their respective department heads. State Panchayati Raj Department does not have the actual status of devolution of fund, functions and functionaries under various schemes due the negligible part it plays in implementation of these schemes. PRIs lack required skill set and resources to manage large scale programs of central government cutting across all the 29 subjects. The envisaged role of PRIs requires capacity building of the Panchayats with respect to domain understanding; skills like planning, accounting and engineering and IT and non IT infrastructure. The efforts made by districts for improving the involvement of PRIs in these schemes have significant scope of improvement. PR governance is a strategic area for development to improve the functioning of PRIs in Bihar. PRIs lack basic infrastructure and resources for exercising their legal powers. The PRIs have limited role in implementation and monitoring of schemes and have negligible role in planning and accounting. Factors responsible for limited autonomy have been analyzed using root cause analysis in this report. Autonomy in governance of PRIs is basically dependent upon the



legal framework available for functioning of PRIs, skill set and Infrastructure at PRIs. These three factors have been further drilled down to secondary factors for identifying the basic needs of PRIs and their current status of functioning in this report. Gram Panchayat is involved in planning, monitoring, fund flow, accounting and implementation of NREGS, BRGF, SSA and 12th finance commission. Under these three schemes an annual action plan is prepared by the Gram Panchayat, which is forwarded to the Panchayat Samiti and finally to Zila Parishad. This plan is discussed in the District Planning Committee’s meeting. The involvement of PRIs in all other schemes is very limited. Panchayat Samiti does not have financial powers. Awareness of rules and responsibilities of PRIs, Citizen centric services and schemes is very limited in elected members of Panchayat Samiti. The Samiti members have not even heard of some of the centrally sponsored schemes. The members of Panchayat Samiti are not aware of role they can play in implementing the centrally sponsored schemes in their block. The elected PRI representatives and political leaders are unsatisfied with the quality of plan and policy implementation across various sections of the Government and particularly relating to the rural people. They feel that the actual benefits and advantages of various plans and policies are not getting across to the common citizens due to various lacuna, complexity and shortcomings in the process of implementation. The most important shortcoming is that the elected representatives are not trained enough to understand their roles and responsibilities. The elected members have limited information regarding all the centrally and state sponsored schemes and their benefits to the citizens. Expectations of rural citizen are availability of government services at their doorstep in a convenient manner at a low or minimal cost. Proper and reliable information about market price of agricultural produce, job opportunities and various welfare services is highly essential to them. To avail the services offered by government rural citizen face several difficulties such as where to go, whom to approach, whether the right person is available, whether he can take any body’s help are various questions raised in his mind. Consultation with various groups of citizens revealed that citizens are normally paying a lot more than what actually they are supposed to pay both directly and indirectly.

The Government of Bihar has taken several e-Governance initiatives within and outside NeGP. Such as: • Out of 8463 Gram Panchayats, CSCs are operational in more than 4000 Gram Panchayats • Ninety percent of CSCs are to be commissioned by end of year 2009 • BSWAN has been commissioned till district and block level



• No connectivity at the moment through BSWAN to any of the three tiers of Panchayati Raj Institution.

• Biharonline.gov.in portal framework to be used for citizen service delivery Twenty G2C service were identified at state, district and gram Panchayat level. The basic thought process behind selection of these services was providing employment, home, education, health and social security to rural citizens. Following 15 services were selected for re-engineering from the existing set of basket:

• Birth certificate • Death certificate • Registration and issuance of job card under NREGS & demand for work under NREGS • Pension related services under IGNOAPS • Student scholarship for SC/ST and OBC • Social justice (Widow & Handicap) pension • Information on schemes, health and immunization camps and wait list of IAY • Information on Panchayat meetings and availability of previous proceedings • Availability of forms for all schemes • Application for inclusion in BPL list • Information & distribution of ration coupons • Kabir Anthishti Yojana • Grievance • Right to Information (RTI) Service • Marriage certificate In addition to the above 15 existing service, 5 new services have also been identified for re-engineering based on stakeholder discussions. The list of new services is as below:

• Collection of land dues • Issuance of Land Possession Certificate (LPC) • Issue of caste, income and residence certificate • Application for EPIC • Issuance of copy of Land Record

2.2 Vision and Objective

a. Vision of ePRI Project for To – Be Scenario

“Empower the Panchayati Raj Institutions through massive Capacity Building and ICT Enabled Automation”



b. Objectives

The objectives and sub objectives of the project are as mentioned below:

i. Improve autonomy of PRIs • Facilitate effective monitoring of compliance of PRI Act • Reduce dependency on district administration for skills and resources • Improve participation of PRIs in Scheme Management & Service Delivery • Improve functioning of Gram Sabha, PRI’s meetings and PRI’s standing

committees ii. Improve transparency & accountability of PRIs

• Easy availability & tracking of PRI’s meeting details such as proceedings • Improve availability of scheme details and eligibility criteria of beneficiaries • Improve availability of beneficiary list • Improve Grievance Redressal and RTI application processing

iii. Improve service delivery to Citizen (G2C) • Reduce time, cost and energy required for getting services • Improve trust of citizen on PRI system for service delivery

iv. Improve service delivery to Government entities including PRIs (G2G) • Improve availability of physical & financial progress of schemes & plans • Improve availability of reports on functioning of PRIs

v. Improve convenience to Government employees Improve availability of accounting, planning and engineering resource Simplification of internal process by providing the framework, required data &

formats for planning & accounting Ease in monitoring with the help of MIS reports

2.3 Summary of findings from ISNA Phase • ICT

Out of 8463 GP, CSCs are operational at more than 4000 GPs

Non availability of electricity, connectivity, absence of any G2C service and lack of sustainable revenue model is hampering CSC implementation

BSWAN has been commissioned covering district and block level. However, there is currently no connectivity under BSWAN to any tier of Panchayati Raj

• Panchayat Functions

The PRIs have limited role in implementation and monitoring of schemes and negligible role in planning and accounting. PRIs is involved completely only in NREGS, BRGF, SSA and 12th finance commission.



• Capacity PRIs lack required skill-set and resources to manage large scale programs of central

Government.

PRIs lack basic infrastructure and resources for exercising their legal powers.

Limited awareness of elected members in PS about their roles and responsibilities, responsibilities of PRIs, services to be provided to citizens and schemes.

• Others PR Department has limited role in execution of the CSS implemented by PRIs and

does not get any reports from districts except BRGF and 12th Finance commission.

Departmental officers at districts are pivotal for implementation of their department’s scheme and they report to their respective department only.

Twenty one line departments have issued GOs for devolution of funds, functions and functionaries to PRIs. However, the implementation has not been found as per the GOs.

District Planning Committee, 7 standing committees at Zila Parishad and Panchayat Samiti level and 6 standing committees at GP level have been constituted but are not functioning in the visited districts.

Panchayat Samiti does not have financial powers.

Expectations of rural citizen are availability of Government services at their doorstep in a convenient manner at minimal cost

2.4 Summary of Key BPR recommendations

• Line ministries of GoI should make Department of Panchayati Raj the focal point for scheme implementation by sending scheme guidelines to them with copy to respective state government departments. PRD should call for joint meeting with concerned department(s) for doing the activity mapping for implementing the scheme including the role of respective line department’s district level officials. The PRD should forward these directions to Executive Officers of the PRIs in the state for implementing the scheme through PRIs and to respective district level officer for assisting the PRIs in implementation of the scheme by providing domain expertise.

• Automation of PRI meetings process for monitoring of PRI functioning - Preparation of annual meeting calendar of PRIs. Submission of details of PRI meetings and standing committee meetings including agenda, participants and proceeding on Panchayat State portal

• Linking of District Magistrate performance with PRI functioning



• Monthly review of districts by state PRD Secretary

• Implementation and monitoring of schemes by standing committee

• PRIs should use standard accounting application like PRIA soft for accounting

• Process map / description of the service may be printed on the back of application form

• Pool of resources at Block/District office and outsourcing of the resources

• Independent and dedicated Chief Executive Officer, Executive Officer and Panchayat Secretary to Zila Parishad, Panchayat Samiti and GP respectively. A Panchayat secretary to each Panchayat

• Provide skilled resources (Planner & Accountant) on contractual basis

• Skill up gradation of Panchayat Secretary

• Office with basic facilities for PRIs

• Development of regular office culture in PRIs offices

• G2C service delivery related key recommendations are as follows

• Removal of dependency on Gram Sabha for IGNOAPS

• Birth/Death registration by ANM and availability of certificate on demand

• Use of standing committees for planning and implementation of SC/ST scholarship, SSA, NRHM, Anganwadi etc.

• Fund flow process to be automated

• Availability of forms of all the services at GP level

• Status update of the application on mobile and web

• Activity level service level and escalation matrix for compliance

• Use of local knowledge of Panchayat for service delivery of new services

• Use digital signature for authentication and delivery of digitally signed document to citizen

• Specific recommendations for implementing G2C services are as under:

• Application for birth registration after three months of the date of birth should be processed as per the As-Is process. All other applications for birth registration within three months would follow the new To-Be process. If the birth is already registered there is no need for the applicant to seek approval and birth certificate can be directly obtained.

• Automate the Grievance Redressal using software to avoid ad-hoc grievance redressal.



• BDO should use Panchayat State portal to map the distribution of the ration coupons with the APL and BPL families in the block. The order of distribution of ration coupons should be made public to avoid discrepancies.

• The supporting documents may be collected once and stored with the GP. The GP can assign a validity date for each document. Until the expiry of the validity period the document should not be demanded from the citizen again.

• All payments to be made at GP or CSC. This will ensure a high degree of transparency.

2.5 Key improvement areas (Beyond ePRI) The schemes and services are delivered by the respective line departments in the State of Bihar. Many of these departments have their own personnel operating centres at the Village level. There is scope for improved coordination between these personnel of different departments. For instance, the Anganwadi registers would serve as a good source for validating the personal information of a citizen and can be uses to validate applications for land records, EPIC, etc. These Anganwadi registers can be computerized in a database and different line department officials can view it according to their needs.

2.6 Benefits from Proposed Solution With an exponential growth in available IT solutions, technology has become a tool for growth and development. ICT as a tool for empowerment of the PRIs has been envisioned to help improve human capability, integrate marginalized sections of the society and modernize provision of services. The proposed solution will have benefits the citizens, departments and the employees alike.

The citizen shall benefit with good governance. These expectations shall be managed by delivering the following:

• Easy accessibility to services • Multiple options of service delivery • Easy availability and access to information on the working of PRIs with special

reference to The Right to Information Act • Any where any time service availability • Delivery of a truly citizen centric governance

It will also be possible to group diverse transactions and complete them at the same time, without navigating the underlying structure and complexity of the PRIs. Citizens will be able to ask for different services without knowing the intricacies of the departmental structure and their processes.



The PRIs will also benefit multifold, with the following major gains eliciting from the proposed solution in terms of improved process efficiency and effectiveness through:

• Increase revenues • Widen the spread of revenue streams • Reduce transaction processing cost • Image makeover • Improved record management

In addition, the computerized operations will result in enhanced transparency and accountability and thereby facilitate effective grievance redressal. Clearly defined KPIs will help the monitoring function. All of the above will help in improved service delivery to the citizens and thereby add to their satisfaction with the PRIs.

2.7 Social Cost Benefit Analysis The use of e-Governance in the government sector not only provides an alternative channel of communication and public service delivery, but more importantly, it can address the mobility of government itself and transcend the traditional e-government service delivery model by bringing personalized, localized and context aware services close to its defined focal citizens. These technologies can be described as ‘socially profound technologies’ because they bring the power and connectivity of computer networks into the gap between humans as they interact in physical space. These are tools that can help people organize and coordinate their interactions and exchange. E-Governance projects are one of the most promising ways to ensure integrated development of the rural areas. The appeal of this approach lies in a promise to satisfy the complex demands of an e- Governance project with a single coherent strategy involving PRIs, state stakeholders and communities at multiple scales and zones while addressing cross- department issues and interactions related to such citizen based information dissemination projects.

No adverse impact is visualized since this project aims to derive benefits to citizens by raising their quality of life. There are no directly tangible benefits attributable to this project; however, PRIs and various line departments shall reap benefits by implementing the integrated e-Governance project in the manner given below:

• Integrated, centralized unified database. • Seamless connectivity, both intra-organization and inter-organization. • Integrated software applications for all PRI departments. • Online information about the status of projects and its progress. (will facilitate

monitoring & planning function) • Closer interaction between departments. • Improved information sharing. • Improvement in transaction efficiency.



• Citizen involvement through a unified service delivery. • Multiple Service delivery through single-window concept. • Reduction in work duplication. • Instantaneous MIS report generation capabilities. • Integrated Business Intelligence dashboards for senior management team



3 Approach and Methodology 3.1 Overall Approach for ePRI Study Project A phased approach, dividing the project into four phases, each focusing on different aspects of the ePRI MMP initiative was undertaken. These included assessing requirements, recommending changes and improvements, and defining the rollout strategy and budget for the initiative.

Figure 3.1: Project Approach

Initiation and Planning phase (Phase I) Focused on setting the tone for execution of the project. The key outcomes of this phase were identification of stakeholders, finalization of the consultation mechanism with the stakeholders, and common templates for data gathering and deliverables. Information and Services Needs assessment phase (Phase II) involved interaction with the identified stakeholders. This phase resulted in forming an understanding of the information needs of stakeholders. The citizen centric services that are currently being delivered through PRIs and the services that are expected to be delivered through PRIs were also identified and studied. The Process Re-engineering phase (Phase III), entailed in-depth analysis of the identified services and the administrative framework associated with PRIs. This analysis led to the identification of key gaps in the current processes and the creation of a BPR framework. This framework was designed to be customizable for every state/UT to address state-specific requirements, while also taking into cognizance the similarities existing across the country. Eventually a To-Be scenario encompassing PRI internal automation, citizen service delivery and internal functions of Planning, Monitoring, Implementation and Accounting was defined.



The current phase, namely DPR preparation (Phase IV), is the eventual outcome of the study which defines the plan for implementation of ePRI MMP in each State/UT. The DPR primarily defines the ICT requirements across the three tiers of PRIs, the manpower and training requirements and the roll-out strategy along with the overall program governance and management structure. The budgetary requirements for this project have also been estimated. 3.2 DPR Approach In order to arrive at a budget and implementation plan for implementing the recommendations made in the BPR, the BPR recommendations were translated into requirements. For each requirement, the associated costs were determined. Subsequently, a program management structure at the central, state and district level was designed, to supervise and co-ordinate the rollout over 3 years. An implementation plan was also defined for implementing the recommendations over 3 years in different phases. The key recommendations made in the BPR phase involved the following aspects: • Improvements in internal functions of PRIs viz. Planning, Monitoring, Implementation and

Accounting • IT applications for supporting the above internal functions and services • Service delivery mechanism to be followed for the re-engineered processes • ICT infrastructure required to support the above recommendations • Manpower and skills required for implementing the above recommendations • Requisite legal changes needed to implement the Envisaged Scenario These recommendations were translated into requirements and budgetary estimates as illustrated in the following figure.

Figure 3.2: Approach and Methodology for DPR

Phase III – BPR

Civil Infrastructure Requirements

Envisaged (To-Be) ScenarioService Delivery

Internal Functions

BPR Framework

Phase IV – DPR

Logical Architecture

ePRIApplication

Access Channels

External Interfaces

Users

Application Architecture

Application Modules

Support Functions

Common Components

High Level FRS

Technology Solution

Deployment Architecture

Database Architecture

Security Architecture

Program Management

Governance Structure

Change Management

Implementation Strategy

Capacity Building

Project Cost


Phase III – BPR


Envisaged (To-Be) ScenarioService Delivery

Internal Functions

BPR Framework

Phase IV – DPR

Logical Architecture

ePRIApplication

Access Channels

External Interfaces

Users

Application Architecture

Application Modules

Support Functions

Common Components

High Level FRS

Technology Solution

Deployment ArchitectureDeployment Architecture





Program Management

Governance Structure

Change Management

Implementation Strategy

Capacity Building

Project Cost




The step-wise approach used for determining the requirements is detailed below: Step 1: Translate automation recommendations into function solution and technical solution.

The technical solution consists of applications to be developed, databases to be deployed and related content management aspects. The associated budgetary estimates were also computed.

Step 2: Translate computerization recommendations into ICT requirements – This includes

defining the requirements and budget for ICT hardware, networking infrastructure and infrastructure for deployment in data centre.

Step 3: Translate capacity gaps into manpower requirements and training requirements for

PRI functionaries and elected representatives and the associated budget. Step 4: Design plan for awareness and communication about ePRI MMP to PRI officials,

elected representatives and rural citizens Step 5: Define strategy for implementation of ePRI MMP in the States/UTs over 3 years. This

includes a phased implementation plan with specific timelines and deliverables for each phase.

This enabled defining the total state-wise outlay for implementation of ePRI MMP. The following sections of the report explore the various aspects mentioned above in greater detail.



SECTION B

4 Assumptions / Pre requisites The project has dependency on factors which are not part of the scope of ePRI project. These factors are critical for implementation of ePRI project and have the potential of defeating the complete proposed solution. Listed below are common assumptions applicable to all states covered under the ePRI project:

Common Assumptions

1. Manpower- Almost all the State studies have revealed a gap between the sanctioned and actual occupied posts. The State DPRs and the National DPR will not budget for the addressing this gap. The DPRs will only budget for sourcing contract manpower. This would include data entry operators, technical support personnel and other such contractual staff. For the contract manpower, 1 person per each for ZP, BP and GP has been budgeted for. 2. Training- Notwithstanding the above, the training budget would include trainings for both

categories, i.e.,: • Training for official staff - To be trained on process / functional areas, PR governance,

Scheme related training, ICT usage and behavioural skills. • Training for contract manpower / ICT staff - To be trained on ICT usage, and scheme

related software etc. • Elected Representatives - To be trained on process / functional areas, PR governance,

Scheme related training, ICT usage and behavioural skills. 3. Application preparation and management –

• Application preparation (From URS phase to maintenance phase) - will be done centrally for only the most common applications. The associated budget will be added to the National DPR.

• Application management (hosting) - Will be done centrally for common applications. For applications that are specific to a particular state or common across only 3-4 states, the hosting will be done at the state level. The associated budget will be added to the State DPRs. Therefore, assuming that almost all states will have such specific requirements, we will need to budget for hosting infrastructure at each state.

4. Civil Infrastructure - In view of the existing initiatives like RG Seva Kendra etc. which are already in the process of providing civil infrastructure to PRIs, the ePRI DPRs will not budget for civil infrastructure or office furniture in the GPs.



5. Budgeting- In order to budget for hardware, application preparation and management, sourcing manpower, and training, the central NICSI empanelment rates will be considered. These common rates will be used by all state teams to budget for the state requirements for hardware, applications, manpower and training. 6. Cost Components: • Application Development

All state-specific applications should include multi-lingual support. As per the guidelines under ePRI EFC Note, all applications developed under ePRI (whether central or state-specific) should be unicode enabled and should be developed in open source software.

If some applications have already been developed by the State, then ePRI state DPRs will also budget for integration with these existing applications.

• Hosting, Network and ICT

It is assumed that an operational data centre will exist in the State and hence this DPR will not budget for building a data centre.

Bihar govt. will permit the use of SWAN, CSCs, and SDC for e-PRI Project

For budgeting for server requirements, NICSI central empanelment rates will be used. Only if NICSI central empanelment rates are not available for a particular aspect, then the market rate can be used.

As we are assuming that there will already be a data centre in the State (SDC or NIC), this DPR does not budget for firewall, intrusion protection system etc., as they would already be installed in the data centre. Only the following aspects will be taken into consideration while costing: Servers, Storage space (SAN), Backup, Hosting charges (assume NIC charges)

Hosting of Databases - For common databases, the database design, development, and hosting will be done centrally by NIC. However, on completion, NIC will only act as the caretaker of the database and state will have complete ownership of the database. Accordingly, all charges related to common state-specific databases will not be added to state DPRs.

This DPR includes cost for security audit of applications

i. Mail Server – This DPR assumes NICemail. The cost for additional mail servers, if any, will be added centrally and not in the state-specific DPRs.



ii. This DPR budgets for computerizing all 3 levels of PRIs. However, this is also dependent on the specific inputs provided by the State PR Department.

7. Project Management- In the state level committees to be formed for ePRI implementation, there should be representation of line departments. The State committee can be headed by the Principal Secretary, PR and will comprise of a) representatives from PR dept., b) representatives from key line departments, c) NIC officials.

Further, for implementation of the proposed DPR for the State of Bihar following assumptions/ pre requisite will have to be given due consideration.

Assumptions:

• DPR is based on present status of devolution of power to PRIs

• The implementation of the project will start with in one year of release of DPR to MoPR/NICSI. Inflation of cost should be considered in case of delay in implementation.

• This DPR will not budget for addressing gap in sanctioned and occupied posts in the state, if any. It will only budget for sourcing contract manpower including data entry operators, technical support personnel and other such contractual staff as required.

• Project Costing has been done using NICSI’s prevailing empanelment rates.

• All trainings of PRIs as per existing schedule of GIRDA will continue to happen and will not be affected by or affect the ePRI implementation plan. This DPR will budget for all trainings to be done w.r.t. the ePRI implementation.

Pre-requisites:

• The e-District implementation will be complete and available for integration with the ePRI application for non-PRI workflows.

• The DISNIC project pilot implementation in both the districts of Bihar will be complete and the resultant databases will be available for integration with the ePRI application.

• State NIC Data Centre is available for hosting the ePRI Application.



5 Requirements for ePRI Application Development Based on the findings of the ISNA phase and keeping in view the recommendations proposed in the BPR

phase, presented here are the processes of application submission, application processing and

service delivery (for both G2G and G2C services) as they are envisaged to happen in the ICT-enabled

scenario. In addition, a logical framework consisting of users (citizens/ PRI officials at

village/block/district/state/centre) who will use the access channels and external interfaces to interact

with the ePRI Application and its modules have been discussed. The access will be facilitated by

connectivity provided through SWAN/BSNL till the BP level. To back-up and support the online delivery of

services through the application, a large information repository will need to be created and comprehensive

security methods adopted to protect the data and systems. Further the section provides details of the

modules that will form a part of the application architecture divided into five different layers based on

functionality: G2C (for Government-to-Citizen Service delivery), G2G (for Government-to-Government Service

delivery), Service Components (facilitate addition/modification of G2C/G2G modules), Support Components

(those that impact/are impacted by any G2C/G2G module) and Core Technology layers.

This section will have impact on the total project cost in terms Application Development and Manpower. The

total Application Development cost for the state is Rs. 0.55 crores approximately.

Summ

ary

5.1 Envisaged Scenario

In the proposed model, a Panchayat Office / dedicated service delivery kiosks will be established where citizen can apply for any government services. IT implementation would take place at the Panchayat Office where Panchayat Officials would be using a State Panchayat Portal to enter the details of the applicant for the service availed, which helps in maintaining the details of the applications for planning of various development activities. Gram Panchayat official would act as a Single window for the citizen to apply for and avail any of the citizen centric services. Panchayat officials will do the ground level verification for the services availed by the citizens and submit the verification report to the concerned departments. The figure 4.2 gives a broad idea of 3 aspects of G2C service delivery in the proposed model, namely, application submission, application processing and application delivery.

• Application Submission- The citizen can submit the application online and make the payment for the service by physically visiting the Panchayat office. It will be only after payment of the fees that the application processing will begin. Alternatively, the citizen may submit a filled form (along with the processing fees) to the Panchayat Clerk or the CSC operator, who will then be responsible for submitting the application in the system.

• Application Processing- The approvals for issue of various certificates as required will be automated and the various approving authorities ZP officials/ Block Development Officer/ GP officials will approve/reject the application through the Panchayat State portal. All external workflows (for approvals/NoCs required for various services from line



departments) will also be automated with the integration of the ePRI application with the e-district being implemented in the State.

• Application Delivery- The citizen will physically collect the output from the GP office or the CSC operator, as and when the application status is flagged as ‘Ready for delivery’ in the system.

Figure 5.1 – Envisaged Scenario: G2C Service Delivery

Following are the key steps to be followed in the overall process – Step 1

• Applicant desires a specific service which has been undertaken under e-PRI project • Applicant can obtain information/service request form for initiating a service request either

from PRI office, ePRI application through web interface, nearest CSC, etc. • Applicant makes service request either at the PRI office, nearest CSC or online by logging

on to the State Panchayat portal Step 2 • Applicant obtains service request form from selected front end, fills and submits service

request form along with the required supporting documents • Applicant makes payment for the service at the Panchayat office/ CSC (if any payment is

required) • If applicant want to make an online application, then he registers as an authentic user at e-

PRI application, opens the service specific module, selects required service and fills online the application form, attaches the required supporting documents as specified for the



service after scanning it, makes online payment (if required for the service) through payment gateway and receives a system generated acknowledgement number for reference.

Step 3 • Front end operator enters login ID & password and (bio-metrics if integrated with the e-PRI

application) to access the e-PRI application (after proper identification & authentication from user database).

• Operator enters the details from the service request form of the applicant in the software • Operator checks the completeness of the supporting documents submitted and enters the

specified details of the supporting document in the e-PRI application • Operator scans all the supporting documents and attaches it with the e-PRI application. • Operator takes a print out of the online service request form from e-PRI applicant and get it

verified and signed from the applicant • Operator collects the specified government fees (if any) and relevant service charges for

the service from the applicant. • Operator enters transaction password to successfully submit the service request and

generates a computerized receipt (2 copies) along with the unique acknowledgement number

• Operator forwards the verified and signed copy of the service request form along with relevant supporting documents and copy of receipt to the respective location/ department through courier / agreed mechanism.

Step 4 • Applicant receives one copy of receipt with unique acknowledgement number and date of

delivery of service for future reference. Step 5 • e-PRI application database registers the application and gives it a unique number through

this the application (front-end can be identified through which posting of service request has been done)

• e-PRI application routes the application to respective location / authority after the service request is successfully submitted based on the proposed TO-BE processes.

• e-PRI application maintains the time and date stamping and also generates the audit trails for the same (when required)

Step 6 • Process owner is notified and defined workflow in the TO-BE process is followed for

service request processing.



• Process actors would either perform the online verification (if required) through the digitized database and in absence of digitized records physical verification (if required) would be undertaken

Step 7 • Process owner approves / rejects (states reason) the application by digitally signing it and

submits it back to the e-PRI Application Step 8 • e-PRI application is updated and system triggered SMS is send to the applicant (if mobile

number is provided) Step 9 • Citizen visits the front-end on the specified date for delivery and requests for the document • Operator logs into the e-PRI application through the defined authentication mechanism and

retrieves the digitally signed document, prints it out and stamps it with his seal and close the service request.

• The final printed document will have a unique document ID, service delivery front end ID from where it is being printed and a website address printed on it so that anybody with internet access can verify the digitally signed contents.

Figure 5.1: Envisaged Scenario: G2G Service Delivery



The figure 5.2 is a representation of the envisaged G2G service delivery scenario. Developmental plans will be prepared at the GP level with inputs from the citizens and under the technical guidance of the Standing committees. These plans once approved by the Gram Sabha will put into the ePRI application for consolidation and approval at the block and the state level. The Office of BDO will be responsible for consolidation of the GP plans into a block plan and the ZP will be responsible for preparation of a district plan which will then be submitted to the state for consolidation into a State plan and sent for approval. The approval and subsequent fund allocation will be notified to the respective authorities through the ePRI application. The GP officials at the grass-root level will be responsible for entering progress updates data into the system which will be monitored by the Standing committees at the GP/Block/ZP level w.r.t the district development plan that was prepared. Following details out the step by step methodology in relation to Planning, Implementation, Monitoring and Accounting functions in the proposed scenario for PRIs

Planning

Step 1 • Citizen would report in their needs to Village PRI institution either to the Village Sarpanch or to

the Panchayat Secretary • The identified needs would be given to respective Standing Committee to come up with a need

addressing intervention • Gram Sabha would discuss, prioritize the intervention upon which the village panchayat would

finalize the Village Annual Plan Step 2 • The Village Annual Plan would be uploaded on the e-PRI application by the village panchayat

officials Step 3 • The village annual plans for all the villages under Block Panchayat would be received by the

concerned Office through the e-PRI application individually as well as an overall consolidation of the village panchayat plans would happen and overall plan would be generated by the e-PRI application.

• The Block Panchayat would discuss and finalize its own plan for develop the annual plan for itself. The plan is uploaded on the e-PRI application and consolidated with overall village panchayat plan to come up with Block Level Annual Plan.

Step 4 • The Block Level Annual plans for all the blocks under Zila Panchayat would be received by the

concerned Office through the e-PRI application individually as well as an overall consolidation of



the Block Panchayat plans would happen and overall plan would be generated by the e-PRI application.

• The Zila Panchayat would discuss and finalize its own plan for develop the annual plan for itself. The plan is uploaded on the e-PRI application and consolidated with overall block panchayat plan to come up with Zila Level Annual Plan.

Step 5 • The Zila Panchayat discusses and approves the overall plan for the district inclusive of block

level as well as village level plan. • The approval of all the line items under the plan – village, block as well as zila level is done on

the e-PRI application. Step 6 • The State PR department consolidates the district level for PRIs across the state through the e-

PRI application. • The State PR departments organize the overall state PRI plan line item wise and direct it to the

concerned line department of the State. This process would be manual process. Step 7 • The state line department reviews and approves the overall plan and direct the treasury for fund

allocation and release to the PRIs across the state specific against the concerned line items • The state line department also sends the information about PRI plan approval to state PR

department. Step 8 • The state PR department on receiving the approvals from the respective State line departments

updates the approval on the e-PRI application • The state PR department also for specific line items under PRIs plan which falls under its

purview, reviews and approves it. • The state PR department advises the treasury accordingly and updates the approval on the e-

PRI application. Implementation Step 1 • As soon as the Zila Panchayat receives the approval through the e-PRI application, it advises its

internal working committee to initiate the implementation process. • Also, the Zila Panchayat advises the Block Panchayat and Village Panchayat to initiate

implementation planning. Step 2



• PRIs at all level call the working committee meeting to initiate the implementation process. • For Zila Panchayat / Block Panchayat,

Working Committee develop the implementation plan and involve the Public work departments for undertaking the plan intervention

Public work department undertakes survey, complete technical feasibility, develop bills of material and other required documents

Working Committee approves the bill of material and other requirement for Public Work department to commence work

Public Work Department execute work as per the specification and monitor quality and other execution parameter and continuously report progress to Working Committee

Working Committee through appointed committee members regularly monitor progress

Public Work Departments completes work and report work completion to working committee which in turn finally evaluates and close the plan intervention.

Fund flow would be released to Public Work Department as per the Terms of Reference agreed between Working Committee and the Public Work Department.

• For Gram Panchayat Gram Panchayat calls a Gram Sabha and informs the villages on the approved plan. Gram Panchayat develop the implementation plan and involve the Block

Development Office for technical help and support Block Development Office supports all the Gram Panchayat through Public Works

Department who undertakes survey, complete technical feasibility, develop bills of material and other required documents

Gram Panchayat forms Working Committee for specific planned intervention and approves the bill of material and other requirement for it to commence work with help and support of Public Work department

Gram Panchayat ensures maximum participation of resident in the physical intervention and also ensures the labour work is provided to the resident.

Working Committee execute the plan intervention as per the specification and monitor quality and other execution parameter and continuously report progress to Gram Panchayat

Working Committee completes work and report work completion to Gram Panchayat which in turn finally evaluates and close the plan intervention.

Fund flow would be released as per the plan intervention requirement for purchases and payment against labour work done by the resident.

Monitoring

It is envisaged that continuous monitoring would be carried out the respective PRIs for all the work being undertaken at their respective levels. Further to this, the PRI institution would also monitor the work progress of PRI institution falling under it.



Step 1 • PRIs at all level would develop monitoring plan for plan intervention – it would define aspects of

monitoring viz. financial, physical, and quality, compliance, etc., frequency of monitoring, reporting structure, etc.

Step 2 • Designated officer would undertake physical visit to monitor progress of plan intervention Step 3 • Designated officer would undertake site visit, discuss with executing officials Step 4 • Designated officer would check record register, stock register, attendance register, etc. to

ensure updation and compliance Step 5 • Designated officer would conduct a debriefing session with executing officer and discuss the

observation and provide feedback for correctives / improvement Step 6 • Designated officer would produce the monitoring report and submit it on the e-PRI application

through authenticated login and password Step 7 • Concerned PRI office / working committee of PRI office would access the monitoring report from

the e-PRI application • Concerned PRI office / working committee of PRI office would access the e-PRI application and

view the report • Concerned PRI office / working committee of PRI office would review the report and take

corrective action Accounting Step 1 • All PRIs would maintain the standard books of accounts as prescribed under the law. These

mandatory records have to be maintained by all PRI institutions. Step 2 • All PRIs would maintain and update the books of account in real time i.e. all debit and credit

entries would be made on occurrence of the event.



Step 3 • The designated officer of PRI would access the accounting module of e-PRI application and

create the appropriate books of records – daily cash book, asset register, ledger, journals, etc. as per the requirement

Step 4 • The designated officer of PRI would access the accounting module of the e-PRI application and

post the accounting entries in specified books of accounts appropriately • The designated officer would confirm on the entries on the e-PRI application and file the

supporting documents appropriately Step 5 • All PRIs would undertake quarterly inspection / internal audit of the PRIs and generate a ‘Trail

Balance’ report • All PRIs would undertake quarterly inspection / internal audit through a qualified resource

present within the institution For Village PRIs, the Panchayat Secretary would support for internal audit of books

of accounts of the PRIs • The quarterly inspection / internal audit would be done with the records maintained on e-PRI

application • The internal audit report would be generated with the help of e-PRI application and supporting

documents would be checked in physical records accordingly. Step 6 • All PRIs would undertake an independent audit through office of Auditor’s General Office

representative / designated office by Auditor’s General Office for yearly audit • All PRIs would generate ‘Income Expense’ Statement and Balance Sheet as an output to the

annual external audit. • The annual inspection external audit would be done with the records maintained on e-PRI

application • The external audit report would be generated with the help of e-PRI application and supporting

documents would be checked in physical records accordingly. Step 7 • All PRIs would, in case of any discrepancies reported would undertake corrective and actions for

audit compliance.



5.2 Logical Architecture

E-enabled scenario has been formed on the basis of BPR framework for ePRI project explained under section 6. Users, access channels, modules of ePRI applications, key databases, external interfaces and security component for proposed solution have been detailed in this section. A high level E-enabled scenario with key components is as shown in figure below.

Figure 5.2: Logical Architecture of proposed system for PRIs

USERS

ACCESS CHANNELS

Authorisation

Authentication

Policy

SECURITYCOMPONENTS

EXTERNALINTERFACES

State Portal

Guidelines

Internet

CSC

BSWANWeb

Browser Central Line Ministries

State Line Departments

E-District

Treasury

Planning Commission

Citizen Gram Panchayat

District Administration

Block Panchayat

District Panchayat

Dept of Panchayati Raj

Ministry ofPanchayati Raj

Post office PRI office

Village Profile BPL PRI

MasterG2C

Services EPIC Birth/ Death

G2GServices

Land Record

Information Repositories

Mobile

ePRI Application

Support Function

s

Common Compone

nts

G2G Modules

G2C Modules

USERS

ACCESS CHANNELS

Authorisation

Authentication

Policy

SECURITYCOMPONENTS

EXTERNALINTERFACES

State Portal

Guidelines

InternetInternet

CSC

BSWANBSWANWeb

Browser Central Line Ministries

State Line Departments

E-District

Treasury

Planning Commission

CitizenCitizen Gram PanchayatGram Panchayat

District AdministrationDistrict Administration

Block PanchayatBlock Panchayat

District PanchayatDistrict Panchayat

Dept of Panchayati RajDept of Panchayati Raj

Ministry ofPanchayati RajMinistry ofPanchayati Raj

Post office PRI office

Village Profile BPL PRI

MasterG2C

Services EPIC Birth/ Death

G2GServices

Land Record

Information Repositories

Mobile

ePRI Application

Support Function

s

Common Compone

nts

G2G Modules

G2C Modules

The following section of the report details out all the components shown in above schematic representation of e-enabled scenario.

5.2.1 User Groups

The User groups for the ePRI application are a set of individuals and/or entities who will have access to the application for the purposes including availing service, information provision & service delivery and monitoring the functioning of the PRIs. These groups include Citizens and PRIs at the village/district/state/centre level. The table 4.7 below mentions these user groups and the purpose for which they will be interacting with the application.

Table 5.1 Various Users with purpose of using ePRI system

Users Purpose Citizen Information about various schemes, PRI meetings, proceedings; application



Users Purpose form for services; applying for the service; status of the service request; delivery of the service; payment of dues and taxes etc.

Gram Panchayat Information on the schemes; Acts, Rules, Government orders related to PRIs; role and responsibility of the Gram Panchayat, data for planning, preparation of annual and scheme related plan; financial and accounting management; detail of gram sabha’s and PRI’s meetings, standing committees, PRIs member; processing of G2C service request, etc.

Block Panchayat Management of Gram Panchayat; Information on the schemes; Acts, Rules, Government orders related to PRIs; role and responsibility of the Block Panchayat, data for planning, preparation of annual and scheme related plan; financial and accounting management; detail of PRIs and PRI’s meetings, standing committees, PRIs member; processing of G2C service request, etc.

District Panchayat Management of PRIs; Information on the schemes; Acts, Rules, Government orders related to PRIs; role and responsibility of the District Panchayat, data for planning, preparation of annual and scheme related plan; financial and accounting management; detail of PRIs and PRI’s meeting, standing committees, PRIs member; processing of G2C service request, etc.

District Administration Performance of PRIs, Grievances against PRIs, physical and financial progress of schemes

Department of Panchayati Raj

Performance of PRIs, Grievances against PRIs, physical and financial progress of schemes

Ministry of Panchayati Raj

Performance of state PR department, Grievances against PRIs, physical and financial progress of schemes

5.2.2 Access Channels

CSCs and Gram Panchayat can access the channels over internet. Block Panchayat, District Panchayat, State PR department and Ministry of Panchayati Raj can access the ePRI application over SWAN. Access channels for G2C and G2G service components are shown in below table with associated business model.

Table 5.2 Access Channels for G2C component

G2C Component Activity Access Channel

CSC Panchayat Office Post Office Block Office

Obtain Form

Panchayat State portal

CSC

Application Submission

Submit service request Panchayat Office




Panchayat State portal Receipt generation with due date and responsibility centre

CSC/ Panchayat Office

Verify service request Panchayat State portal

Service Processing

Submit verification report Panchayat State portal

Preparation of Agenda Panchayat State portal

Schedule PRIs meeting and submit agenda


Circulation of Agenda to respective members

Panchayat State Office

Meeting of PRIs Panchayat State Office Prepare proceedings of PRI meetings Panchayat State portal Submit proceeding of PRIs meeting PRI Office

Managing PRI meetings

Circulation of proceedings to respective members

PRI Office

Service Processing

Approval/ Rejection of application or work


Obtain Certificate CSC/ PRI Office Obtain Card CSC/ PRI Office

Obtain Information CSC/ Panchayat State Portal/ PRI Office

Obtain Pension CSC/ PRI Office

Service Delivery

Obtain License CSC/ PRI Office




Pay service charges CSC

Payment of services charges/

dues Pay dues at PRI office PRI Office

Status tracking Status tracking CSC/Mobile/Panchayat Office/ Panchayat State Portal

MIS MIS report Regular Meeting of PRIs

CSC/Mobile/Panchayat Office/ Panchayat State Portal

The service delivery channels for G2G services have been shown in below table.

Table 5.3: Service Delivery Channels for G2G Services

G2G component

Activity Pre requirements Access channel

Standardization of the Planning format of schemes

Panchayat Office Prepare macro plan

Single source of format (State portal) Panchayat State portal

Approval of plan Managing PRIs meetings (Approval of plan)


Planning

Prepare detailed plan Panchayat State portal

Submit fund request Plans prepared, discussed, approved and submitted in system


Funding

Receive fund Electronic fund transfer facility in PRIs Panchayat State portal

Implement-

ation Implementation of Project Plan

PRI Office

Monitoring Monitoring of implementation

PRI Office

Physical & Financial progress

Standardization of reporting formats Panchayat State Portal

Reporting



G2G component

Activity Pre requirements Access channel

Utilization Certificate Standardization of reporting formats Panchayat State Portal

Statement of Expenditure Standardization of reporting formats Panchayat State Portal

Physical & Financial target MIS

Standardization of reporting formats Panchayat State Portal

5.2.3 Proposed e-PRI Application

The proposed ePRI application will be an amalgam of various integrated information systems that will deliver the G2C and G2G services. The primary objective of the application will be to provide for automation of the internal functioning of the PRIs and add to the convenience of the government officials. In addition the ePRI application will provide a single window access to information and services provided by the PRIs making life easy for a common citizen. The key attribute will be the ability to initiate the delivery of citizen services anytime. Often these services are provided through different departments singly or in concert. Citizens then have to approach multiple departments and a multitude of people within those departments for getting their service. For making such information and services accessible in a convenient manner, the ePRI application shall be established to provide a one-stop source for all the G2C information and services. The Panchayat State portal shall be the unmanned front office of the PRI every citizen may access for information and services.

The ePRI application will have modules grouped as:

• G2C modules-These are the modules that will facilitate the provision of the G2C services identified during the PRI field study. They include modules like Birth Registration (for registration of birth and issue of birth certificate), Death Registration (for registration of death and issue of death certificate), etc.

• G2G modules- These modules will facilitate the provision of G2G services and include scheme management (for implementation of CSS), Citizen data validation and MIS to Line Department (for monitoring of schemes).

• Common components- These are the modules that represent common activities which will aid the provision of G2C & G2G services. They include modules like verification (for citizen data validation), status tracking (for provision of information to the citizen and monitoring application status by the relevant authorities), etc.

• Support functions- These modules will impact or get impacted by the G2C & G2G services and in turn facilitate the PRI governance functions of planning, monitoring and accounting (the implementation function will be covered under the scheme management module in G2G layer)



The detailed functionality of each module is explained under application architecture module.

5.2.4 Information Repository

This section provides a detail of the various databases that will form part of the information repository and how they will interact with each other. Physical data representation of the ePRI Database is shown in figure below:

Figure 5.4: Physical Database Architecture

Further this section provides a detail of the type of information, integrated and logically related into groups that will need to be maintained in the suggested databases. The table 4.10 below lists down in detail the information needed to be maintained by all the panchayats.

Table 5.4 - Panchayat-wise data to be maintained

S. No.

Information Repository Information Creator Owner User Purpose

1 Land Records Land ownership details

Already prepared by the Directorate of Land Resources

Directorate of Land Resources

GPs GPs will have view and print access to information for issuing copies Form I & XIV



S. No.


2 Birth and Death

Details of Birth and Death in the state

Birth/Death data is being digitized under the INFOGRAM project

Department of Planning, Statistics and Evaluation.

GPs For Birth/Death registration and issue of Birth Certificate.

For issue of Non-availability of Birth/Death certificate.

3 PRI Master Information about the PRI staff and G2C & G2G service delivery

Panchayat database is being created under the DISNIC project. Additionally the G2C & G2G service delivery details will need to be captured.

Panchayats

PRIs at village/district/state level.

Citizens

GPs/ZPs will be responsible for updating the data.

PRIs at state level will use the data for monitoring the functioning of the GPs and the two ZPs.

Citizen will be given view access to some part of the data so as to comply with statutory disclosure requirements for the PRIs.

Children below 18 years of age (M/F)

Total Population

Adults between 18 to 60 years 4 Population

Census

Senior Citizens above 60yrs of age (M/F)

Being created under the DISNIC project

Survey of India

PRIs and Line departments

For citizen data validation for various services.

5 Economic APL/BPL families Being Survey GPs For determining



S. No.


SC/ST families

Agriculture and Non-agriculture labourers

Skilled and unskilled labourers

Number of families dependent on farming

Masons/carpenters/barbers/toddytappers/padeli/cobblers/shoemakers/basket weavers/blacksmiths/goldsmiths/bhatkars-money lenders/pujaris/cooks-sweet makers/milkmen and any other village artisans

Status

Number of agricultural tenants

captured under the DISNIC project.

of India

and Line Departments

the citizen eligibility for various welfare schemes

Educated and uneducated persons

Engineers-Doctors-Lawyers

Teachers/Professors 6 Educational Position

Any other person in specialized field

Being captured under the DISNIC project.

Directorate of Education

PRIs (Village Education Committees(VEC) at village level)

Will form input in preparation of the work plan for the VEC and in overall village development plan.

Employed person

Educated and uneducated youths

Shops and establishments

SSI Units

Major industries

7 Employment & Industry

Polluting and non-polluting industries

Being captured under the DISNIC project.

Department of Industries

PRIs Will form input in preparation of development plans



S. No.


Poultry and piggery units

No. of Primary/middle/high schools/higher secondary schools

No. of colleges

No. of students in each category

No. of drop-outs every year and reason for drop-out

Adult literacy classes

No. of existing sports grounds

No. of gymnasiums

Children’s parks/gardens/jogging parks

No. of balwadis/anganwadis and pre primary schools

8 Education & Sports

No. of children in balwadis/anganwadis and pre-primary schools

Being captured under the DISNIC project

Directorate of Education and Directorate of Sports

Directorate of Education, Directorate of Sports, GPs

Will form input for line departments during planning for the schemes. GPs will use data to identify potential beneficiaries for the schemes of the Directorate of Education and Directorate of Sports.

No. of clinics/dispensaries/primary health centres with name and addresses of doctors and nurses attached to each

No. of garbage pits with their location

Garbage treatment plant

No. of dustbins provided with location

Household-wise sanitation facility data

9 Health and Sanitation

No. of public toilets constructed


Public Works Department (PWD) and Directorate of Health Services

PWD, Directorate of Health services and GPs

GPs will use for preparation of village development plans.

PWD will use to monitor sanitation facilities in the GPs.

Health department will use to monitor health services



S. No.


with location and names of users and plan for welfare schemes.

Areas under different crops

Cultivable but kept fallow

Uncultivable waste land

Areas under pisciculture farming

Areas under forest cover

Areas which could be used for afforestation

10

Agriculture, afforestation and land pattern

Areas which could be used for fodder and grazing


Directorate of Agriculture

GPs Will form input in preparation of village development plans by the GPs.

Listings of lakes, tanks ponds, spring and nallahs with the area occupied by each

Identification of places for rain water harvesting/watershed programmes

No. of irrigation wells

11 Natural Resources

No. of bathing ghats with identification of places


- PRIs Will form input in preparation of village development plans by the GPs.

No. of houses having electricity and having no electric connection

Identification of places where electricity has not reached

No. of electricity poles existing

No. of families using approved chhullas/solar energy devices

12 Rural Electrification and non-conventional energy

No. of drinking water wells


- PRIs Will form input in preparation of village development plans by the GPs.



S. No.


No. of families using RWS

Identification of place where RWS has not reached

No. of handicapped persons

No. of schools for handicapped persons

Mahila Mandals

Self Help Groups

Names of NGOS

Number of destitute homes 13

Social Welfare and Women and Child Any other social clubs


Rural Development Agency (RDA).

Directorate of Women & Child Development (WCD)

RDA, Directorate of WCD, and PRIs

RDA will use data to plan for & monitor welfare schemes for handicaps.

Directorate of WCD will use to plan for and monitor welfare schemes for women.

GPs will use data for beneficiary identification for welfare schemes and in preparation of development plans for the village.

Roads-katcha/pukka- in length

Drains/gutters

Foothpaths constructed

Market complexes

Bus stops

Community halls, shops premises and v.p. offices

Cattle ponds

14 Infrastructure

Crematoriums


Village asset data will be owned by the Panchayats

PRIs For tracking revenues generated by the GPs from the village assets.

This data will form input in preparation of village development plans also.



S. No.


Gymnasiums, indoor game halls, etc

Bathing ghats and ghats for other purposes

Stage for public entertainment

Any other infrastructure created by the Panchayats

The databases required for ePRI System would interact with each other for exchanging specific information. These interactions are captured in the table below.



Table5.5: Database Interactions

Databases Population Census

Economic Status

Education &

Sports

Health & Sanitatio

n Birth & Death

Natural Resour

ces

Employment & Industry

PRI Master

Infrastructure

Agriculture & Land

Resources

Social Welfar

e & WCD

Land Records

Population Census

NA Validation of BPL list and citizen data

Education status

of populatio

n and prospecti

ve beneficiar

ies for schemes

of education departme

nt

Village sanitation facilities

Birth/Death over a period, citizen data validation

None Number of unemployed people and prospective beneficiaries for NREGs

Citizen data validation for service delivery

None None Prospective beneficiaries for Social Welfare and WCD schemes

None

Economic Status

Validation of BPL list and citizen data

NA None Determine prospective beneficiary for PWD sanitation facility

None None BPL unemployed candidates


None None Prospective beneficiaries for Social Welfare and WCD schemes

None

Education Education status of

Determining the

NA None None None Determine

Determine the

For determinin

None None None




Economic Status

Education &

Sports

Health & Sanitatio

n Birth & Death

Natural Resour

ces


PRI Master

Infrastructure

Agriculture & Land

Resources

Social Welfar

e & WCD

Land Records

& Sports population and prospective beneficiaries for schemes of education department

economic status of prospective beneficiaries

population skill sets

educational status of the population

g the existing and required educational facilities

Health & Sanitation

Village sanitation facilities

None None NA None None None None Determining the existing and required Sanitation facilities in the area

None None None

Birth & Death

Birth/Death over a period, citizen data validation

None None None NA None None Citizen data validation for service delivery

None None Citizen data validation for determining beneficiary eligibility for welfare

None




Economic Status

Education &

Sports

Health & Sanitatio

n Birth & Death

Natural Resour

ces


PRI Master

Infrastructure

Agriculture & Land

Resources

Social Welfar

e & WCD

Land Records

schemes

Natural Resources

None None None None None NA None None None None None None

Employment and Industry

Number of unemployed people and prospective beneficiaries for NREGs

None None None None None NA Citizen data validation for employment status for benefits under NREGs

None None None None

PRI Master


Determining the economic status of prospective beneficiaries

None None Citizen data validation for service delivery

None Citizen data validation for employment status for benefits under NREGs

NA None None Citizen data validation for determining beneficiary eligibility for welfare schemes

View of the land ownership details for issue of Form I & XIV




Economic Status

Education &

Sports

Health & Sanitatio

n Birth & Death

Natural Resour

ces


PRI Master

Infrastructure

Agriculture & Land

Resources

Social Welfar

e & WCD

Land Records

Infrastructure

None None For determining the existing and required educational facilities

Determining the existing and required Sanitation facilities in the area

None None None None NA Determining requirement of agricultural facilities/equipments

None None

Agriculture & Land Resources

None None None None None None None None Determining requirement of agricultural facilities/equipments

NA None None

Social Welfare & WCD

Prospective beneficiaries for Social Welfare and WCD schemes

Prospective beneficiaries for Social Welfare and WCD schemes

None None Determining prospective beneficiaries pro-actively for schemes like Balika samridhi yojana

None None Citizen data validation for determining beneficiary eligibility for welfare schemes

None None NA None

Land None None None None None None None View of None None None NA




Economic Status

Education &

Sports

Health & Sanitatio

n Birth & Death

Natural Resour

ces


PRI Master

Infrastructure

Agriculture & Land

Resources

Social Welfar

e & WCD

Land Records

Records the land ownership details for issue of Form I & XIV



All of these databases (except the citizen database) are being planned under the DISNIC project of the government. The project is being proposed to be undertaken on pilot basis in two districts of Bihar and 1 district of Haryana. It will capture district information related to the following sectors:

Table 5.6- Sectors covered under DISNIC project

S. No. Sector 1 Agriculture 2 Animal Husbandry 3 Buildings & Works 4 Civil Supplies 5 Collegiate Education 6 District Planning 7 Employment & Trainings 8 Fisheries 9 Ground Water 10 Health 11 Industry 12 Irrigation 13 Labour 14 Panchayat 15 Power 16 Public Instruction 17 Roads & Bridges 18 Rural Development 19 SC/ST Development 20 Environment, Forest & Wildlife 21 Social Welfare 22 Town Planning 23 Transport 24 Water Supply 25 District Treasury 26 Co-operative Societies

If successfully implemented, the DISNIC project will solve many database requirements for the ePRI project and hence integration of the two will be result in desired solution.

In addition, integration with the UID project will provide the citizen database. Hence the DISNIC & the UID projects together will meet the requirements.



5.2.5 External Interfaces

This component details out the various users other than primary users. They will use the ePRI system for primarily for information.

Table 5.4: Interaction of External Interfaces with ePRI Application

External Interface Information / Data Exchange Purpose State line department

Information This will include all the line departments of state Government using PRI for implementing various schemes. Line departments will get the various MIS reports including physical and financial progress of their respective schemes on ePRI system.

Central line ministries

Information This will include all the line ministries of GoI who are proposing use of PRI for implementing various schemes. Line ministries will get the various MIS reports including physical and financial progress of their respective schemes on ePRI system.

e-District Information and Data Exchange e-District is envisaged to implemented in all the districts. The pilot implementation in already under progress. E-District application and ePRI application can provide MIS reports to each other for meeting the information need of respective user groups. Later, opportunity for seamless integration of both the modules for G2C service delivery can be explored

State Portal Information ePRI application can present some key information about PRIs on state portal and state portal can have link with Panchayat State portal.

Treasury Information and Data Exchange Financial module of ePRI application will generate various MIS reports for treasury and also will require fund release status from treasury.

Planning commission

Information Planning commission can get village profile, PRI master details and high level MIS reports on implementation of various schemes for planning purpose. Planning module of ePRI application can provide ground level detail of villages for enabling demand driven planning



5.2.6 Security Components

Access management and security are the critical components of the architecture. Information assets are invariably under threats which are varied and constantly evolving. The security framework, products, tools and methods available to deal with such threats are also evolving. Single Sign On (SSO) and Role based access are achieved through the identity assertion, credential management and directory services components. The security framework for ePRI application comprises of four components:

• Authorization- This basically are means of establishing and enforcing rights and privileges

allowed to users. Authorization primarily establishes answer for the question: “Are you allowed to do what you are asking or trying to do?” This basically involves defining roles and responsibility based access controls. Access policy needs to be in place including Access Matrix to clearly demarcate which modules/ functionalities are accessible to which set of users. During operation, the access control rules would be applicable. The process of updating the access matrix and rules should be easy to manage as it is a continuous and regular activity in such a scenario.

• Authentication- Authentication is the act of verifying the identity of a user or process. The

primary purpose is to establish an answer for the question: “Are you who you say you are?” The authentication mechanism for in our application will be a sign-on process which will authenticate a user with his user-id and password. For Electronic business transactions a ‘digital signature,’ which is the equivalent of a handwritten signature, will serve the purpose of identifying and authenticating the sender or recipient of electronic information.

• Policy- Information security policies should be well defined to safeguard the information

resources. This will be a document defining business rules for protecting information and systems that will store information. This will provide a high-level description of the controls the PRIs will be using for protection of information and systems. Appropriate infrastructure should be in place to support these security policies and should be diligently implemented across the system. The policies have to be regularly updated and adapted in alignment with the changing external as well as internal factors. External factors could be change in the government compliance laws where as internal factors could be an organization wide decision of adopting a new information security standard, for example adopting ISO 27000 standards.

• Guidelines- These will detail out the steps to be taken for implementation of the security policy.

The guidelines are the suggested actions or recommendations to address an area in the security policy. They are not binding but are considered Best Practices and should be implemented when ever possible. In addition to the established information security policy,



explicit set of guidelines should also be prepared. These would include the dos and don’ts for the stakeholders using the ePRI system. The guidelines should also be regularly updated in alignment with the changing information security policies.

5.2.7 Exceptions

In certain parts of the State of Bihar, there may be a situation where the implementation of above proposed system may not be possible. The reasons for such situation to arise are not in the purview of this report and outside the scope of ePRI project. This section tries to provide insights into such exceptions that are specific to the State of Bihar.

Exceptions could result in due to the following reasons:

• Security related issues • Geographical challenges • Infrastructure related • Forest/Desert village

Nearly, 30 districts out of 38 are Naxalite affected in Bihar, of which, 16 are worst-hit. Implementation of ePRI in such district would require an approach that is out of scope of ePRI Project. These exceptions have been considered for designing the project implementation plan. The civil infrastructure is also not available for some of the Gram Panchayats. The construction of Gram Panchayat offices is in progress under Backward Relief Grant Fund. The state Government has to look for some alternate arrangements for implementing the proposed solution at Gram Panchayat. Poor electricity availability at Gram Panchayat level can be challenges for recommending such an ambitious solution. Gram Panchayat may need to sustain the ICT infrastructure recommend in above section with the help of generator, which has its own limitation in terms of the regular supply of the fuel to Gram Panchayats.

5.3 Application Architecture and Functionality

Application architecture presented below is detailing of the ePRI application shown in logical architecture. Each layer has been explored with module level details. Users, Access channels, Databases, security, data, infrastructure layer and Gateway have been masked. The users, access channels and databases have been already explained under logical architecture. Security, network and deployment architecture is discussed under section of this report. This section details out the functionality of core modules at high level.

ePRI application architecture is based on the BPR framework recommended in this report. It is divided into five layers:

Government to Citizen (G2C) application layer and Government to Government (G2G) application layer will consist of all the service modules to the Citizen, CSC, ePRI officer, and Government users ranging from gram Panchayat to central line ministries.



Service component application layer will consist of those modules defined under BPR framework which will enable user to add new G2C service or G2G scheme in interactive way by using Graphical user interface. The benefit of this kind of architecture is scalability and flexibility in the application to meet the requirement of users in most desirable way. This layer will have framework for adding, modifying and removing any G2C service. Initially, this will have 20 G2C service planned under this project. The service will be designed using the following components like Application submission, Service processing, Service delivery, Payment of service charges and due, Status tracking, etc. Support function application layer will consist of modules which primarily impact or are impacted by any one of the G2C and /or G2G application layer components. This consist of modules like MIS & KPIs which will impact G2C components by defining service levels and G2G components by facilitating the reporting function of the PRIs. Core technology layer will basically have modules for that will facilitate the functioning of all he above modules in the envisaged IT-enabled scenario. This will typically consist of modules like KM, Workflow Engine and Communication engine.

Figure 5.3: Application Architecture

Inte

rnet

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t / V

PN

Inte

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/ Int

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t / V

PN

Pres

enta

tion

Laye

rPr

esen

tatio

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yer

Core Business LayerCore Business LayerKM Mail SMS Payment GatewayTransaction Engine

Data layerData layer

Infrastructure layerInfrastructure layer Centralized Database

Use

rsU

sers

Acce

ss C

hann

els

Acce

ss C

hann

els

PlanningFinancial Mgmt

Scheme MgmtPRIs meeting

Mgmt

HR Mgmt

Village profile Mgmt

Scheme Information

File Mgmt

Asset Mgmt

Audit Mgmt Account Mgmt

Form Availability

Birth/ Death Registration

Stat

e Se

rvic

e D

eliv

ery

Gat

eway

(SSD

G)/

SDC

Gat

eway

Stat

e Se

rvic

e D

eliv

ery

Gat

eway

(SSD

G)/

SDC

Gat

eway

Security layerSecurity layer

Scholarship

PRI meeting information

Funding


Verification

Approval/ rejection

Payment

Status tracking

Service delivery

Workflow Analysis & Reporting

G2C Application LayerG2C Application Layer

BPR Component Business Application Layer

Support functions Business Application Layer

G2G Application LayerG2G Application Layer

Planning

Implementation

Monitoring

Reporting

Inclusion in BPL list

Record of Rights

Ration Coupons

Collection of dues

LPC

NREGS

Certificates

Pension

RTI

Inte

rnet

/ Int

rane

t / V

PN

Inte

rnet

/ Int

rane

t / V

PN

Pres

enta

tion

Laye

rPr

esen

tatio

n La

yer

Core Business LayerCore Business LayerKM Mail SMS Payment GatewayTransaction Engine

Data layerData layer

Infrastructure layerInfrastructure layer Centralized Database

Use

rsU

sers

Acce

ss C

hann

els

Acce

ss C

hann

els

PlanningFinancial Mgmt

Scheme MgmtPRIs meeting

Mgmt

HR Mgmt

Village profile Mgmt

Scheme Information

File Mgmt

Asset Mgmt

Audit Mgmt Account Mgmt

Form Availability

Birth/ Death Registration

Stat

e Se

rvic

e D

eliv

ery

Gat

eway

(SSD

G)/

SDC

Gat

eway

Stat

e Se

rvic

e D

eliv

ery

Gat

eway

(SSD

G)/

SDC

Gat

eway

Security layerSecurity layer

Scholarship

PRI meeting information

Funding


Verification

Approval/ rejection

Payment

Status tracking

Service delivery

Workflow Analysis & Reporting

G2C Application LayerG2C Application Layer

BPR Component Business Application Layer

Support functions Business Application Layer

G2G Application LayerG2G Application Layer

Planning

Implementation

Monitoring

Reporting

Inclusion in BPL list

Record of Rights

Ration Coupons

Collection of dues

LPC

NREGS

Certificates

Pension

RTI



5.3.1 G2C Application Layer

Functionality of application modules as showcased in application architecture is described in the table below.

Table 5.5 Functionality of G2C Application Layer Modules

Module Functionality User Group

PRIs Meeting Information

This will provide information to users on following aspects related to PRI meetings:-

• Annual Calendar of PRI meetings • Agenda of the Meeting • Schedule of Meeting • Attendees • Minutes of Meetings • Decisions taken/ resolutions • Status of action based on resolution

This will help meet the disclosure requirements of the PRIs with respect to the various governing laws.

GP officials and staff • Responsible for uploading the

information. • May use the stored data for responding

to RTI applications. Citizens • To get update on PRI activities

Birth Registration

This module would have provision to provide the following services: • Birth Registration • Search & Issue Birth Certificate • Print Birth Register • Issue Non-availability Certificate • Birth Correction • Apply for birth registration/ issue of

non-availability certificate

Citizens • To apply for birth registration, issue of

copy of birth certificate and issue of non-availability certificate

PRIs Officials and Staff • To update data for applications

received through physical submission. • To submit field verification reports. • To issue birth certificates • To generate MIS report on birth

certificates issued for submission to meet reporting requirements.

CSC operator • To view and print the Birth Certificate

copy

Death Registration

This module would have provision to provide the following services: • Death Registration • Search & Issue Death Certificate • Print Death Register

Citizens • To apply for Death registration, issue of

copy of Death certificate and issue of non-availability certificate




• Issue Non-availability Certificate • Death Correction • Apply for death registration/ issue of

non-availability certificate.

GP Officials and Staff • To update data for applications

received through physical submission. • To submit field verification reports. • To query the Death database for

issuance/ non-issuance of Non-availability certificate

• To issue Death certificates • To generate MIS reports on Death

certificates issued for submission to meet reporting requirements.

CSC Operator • To view and print the Death Certificate

copy

Certificates

The certificates module would be utilized for issuance of following certificates: • Residence Certificate • Income Certificate • Caste Certificate • Character Certificates

Citizens • To apply for Certificates • For payment of processing fees GP Officials and Staff • To update data for applications

received through physical submission. • To submit field verification reports. • To issue Certificates • To generate MIS reports on certificates

Grievance Redressal

This module will have provision to: • File complaints • Enter details of complaints/grievances

communicated through hardcopy forms.

• Upload status of action taken/ solution provided.

• To escalate matters to relevant authorities.

Citizens • To file grievances to relevant

authorities. PRI staff and officials • To enter details for communications

received in hardcopy. • To upload action taken reports or

solution provided. • To upload application status. • To monitor application status for timely

provision of redressal.

RTI This module will have provision to:

• Submit applications seeking

Citizens • To file application for information under

RTI



Module Functionality User Group information under the RTI act.

• Enter details for applications received in hardcopy.

• Query the databases to gather relevant data.

• Prepare responses to RTI applications • Print responses. • Collection of processing fees • Print monthly/annual report on RTI

application received & honoured.

PRI staff and officials • To enter details for applications

received in hardcopy. • To prepare response to RTI

applications • To print responses

NREGS

This module will have provision to:

• Provide job cards to citizens • Information on the NREGS scheme • Work allocation details • Generate muster roll

Citizens • Obtain job card • Expedite in receiving wages PRI staff and officials • Manage and plan work allocation

Information on Schemes


• Provide information on various schemes

Citizens • Easy access to information on

schemes PRI staff and officials • Provide timely information on schemes

Inclusion/ Exclusion in BPL List


• Accept application for inclusion of name in BPL list

• Maintenance of the BPL list

Citizens • Submit application for inclusion of

name in BPL list PRI staff and officials • Maintain BPL list

Scholarship to SC/ST Students


• Approve or reject application • Generate MIS Reports • Tracking of funds

Citizens • Apply for student scholarship PRI staff and officials • To generate MIS reports on

scholarships • Manage the list of students efficiently

Pension


• Approve or reject application • Maintenance of the pensioner list • Generate MIS Reports

Citizens • Receives pension PRI staff and officials




• Tracking of funds • To generate MIS reports on pension related information

• Manage the pensioner list efficiently

Availability of Forms


• Provide information on schemes • Provide forms online • Option to download forms

Citizens • Views and obtain forms online • Submit forms PRI staff and officials • Prepare and upload standardised

forms

Distribution of Ration Coupons


• Distribute the coupons to beneficiaries online

• Provide information to citizens about the distribution date

• Number of beneficiaries • Track coupons related information • Generate reports on coupon

distribution

Citizens • Obtain ration coupons • Obtain information on coupons

disbursement date PRI staff and officials • Manage and plan coupon distribution

process • Generate reports on coupon

distribution

5.3.2 G2G Application Layer

The table 5.7 below provides a detail of the functionalities of the G2G application layer modules as defined in the application architecture.

Table 5.6: Functionality of G2G Application Layer Modules


Planning

Planning module should facilitate departments for preparation of development and scheme plans. The module should have following functionality

(i) Mapping of module with village profile

(ii) Managing the PRIs in functional domains like education health, sanitation, house, water, etc.

(iii) Prioritization of need of the PRIs (iv) Creation and management of

project under functional domains

• Planning Committee Members • Panchayat Sewak • Block Development Officer (BDO) • State Departments • Executive Officer – PS • Chief Executive Officer – ZP • Elected Representative



Module Functionality User Group (v) Division of the project with

available schemes to implement the different part.

(vi) Preparation of physical and financial target for project and schemes

Funding

PRIA soft should be used for the managing funding through financial and accounting management. Effective financial and accounting management would assist the PRI officials to request for funds with relevant data and information. Following are the key functionalities:

(i) Budget Planning and allotment

This covers various activities in the budget planning such as budget formulation, allotment, release and surrender etc.

(ii) Expenditure Tracking

This covers the activities like Statement of expenditure HoD wise, District wise, Scheme wise, Hospital wise, field unit wise

(iii) Financial Accounting

Budgetary accounting, Accounts Payable, Account Receivables, Cash Book Maintenance, Cash book Reconciliation, Asset accounting, Accounting policies etc are covered in this sub module.

(iv) Financial Audit

Total Sanction, Total allotment, Total surrender, Total expenditure, Re-appropriation, Object DDO cross tab, Object wise allotment, Treasury wise allotment, Grand object wise allotment report etc are covered under this sub-module.

• Committee Members • Panchayat Sewak • Block Development Officer (BDO) • State Departments • Executive Officer – PS • Chief Executive Officer – ZP • Elected Representative




Reporting

Reporting module is envisaged to meet all the monitoring and reporting requirement of the all the users. The purpose of the monitoring and reporting element are listed below – • Provide real time information on all

aspect of G2C and G2G services – request, processing, delivery etc, to the defined actors for the given service

• Progress tracking of work at defined levels on given time referential and help identifying any slack in the same.

• Help to develop mid term correction strategies by brining out deficiency in any aspect of service delivery

• Generate required report for the department for physical and financial reporting requirements

High level functionality of reporting module are as mentioned below: • KPIs in both public and authenticated

user domain • Interactive GUI based tour on

“designing the KPIs” for educating the user

• Design the KPIs as per the user requirement using interactive mode

• Configure the pre defined KPIs as per the frequency of generation to defined set of user

• Create favourite list of KPIs by authenticated user

• Add, modify and delete the KPIs in favourite list

• Display the mandatory KPIs recommended by the Department of Panchayati Raj/ Ministry of Panchayati Raj to all the users of the system in their favourite list

• Define Annual targets and long term targets against each KPI

• Panchayat Sewak • Block Development Officer (BDO) • State Departments • Additional Director (Social Security) • Executive Officer – PS • Chief Executive Officer – ZP • Elected Representative




• Change in the definition of the KPIs • Graphical view for showing change in

the value of KPI on selected time scale with reference to the target

5.3.3 Service Component Application Layer The table 5.8 below provides a detail of the functionalities of the service components application layer modules as defined in the application architecture.

Table 5.7: Functionality of Service Component Layer Modules


Planning

Planning module should facilitate departments for preparation of development and scheme plans. The module should have following functionality

(vii) Mapping of module with village profile

(viii) Managing the PRIs in functional domains like education health, sanitation, house, water, etc.

(ix) Prioritization of need of the PRIs (x) Creation and management of

project under functional domains (xi) Division of the project with

available schemes to implement the different part.

(xii) Preparation of physical and financial target for project and schemes

• Planning Committee Members • Panchayat Sewak • Block Development Officer (BDO) • State Departments • Executive Officer – PS • Chief Executive Officer – ZP • Elected Representative

Financial Management

PRIA soft should be used for the financial and accounting management with following key functionality.

(v) Budget Planning and allotment

This covers various activities in the budget planning such as budget formulation, allotment, release and surrender etc.

(vi) Expenditure Tracking

This covers the activities like Statement of expenditure HoD wise, District wise,




Module Functionality User Group Scheme wise, Hospital wise, field unit wise

(vii) Financial Accounting

Budgetary accounting, Accounts Payable, Account Receivables, Cash Book Maintenance, Cash book Reconciliation, Asset accounting, Accounting policies etc are covered in this sub module.

(viii) Financial Audit

Total Sanction, Total allotment, Total surrender, Total expenditure, Re-appropriation, Object DDO cross tab, Object wise allotment, Treasury wise allotment, Grand object wise allotment report etc are covered under this sub-module.

Scheme Management

ePRI applications should use Plan plus for CSS and state Government’s scheme management

(i) Program Management

This sub-module assists the department in effective monitoring of various state, central and external agency aided programs/schemes with respect to both physical and financial targets

(ii) Performance Management of Health Service Delivery Institutions

This sub-module assists the department in regular performance management of Health Service Delivery Institutions to have a competitive environment for continuous improvement in resource management and healthcare services




Module Functionality User Group delivery

(iii) Project Monitoring

This sub-module assists the department in monitoring of the various infrastructure development projects spanning across all the PRIs

PRIs Meeting Management

Creation of master data of PRIs having following details • Members of PRI • Chairperson/ Pramukh/ Mukhiya and

Vice Chairperson/ Vice Pramukh/ Vice Mukhiya of PRI

• Standing Committees with member details

Management of PRIs meetings • Annual calendar of PRIs meetings • Preparation of Agenda –

standardization of formats • Scheduling PRI’s meetings and

submission of agenda • Circulation of Agenda to respective

members • Meeting of PRIs • Prepare of proceedings of PRI meetings • Submission of proceeding of PRIs

meeting • Circulation of proceedings to respective

members • Online availability of agenda and

proceedings • Approval/ rejection of PRI meeting

• Committee Members • Panchayat Sewak • Executive Officer – PS • Chief Executive Officer – ZP • Elected Representative

Approval / Rejection

This particular module would assist in approving or rejecting an application. The approval or rejection would be authorised online via digital signatures. Also in case of rejection, adding rejection reasons would be mandatory

• Panchayat Sewak • Executive Officer – PS • Chief Executive Officer – ZP



5.3.4 Support Function Application Layer The table 5.9 below provides a detail of the functionalities of the support functions application layer modules as defined in the application architecture.

Table 5.8: Functionality of Support Functions Application Layer Modules


Analysis & Reporting

Analysis & Reporting module is envisaged to meet all the monitoring and reporting requirement of the all the users. The purpose of the monitoring and reporting element are listed below – • Provide real time information on all

aspect of G2C and G2G services – request, processing, delivery etc, to the defined actors for the given service

• Progress tracking of work at defined levels on given time referential and help identifying any slack in the same.

• Help to develop mid term correction strategies by brining out deficiency in any aspect of service delivery

• Generate required report for the department for physical and financial reporting requirements

High level functionality of KPIs module are as mentioned below: • KPIs in both public and authenticated

user domain • Interactive GUI based tour on

“designing the KPIs” for educating the user

• Design the KPIs as per the user requirement using interactive mode

• Configure the pre defined KPIs as per the frequency of generation to defined set of user

• Create favourite list of KPIs by authenticated user

• Add, modify and delete the KPIs in favourite list

• Display the mandatory KPIs

• Panchayat Sewak • Block Development Officer (BDO) • State Departments • Additional Director (Social Security) • Executive Officer – PS • Chief Executive Officer – ZP • Elected Representative



Module Functionality User Group recommended by the Department of Panchayati Raj/ Ministry of Panchayati Raj to all the users of the system in their favourite list

• Define Annual targets and long term targets against each KPI

• Change in the definition of the KPIs • Graphical view for showing change in

the value of KPI on selected time scale with reference to the target

PRIs HR Management

HR Management comprises of six sub-modules to address the HR requirements of the project from both governance and management perspective

(I) Workforce Management

This sub-module assists the department in better planning of recruitment, transfer, promotion and optimal workforce deployment

(II) Training Management

This sub-module assists the department in capturing the training needs of the employees and planning training programs to enhance their skills

(III) Employee’s Performance Management

This sub-module assists the department in monitoring the employee’s performance, using customized performance indicators, for achieving the best possible out come under resource constraints.

(IV) Employee Self Service

This sub-module assists the department in enhancing employee convenience by providing direct access to the services like training enrolment,




Module Functionality User Group knowledge management etc

(V) Payroll Management

This sub-module describes the completely automated Payroll management system

(VI) Grievance Redressal System

This sub-module details the automated processes for submission of grievance, status check, online redressal etc

Village profile management

Village profile management will have database of resources of respective PRIs. PRI will be responsible for updating and managing this database. The data will have following broad level heads.

1. Geographical data including coordinates, boundaries, area, river, water sources, hills, soil type, weather, etc

2. Infrastructure detail including, roads, electricity, telecom, government building, educational institute, medical and health facilities, etc.

3. Demographic profile including census data of the respective PRIs

The purpose of the village profile management is to facilitate the decision maker for effective planning.


5.3.5 Core Technology Layer The table 5.10 below provides a detail of the functionalities of the core technology layer modules as defined in the application architecture.

Table 5.9: Functionality of Core Technology Layer Modules


SMS Gateway

The SMS gateway will be used for sending information to the user in the purview of ePRI Application. A citizen can track the status of his or her application through SMS. If the mobile number of the citizen

• Citizens



Module Functionality User Group was registered during the submission of application form then notification will be sent in the event of any status change.

Payment Gateway

Payment gateway would be used in the CSC to make payments for availing the services of the schemes. The most common set of payments would be for services such as lagan payment, application fees, fees for RTI, etc.

• Citizens • CSC Operator • PRI Officials

Mail

For streamlined information flow between the various line departments and other offices, email account would be set up. This would be done through a SMTP mail server.

• Citizens • Official of the line departments • PRI officials • Elected representatives • Committee members.



6 Requirements for ICT and Connectivity Technology Solution

This section assesses the ICT and connectivity requirements for the implementation of the ePRI application and

proposes a deployment architecture with due consideration to factors of scalability, performance,

availability, interoperability, security and manageability. In addition, high level network architecture has

been proposed for centrally hosting the ePRI Application. Further the information security has been dealt with in the

section and four layer security architecture (User, Network, Infrastructure and Application layers) has been

detailed. Keeping in mind all these and the ICT requirements at the client sites at the state/district/block/village,

an indicative bill of materials has been presented.

This section will have impact on the total project cost in terms of cost for provision of ICT infrastructure at the data

centre for hosting the ePRI Application and at all client sites and the manpower provisioned. The total ICT

infrastructure cost for the state is Rs. 207.63 crores approximately.

Summ

ary

The technology solution and architecture proposed is the minimum recommended solution. The architecture recommended can be upgraded to meet the prescribed service levels and additional requirements, if necessary. This section illustrates the architecture for deployment, networks, databases, security and integration that would be established. The technology solution proposed is aligned with the ICT infrastructure and facilities that are available currently or envisioned in the near future.

6.1 Deployment Architecture

The deployment architecture to be adopted for ePRI online system was finalized after deliberating upon the following key design considerations:

a. Scalability

State of Bihar has a high density of population (approximately 900 per sq. Kms.) and would result in fairly large number of transactions for service delivery. In additions, as a result of growing awareness and demands of the citizens, there is clear indication that there would be further increase in the number of transactions. With such large volume of transactions wherein each transaction payload can average up to 250 Kb (including the attachments) coupled with this kind of growth in data, the system architecture has to be very scalable in order to continue offering services at their desired service levels.

The ePRI System should be scalable enough to accommodate the following:

Table 6.1: Administrative Units

Administrative Units Number Zila Panchayat 535 Panchayat Samiti 6053 Gram Panchayat 2, 34, 030



Administrative Units Number Number of elected representatives at all three tiers 31 lakhs

b. Performance

Performance is the prime requirement of the proposed ePRI system. However there are many factors that may affect the performance, two important ones being transaction volume and transaction payload. Moreover, under the recommended system all schemes will be executed through an online application which will facilitate application submission, uploading the scanned copies of supporting documents, status tracking, information dissemination and retrieving the archived documents. With such large volume of transactions, executed simultaneously by multiple entities, performance can be affected if sufficient capacities are not provided at all the levels of the solution (network, server capacity, application design, storage and others).

c. Availability

Availability is very critical to ensure meeting service levels on a sustained basis. Therefore the system has to be designed and built in a manner that provides for maximum possible availability. It is recommended that the ePRI System maintains availability of 99.5% per quarter. The Service Agency would have to account for the critical components in the system and should have a well defined failover mechanism.

d. Interoperability

The entire system/ subsystem should be interoperable, in order to support information flow and integration. Operating systems and storage technologies from several suppliers must interact well with each other. These systems should support the open architecture solutions such as XML, LDAP, SOAP, etc. where information/ data can be ported to any system, whenever desired.

e. Security

Most of the services being offered to the citizen make use of personal information. Citizens availing these services would prefer to have this information secured. Any compromise at any stage of service delivery can result in leakage of this information. The security architecture recommended for the ePRI System has to ensure complete authenticity and integrity of data and transactions.

f. Manageability

The ePRI online system is required to cater to stakeholders across the state accessing it from multiple points and through multiple channels. Hence the manageability of this system is essential to ensure effective monitoring and timely resolution of any issues surrounding performance, availability and security of systems. The system should have online tools for application, network and helpdesk management. The solution must lend itself to work closely with helpdesk systems and provide simplified means for user management, logging, and tracking.



Design Implications

I. Requires high performing, scalable and secure data centre infrastructure II. Requires reliable connectivity from all locations to the SDC

III. Allows an easier and faster state level search for identification and verification IV. Ease of Software and Systems Management (version control, upgrades, distribution) V. Efficient IT and Non – IT Resource Utilization

VI. Easier and more effective Operations & Maintenance VII. High bandwidth requirements to ensure desired performance

VIII. Sufficient redundancies to be built for every critical component/ utility



Figure 6.1: Deployment Architecture



6.2 Network Architecture

The diagram below indicates network deployment architecture for hosting the ePRI system on

a centralized architecture. Figure 6.2: Network Architecture

Provisions for Scalability, performance and availability

a. Scalability

The networking devises including routers and switches shall be procured with sufficient number of ports for addressing the required bandwidth. Preferably, the router/ switch should have adequate number of free slots for additional ports to cope with the increased future demands.

There should be provision to provide horizontal scalability in such a manner that a new server can be added or removed dynamically, as and when required in future, without disturbing the normal functioning of the system.



To address anticipated future growth in transactions, vertical scalability in servers in terms of additional processors and RAM will have to be provided.

b. Performance

Since performance is the prime requirement of the proposed ePRI system, the designed must be adaptive with respect to capacity planning. There should be continuous monitoring of resource utilization vis-à-vis the service loads in order to expose the need for corrective actions. The corrective actions could be in terms of increasing bandwidth, increasing server capacity, etc. when the utilization crosses a defined threshold.

c. Availability

The network level redundancy shall be accounted for and can be achieved through various measures being taken. Measures taken could be leased lines from two different service providers, alternate routing paths facilitated at ISP backbone (MPLS), redundant network devises etc.

Efficient configuration of load balancers and redundancy with respect to servers hosting all the critical components of architecture including web, application, database, and DNS would ensure high availability.

6.3 Security Architecture

The following figure depicts the recommended security architecture for the ePRI Online System.

Figure 6.3: Security Architecture

Access management and security are the critical components of the architecture. Single Sign On (SSO) and Role based access are achieved through the identity assertion, credential management and directory services components. The suggested four layer information security architecture includes:

User level security

• Restricted areas of the application shall only be accessible over WAN



Network level security

• Network traffic shall be encrypted using SSL • Secure connectivity shall be provided between the CFC/ ULB and the SDC

Infrastructure level security

• Application infrastructure shall be hosted in a DMZ • External users would only be able to access the public web server which would be

configured to render only those application pages that can be accessed publicly • Firewalls and IPS shall be installed to detect/prevent unauthorized activities

Application level security

• Role based access shall be provided based upon user category • User credentials shall be stored in an encrypted format • User credentials for external and internal users shall be stored in separate repositories • Server –to-server communication shall be encrypted • Confidential data shall be encrypted before it is stored in the database • Comprehensive logging & audit trail of sessions and transactions shall be done

The information assets and operations will be governed by a well defined Information System Security policy in order to ensure confidentiality and integrity of the system.

6.4 Bills of Material

The bill of material for the ICT specification was prepared and discussed with the SIO and DIOs for the State of Bihar. The key inputs provided were duly incorporated in preparation of BoM sheet. Table 6.2 provides the details of ICT specification for the State of Bihar.

Table 6.2: BoM for ICT specification

Sr. Component Number A State Level ICT Cost I Data Centre Costs 1 Hardware Number a Web Server 2b Application Server 2c Database Server 2

II State Site IT Infrastructure Costs 1 Hardware Number a Network Printer i State ePRI Project Management Unit 1



Sr. Component Number b Finger Print Scanner i Panchayati Raj Department 4

c Digital Signature i Panchayati Raj Department 4

B District Level ICT Cost I Site IT Infrastructure Costs

1 Hardware Number Per Site

a PC / Thin Client i District PRI department 2ii Zilla Parishad 13iii Block PRI 5iv Village PRI 3

b Network Printer i Zilla Parishad 1 c UPS i District PRI department 2ii Zilla Parishad 13iii Block PRI 5iv Village PRI 3

d Laser printer i Block PRI 1ii Village PRI 1 e Finger Print Scanner i Zilla Parishad 2ii Block PRI 2iii Village PRI 2 f Digital Signature i Zilla Parishad 2ii Block PRI 2iii Village PRI 2 f Document Scanner i Block PRI 1ii Village PRI 1

3 Networking cost Number of Total Sites

a LAN Switch 607b Hub 8463



7 Civil Infrastructure Requirement This section presents the civil infrastructure requirements of the PRIs which will forms the basis of efficient

service delivery and impact the successful implementation of this project.

This section will have no impact on the total project cost as the civil infrastructure to the PRIs will be

provided under the Rajiv Sewa Kendra Yojana (an official gazette for implementation of the same across

India has been passed and funds will be sanctioned in due course). Hence no budgeting has been done for

provision of any civil infrastructure to the PRIs under the ePRI project; However indicative requirements of

the Civil Infrastructure have been assessed.

Summ

ary

The key to successful implementation of e-PRI MMP initiative is the availability of adequate infrastructure for the service delivery system. Apart from deployment of requisite computing power and software systems for management of governmental business processes, requirements of communication networks, security systems and tools, and support services, etc must be in place before deployment of e-PRI application. The backbone civil infrastructure requirements need to be determined and acquired for successful implementation of the project.

Civil infrastructure projects that are initiated to support the ICT infrastructure are generally investments on a large-scale with the sole objective to improve the quality of life for entire communities. The execution of these projects in the government domain always go through immense public scrutiny and delivering results on time and to budget becomes all the more important. Therefore it is imperative that the civil infrastructure requirements are thoroughly discussed and analysed.



8 Capacity Building This section provides an assessment of the manpower skill-sets and training requirements of the PRIs

based on the findings of the ISNA phase vis-a vis the skills/ manpower required in the envisaged scenario. A

capacity building and training strategy has been suggested with a detailed list of the types of trainings to

be provided and the target participants of these trainings. Finally a bill of materials for training and capacity

building has been presented. Though both IT and non-IT related training have been proposed, but only training

for the ePRI application has been budgeted for.

This section will have impact on the cost in terms of cost for training the PRI officials / members and the cost of

providing ICT trained manpower. The cost of training is Rs. 21.38 crores and the cost for providing ICT

trained manpower is 112.2 crores approximately.

Summ

ary

PRIs in Bihar lack both in knowledge and number of resources to perform their duty. PRIs are expected to do accounting of more than 30 schemes. However, during the study it was observed that in Gaya district that there is only one accountant in ZP whereas Panchayat Samiti and Gram Panchayats do not have any accountant. The situation is similar for planning and implementation related activities and hence the need for capacity building becomes more apparent.

The section explains the approach for capacity building of PRIs. The skills required for planning, accounting, management, ICT and engineering are vital to implement the recommended solution. The approach is focused on bridging the gap in the skills rather than the gap in the resources. Also, it is essential to understand that skill requirement of activities like planning and engineering is periodic.

Skill gap can be bridged by taking following approach. • Develop the required skill by training • Recruit the required skill • Outsource the required skill

As already mentioned, PRIs are inadequately staffed in Bihar. Government should take some strategic measures to fill up the vacant positions starting from the lower level. An independent and dedicated Executive Officer for each PRI is must for efficient and effective functioning of PRIs. However, this will be a strategic decision and may take more than a year to implement.

Developing a required skill always seems to be easiest of all options. However, this has its own challenges in government domain. The skill development should be implemented with the help of change management strategy to make the implementation more successful. Pursuing the approach where skill is outsourced, the objective is achieved more rapidly and



results in an easy means to fill up the gap. An approach for capacity building for ePRIs with key functional areas is as shown in figure below.

Figure 8.1: Approach for enhancing the capacities of PRIs

The approach takes into account two key parameters that would be essential as well as constructive for successful capacity building and its continuous sustainability. One is identifying the requirements and other being the improvement in capabilities of the stakeholders. Requirements for skill building are generally grouped as continuous skill requirement, where these skills are put in practice almost on a daily basis, and periodic skill requirements where these skills are utilised only on needs basis.

Continuous skill requirement would include skills such as management, accounting, computer skill, etc whereas periodic skills encompasses skill set pertaining to planning activities, engineering works to be taken, etc. Continuous skill requirement could be developed through capacity building and training programs. Planning, costing, and engineering skills are required at beginning of the project. Planning skill is must for preparation of annual action plan and work plan. Engineering skills are required for estimation of the work and defining the standards and architecture of the project. Periodic skill requirement could be met by outsourcing with some basic training program for executive and public representatives.

Capacity building for ePRI project would be achieved primarily through three channels:

• Outsourcing • Training Programs • Appointments

Outsourcing capacity building programs would include hiring an external agency that would prepare its customised plan and implement it accordingly as per the state’s requirement.



Training programs would ensure that the existing as well as new resources are at all times up to date with the requirements of their work to be carried out.

Increased capabilities of the resources would result in increased knowledge in their respective domains. Also, for the entire setup to be capable of successfully executing their tasks without any bottlenecks, would require increase in the manpower resources to deliver services to citizens more efficiently.

8.1 Stakeholder Analysis and Benefit Realization Stake holder identification is important to understand the interventions which would need to be planned for the stakeholders such as citizens, PRI officials, elected representatives and officials from the line departments.

Benefits realisation from the change can be done by comparison between the “As-Is” and the “To-Be” processes. These benefits will then be mapped to the respective stakeholders to get their buy-in. Table below provides the stakeholder analysis and benefit realisation details.

Table 8.1: Stakeholder analysis and benefit realisation

Stakeholders Present Gaps in Manpower

Present Gaps in skills

Key recommendations

Benefits

Public representative of

Zila Parishad

Low High Training and skill up gradation is required. Need to create more awareness

Enable to perform duties better in terms of planning, accounting and implementation.

Public representative of Panchayat Samiti



Public representative of Gram Panchayat



General Standing Committee of Zila

High High Training and skill up gradation is required.

Enable to perform duties





Key recommendations

Benefits

Parishad, Panchayat Samiti

Need to create more awareness pertaining to the responsibilities of the committees.

better in terms of planning, accounting and implementation. Focus on other schemes and not just on BRGF and NREGS.

Finance, Account & Planning

Committee of Zila Parishad,

Panchayat Samiti

High High Training and skill up gradation is required. Need to create more awareness pertaining to the responsibilities of the committees.

Enable to perform duties better in terms of planning, accounting and implementation. Focus on other schemes and not just on BRGF and NREGS.

Production Committee at all

three tiers of PRIs

High

In few districts the committee has been formed but has not met in the last three years

High Training and skill up gradation is required. Need to create more awareness pertaining to the responsibilities of the committees.


Social Justice Committee at all

three tiers of PRIs

High



Enable to perform duties better in terms of planning, accounting and implementation. Perform wider function than just to distribute stipend for students of weaker section





Key recommendations

Benefits

and monitoring Anganwadi centres.

Education Committee at all

three tiers of PRIs

High

In very few districts the committee has been formed but has not met in the last three years



Public Health, Family Welfare & Rural Sanitation Committee three

tiers of PRIs

High




Public Works Committee at all

three tiers of PRIs

High



Enable to perform duties better in terms of planning, accounting and implementation. Perform wider function than just to monitoring all road and construction work.

Engineering staff of PRIs

High High Training and skill up gradation pertaining to basic computer skills and ePRI Application.

Enable to perform duties better with regards to administrative and schemes





Key recommendations

Benefits

related work.

Accounting staff of PRIs

High High Training and skill up gradation pertaining to accounting standard, PRIA soft application, basic computer skills and ePRI Application.

Enable to perform duties better with regards to accounting related work.

Operational staff of PRIs

High High Training and skill up gradation pertaining to basic computer skills and ePRI Application.

Enable to perform duties better.

8.2 Capacity Building and Training Strategy

Capacity building is important to build a receptive attitude and align the employees to use the new system and provide right service to the citizens. The requirement of capability building is essential for all the levels.

It is recommended to create Change Management Teams at state as well as district levels who would be responsible for providing ongoing support to the PRI officials and members in using the ePRI applications, in particular and computers, in general. Additionally, implementation of ePRI Project would ensue multiple changes which various stakeholders would stumble upon. These change management teams would address these changes and assist in successful capacity building to implement change. Regular feedback would be taken for all aspect of capacity building and trainings. If any modification or course correction is required then that must also be included. The high level framework for Capacity Building and Training is given below:

Figure 8.2: Capacity Building and Training Framework



Some of the capacity building measures are:

• Identify the training needs and potential trainers to deliver the training • Devise training plan consisting of key training areas for different stakeholders at the

three levels. The state and district teams to prepare training curriculum to address the training needs.

• Prepare training schedules • Define metric to evaluate training effectiveness such as % of employees trained,

increase in awareness of employees, exit test scores of the training.

8.2.1 Manpower The skill gap can be bridged by three ways as shown in approach for capacity building in Figure 8.1: Approach for enhancing the capacities of PRIs. Develop the required skill by training, recruit the required skill, and outsource the required skill are various options to fill up the manpower gap. Planner and engineer requirements are periodic and can be filled by outsourcing. The manpower gaps at all three tiers are shown below.

Table 8.2 Manpower gap at three tiers of PRIs

Capabilities (Manpower) Zila Parishad Panchayat Samiti Gram Panchayat

Present Desired Present Desired Present Desired

Administrative Officer to each PRI

Document and file Manager

Planner

Engineer

Accountant

Computer operator

Senior clerk

Clerk



Legend:

Green - Resources at PRIs are found to be adequate for performing their roles and responsibilities.

Yellow - Resources at PRIs are found to be average and needs continues capacity building and training for better performance of the personnel.

Red - Resources at PRIs are found to be non adequate. Recruitment or outsourcing option can be explored for bridging the gap. This may create bottleneck in implementation of the desired system.

Administrative officer for each PRIs should be independent. PRIs should also have computer operator and file and document manager to meet the functional requirements of the ePRI project. PRIs have less than sanctioned but sufficient clerk and senior clerk for discharging the regular office work with the help of automated system. The pool of planner and engineer can be formed on outsourcing or permanent basis to meet the periodic requirement of PRIs.

8.2.1.1 Filling up vacancies and additional post

As already discussed, number of resources available with PRIs in Bihar is much less than the required. Also, the resources available lack the requisite knowledge to perform their duties efficiently. PRIs are expected to do accounting of more than 30 schemes. However, during the study it was observed that in Gaya district that there is only one accountant in ZP whereas Panchayat Samiti and Gram Panchayats do not have any accountant.

For planning related activities, there are no resources available at Panchayat Samiti and Gram Panchayats. ZP has a resources allocated for planning but it is a shared resource and not a dedicated one. This further contributes to impediment in the planning activities. Activities pertaining to implementation also suffer the same fate. At ZP there are clerks present but no resources available at Panchayat Samiti and Gram Panchayats. In Gaya District alone, there are more than 40% positions that are vacant, clearly highlighting the resource shortage. With regards to the monitoring activities, there are resources available but there is no execution since the stakeholders do not perceive any value in performing such activities.

Table 8.3 – Posts to be created in PRIs

In the GP In ZP Total Sr. No.

Designation of Posts No. of Posts No. of Posts

No. of Posts

1 Dy. Chief Executive Officer ( Up-gradation)

- 2 2

2 Superintendent (Up-gradation) 189 2 191

3 Accountant(Deputation from Directorate of Accounts)

189 - 189



In the GP In ZP Total Sr. No.

Designation of Posts No. of Posts No. of Posts

No. of Posts

4 L.D.C. (Data Operator) (Up-gradation) 189 4 193

5 Executive Engineer (Deputation from PWD)

- 4 4

6 Assistant Engineer (Deputation from PWD)

- 2 2

7 Technical Assistant (Deputation from PWD)

11 2 13

8 Junior Engineer (Deputation from PWD)

25 5 30

8.2.2 Training Strategy

Change Management and Training has emerged as the most critical factor for successful implementation of e-Governance Projects. It is imperative to impart sufficient training to end user to make the transition acceptable at the operational level. Training is most important component for managing the change and getting buy in from the users of the system.

8.2.2.1 Training requirements

Training is a crucial component of the Change Management Plan, especially where processes have changed or new skills are required. It is of paramount importance that employees be fully prepared before they are expected to perform new duties. An overview of the training delivery methods is given below. Details on advantages and disadvantages of each of these methods are enumerated in Annexure b.

Training Delivery Methods

1. In-house training

In this model, all trainings will be planned and delivered by the PR department itself with the help of its own functionaries, facilities and resources. In order to conduct in-house trainings, the department would need the requisite training infrastructure such as facilities, AV equipment, IT equipment, besides skilled training faculty. Various channels that can be used for providing In-house trainings such as Workshops, Group discussions, Audio visual sessions, Web based learning sessions etc. 2. Training from state level / regional level training agencies

The alternative to in-house training is leveraging the established state-level agencies (such as SIRDs along with their regional centres if any) to develop, plan and deliver the desired trainings. These are usually the government owned training institutes that specialize in conducting trainings for government employees and can customize trainings to the specific



needs of a group of people. They have established training infrastructure including facilities, IT/AV equipment besides trained faculty. These institutes usually employ faculty who have had some association with government departments so that they can explain the subject to the trainees with relevant examples and insights. In addition to classroom sessions, various innovative techniques such as plays/ skits/ audio visuals/ study tours etc can be used as these modes are cost effective for a larger group as compared to small batches.

3. Training from external agencies on contract

Trainings can also be provided through contractual relationships with external agencies that specialize in training design, planning and execution. These agencies specialize in various subjects and have professionally qualified faculty to deliver customized trainings.

4. Hybrid model In many cases, it might be more appropriate to utilize a combination of the training models (inhouse, SIRD, external agencies) described above based on various criteria such as nature of training, available subject matter expertise, batch size etc.

A Hybrid model is best suited for such a project where the target audience varies widely in terms of expertise, training requirements, etc. Hence it is suggested that the target audience be divided into groups based on some identified similarities in terms of training requirements and accordingly different models can be used to meet the needs of the group. Employees and elected representatives of PRIs can be grouped under following groups for imparting the training on the basis of their envisaged role and responsibilities.

• Elected / Public representative of Zila Panchayat • Elected/ Public representative of Gram Panchayat • General Standing Committee of Zilla Panchayat • District Water Sanitation Mission (Director PR is a member) • District Planning Committee • Inter-departmental Steering Child Development & Protection Committee. • Watershed Association • Vigilance Committee • District Level Vigilance and Monitoring Committee • Ward Developmental Committee • Supervisory Committees at GP level • Vigilance Committees at GP Level • Village Education Committees • Village Water Sanitation Committees • Executive officer of PRIs



• Engineering staff of PRIs • Accounting staff of PRIs • Operational staff of PRIs

The various training required for PRIs are listed below.

• Preparation of annual action with focus on decentralized planning and convergence of scheme • Plan Plus Application • Accounting standard and PRIA soft application • Scheme management and monitoring • Domain training to respective standing committees

General Standing Committee of Zilla Panchayat District Water Sanitation Mission (Director PR is a member) District Planning Committee Inter-departmental Steering Child Development & Protection Committee. Watershed Association Vigilance Committee District Level Vigilance and Monitoring Committee Ward Developmental Committee Supervisory Committees at GP level Vigilance Committees at GP Level Village Education Committees Village Water Sanitation Committees

• Basic computer training • ePRI application training

Training duration can range from 2-5 days on the basis of number of trainees. Mapping of training with groups should be made before imparting the training on the basis of roles and responsibility of the group. Training needs analysis and training details are shown in the tables below. However it should be noted that following tables are only representation of trainings categorized by the stakeholder groups and the same have not been taken into account during costing for CBT in the state (except for training on proposed ePRI application, Plan Plus and PRIASoft) as all these are already being provided by the SIRD. Costing for CBT has been done according to the training specifications mentioned in “Table 8.7: BOM for training and capacity building”.



Table 8.3: Training Needs Analysis (a)

Public

Representative

General Standing

Committee*

Finance, Accounting &

Planning Committee*

Social Justice Committee

Education Committee

Public Health, Family Welfare

& Rural Sanitation Committee

Production Committee

Trainings

ZP PS GP ZP PS GP ZP PS GP ZP PS GP ZP PS GP ZP PS GP ZP PS GP

Core Functional Skills Preparation of Annual Action Plan

√ √ √ √ √ √ √ √ √ × × × × × × × × × × × ×


√ √ √ × × × √ √ √ √ √ √ × × × × × × × × ×

Accounting standard and PRIA soft application

× × × × × × √ √ √ × × × × × × × × × × × ×

Scheme management and monitoring

× × × × × × √ √ √ √ √ √ √ √ √ √ √ √ √ √ √

Domain training to respective standing committees

× × × × × × √ √ √ √ √ √ √ √ √ √ √ √ √ √ √



*Note: Finance, Accounting & Planning Committee is a part of General Standing Committee at Gram Panchayat



Technology Related

Basic computer training

√ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √

ePRI Application training

√ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √

Basic training on using Internet and emails

√ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √

PlanPlus Application

√ √ √ × × × √ √ √ √ √ √ × × × × × × × × ×

Soft Skills

Conducting effective PRI meetings

√ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √

Managerial Skills

√ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √

Problem Solving techniques

√ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √ √



Table 8.4: Training Needs Analysis (b)

CEO – ZP

EO – PS

Panchayat Secretary – GP

Engineering Staff Accounting staff Operational Staff

Trainings ZP PS GP ZP PS GP ZP PS GP ZP PS GP

Core Functional Skills Preparation of Annual Action Plan

√ √ √ × × × × × × × × ×


√ √ √ × × × × × × × × ×


× × × × × × √ √ √ × × ×


√ √ √ × × × × × × × × ×


√ √ √ × × × × × × × × ×



Technology Related


√ √ √ √ √ √ √ √ √ √ √ √


√ √ √ × × × × × × × × ×

ePRI application training

√ √ √ √ √ √ √ √ √ √ √ √


√ √ √ √ √ √ √ √ √ √ √ √

Soft Skills

Conducting effective PRI meetings

√ √ √ √ √ √ √ √ √ √ √ √

Managerial Skills

√ √ √ √ √ √ √ √ √ √ √ √

Problem Solving techniques

√ √ √ √ √ √ √ √ √ √ √ √



Table 8.5: Training details

Training Target

Audience Aim Delivery mode

Suggested Modules

Preparation of Annual Action Plan

• CEO – ZP • EO – PS • Panchayat

Secretary – GP

• Public Representatives at all three tiers

• General Standing Committees at all three tiers

• Finance, Accounting & Planning Committee at all three tiers

• Present skill set at ZP and PS level is found to be not adequate. At GP level it is average. A large scale capacity building and training is required to take this up to the desired level.

• To remove bottleneck in implementation of the desired system

• Instructor led – classroom based

• Distance learning – Training Material

• Data Analysis • Knowledge

about committees and role of PR Officials

• Drafting govt. documents such as notices and circulars

• Budget preparation

• Office Administration



Secretary – GP



• Social Justice Committee at all three tiers

• Educate stakeholders to start using PlanPlus

• Increase usage of PlanPlus • At ZP,

PlanPlus used only in its basic form

• At Ps and GP PlanPlus is not used at all


• Web based training • Distance learning –

Training Material

• Training on PlanPlus Application (Beginner, normal and expert level)

• Understanding various functionalities of PlanPlus


• Accounting staff at all three tiers

• Start using PRIA soft application for financial and accounting management



Training Material

• Training on PRIA Soft Application (Beginner, normal and expert level)



Training Target


Suggested Modules

• Utilising PRIA soft for functionalities such as • Budget

Planning and allotment

• Expenditure Tracking

• Financial Audit

• Understanding various functionalities of PRIA Soft



Secretary – GP



• Education Committee at all three tiers

• Public Health, Family Welfare & Rural Sanitation Committee at all three tiers

• Production Committee at all three tiers

• Employ features offered by PlanPlus for scheme management

• Effective management and monitoring of various state, central and external agency aided schemes

• Schemes are planned, implemented and monitored more efficiently

• Create awareness about the benefits of the schemes and services

• Streamline interactions between various line departments



• Training on inter department coordination

• Brainstorming techniques

• Refresher course on decentralized planning



Training Target


Suggested Modules

• Reduce bottlenecks in delivering service



Secretary – GP






• Providing domain expertise to the stakeholders in their respective domains

• Improve efficiency

• Create awareness about the benefits of the schemes

• Streamline interactions between various line departments

• Reduce bottlenecks in delivering service



• Training on PRIA Soft Application (Beginner, normal and expert level)

• Training on finance

• Training on planning

• Training on accounting

• Training on Bihar Panchayati Raj Act



Secretary – GP


• Finance, Accounting & Planning Committee at

• Educate stakeholders in basic IT skills as they lack basic knowledge of working on computers

• Improve e-Governance readiness for the state of Bihar



Training Material

• Using desktop computer system

• Using basic software such as Microsoft Excel, Microsoft Word, Internet explorer



Training Target


Suggested Modules

all three tiers • Social Justice

Committee at all three tiers





• Engineering staff at all three tiers

• Operational staff at all three tiers

• Contribute to the overall success of ePRI Project and other NeGP initiatives

ePRI application training


Secretary – GP




• Inform stakeholders about the services and functionality of ePRI Application

• Create awareness among the stakeholders

• Address concerns and resistance

• Contribute to the overall success of



Training Material

• Training on ePRI Application (Beginner, normal and expert level)

• Understanding various modules and functionalities of PlanPlus



Training Target


Suggested Modules





• Engineering staff at all three tiers Operational staff at all three tiers

ePRI Project and other NeGP initiatives

• Improve e-Governance readiness for the state of Bihar

• Get buy in from all the stakeholders



Secretary – GP





• Public Health,

• Create awareness among all stakeholders to make them more comfortable with technology

• Able to use email as a reliable form of communication

• Address any resistance and fear that might of the stakeholders



Training Material

• Using Internet • Using emails



Training Target


Suggested Modules

Family Welfare & Rural Sanitation Committee at all three tiers



• Engineering staff at all three tiers

• Operational staff at all three tiers

8.2.2.2 Training Facilities

As evident from the above training needs, the Government has to undertake massive training programme for the PRI. BIPARD, the nodal agency of the government of Bihar for training and capacity building, needs to be well equipped and come up with sound mechanism for training more than 24,000 PRI functionaries and associated administrative staff on at least 9 subject matters as suggested above. BIPARD, Department of Panchayati Raj and Government of Bihar may consider developing a PPP model for the same. PPP model including specialized agencies and NGO need a well defined roadmap for undertaking this mammoth and momentous task.

The government may establish a standing committee for continuous training of the three tiers of Panchayati Raj Institutions as both functionaries and administrative staff would change after a given period.

Currently the BRGF cell in the Department of Panchayati Raj is responsible for the Computer training. The cell is having close association with NIC and has engaged NIC for all computer related trainings. It is reported that the State Government provides training through District Panchayat Raj Officers. Efforts are being made to strengthen the Panchayati Raj Training Institutes especially located at divisional head quarters. Financial grant of Rs. 100 lakh have been provided to these institutes for strengthening of their facilities under BRGF. BIPARD provides training for empowering the elected members about their role and responsibility. NGOs are also providing training through their own initiatives for about two days. Two NGOs, namely, CENCORED and THP (The Hunger Project) are conducting functional literacy



courses, especially for the women elected representatives. No common curriculum has been adopted by these NGOs. The training curriculum used by NGOs is mostly awareness creation regarding the provisions of the Act and functions, roles and responsibilities of elected representatives. Innovative training strategies include participatory simulation, role-play, group discussion, debriefing exercises, and play simulation. There are federations of Mukhiyas and Pramukhs in each district, but none particularly for women members.

8.2.3 Training effectiveness and support

Trainings conducted should also include the feedback from participants. This would give valuable insights on the direction of the entire program. If any correction is required in the content, mode or scope then that would be possible only through capturing the feedback. The process of taking feedback is incomplete unless actions are taken on them and incorporated. All trainings must include a five to ten minutes feedback session and should be tracked by the PMUs established. This would ensure that the impact and effectiveness of the training is high.

Following measures can be adopted for monitoring training effectiveness:

• Formal and informal feedback • Post training survey • Competency assessments by seniors

Training support mechanism should be in place such as a call centre, online support, user manuals/ guides, email support, etc to assist people on a need basis post their formal training.

8.3 Bill of Material

Owing to the mammoth structure of the PRIs, it may not be possible, to impart training to every PRI member. Therefore by the virtue of past experiences, cascading mode of training has been recommended. Accordingly, the Bill of material detailing the number of participants to be trained at each level of PRI is given below.

The total numbers of participants that are required to be trained have been distributed on an year-wise basis.

Table 8.7 – Manpower to be Trained Level-wise No. of PRI Officials & Members to be Trained

Level Officials Members ZP 6 2 BP(BDO office) 3 1 GP 1 1

• Zila and Janpad Panchayat: 75% of total participants would be department officials and 25%

of the total participants would be elected members



• Gram Panchayat: Out of the total participants 50% shall be officials and rest 50% shall be elected members.

Accordingly, the number of PRI officials and members to be provided ePRI Application training will be as detailed in the tables below:

Table 8.8 – PRI Officials to be Trained Participants To Be Trained (Number)

Level PRI Officials To

Be Trained (Number)

Year 1 Year 2 Year 3

ZP 228 72 72 84 BP(office of BDO) 1593 531 531 531

GP 8463 2821 2821 2821

Table 8.9 – PRI Members to be Trained Participants To Be Trained (Number)

Level

PRI Members To Be Trained (Number) Year 1 Year 2 Year 3

ZP 76 24 24 28 BP(office of BDO) 531 177 177 177

GP 8463 2821 2821 2821



9 Change Management This section provides a suggestive change management plan with the underlying objective of getting

stakeholder buy-in of the solution and suggests measures to mitigate resistance easily. Additionally, a

communication and awareness creation plan for various stakeholders has also been chalked out. The

activities mentioned herewith are critical for the success of this project.

This section will have impact on the cost in terms of cost for communication and creation of

awareness. The total cost impact is Rs. 32.42 crores approximately

Summ

ary

9.1 Change Management Plan

The objective of this stage is to develop an action plan to achieve the change management goals. The change management strategy and the change management implementation plan would be an integrated plan of communication, training and other change interventions to assist PRIs in effectively transforming itself to the new way of doing work.

The underlying objective of the change management activities will be to engage the stakeholders so that they become part of the solution and embrace the change more readily. Rather than addressing resistance later, the intent will be to obtain early involvement of stakeholders who have a stake in the success of the entire process and to foster continuing participation.

The activities under change management should not be seen as a one time activity but should be monitored and reviewed continuously. The change management encompasses all activities aimed at helping stakeholders to successfully accept and adapt to the new technology and new ways of working. Overview of change management framework is given figure below.

Figure 9.1: Change Management Framework

The Change Management Framework broadly covers three main areas:



• Change Management Plan • Change Architecture • Implementation, Planning & Monitoring

Change Management Plan comprises of the activities that would assist in defining the change interventions required for the ePRI project. The extent, pace and style of change to be followed needs to be customised in accordance with the prevalent state of affairs. The policy framework for organisational transitions is also part of the Change Management Plan. Transition activities for the individuals are also defined here. It also includes the training and communication strategy.

Post implementation of this project would lead to modifications or changes in the current organisation structure which would necessitate its designing closely supported with the definition of new roles and profiles. Additionally, formation of change teams and detailed roles & responsibility definition forms the premise of Change Architecture.

Change Management Framework also includes a feedback loop to monitor and take feedback from all stakeholders. It is important to defined milestones which can be tracked on periodic basis and if any course correction is required it can be incorporated without delays.

9.1.1 Mapping the entire critical stakeholder community

The following table gives the mapping of the stakeholder with respect to various parameters such as impact, influence, support, involvement, etc.

Table 9.1: Stakeholder Mapping

Stakeholder Impact Rating

Influence Rating

Support Rating

Involvement Rating

Communication till date

Channel

Citizen High Medium Medium Medium Formal & informal

both In Gram Sabha

PRI High High High High Formal PRI

Meetings PR

Department High High High High Formal PRI

Meetings Line

Departments Medium Medium Medium Medium Formal

Standing Committees

High High High High Formal PRI Meetings

Engineering Staff

High High Medium High Formal & informal both

PRI Meetings

Accounting Staff


PRI Meetings

Operational Staff


PRI Meetings



9.1.2 Awareness and Communication Plan

The communication plan maps out a clear agenda for delivering key messages to stakeholders throughout ePRI Project. It includes communication to identified stakeholder groups, common and repeatable themes and communications roles.

Awareness Generation Strategy

The following channels shall be used as mediums for communicating with the employees and citizens and creating awareness about the new system and processes:

(i) Orientation workshops (ii) Scheduled activities for change management exercise (iii) Road Shows/ Skits (iv) Duggi (v) Posters (vi) SMS (vii) Through NGOs

Official Communication Strategy

(i) Use of e-Mail to the extent possible as only mode of communication for all change management activities

(ii) Release of supporting Departmental Orders for implementation of change management program

Use of other channels of communication (i) Informal channel of communication – peer groups, forums and employee unions. (ii) Use of ‘grapevine’ channel of communication handled by change agents and

champions.

Citizen Communication Strategy (i) Use of gram sabhas (ii) Information about the Panchayat State portal with details of service offerings (iii) Effective use of ASHA for conducting awareness camps at grass-root level (iv) At village level word of mouth is an efficient mode of spreading information and can be

accounted as one of the channel (v) Duggi (vi) Through NGOs

The following table gives the communication plans for citizens, PRIs and other government officials.



Table 9.2: Macro level awareness and communication plan for various stages of implementation

Audience

Mode of

Delivery

Location/ Venue

Launch communicatio

n

Responsibility

After 3 months

After 6 months

After 1 year

PR department

Workshop, seminars, email, notice/ circulars

PR Department office

Start of the implementation phase of the pilot project and final roll out. Any major changes/ developments that require a communication

Secretary, PR

Status update/ Need support

Status update/ Action required

Status update/ feedback session

Line Department


Office location of the line department

Start of the implementation phase of the pilot project and final roll out. Any major changes/ developments that require a communication

Secretary for the department




ZP


PRI Office

Start of the implementation phase of the pilot project and final roll out. Any major changes/ developments that require a communication. Need basis

Chairperson, Deputy Chairperson




BP

Workshop, email, notice/ circulars

PRI Office

Start of the implementation phase of the pilot project and final roll out. Any major changes/ developments

Pramukh, Up-Pramukh






Audience

Mode of

Delivery

Location/ Venue

Launch communicatio

n

Responsibility

After 3 months

After 6 months

After 1 year

that require a communication. Need basis

GP

Workshop, email, notice/ circulars

PRI Office

Start of the implementation phase of the pilot project and final roll out. Any major changes/ developments that require a communication. Need basis

Mukhiya, Up-Mukhiya




Citizen

Notice/ circulars, SMS, Public Announcement (Duggi)

Nearest PRI Office

Start of the implementation phase of the pilot project and final roll out. Any major changes/ developments that require a communication.

Respective Public Representative




Citizen Table 9.3: Communication Plan for Citizens

Vehicle of Communication/

Medium of communication

Key Message Purpose of Message

Sensitivities Mitigation Strategy

Gram Sabha, Public

Announcement (Duggi)

Launch of the project, information on schemes, health camps and ration coupons distribution. Citizen’s role and responsibilities for

Make them aware of existing and new services. Inform about ration coupon distribution schedule, health

Elected representatives not happy with the present govt in the state

Identify them before hand and take them into confidence before such mass communication







devolution of powers to PRIs

camps, student scholarship distribution. Information specific to citizen’s needs should also be addressed.

PRIs Table 9.4: Communication Plan for PRIs





PRI Meetings, seminars,

workshops, trainings,

notices, emails and circulars

Role and responsibilities of elected public representatives and other PRI members such as members of the standing committees.

Make them aware of the job responsibilities and day to day activities to carry out. Creating awareness on Bihar Panchayati Raj Act 2006 and other government orders. Inform stakeholders on the changes that will take place pertaining to ePRI. The changes include the new processes, civil and ICT infrastructure

It may lead to conflicts between various committees of the PRIs and the line departments. Resistance from the PRI officials due to new system being introduced. Lack of resources in the early phase might lead to chaos.

Identify and anticipate conflicts that may arise. Plan for their resolution in advance. Showcase the benefits of the change to counter the resistance from the stakeholders.



Government Departments/ Offices Table 9.5: Communication Plan for Government Dept. / Offices





Seminars, workshops, Trainings,

Notices, emails and circulars

Role and responsibilities of government officials. Support to be provided to the PRIs to fulfil their duties more efficiently.

Make them aware of the job responsibilities and day to day activities to carry out. Creating awareness on Bihar Panchayati Raj Act 2006 and other government orders. Inform stakeholders on the changes that will take place pertaining to ePRI. The changes include the new processes, civil and ICT infrastructure

It may lead to conflicts between various committees of the PRIs and the line departments. Resistance from the government officials due to new system being introduced. Lack of resources in the early phase might lead to chaos.

Identify and anticipate conflicts that may arise. Plan for their resolution in advance. Showcase the benefits of the change to counter the resistance from the stakeholders.

Other Stakeholders

Table 9.6 Communication Plan for other stakeholders





Guidelines Role, concessions, grievance methodology

Make them aware

Suppressing information fearing dilution of importance

NGOS should be trained about project and their role in it before hand



SECTION C

10 Implementation Strategy This section provides a detailed plan for implementation of the ePRI application in the state, listing down all

the steps that will need to be undertaken. An indicative phasing has also been suggested. The

implementation of the project is spread over a period of 36 months. All the activities are classified under:

Preparatory Phase, RFP Phase, Deployment Phase, Operations & Maintenance Phase; and

timelines defined for each of these activities with due care to inter-dependency of activities.

This section does not result into any cost component.

Summ

ary

Value for money in a private project may be in the form of Returns on Investment (RoI) but in a Government project, which is largely citizen oriented, it depends on the service delivery; and to that end the performance monitoring is important to provide incentives for improvement and to ensure that service delivery is in accordance with the output specifications envisaged.

In accordance with this view, a Service Procurement Model has been recommended for implementation of eGovernance in Panchayats. This would entail engaging a Service Agency (SA), which would provision the ICT hardware, including the augmentation of servers at the Data Centre, and connectivity at all the sites. The SA would also provide computer trained manpower for operational support to Panchayats. Additionally, services of a Capacity Building Agency (CBA) would be required for training the PRI officials and members on the usage of the software applications. The payments will be made to the SA on a monthly basis and would be tied down to the quality of service provided by them. Depending upon the market dynamics and capacities of the interested agencies the services of SA and CBA may be sourced from a single agency.

The project implementation could be classified into the following broad level activities:

• Supply, installation, configuration and commissioning of state central server side hardware • Supply, installation, configuration and commissioning of PRD and PRIs level hardware • Supply, installation, configuration and commissioning of horizontal connectivity to Zila

Parishad and Panchayat Samiti from BSWAN and wireless connectivity to Gram Panchayat

• Customization of ePRI software application; design and development of state specific module; testing and implementation of state ePRI software application

• Data Entry/ Data migration, validation and porting of legacy data • Sustenance period • Training • Project management



The tasks associated with these activities are briefly described in the following table:

Table 10.1 – Project Implementation Activities and Tasks

S. No.

Activities Tasks Responsibility

Centre

1 Supply, installation, configuration and commissioning of state central server side hardware

This activity involves:

a. The supply of all necessary application servers and related software by the Service Agency/ System Integrator (SI).

b. Commissioning of the hardware at the Bihar State NIC data centre to host the ePRI application

SA

2 Supply, installation, configuration and commissioning of PRD and PRIs level hardware

This activity involves supply and successful commissioning of PRD and PRIs level hardware for accessing the ePRI system. This includes all user level computers, biometric, Digital Signature, printers, scanners etc.

SA

3 . Customization of the ePRI software application; design and development of state specific module; testing and implementation of state ePRI software application

Service Agency implements the ePRI application software that meets all the functional requirements laid down in the functional and technical design of this document. Broad activities involve

i. Preparation of Software Requirement Specification (SRS) design,

ii. Preparation of Software Design Document (SDD),

iii. Design, iv. Developing, v. Testing, vi. Deploying, vii. Pilot implementation viii. State wide roll out of the state ePRI

software application. Implementation also has to integrate legacy applications like PlanPlus, PRIA soft, Panchayat portal with the ePRI system.

SA

4 Data Entry/ Data migration, validation and porting of legacy data

Service Agency has to digitize/migrate the data as specified by the department. Primary validation would be the responsibility of the Service Agency where as final validation could be done either by third party or the department.

SA / Line Department



S. No.

Activities Tasks Responsibility

Centre

5 Sustenance Service Agency would provide all support to department for the successful maintenance of ePRI system. At the end of sustenance period Service Agency would formally handover the project to department following standard practices.

SA

6 Training Training for ePRI Application would be provided to the PRI officials / members etc. for successfully operating, managing the ePRI system.

Capacity Building Agency

7 Project management

On overall ePRI project would be managed by the PMU structure as detailed in subsequent section for the successful implementation of system in compliance with the timelines

PMU

10.1.2 Project Implementation strategy

The implementation for ePRI system for PRD and PRIs in Bihar will comprise tasks including, but not limited to:

• Bid Process management - Appointment of Service Agency for implementation of ePRI system, who will perform following activities:

- Supply, installation, configuration, commissioning and acceptance test of state central server and site (Including PRD and PRIs) software and hardware for the ePRI system.

- Supply, installation, configuration, commissioning and acceptance test of user level hardware

- Supply, installation, configuration, commissioning and acceptance test of LAN at all locations.

- Design, development, testing, configuration, implementation and acceptance test of software applications.

- Creation of PRI master data and digitization of recommended databases

- Sustenance period operation

- Implementation of Change Management and Training Plan

• Project Management, Monitoring ,and Evaluation



Managing and implementing a project of this scale will have many challenges. Therefore, it is necessary to visualize, right from its inception, a formal project guidance and governance structure taking into account:

• Complexities of multiple types of PRIs across the state • Technology challenges • Low level of IT maturity and adaptability of technologies across users • High level of interdependencies between various entities etc.

This would ensure the successful coordination and management of a range of project initiatives within the department and become a driving force for the broader change agenda. The intent of developing and running suitable project guidance and governance structure is to promote a sustained improvement in the delivery of services by providing a vehicle through which:

• All stakeholders can be engaged • The objective for the Programme / project can be fully understood • The internal project and Programme management capabilities could be built • Specialist expertise and knowledge can be shared • Required high level interventions and support can be garnered

An appropriate project guidance and governance structure will guarantee the long-term success of the project.

The Ministry of Panchayati Raj, GoI has the responsibility for overall policy directives and Panchayati Raj Department, Government of Bihar has responsibility of over all guidance and coordination for all project activities related to ePRI Project. The project will be steered by the Central Program Governance structure. At a strategic / policy level at state, this responsibility will be vested in the State Project Management Committee (SPMC). The SPMC will be formed at the State level, and chaired by the, Chief Secretary, Bihar along with representation from all relevant departments. The SPMC will play a key role in policy formulation, guiding and advising the project implementation and the systemic reform that the project will initiate. The SPMC will monitor project implementation at the state level by coordinating with the State Project Management Unit (SPMU). Similarly, District Project Management Committee under chairmanship of CEO, ZP to monitor the implementation of the project at stat level. (Details of project management structure are available in Section 11)

The key tasks to be carried out by a SPMU and PMU are:

• Provide clear focus on the objective • Identify and structure the inter-relationships between project and the departments

implementing from PRIs. • Ensure clear and decisive action plans are in place for implementation of the proposed

project



• Provide confidence that improvements can be achieved through the Programme implementation and that the change is sustainable

The SPMU and PMU will function under the guidance of the SPMC and DPC respectively; and will be directly responsible and accountable for project implementation, day-to-day management and coordination, and for meeting the administrative requirements pertaining to ePRI project in Bihar. The PMU will provide information and thrust to adoption of good practice, and guide and support the various entities involved on all aspects of project implementation. The personnel included in the PMUs will be sourced from within and outside the government.

The structures described above aim to develop management structures that will manage the project efficiently and effectively, in economic and business terms. Although the formal structures do not attempt to include all possible stakeholders, the SPMC, DMPC, SPMU and the PMU will be responsible for consulting with stakeholders when necessary, for taking their views fully into account during project implementation, and for involving them wherever required.

10.1.2 Key Considerations for Implementation

Bihar has negligible penetration of IT in PRIs. The project has ambitious goal of streamlining and automating both internal functioning of the PRIs and service delivery from PRIs to citizen. Bihar has various challenges in terms of civil infrastructure, resources and security at majority of the Gram Panchayat. The key consideration for phasing are given below

• Targeting the easy win – two districts for pilot may be selected where civil infrastructure and basic amenities are available till Gram Panchayat level, security issues are minimal and desired numbers of resources are available at all three tiers of PRIs.

• Challenges for implementation the project in Bihar will increase from top to down. The implementation at Gram Panchayat will be most challenging because of local level problems.

• Phases for implementation can be defined on the basis tiers of PRIs. This will give opportunity for establishing the district level set up for implementing the project at block and Panchayat level. It will easy to manage implementation of ICT hardware, ePRI application and capacity building at block and village level from PMU. Also the implementation at district level will provide necessary motivation to other two tiers of PRIs.

• Exception mentioned under section 5 will have different approach for implementation.

• The key parameters and their possible impact on the project are shown in below table.



Table 10.1: Key Parameters and their impact

Impact on Implementation

High Medium Low

High

• Security at PRIs, specifically at Naxal effected regions

• Civil Infrastructure at PRIs, specifically at Gram Panchayat

• Institutionalization of To Be Processes

• Compliance of PR Act 2006

• Vacant position at PRIs

• Lack of planning and accounting skills

• Poor availability of electricity at GPs

Medium • Formation of PMU

• Formation of SPMU

• ICT connectivity at PRIs

Impo

rtan

ce o

f the

par

amet

ers

Low

None None • Civil Infrastructure at PRIs, specifically at Gram Panchayat

Security at PRIs, civil Infrastructure at PRIs and institutionalization of To Be Processes has highest dependency for implementation of the project and at the same time these all are out of the scope of ePRI project. Compliance of PR Act 2006 can be undertaken by the state PRD.

10.1.2 Project Phasing The project may be divided into five phases on the basis of key consideration mentioned in

above section. This an indicative phasing approach, however it will have to be validated by the

state before undertaking the implementation. The key activities at each phase are shown in

the table below. Table 10.2: Key activities - Phase Wise

S.No. Phase 1 Phase 2 Phase 3 Phase 4 Phase 5



S.No. Phase 1 Phase 2 Phase 3 Phase 4 Phase 5

1

Establishing ePRI Project Governance Structure

Installation and commissioning of ICT infrastructure at server site

Installation and commissioning of ICT infrastructure at all Zila Panchayat, Panchayat Samiti, , PMU and DPRO

Installation and commissioning of ICT infrastructure at Village Panchayats

Operations and Maintenance of ICT infrastructure and ePRI Application Software

2

Selection of Implementation and Capacity Building Agency

Installation and commissioning of ICT infrastructure at PRD and in two pilot districts

Imparting training to all district and block level users

Imparting training to all Village Panchayat level users

Reinforcement trainings

3

Institutionalization of BPR recommendations

Preparation of training material, plan and imparting training in two pilot districts

Go Live in all Zila Panchayats and Panchayat Samiti

Go Live in all Village Panchayats

4

Establishing Legal Framework for implementation of ePRI

Data digitization, Migration and Mapping

5

Visioning workshop involving all the stakeholders

Customization of Panchayat State portal and Go Live in Pilot

Phases of the project will be overlapped with each other. However, parallel execution of the two complete phases is not possible. Phase 1 predecessor is phase 2 and phase 1 and 2 are predecessor two all other phases. Phase 1 and Phase 2 will establish the required program governance and legal and ICT infrastructure for rolling out the ePRI across the state.

Irrespective of the phasing approach finalized the implementation of the ePRI project in the state of Bihar can be completed as per the following project plan.



9.2 Project Plan with Timeline The detailed project plan with responsibility centre is shown in below table.

Timelines (Months)

S.No Tasks 1 2 3 4 5 6 7 8 9 10

11

12

13

14 to

48

A Preparatory Phase 1 Formation of CPMC by MoPR in consultation with CLMs and NIC 2 Visioning workshop for CPMC by MoPR

3 Directing the 34 state governments to form SPMC comprising of SLD and NIC representatives

4 State-level visioning workshops in 34 states (also involving CEO ZPs) 5 Formation of CPMU to assist the CPMC 6 Selection from empanelled agencies for formation of 34 SPMUs 7 Formation of 34 SPMUs to assist the SPMC

8 Directing the 579 Districts to form DPMC (headed by CEO, ZP) comprising of SLD and NIC representatives

9 District-level visioning workshops in 579 districts B RFP Phase

1 Preparation, Approval & Release of Model RFP including SLA at central level 2 State-wise prioritization of services to be rolled out and issue of necessary GOs 3 Data gathering by 34 SPMUs for finalization of BOM based on inputs by DP/BP/GP 4 Customization of Model RFP at 34 states and approval by SPMC 5 Release of RFP, Pre-bid, corrigendum & proposal submission by Service Agency

6 Techno-commercial evaluation, selection of service agency, negotiations & contract signing



Timelines (Months)

S.No Tasks 1 2 3 4 5 6 7 8 9 10

11

12

13

14 to

48

7 District-level kick-off meetings in 579 districts with vendor 8 Finalization of implementation plan with vendor

C Deployment phase ICT Hardware

1 Site survey for the user level hardware and Network installation 2 Preliminary inspection of hardware and network components 3 Network and hardware Installation and commissioning at data centre 4 Network & hardware Installation & commissioning at PRD 5 Network & hardware Installation & commissioning at DPRO and ZP 6 Network & hardware Installation & commissioning at BP 7 Network & hardware Installation & commissioning at GP

8 Acceptance tests for the network and hardware by Panchayat Secretary, EO-BP,

CEO-ZP 9 Onsite inspection

Data Entry 10 Mapping of Data, data entry and validation

ePRI application development 11 Preparation of SRS, Design documents and test plans 12 Software development / customization / integration 13 Installation and Configuration of software 14 User Acceptance Testing for state-specific applications

Manpower and Training 15 Deployment of manpower at locations 16 Preparation of state-specific training plan and approval 17 Imparting training as per training plan 18 Training Completion report, feedback and sign offs



Timelines (Months)

S.No Tasks 1 2 3 4 5 6 7 8 9 10

11

12

13

14 to

48

D Operations and Maintenance E Ongoing project management

1 Sustenance Effort 2 Project Evaluation



11 Project Management Structure This section provides details of the project management structure that needs to be constituted to implement

the ePRI project in the state. The details of the various committees to be formed at the Centre/ State/

District level, their composition and the roles & responsibilities are detailed out in this section. The State

Project Management Committee (SPMC) and the State Project Management Unit (SPMU) at the State and

the District Project Management Committee (DPMC) at the district will be responsible for implementation of

the project at the state and district levels, respectively, under the guidance and supervision from the Central

Project Management Committee (CPMC) & Central Project Management Unit (CPMU) at the central level.

Additionally, a Block Support Group (BSG) will be required at every block to provide inputs to the SPMC and

SPMU for effective monitoring. Also detailed here is the monitoring and evaluation framework with a

suggestive list of monitoring meetings that should be conducted and the reports expected monthly / quarterly

/ annually. This framework is complete with a description of risk management guidelines.

This section has impact on the project cost in terms of the PMU costs for the state and the districts for the

three years. The total ePRI State PMU cost for three years is Rs. 12.10 crores and the cost of BSG is 26.

crores approximately..

Summ

ary

11.1 Governance Structure The design and implementation of ePRI MMP under the federal structure is a complex exercise which involves formulation of detailed scope and project plan with necessary commonalties at the National level while allowing adequate scope for interplay of local variations, rules, procedures and implementation at the State level. Some of the key issues that need to be addressed are:

• Clarity in Roles and Responsibilities • Adequately robust and flexible Implementation Structure • Reach and participation till grass root level

PRIs function at the village, intermediate (block) and district level. There are approximately 2,34,030 Gram Panchayats at the village level, 6053 Janpad Panchayats at the block level and 535 Zilla Panchayats at the district level. There are more than 31 lakhs elected representatives at all three tiers. Given the enormity and complexity of the project, the implementation of the same requires a robust and still flexible project governance and management structure. The objective of project management is ensuring the implementation of the project as per the defined requirements, timelines, deliverables and budget. The project monitoring teams will be responsible for managing the overall project execution by the selected Service agency(ies) and ensuring that key objectives of the project are met and issues are highlighted in a timely manner. It is proposed to have well defined governance structure at Centre i.e. the Program Review Board with representatives from MoPR and each State. Further, it is proposed that Project



Management Unit (PMU) to be designed and set up at two critical levels of project implementation namely at the centre – MoPR – and at the state – State PR. It is imperative to have participation from all the key stakeholders viz MoPR, NIC, DIT and key Central Line Ministries at the Central level. The project implementation will be led by the Centre and States have to be key participants in this endeavour. Unlike other MMPs, ePRI MMP program governance structure will have participation till the grass root level i.e. the Gram Panchayats, which can be made possible by involving the Districts and blocks in the implementation process. Hence a three tier structure is proposed for program governance of ePRI MMP implementation:

• Central Level Body – Headed by Program Review Board (PRB) • State Level Body – Headed by State Programme Management Committee • District Level Body – District Programme Management Committee

Sections below detail out the structure, roles and responsibilities of each of the above mentioned level of program management structure proposed. 11.2 Project Management & Governance Structure at Centre The project governance structure provides a framework for the operations to support the MoPR and State PR for various activities and options relevant to successful implementation of the ePRI MMP, right from project conceptualization stage to complete roll out phase. The Governance Structure for project at Centre would be a three layered structure as illustrated in the figure below. The first layer would consist of a Program Review Board. The second layer would consist of key committees to act as advisory committees to the PRB on various aspects such as Technical, Functional, eGov Standards and Change management and the third one consisting of Central Programme Management Unit (CPMU). The first two layers would comprise of the Central Project Management Committee and would have the overall responsibility of steering the project nation-wide.



Figure 11.1: Central Level Body for ePRI MMP implementation Program Management

a. Programme Review Board (PRB) - It is proposed to setup Programme Review

Board to advise the government and monitor the progress of the over all programme. The board will have representation from all states and NIC under the coverage of e-PRI MMP. This will be chaired by Secretary, MoPR, GoI and convened by the Mission director / JS, e-PRI.

b. Sub-Committees - As part of the PRB, it is proposed to setup the following sub-

committees to manage the respective areas. These committees will have representation from a few states: i. Technical and Standards Specification Committee – This will also

include members of technical institutions. Its responsibilities will include:

• Scan emerging technology scenarios



• Provide & finalize technical specifications, keeping in mind the cost and sustainability issues, so that the same could be adopted in proposed software

• It will also include domain experts and members of academia (NIRB, IIPA etc.) engaged in study and research on matters relating Panchayati Raj and local governance. Its responsibilities will include:

o Ensure adoption of the prevailing suitable standards

o Develop domain specific standards if any ii. Domain Advisory Committee - Its responsibilities will include provide

domain expertise in the following areas: • PlanPlus • ActionSoft • National Panchayat Directory (NPD) • PRIAsoft • ServicePlus • Profiler • Taxation • National Panchayt Portal (NPP)

c. Central Programme Management Unit (PMU) - It is proposed to setup Central

Programme Management Unit, headed by Mission Director i.e. JS, MoPR, to manage the future action plan on the e-PRI MMP including software development, deployment, operationalization and change management. The constituents of PMU will include:

• Officials from NIC and MoPR • Contract / Consulting staff • Support staff

Structure of CPMU for Implementation of ePRI MMP: The team of Central Programme Management would comprise of 13 personnel, primarily to focus on co-coordinating the whole project at the India level with all the States. The Central Programme Management Unit (CPMU) would timely avail the inputs provided by the State project management units (SPMU) and the State representatives.

• Project Leader - 1, NIC • Project Manager – 1 PC • Technology Consultant - 1 (SC) • Capacity Building Consultant - 1 (SC) • Bid Process Expert – 1 (PC) • State Project Coordinators – 9 (1 each for minimum 4-5 States)



Figure 11.2: CPMU Structure

The CPMU’s primary responsibilities will include: The broad responsibilities include timely completion of the project, Quality of deliverables, SLA Monitoring mechanism, Risk Assessment Framework, Monitoring and Evaluation mechanism and the Methodology and framework for reporting. The detailed responsibilities of the Central PMU would include, but not be limited to, the following: • Execute the guidelines finalized by the PRB • Execute the decisions finalized/approved by MoPR • Analyze proposals on ePRI received from states. • Manage coordination between the sub-committees and the PRB • Provide support to the sub-committees and the PRB. • Oversee day-to-day functioning and • Manage overall coordination and liaisoning with states • Preparation of Project Plan with detailed activities and timelines in consultation with

Service Agency (ies) • Validation of Design formats prepared by Service Agency (ies) for data exchange between

centre and state, to meet the MIS requirements of MoPR • Monitoring of Project Implementation in terms of managing the Project timelines, Quality of

deliverables by close coordination with both Central implementation agency (NIC) and State Service Agencies.

• Ensuring Strategic control of the project with Centre • Working on the regular inputs provided by the State PMUs



• Designing Model RFP for the States to customize according to the state specific requirements

• Appraisal of DPRs, RFPs received from the states based on the detailed guidelines, SLA s issued by the MoPR from time to time

• Guiding and assisting the Bid Process Management for the MoPR and State PR departments for selection of Service Agency(ies).

• Ensuring the incorporation of open standards for interoperability, seamless data transfer between State and Centre in the recommended solutions as per the E-Governance standards.

• Coordination and Liasoning by State Project Coordinator with various State PMUs. • Resolve the issues raised by the SPMU on the implementation issues like SLA,

technology, standards and domain issues etc. • Setting Guidelines for SPMU to Review / monitor the progress implementations by the the

State agency • Assist to approve release of funds to the states for the project and their utilization. • Guiding and assisting the SPMU on maintaining quality and on time delivery / closure of

milestones of the Project by State Service Agencies. • Design parameters, metrics and methodology for collecting actual hardware and other

supporting infrastructure requirement at the 3 tiers of PRIs for the states. • Designing the MIS reporting & monitoring frameworks for the project • Issue identification, tracking, escalation and resolution management between Centre,

SPMU and state Service agencies in all aspects including customization of core application , data exchange and interoperability between Centre and States

• Coordination with different stakeholders and agencies and ensuring common understanding of issues between stakeholders

• Tracking timelines vis-à-vis the project plan and taking necessary action in case of slippages in coordination with SPMUs

• Validate the various training plans developed by Service Agency(ies) in coordination with SPMUs

• Monitor implementation of training plan in coordination with SPMUs • Vetting of reports and deliverables of the State IA through respective SPMUs • Supporting the MoPR in selection of an agency for conducting 3rd party Audits of the ePRI

MMP, as required under the RFP. • Maintenance of central repositories / tools for best practices, knowledge sharing • Validate the Exit plan for the various Service agency (ies) • Develop detailed Exit plan for the CPMU at the end of contract period • Capacity Building and Knowledge transfer to the MoPR as per the Exit plan

11.3 Programme Management and Governance Structure at State The State Governance structure would have two layers as shown in figure below. An Apex State Programme Management Committee (SPMC) for guidance and direction headed by the



Chief Secretary PR of the state and the second level consisting of State Programme Management Unit (SPMU).

Figure 11.3: Programme Governance Structure at State Level

Constitution of the Governance entities at State Level State Programme Management Committee: • Chief Secretary • Principal Secretary (In charge of the PR Department) • Representative of Finance Department • HODs of identified SLDs Department • State IT Secretary • NIC Representative • Internal domain specialist (full-time) • Representative of State DIT • Representative from NIC – (SIO / SIO coordinator) • Representatives from 3-4 District Programme Management Committees on Rotation basis • Technical & Change Management Experts - Internal / Hired from industry and reputed

institutions • Any other person deemed fit by the Secretary Role of State Programme Management Committee at the State level: • Overall guidance • Decisions on Policy matters • Approval of all deliverables by various agencies/groups • Financial Powers as per delegation



• Selection of Service agency / ies at the State • Monitoring and quality audit of activities performed by service agency at the State • Review of FRS at State level • Monitor implementation of BPR and Change management • Exercise Strategic Control • Ensure certification from Certifying agency on application developed before full State level

roll-out • Ongoing support and guidance to SPMU Structure of State PMU for Implementation of ePRI MMP • Project Manager- 1 (PC) • Technology Consultant- 1 (SC) • Capacity Building Consultant- 1 (SC) • Bid Process Expert - 1 (PC – Part time) • Zonal Coordinators (1 SC and 1 JC, each, for a zone of 5 districts)

Figure 2.4 :SPMU Structure

Role of State PMU The broad responsibilities include timely completion of the project, Quality of deliverables, SLA Monitoring mechanism, Risk Assessment Framework, Monitoring and Evaluation mechanism and the Methodology and Framework for reporting. The detailed responsibilities of the State PMU would include, but not be limited to, the following: • Design parameters, metrics and methodology for determining the actual requirements

before project commencement



• Designing the MIS reporting & monitoring frameworks for the project • Assist the SPMC in selection of service agency / ies at the State

o Customizing the Model RFP o Bid Process Management for the State PR for selection of State Service

Agency Pre-bid conference Techno commercial evaluation Negotiation and contract finalization

• Preparation of Project Plan with detailed activities and timelines in consultation with State Service agency (SIA).

• Review of FRS • Assist the SPMC in identifying areas of customization needed in the core applications.

Monitor the customization of core applications by SIA. • Validate the IT security/Business Continuity Plan developed by IA and monitor its

implementation • Monitoring of Project Implementation in terms of managing the Project timelines, Quality

of deliverables by close coordination with State Implementation Agencies • Tracking timelines vis-à-vis the project plan and taking necessary action in case of

slippages • Assist the SPMC in prioritizing the legal changes required for implementing the

reengineered processes. • Validate Training Plan developed by Service Agency • Monitor implementation of process changes. Assist SPMC in issue of GOs for

institutionalizing the changes • Monitor the imparting of training till GP level by SIA. • Vetting of all progress reports and deliverables of the SIA • Providing the required inputs to the Central PMU on regular basis • Serve as secretariat for SPMC for the Project • Ensure certification from Certifying agency on application developed before full State

level roll-out • Impact assessment after project go live with respect to evaluation parameters gathered

during the baseline survey • Defining detailed Exit plan for the PMU at the end of contract period

o Ensuring knowledge transfer to the SPMC as per the Exit plan The Zonal Coordinators will have overall responsibility for the implementation of the project in districts and is accountable to SPMC and Project Manager, SPMU. The responsibilities of the Zonal Coordinators will be: • Implementation of direction received from SPMC and Project Manager, SPMU • Project implementation in the respective district • Providing directions and guidance to Block Support Group and PRIs • Liasoning and Coordinating with the relevant officers at district level



• Enabling full knowledge and systematic application guidance to the implementation agency team in the initial stages and the testing and approval of the deliverables at the intermediate stage and finally the monitoring and analysis of reports for their respective districts as well as centrally for the entire state, to assist the SPMU and SPMC.

• Orienting the stakeholders on the structure and methodologies of project implementation and usage by conducting periodic workshops to discuss progress on the project and to identify and solve emerging problems

• Enabling effective transfer of knowledge and lessons learnt to the people involved in the project

• Address concerns / enquiries / complaints referred to the SPMU by stakeholders for their respective districts under the Zone

• Implementing procedures developed by SPMU to regularly monitor the performance of the project, and preparing regular monitoring reports based upon information submitted by the Block Support Group and the various service agencies

• Guiding Block Support Group to prepare progress reports on a regular basis and collating the same at SPMU level for their respective districts

• Coordination with the other Zonal Coordinators to ensure effective knowledge transfer/ adherence to common guidelines and adoption of best practices across all the districts

• Enabling regular monitoring through visits by block support groups to various PRIs under the blocks and escalating concerns if any.

• Enabling effective adherence of of SLAs by Service Agencies by setting common standards / reports to and guiding block support groups to monitor the same for their respective PRIs under the block.

• Monitoring Training Plan and adherence to the same by coordinating and liasoning with the various stakeholders and service agency

• Enabling adherence to the Exit plan by the service agency with help from block support group at the end of the Contract.

A District Programme Management Committee (DPMC) will be constituted at each District level headed by the Chairman ZP of the district, for guidance and direction to the the Block Development Officers of the respective blocks who will work in close coordination with the Block support group for monitoring the implementation of the project in the Gram Panchayats under the respective blocks.

Figure 11.5: Programme Governance Structure at District Level



DPMC will have responsibility of district wide successful implementation of the project. The structure of DPMC is shown below with the help of following organization chart.

Figure 11.6: DPMC structure

DPMC will be headed by Chief Executive Officer, ZP. DPMC should have District Officials of line departments who are implementing their schemes through PRIs; DIO, NIC for technical support; 3-4 BDOs on rotation basis; representative from 3-4 GPs on rotation and if required, locally recognized activist working for improvement of PRIs system in the district. The DPMC has the responsibility for overall implementation of policy directives of SPMC, guidance and coordination for all project activities related to ePRI. The DPMC will play a key role in implementation of project and the systemic reform that the project will initiate. The DPMC will monitor the district wide ePRI project implementation at district level by coordinating with the BDOs and the Block Support Group. DPMC will have following role and responsibilities.

• Implementing the direction received from SPMC



• Guiding the work of the BDO and Block Support Group • Reviewing implementation progress periodically • Considering recommendations put forward by BDOs

The DPMC is proposed to meet at least monthly although ad-hoc meetings may be convened by the Chairperson based on needs. Block Support Group at all the blocks will have the responsibility of providing the necessary support to the BDO, DIO and assisting the Zonal Coordinators of various districts at the SPMU level. The responsibilities of the Block support group will be:

• Implementation of direction received from Zonal coordinators at SPMU • Project implementation in the respective PRIs under the block • Liasoning and Coordinating with the relevant officers at block level • Assisting the Zonal Coordinators to collect the actual requirement of hardware for the

PRIs at Block and below level. • Liasoning and Coordinating with Service Agency contact person at Block level and

below. • Regular Monitoring and reporting on the actual status of implementation, hardware

deployment, training etc. • Enabling adherence to timelines and project plan by effective coordination • Surprise visits to various PRIs under the block to check the actual implementation status

and validate the status reported by the Service agency. 11.4 Monitoring and Evaluation The Monitoring and evaluation mechanism is indispensable for successful implementation of such a large scale project. A standard approach is required to minimize the risk and deviation of the project from timeline and scope. Three tier structures have been proposed for monitoring the project as explained under above section. The various reports along with frequency and content is shown below.

Table 11.1 Details of State Level Review Meeting Sr. Details Monitoring Aspects Participants 1 Monthly Progress Review

Meeting • Deviation from Project Plan • Key issues in implementation of

Project plan • District specific challenges • Strategic decision required by

SMPC

SPMU

2 Quarterly Progress Review Meeting

• Strategic decision from SPMC • Review of Monthly progress

meeting of SPMU

SPMC and SPMU



Sr. Details Monitoring Aspects Participants • Financial and physical progress of

the project • Support and guidance required

from CPMU 3 Half Yearly Progress Review

Meeting • Key challenges for implementation

of the project • Revision of project plan if required • Changes in SPMU structure/ staff

SPMC and SPMU

SPMC and SPMU should also conduct the field visit to assess the project progress and gaps in implementation. State level filed monitoring components are shown below.

Table 11.2 – State Level Field Monitoring

Sr. Details Coverage Aspects To Be Covered

Activities

A State Committee Surprise Inspections A PRI • Resources

provided to PRIs • Functioning of

PRIs • PRI elected

member satisfaction

• Citizen satisfaction

• Compliance report from ePRI portal

• Grievance from ePRI portal

• PRI home page at PRI portal

• Interviews and interactions

• Inspection of documents

B SPMU 1 Monthly Field

Monitoring Plan 1 CP 4 VP

• Installation/ functioning of ICT hardware

• Installation/ functioning of networking/ connectivity

• Installation/ functioning of ePRI application

• Implementation of CMT

• On spot verification of all the aspects and filling up these details in portal in detailed format developed by CPMU



The various reports from SPMU to CPMU will be required for enabling regular monitoring by CPMU of the project. The trigger will be generated to CPMU if SPMU has not submitted the report on time. The CPMU is responsible for reminding the SPMU for submission of report on time and presenting the multiple default case to CPMC.

Table 11.3 – Proposed Periodic Reports

Sr. Name Of The Report Information Content 1 Monthly Physical Progress Report • Schemes and service implemented from PRIs

• Installation/ functioning of ICT hardware • Installation/ functioning of networking/ connectivity • Installation/ functioning of ePRI application • Implementation of CMT

2 Monthly Financial Progress Report • Ratio of Utilization reports from ePRI system and manual submission

• Total number of SoR from ePRI system • Fund utilization status of schemes and ePRI project

3 Half Yearly Progress Report – Financial & Physical

• Regularity of physical and financial reports from district

• Quality of data available in reports • Deficiency in reporting

4 Quarterly Hardware Installation report

• Issues in functioning of ICT hardware • Issues in functioning of networking/ connectivity • Issues in ePRI application

5 Quarterly CBT report • Number of people trained in a quarter • Type of the training and batch size • Utilization of fund and future requirement • Estimated number of people to be trained • Specific training requirements from SPMU

6 Quarterly Networking report • Connectivity mapping with required and existing • Approximate uptime of the network • Issues in functioning of networking/ connectivity

7 Monthly application development report

• Average uptime of the ePRI application • Extent of usage of ePRI application • Bugs/ improvement areas in ePRI application • Additional requirement in ePRI application

8 Monthly implementing agency performance report

• Compliance of SLAs related to ICT hardware, networking, ePRI application and CMT.

All the reports will be posted using web forms available under MIS and KPIs module of the ePRI application. The Block reports will be sent through BDOs and DPMCs after their review and then collated at Zonal Coordinator level at SPMU level. Zonal Coordinator will be responsible for collation of block reports sending it to Project Manager, SPMU. However, if



there is administrative dependency and the delay is because of non responsiveness of the person out of the control of Zonal Coordinator or Block Support group; the Zonal Coordinator, Block support group and the BDO should be highlight such case to DPMC and same should be reflected in the MIS reports.

The same set of the collated report will also be required from SPMU to CPMU with status of their respective States.



SECTION D

12 Financial Solution

This section provides an estimation of the total project costs as well as head-wise & year-wise cost break-ups.

The Costs are divided into 6 heads: ICT (Hardware, Software and Network), Manpower, Training, Block

Support Group (BSG), Project Management Unit (PMU at the State and Central Level) and Information,

Education and Communication (IEC).

The total Project Cost for the state of Bihar is INR 381.47 crores out of which 55% will be incurred in

ICT provisioning, 29% on Manpower, 6% on Training, 7% on BSG, 3% on PMU and the remaining 0% on

IEC.

Summ

ary

The ePRI project implementation in the state of Bihar is estimated to cost about INR 381.47 crores including the cost of provisioning the ICT infrastructure, capacity building, state level project management units, block support group and IEC cost. The major assumptions on which this financial solution is based are listed in the Annexure c.

Over all Head Wise Break up Implementing e-PRI project in Bihar would incur a total cost of Rs. 381.47 cr. This includes costs related to ICT (Rs. 207.63 cr), deputing IT trained manpower at each level of PRI (Rs. 112.20 cr), training of officials and PRI members (Rs. 21.38 cr), providing block support group (Rs. 26.31 cr), establishment of State Program Management unit (Rs. 12.10 cr) and finally towards Information Education and Communication - IEC ( Rs. 1.84 cr). The table and graph below presents a brief snapshot of head-wise break up of total cost that shall be incurred in implementing e-PRI project in Bihar.

Head Wise Cost ( in Crores)

207.63, 55%

21.38, 6%

26.31, 7%

112.20, 29%

12.10, 3% 1.84, 0%

ICT

Manpower

Training

BSG

Program ManagementUnit

IEC

Further sub-sections show a component-wise break-up of the costs.

Headwise Estimated Cost (is Rs Cr)

No Head Cost

1 ICT 207.63

2 Manpower 112.20

2 Training 21.38

3 BSG 26.31

4 Program Management Unit 12.10

5 IEC 1.84

Total 381.47



Year Wise Break up

The total cost of the project has been distributed in four years basis the implementation plan provided in section 10. The table below presents the overview of the year wise breakup of the total cost that shall be incurred during implementation of e-PRI project.

Yearly total Cost (In Cr.)

Year 1, 37.43, 10%

Year 2, 122.50, 32%

Year 3, 127.34, 33%

Year 4, 94.20, 25% Year 1 Year 2

Year 3 Year 4

It can be inferred from the table above that nearly 10% of the cost is estimated to be incurred in the first year. 32% and 33% shall be incurred during year 2 and year 3 respectively. Finally the rest 25% of the total cost would be incurred during year 4. Yearly – Head wise breakup Broadly the cost estimates have been categorized under State ICT cost, Payout to Service Agency (PRIs ICT & Manpower), Training related cost, cost related to BSG, Program Management Unit and IEC. The following table depicts the yearly cost estimates against each of the cost heads:

Estimated ePRI Project Implementing Cost Break Up (is Rs Cr)

No Items Year 1 Year 2 Year 3 Year 4 Total 1 State ICT Cost 1.72 0.72 0.77 0.84 4.052 Payout (PRIs ICT + Manpower) 24.73 102.37 106.09 82.58 315.783 Training 3.56 7.13 7.13 3.56 21.384 BSG 1.91 8.26 8.92 7.22 26.314 Program Management Unit 3.66 4.02 4.42 0.00 12.105 IEC 1.84 0.00 0.00 0.00 1.84

Total ePRI Project Cost 37.43 122.50 127.34 94.20 381.47

Yearly Cost (in Cr.)

No Year Cost

1 Year 1 37.43

2 Year 2 122.50

2 Year 3 127.34

3 Year 4 94.20

Total 381.47



Year 1 ‐ Headwise cost (In Crores)

1.72, 5%

24.73, 65%

1.91, 5%

3.66, 10%

1.84, 5%

3.56, 10%

State ICT Cost

Payout (PRIs ICT +Manpower)

Training

BSG

ProgramManagement Unit

IEC


0.72, 1%

102.37, 83%

7.13, 6%

8.26, 7%

4.02, 3%0.00, 0%

State ICT Cost


Training

BSG


IEC

Year 1 Year 1 would be stone setting year for the project. Project will be kicked off with constitution of various committees and State Program Management Unit. It can be inferred from the graph that 65% of the total cost incurred during Year 1 shall be towards deployment of ICT & IT trained manpower at each tier of PRIs in terms of payout to the PRIs. The first 5 months as per the suggested implementation, the RFP will be floated to select the Service Agency and the deployment of the IT Hardware and IT manpower will begin from the 6th month of Year 1. Thus deployment of hardware and manpower at all PRIs will be incremental over later 7 months of the year 1 and hence the payout will be incremental in year 1 as well, which will depend upon the number of sites deployed in that manner. The lump sum IEC cost is provisioned in Year 1 only and may be utilized by state across across 3 years to generate awareness amongst the citizens and PRIs.

Year 2, Year 3 and Year 4

As per the implementation plan, the deployment of IT Hardware and IT trained manpower will happen incrementally in 7 months of the 1st year itself. Year 2 and 3 will see full fledged operation and maintenance support of ePRI system at all PRIs, thus the payout to service agency for hardware and manpower will be larger as compared to year 1. As the provision for IT manpower is made for 3 years or 36 months for each PRI site, hence in year 4 the IT manpower support will end incrementally at PRIs after first 6 months of full support. The cost incurred during these years would be heavily constituted of IT skilled manpower deployed at each tier of PRIs, who will be responsible for rendering the services as per the SLA defined. As seen in the graphs for year 2, 3 and 4, the ICT and IT manpower payout is the larger cost head. PMU will also continue to provide its services for the duration of 36 months (3 years) during the ePRI project implementation. Training cost is budgeted for 36 months staring 6th month of year 1 till year 4. Capex for setting up training infrastructure is included in year 1 itself.




0.77, 1%

106.09, 83%

7.13, 6%

8.92, 7%

4.42, 3%0.00, 0%

State ICT Cost


Training

BSG


IEC


82.58, 87%

0.00, 0%

0.84, 1%0.00, 0%

3.56, 4%

7.22, 8%

State ICT Cost


Training

BSG


IEC

Monthly Payouts to Service Agency

The roll out of ePRI in BIHAR is proposed to be based on a a Service Procurement Model (SPM), where a Service Agency(ies) (SA) will be selected through a competitive bidding process by the States. The States may decide to engage multiple SA, region-wise or district-wise depending on local suitability Once the contract with the SA is finalized a detailed implementation plan will be prepared by the SA in consultation with the SPMC. The roll-out, in BIHAR, is expected to take 7 months time during which the SA will deploy computers at all GPs / BPs/ ZPs in the State and also provide trained manpower for providing services to the GPs/ BPs/ ZPs. Once the services start at any GP / BP/ZP the SA will be provided a monthly payout for a period of 3 years as per the following table:

Year 1(Rs.) Year 2(Rs.) Year 3(Rs.) Year 4(Rs.) ZP 23512.39 23974.29 24473.15 25011.91BP 11636.17 11938.07 12264.12 12616.26GP 8906.00 9223.90 9567.24 9938.04

The above monthly payouts have been calculated by assimilation of monthly cost incurred to SA on following components: • CAPEX: This includes the cost of ICT infrastructure commissioned at each tier of PRIs • OPEX: This includes the cost of maintenance of ICT infrastructure • IT Trained Manpower: This includes the cost of IT trained manpower deployed by SA for

providing services to ZP/BP/GP The table below detailed out the monthly cost estimation considered for the calculation of payouts.

Year 1(Rs.) Year 2(Rs.) Year 3(Rs.) Year 4(Rs.) ZP 17738.63 17738.63 17738.63 17738.63BP 7862.41 7862.41 7862.41 7862.41

CAPEX (Monthly)

GP 4932.24 4932.24 4932.24 4932.24



Year 1(Rs.) Year 2(Rs.) Year 3(Rs.) Year 4(Rs.) ZP 773.76 835.66 902.51 974.71BP 773.76 835.66 902.51 974.71

OPEX (Monthly)

GP 973.76 1051.66 1135.79 1226.66

ZP 5000 5400 5832 6298.56BP 3000 3240 3499.2 3779.136

Manpower

GP 3000 3240 3499.2 3779.136

ZP 23512.39 23974.29 24473.15 25011.91BP 11636.17 11938.07 12264.12 12616.26

Total Monthly Payout

GP 8906.00 9223.90 9567.24 9938.04

ZP 2680412.68 10932277.46 11159754.31 8554071.99BP 18536418.41 76069384.89 78146993.04 60293107.38

Annual Payouts

GP 226114512.26 936742772.37 971610273.56 756950381.13Total Payout (In Crores)

24.73 102.37 106.09 82.58



SECTION E

13 Recommendation and Conclusion Decentralised governance and devolution of powers, an indigenous concept of local self governance, is the most effective way to address the needs and interests of the citizens of India in rural regions. With over two lack Gram Panchayats, having an efficient setup for such governance becomes all the more pertinent. Through the ePRI Project, rural villagers would participate directly in the planning processes and engage in various schemes being implemented by the Government to ensure that their interests are being effectively served and their money properly spent.

Long term success of this project has dependencies on more than one factor, failure or poor performance of any one of them would have a significant impact.

Some of the key factors include:

• Continuous driving effort at both centre and state level • Constant performance monitoring of all the schemes at all levels • Incessantly identifying gaps and loopholes along with their resolution • Leveraging advancements in technology at time of their inception • High level of flexibility and agility in adapting to changing eSolutions, for example m-

Governance • Development of skill set among all stakeholders to be perceived as a long term objective

The key recommendations are listed below.

• Line ministries of central Government should ask Department of Panchayati Raj of the states with copy to respective department for implementing the scheme through PRIs. PRD should call for joint meeting with department for doing the activity mapping for implementing the scheme including the role of respective line department’s district level officials. The PRD should forward these directions to Executive Officers of the PRIs in the state for implementing the scheme through PRIs and to respective district level officer for assisting the PRIs in implementation of the scheme by providing domain expertise.

• Automation of PRI meetings process for monitoring of PRI functioning • Preparation of annual meeting calendar of PRIs • Submission of details of PRI meetings and standing committee meetings including agenda,

participants and proceeding on Panchayat State portal • Linking of District Magistrate performance with PRI functioning • Monthly review of districts by state PRD Secretary • Planning process should be done as recommended in this report under section 6.1.1. Key

attributes of the recommended planning approach are given below. • Bottom up planning • Development centric planning



• Convergence of scheme • Creation of pool of planning resources • Time bound implementation and priority to the work undertaken by PRIs • Use of PlanPlus • Awareness program for building trust on planning • Implementation and monitoring of schemes by standing committee • Pool of resources at Block/District office and outsourcing of the resources • Transfer of funds to respective PRI’s account for all schemes for which Panchayat is

responsible for planning and implementation • Social audit and surprise inspection • PRIs should standard accounting application like PRIA soft for accounting • Component based BPR framework recommended in this report should be used for G2C

and G2G service delivery • Interim status update to improve transparency and accountability • Process map / description of the service may be printed on the back of application form • Independent and dedicated Chief Executive Officer, Executive Officer and Panchayat

Secretary to Zila Parishad, Panchayat Samiti and Gram Panchayat respectively • A Panchayat secretary to each Panchayat • Skill up gradation of Panchayat Secretary • Office with basic facilities for PRIs • Development of regular office culture in PRIs offices • Provide skilled resources (Planner & Accountant) on contractual basis • Use of already available Panchayat State portal for integrating all PRIs applications • G2C service delivery related key recommendations are as follows • Removal of dependency on PRI for IGNOAPS • Birth/Death registration by ANM and availability of certificate on demand • Use of standing committees for planning and implementation of SC/ST scholarship, SSA,

NRHM, Anganwadi etc. • Availability of forms of all the services at Gram Panchayat level • Status update of the application on mobile and web • Activity level service level and escalation matrix for compliance • Use of local knowledge of Panchayat for service delivery of new services • Use digital signature for authentication and delivery of digitally signed document to citizen

Key Recommendation for implementing G2C services are show below with explanation. Process • Availability and submission of standardized forms online would have impact on all project

objectives. There would be high level of transparency since all rejections will have reasons which are available to all. The decision making will also be improved by timely and instant availability of applications, which will also enable better planning by all stakeholders. These plans would reflect the needs of the citizens hence improve the service delivery. The



employees will not have to spend time in consolidating lists manually resulting in higher efficiency.

• Approved system generated fund demand goes directly to Additional Director (SS). As per the availability of the funds, Additional Director (SS) would transfer the funds to the BWO who in turn would transfer these funds to the account of the pensioner. This will improve the delivery time of the service to the citizens and at same time expedite the decision making process and improvements in the internal process.

• It is recommended that all applications requesting information should go through the online Panchayat State portal and all decision making activities are tracked through the automated workflow. Automation of process will lead to reduction in the number of primary actors and secondary actors thereby reducing time taken for the process. Government employees would have information / list available to them electronically

• It is recommended that application for birth registration after three months of the date of birth should be processed as per the As-Is process. All other applications for birth registration within three months would follow the new To Be process. If the birth is already registered there is no need for the applicant to seek approval and birth certificate can be directly obtained.

• The current process of on the spot redressal is not a structured way of addressing grievances and therefore it is recommended that new process of handling grievances through the online Panchayat State portal should be promoted.

• Introduction of PRI offices / CSCs would offer a convenient channel to start using RTI service. The proposed To Be process needs to be completely aligned with the Right to Information Act 2005. Public Information Officer cannot refuse to accept any application

• In order to reduce the turnaround time for issuance of Pensions under IGNOAPS, cases should not be discussed and approved by Gram Sabha and Gram Panchayat. IGNOAPS guidelines do not require this process. Cases are discussed to remove the name of beneficiaries who are not BPL on the basis of their current economic status. These cases are very rare but delay the complete process by months

• Availability of information online and through other channels would lead to high level of transparency on subjects discussed, issues resolved, key decision taken in the past PRI meetings. The date of upcoming PRI meetings would be readily available. This would also improve the service delivery to citizens.

• It is recommended that the online Panchayat State portal should be used by the BDO to map the distribution of the ration coupons with the APL and BPL families in the block. The order of distribution of ration coupons should be visible to all to remove any scope of discrepancy.

• To establish transparency in the distribution of funds, handling of exceptional case, certain provisions have been recommended. Even if the name is not in the BPL list, the Mukhiya has the authority to issue funds treating it as an exceptional case. Availability and submission of forms online would have impact on all project objectives.

• The supporting documents mostly include reference to BPL List, Death registration number / Death Certification, biometric of the applicant and digital photo of the applicant. Since



BPL List is digitized along with the death registration number, all these attachments can be made electronically and executed through an automated workflow

• In order to reduce the turnaround time for issuance of Pensions, cases should not be discussed and approved by Gram Sabha and Gram Panchayat. Widow Pension and pension for physically challenged guidelines do not require this process

• Establishment of a permanent office can allow the applicants to collect the EPIC when they are ready. Early notification for those who needs to apply for EPIC.

• It is recommended that the entire process of issuance of the certificate be followed electronically. However, provisions have be made for the BDO that if the BDO is not satisfied with the electronic information then manual set of activities can be followed. Though this should not be encouraged and long term goal for successful implementation of this process includes that all manual activities are kept at minimum level and avoided.

• It is recommended that any payment received from the land holder should be made at the PRI Office / CSC. This would lead to remarkable improvement in transparency and accountability of lagan collection process Introduction of the electronic medium would greatly improve the execution of the process and resulting in overall positive impact on all the project objectives

• The power situation in rural India is characterized by low and inconsistent power supply. In a scenario where it is envisaged that all Panchayats would be computerized, it becomes imperative to give due diligence to sources of power. While the mandate of ePRI project does not include provision of power, some alternatives and associated costs have been evaluated and are mentioned in Annexure d.

People

• Setting up of PRI Offices/ CSCs will result in much needed transparency and accountability especially at the entry point for availing the service. This will in turn lead to higher level of satisfaction among citizens. PRI Offices/ CSCs would become the intrinsic part of the process and result in the overall process improvement.

• Setting up of the Education Committee (EC) in accordance with the guidelines defined in the PRI Act 2006 of the State of Bihar will result in huge impact on all project objectives. Composition of the members of the EC as per the PRI Act will lead to high level of transparency and accountability. The decision making activities would be thorough and quality of the service delivered to the stakeholders would rise significantly. Members of the EC as defined by the PRI Act would ensure that the process of delivering the service becomes more effective at the ground level. Also, the ownership on the government employees would reduce as EC would be playing more active role in the process.

• If birth or death registration request is coming after 21 days then the Panchayat Secretary also includes statement of five witness and collects the affidavit from applicant

• In situations where the grievances can be addressed in writing or verbally to the PRI representatives, that process can still be followed. The PRI representative then asks the respective officer to register the grievances.



• On an ongoing basis, Gram Sabha and PRIs in successive meetings may object to distribution of certain kind of pensions provided to individuals. The name of the beneficiary will be removed and further pension will not be released. Thus eliminating the need for holding a Gram Sabha specifically for IGNOAPS

• Technology • MIS based reporting can significantly improve the timely availability of data to the

stakeholders. This will have an impact on all the project objectives. The Transparency & Accountability will enhance as the data will be instantly available to all government bodies from PRIs to Central Government. The decision making will also be improved by timely and instant availability of data, which will also enable better planning by government. These plans would reflect the needs of the citizens hence improve the service delivery. The employees will not have to spend time in consolidating multiple reports obviating the compilation errors as well as spare them enough time to focus on other important tasks

• Online availability of information would lead to high level of transparency since all information would be available in advance. Decision making will improve due to timely availability of information pertaining to the schemes. This will also improve the service delivery to the citizens

• Electronic medium and automated workflow would impact all parameters of the project objectives

• Real time tracking of the amount being sanctioned prevents the looping process in the system. Automation of the activity and real time access can improve transparency and reduce time lags. Decision making is also improved to a great extent

• The compilation and regular updating of the lists can be automated.

Finally, introducing ICT can make governance reform easier. As use of ICT has spread rapidly throughout Asian societies, centralized and bureaucratic government organizations face new demands and competitive pressures from citizens and the business community. In general, e-government projects increase the perception among citizens and businesses that the government is modernizing and moving forward.



14 Way Forward This ePRI Study project, which is a precursor to the ePRI MMP, was initiated with a comprehensive study to assess the current information and services needs of citizens, PRI and other stakeholders. This study lead to the identification of the information and services needs of various stakeholders, scope for re-engineering various functions and services carried out by PRIs, formulation of detailed roadmap for the transformation of Panchayati Raj system from existing state to e-PRI in Bihar.

The key activities in the DPR phase included: estimating ICT requirements, defining strategy for roll-out, defining project management structure, defining monitoring and evaluation structure, defining communication plan, defining change management strategy.

This phase focused on defining these components along with the associated outlays. The implementation plan, detailing out the activities to be undertaken for project implementation is charted out and the financial model for executing the ePRI MMP in Bihar is also defined. This phase has resulted in head-wise cost break up of the ePRI MMP in the State, which will be further aggregated with similar cost break up from a similar study being conducted parallelly in other states to arrive at a nation-wide cost for executing the ePRI MMP across the country.

As a next step, the aggregated National Detailed Project Report along with the Expenditure Finance Committee (EFC) note will be submitted by Ministry of Panchayati Raj to the Cabinet for approval.



SECTION F

I. Annexure a. Glossary

Acronym Full Form

BDO Block Development Office/Officer

BOM Bills of Material

BP Block Panchayat

BPR Business Process Re-engineering

Capex Capital Expenditure

CBT Capacity Building and Training

CEO Chief Executive Officer

CSC Citizen Service Centre

CSS Centrally Sponsored Scheme

DPR Detailed Project Report

DRDA District Rural Development Agency

GP Gram Panchayat

G2C Government to Citizen

G2G Government to Government

ICT Information, Communication and Technology

I & S Information & Service

Opex Operational Expenditure



b. Training Delivery Methods

1. In-house training

In this model, all trainings will be planned and delivered by the PR department itself with the help of its own functionaries, facilities and resources. In order to conduct in-house trainings, the department would need the requisite training infrastructure such as facilities, AV equipment, IT equipment, besides skilled training faculty. Various channels that can be used for providing In-house trainings such as Workshops, Group discussions, Audio visual sessions, Web based learning sessions etc. Advantages- In-house trainings can deliver the following benefits:

• Thorough understanding of PRI scenario - Training will be delivered by senior PRI functionaries themselves who have a good understanding of the PR scenario in the state, core PRI functions, rules and regulations, and the context in which trainees are expected to implement their new skills and knowledge

• Relevant content and delivery - Trainers will be well aware of the existing skill levels of the trainees and hence will be able to design and deliver the training in an appropriate and relevant manner

• Availability of dedicated resources - Training resources will be dedicatedly available for PRI employees, and hence the entire target audience may be covered relatively quickly

• Flexibility in planning and scheduling - Conducting trainings in house may be more convenient as training plans can be designed taking into account the staff’s schedule without disrupting their regular activities

• Good post-training support - Post-training support will be better as faculty members may be easily approachable since they work in the same department, and thus issues raised while implementing the skills learned could be easily resolved.

Disadvantages

• Lack of qualified training faculty – Non availability of qualified training faculty is one of the biggest challenges in providing in-house trainings. The staff available with PRIs have limited skills sets and are also not dedicatedly available for conducting trainings

• Inadequate infrastructure – Currently PRIs have limited infrastructure available with them to conduct trainings internally. Dedicated facilities such as Computers, Projectors, TV/VCDs are either not available or require maintenance to be used for imparting trainings. Besides, at some places civil infrastructure such as availability of rooms, power / electricity etc also poses issues for conducting trainings. New infrastructure and equipment will require significant expenditure

• Lack of training expertise, tools and methodologies – The PR department would need to invest time and resources in developing training expertise in both technical and behavioural aspects besides a professional and disciplined approach to training

• Inertia and resistance to change - There may be departmental inertia and resistance to change as a result of which skill development through internal training may only be incremental rather than transformational



2. Training from state level / regional level training agencies

The alternative to in-house training is leveraging the established state-level agencies (such as SIRDs along with their regional centres if any) to develop, plan and deliver the desired trainings. These are usually the government owned training institutes that specialize in conducting trainings for government employees and can customize trainings to the specific needs of a group of people. They have established training infrastructure including facilities, IT/AV equipment besides trained faculty. These institutes usually employ faculty who have had some association with government departments so that they can explain the subject to the trainees with relevant examples and insights. In addition to classroom sessions, various innovative techniques such as plays/ skits/ audio visuals/ study tours etc can be used as these modes are cost effective for a larger group as compared to small batches. Advantages

• Trained and experienced manpower – Training agencies in the state have professional, specialist trainers available with them to develop and impart trainings. These trainers are experienced and knowledgeable not only about the subject areas but also about the functional aspects of training including tools and methodologies.

• Adequate infrastructure – Training institutes have well equipped and adequately planned infrastructure such as class rooms, acoustically planned rooms for audio visual trainings, availability of TVs, VCDs, Projector and Computers etc. to support the different sets of training needs.

• Better understanding of concepts and processes – These training agencies employ trainers who have a background in public services, such as retired officers, experienced elected members, NGOs and similar specialized groups. This helps them have a better and broader understanding of the existing process as they have widespread experience in training different groups and can thus cross-pollinate best practices as well as learning takeaways

• Conducive learning environment - Special attention is paid to developing supporting material (manuals, guides etc) for assisting trainees during and after the training. Moreover, trainees may be more comfortable in asking questions and clarifying doubts freely at these institutions compared to in-house trainings which are conducted by their direct superiors.

Disadvantages

• Lack of dedicated resources – The facilities, faculty and other resources will not be dedicatedly available for e-PRI trainings. The existing infrastructure may not be able to cater to the entire training needs (in terms of training subjects, batch size etc). This may result in delays in training the entire target audience.

• Inadequate domain expertise - These institutes may lack domain knowledge or subject matter expertise in some of the proposed training areas.

• Issues in phasing and scheduling – Since these institutes cater to several training subjects and trainee groups, planning and scheduling ePRI training sessions could pose a



challenge. Training calendar followed by these institutes is generally fixed and sometimes does not give adequate importance to the regular activities of individual departments/ offices. Therefore, regular work-related activities of trainees will tend to get disrupted given the scheduling constraints. In addition, travel and accommodation costs may increase substantially if trainees need to travel to regional/central training centers.

• Limited post training support – After the trainings, trainees sometimes find it difficult to manage and operate the same applications on a different system available in their department, and may need on-the-job guidance and support. SIRDs may not be able to meet this requirement.

• Skill diversity among trainee groups – It is observed that there exist significant differences at the executive staff level across the districts, mandals, and grams in terms of existing skills and knowledge. SIRDs generally train groups comprising trainees from different districts. While this may encourage sharing of best practices, it may also hinder training progress given the skill maturity and knowledge of certain participants relative to others.

3. Training from external agencies on contract

Trainings can also be provided through contractual relationships with external agencies that specialize in training design, planning and execution. These agencies specialize in various subjects and have professionally qualified faculty to deliver customized trainings. Advantages

• Trained manpower and proven tools and methodologies – Manpower available with the external agencies specializes in various fields, and thus can provide high quality trainings through well researched case studies and training material developed over a period of time. They follow a structured professional approach to content development, training design and execution.

• Adequate infrastructure – Many external agencies have well established training facilities including class rooms, AV and IT equipment etc.

• Access to best practices – Most of these agencies have widespread training experience across public and private enterprises as well as government departments, and thus may be able to leverage their knowledge of best practices, tools and techniques to deliver a superior training experience

• High degree of customization – These agencies may be able to provide customized training solutions which may be able to better meet PRI requirements related to scheduling and batch sizes, target skill level, training content etc

Disadvantages

• High training costs – Trainings conducted by external agencies often prove to be expensive due to the following factors:

High cost of the trainers / faculty providing the trainings; Charges for the infrastructure facilities used; Travel cost of the trainees; and



Other miscellaneous costs – Accommodation, refreshments, training material etc.

• Limited PR-related domain knowledge – While these agencies may have expertise in functional areas such as IT skills and soft skills, they lack thorough understanding of the context in which PRIs operate and their core functions. In order to ensure that their trainings are relevant to PRI employees, they will need to invest time and resources in developing the appropriate content and delivery mechanisms.

• Limited post training support – After the trainings, trainees sometimes find it difficult to manage and operate the same applications on a different system available in their department, and may need on-the-job guidance and support. These external agencies may not be able to meet this requirement.

4. Hybrid model – In many cases, it might be more appropriate to utilize a combination of the training models (inhouse, SIRD, external agencies) described above based on various criteria such as nature of training, available subject matter expertise, batch size etc. Based on the requirement and the level of experience / expertise, different models can be used to meet the needs of the group.



c. Assumptions for Costing S No. Assumption / Standards used in respective areas Value (If

applicable) A ICT Infrastructure A.1 Cumulative Security Audit cost for all state modules (INR) 200000 A.2 All the PCs being provisioned will be provided with Internet

connectivity

A.3 The PCs at GP level have been estimated at the NICSI empanelled rates and internet connectivity charges have been estimated @ 200 per month per GP. However, the PCs with internet connectivity may also be procured from the vendors under agreement with BSNL under USO fund Subsidy.

A.4 States have been divided into two categories. Large States - 10,000 system users and above is large state and Small States - below 10,000 system users is small state

A.5 No of users are as per the no of PC proposed e.g. if there is 1 PC proposed at GP then no of users at GP = 1* total no of GPs

A.6 Internet connectivity charges have been budgeted for only GPs as the ZPs and BPs are assumed to be connected through a Government Network like SWAN, NICNET etc. If provision for extension of SWAN upto GP level exists, then the horizontal connectivity for that must be costed for and the internet connectivity charges at the GP level can be removed.

Open Source solutions are being proposed for all system software. Hence, there will be no CAPEX; only annual support cost will be budgeted for.

Maintenance cost of hardware is included in the Warranty support of 3 years.

Not budgeting has been done for AMC of existing ICT infrastructure

B Training B.1 At the ZP level 5 officials viz. ZP CEO, Chairman, 1 Accounting

Staff, 1 PWD Engineer and 1 Clerk have been considered for ePRI training. At the GP level Panchayat Secretary, Sarpanch and 1 Clerk have been considered for ePRI training.

C Contractual Manpower C.1 One Contractual resource at each PRI level is provisioned through

ePRI 1 at each PRI level

C.2 Man Month Rate of Contractual Resource with Basic IT skill set at GP Level : INR Per Month 3000 BP Level : INR Per Month 3000 ZP Level : INR Per Month 5000 The Manpower is being provisioned for a period of 3 years

irrespective of the project implementation plan. This is from the perspective of providing the handholding support to the PRIs.

D PMU D.1 Civil Infrastructure (Rent, Electricity, support infrastructure etc) for

PMU is not provisioned through ePRI and the state PR department is expected to provision for the same. That Implies No CAPEX cost for PMU is provisioned through ePRI.

D.2 Computing devices (Laptops etc) for External Consultants in PMU will be provisioned by Empanelled agency themselves and not through ePRI

D.3 OPE is have been provisioned @ 15% of the PMU Cost



S No. Assumption / Standards used in respective areas Value (If applicable)

D.4 Other Administrative Expenses are considered as 1% PMU Cost D.5 1 Document Scanner, 1 Network Printer is provisioned at each

State PMU and District PMU

D.6 10% increase in the PMU External Consultant rates every year D.7 The PMU cost is being budgeted for a period of 3 years

irrespective of the project implementation plan as it is the handholding supporting being provided ti the State.

E Data Digitization E.1 Details of digitization of files may be included as well in case the

information is available with the state team (Digitization of Records is mandatory)

F Application Software F.1 As a standard each module can be developed by 2 S/w developers

in 3 months timeframe which implies development effort of 6 man months per module. This would include the entire developemnt activity pertaining to the module including development of Admin modules for database management.

F.2 Effort of integration of modules developed at State with central modules will be included in the development effort of 6 months as above

F.3 Customization Effort for central modules at state level is 1 resource for 3 months

F.4 Customization Effort of 3 months for central modules at state level will also include effort for integration of state specific modules with Central modules



d. Power Options Since most of the Gram Panchayats across the country face acute power shortage, it is important that adequate power backup is provisioned to ensure smooth operations at the Gram Panchayat. The following three alternatives can be explored depending upon the need and feasibility.

• Inverter

• A typical 1200VA inverter can operate 1 fan, 1 tube light and 1 PC

• Considering the need for 8 hours backup, two inverter batteries would be required for

the above load

• Cost – Rs. 25,000 approximately per GP

• Operational Expenses – Battery water

This option is most suitable in situations where power supply is available for 8-10 hours every

day as the inverter battery would need power supply for charging

• GenSet

• A typical 1200VA genset can operate 1 fan, 1 tube light and 1 PC

• Cost – Rs. 30,000 approximately per GP

• Operational Expenses – Rs. 12 – 15 per hour.

This option is feasible in most situations, except in far flung areas where availability of fuel is

limited.

• Solar Photo Voltaic Cells

• Off the grid lighting concept based on solar photovoltaic technology is also an

upcoming alternative. While the upfront investment is significantly higher than the other

alternatives, the operational expenses are negligible. It has been tested in the state of

Rajasthan has across all 9168 GPs.

• Cost - Rs 3.10 lakhs per GP. This includes 5 years maintenance.

• Operational Expenses – Battery water

In Rajasthan, this option has been implemented in a Service Procurement Model, whereby the service providing agency shall be paid, based on the number of hours for which electricity is provided. This eliminates the drawback of high upfront investment. Hence, this delivers the maximum value for money.



II. Annexure a. ICT Infrastructure Cost

Base Data for Bill of Material and Costing

Inflation Rate 8% Total Number of Districts PRI Departments in State 38 Total Number of Zila Parishad in State 38 Total Number of Block Panchayat in State 531 Total Number of Village Panchayat in State 8463 Maintenance cost for ePRI Application 22% Sr. Component Unit Cost Number Total A State Level ICT Cost

I Data Centre Costs 1 Hardware Unit Cost Number Total a Web Server 366025 2 732050 b Application Server 366025 2 732050 c Database Server 1768000 2 3536000 Sub-Total 5,000,100

Total Server Side ICT Infrastructure Cost

5,000,100

II State Site IT Infrastructure Costs

1 Application Software Cost

a Application Development Cost 5288700 b Security Audit Cost 200000 Sub-Total 5488700 2 Hardware Unit Cost Number Total

a PC / Thin Client i Panchayati Raj Department 31243 0 0 b Network Printer i Panchayati Raj Department 40000 0 0 ii State ePRI Project Management Unit 40000 1 40000 c UPS (600VA) i Panchayati Raj Department 7000 0 0 d Laser printer i Panchayati Raj Department 14400 0 0 e Finger Print Scanner

i Panchayati Raj Department 20000 4 80000

f Digital Signature i Panchayati Raj Department 555 4 2220

g Document Scanner



i Panchayati Raj Department 6000 0 0 ii State ePRI Project Management Unit 6000 0 0 Sub-Total 122220

3 Networking cost Unit Cost Number of

Sites Total

a Connectivity with SWAN (Horizontal Connectivity) 0

b Office LAN (CAT6) at office with 20 user 40000 0 c Office LAN (CAT6) at office with 10 user 25000 0 d LAN Switch 30000 0 Sub-Total 0 Total State Site IT Infrastructure Cost 5610920 Total CAPEX at State Level 10611020

OPEX

Heads Annual Cost Year 1 Year 2 Year 3 Year 4

a Post implementation support for ePRI application

1163514 1163514 1256595.12 1357122.73 1465692.548

b Support cost for OS, Database & Application Servers software

2010000

2010000 2170800 2344464 2532021.12

c Hosting Charges for Servers (Large States)

2375250 2375250 2565270 2770491.6 2992130.928

d SAN (Large State) 509600 509600 550368 594397.44 641949.2352

e Tape Backup (Large State)

50000 50000 54000 58320 62985.6

f Miscellaneous (5% of CAPEX) 530551 530551 572995.08 618834.6864 668341.4613

Total 6638915 Total OPEX at State Level

B District Level ICT Cost

I Site IT Infrastructure Costs

2 Hardware Unit Cost Number Per Site Total

a PC / Thin Client i District PRI department 31243 2 2374468 ii Zilla Parishad 31243 13 15434042 iii Block PRI 31243 5 82950165 iv Village PRI 31243 3 793228527 v ePRI Center of Excellence 31243 0 0 b Network Printer i District PRI department 40000 0 0 ii Zilla Parishad 40000 1 1520000 iii Block PRI 40000 0 0 iv Village PRI 40000 0 0



v ePRI Center of Excellence 40000 0 0 Vi ePRI District PMU 40000 0 0 c UPS i District PRI department 7000 2 532000 ii Zilla Parishad 7000 13 3458000 iii Block PRI 7000 5 18585000 iv Village PRI 7000 3 177723000 v ePRI Center of Excellence 7000 0 0 d Laser printer i District PRI department 14400 0 0 ii Zilla Parishad 14400 0 0 iii Block PRI 14400 1 7646400 iv Village PRI 14400 1 121867200 e Finger Print Scanner i District PRI department 20000 0 0 ii Zilla Parishad 20000 2 1520000 iii Block PRI 20000 2 21240000 iv Village PRI 20000 2 338520000 f Digital Signature i District PRI department 555 0 0 ii Zilla Parishad 555 2 42180 iii Block PRI 555 2 589410 iv Village PRI 555 2 9393930 v ePRI Center of Excellence 555 0 0 f Document Scanner i District PRI department 6000 0 0 ii Zilla Parishad 6000 0 0 iii Block PRI 6000 1 3186000 iv Village PRI 6000 1 50778000 v ePRI Center of Excellence 6000 0 0 vi ePRI District PMU 6000 0 0 Sub-Total 1650588322 3 Networking cost Cost per site Number of Total Sites

a Connectivity with SWAN (Horizontal Connectivity)

0

b Office LAN (CAT6) at office with 20 user 40000 0c Office LAN (CAT6) at office with 10 user 25000 0d LAN Switch 30000 607 18210000e Hub 1000 8463 8463000 Sub-Total 26673000 4 Data Digitization a Data Entry i Data Entry of Registers Sub-Total 0



Total for all District Site ICT CAPEX Infrastructure Cost 1,677,261,322

OPEX

Heads Annual Cost Year 1 Year 2 Year 3

a Internet Connectivity Charges at GP = ( No. of computers at GP X 200 per month X 12)

20311200 20311200 21936096 23690983.68

b Miscellaneous (5% of CAPEX) 83863066.1 83863066.1 90572111.39 97817880.3 Total 104174266.1

Total OPEX for District sites 338191337.5 PAYOUT CALCULATIONS

Sites (Number) Manpower Per Site Monthly Cost

GP 8463 Number of Manpower at each ZP 1 5000BP 531 Number of Manpower at each BP 1 3000ZP 38 Number of Manpower at each GP 1 3000

Total 9032 Deployment Mths 7

Yr1 Yr2 Yr3 Yr4

ZP 17738.63 17738.63 17738.63 17738.63BP 7862.41 7862.41 7862.41 7862.41CAPEX

(Monthly) GP 4932.24 4932.24 4932.24 4932.24

ZP 773.76 835.66 902.51 974.71BP 773.76 835.66 902.51 974.71OPEX (Monthly) GP 973.76 1051.66 1135.79 1226.66

ZP 5000 5400 5832 6298.56BP 3000 3240 3499.2 3779.136Manpower GP 3000 3240 3499.2 3779.136

Subtotal(MP) 8.15 35.21 38.03 30.81

Total Monthly

Payout ZP 23512.39 23974.29 24473.15 25011.91

BP 11636.17 11938.07 12264.12 12616.26 GP 8906.00 9223.90 9567.24 9938.04

ZP 2680412.68 10932277.46 11159754.31 8554071.99BP 18536418.41 76069384.89 78146993.04 60293107.38Annual Payouts GP 226114512.26 936742772.37 971610273.56 756950381.13

Total Payout 247331343.36 1023744434.72 1060917020.91 825797560.50



b. Program Management unit Cost

Type Rate Principal Consultant 200200 Senior Consultant 145200 Junior Consultant 115500 Support Staff 5000

Manpower Cost

ePRI PMU Durations (Months) 36 Inflation Rate 8%

Total Number of Districts in State 38

Man-Month Cost Permanent (100% Availability)

No. of Resources Year 1 Year 2 Year 3

Project Manager, Pr. Consultant 1 2402400 2642640 2906904CM and CB expert Sr. consultant 1 1742400 1916640 2108304Technology Expert Sr. consultant 1 1742400 1916640 2108304Project Co-ordinator, Sr. Consultant 8 13939200 15333120 16866432Project Co-ordinator, Jr. Consultant 8 11088000 12196800 13416480Support staffs 2 120000 132000 145200

Total Cost for Permanent Resources 31034400 34137840 37551624Man-Month Cost Temporary (20%

Availability) No. of

Resources Year 1 Year 2 Year 3 Bid Process Expert, Pr. Consultant 1 480480 528528 581380.8

Total Cost for Temporary Resources 480480 528528 581380.8

Stat

e

State level ePRI PMU cost 31514880 34666368 38133004.8

Man-Month Cost Permanent (100% Availability)

No. of Resources Year 1 Year 2 Year 3

Project Co-ordinator, Jr. Consultant 0 0 0 0

Total Cost for Permanent Resources 0 0 0Man-Month Cost Temporary (20%

Availability) No. of

Resources Year 1 Year 2 Year 3 NGO resource person, Pr. Consultant 0 0 0 0

Total Cost for Temporary Resources 0 0 0

Dis

tric

t

District level ePRI PMU cost for three years 0 0 0

Total State ePRI PMU Manpower Cost (In

Rs.) 31514880 34666368 38133004.8



Operational Cost

Total Number of Districts in State 38

Heads Year 1 Year 2 Year 3 OPEs 4727232 5199955.2 5719950.72Other Administrative expenses @ 1% 315148.8 346663.68 381330.048

Stat

e

Total State Level Operational Cost for PMU 5042380.8 5546618.88 6101280.768

Heads Year 1 Year 2 Year 3 OPEs 0 0 0Other Administrative Expenses @ 1% 0 0 0

Dis

tric

t

Total District Level Operational Cost for PMU 0 0 0

Total State ePRI PMU Operational Cost 5042380.8 5546618.88 6101280.768

c. Training cost

TRAINING COST PER PARTICIPANT

Batch Size 25

Cost Components Unit Cost Per Participant Cost (A)Room (Per Batch) State 2500 100 District 1500 60 Block 1000 40 Average Cost Per Training Day Per Partcipant 67

(B) Transportation (Per Participant Per Training Day - Round Trip)

State 1000 1000 District 500 500 Block 300 300 Average Cost Per Training Day Per Partcipant 600 ( C) Transportation (Faculty Per Batch) State 0 0 District 300 12 Block 500 20 Average Cost Per Training Day Per Partcipant 11 (D) Faculty (Per Batch) State 700 28 District 500 20 Block 500 20 Average Cost Per Training Day Per Partcipant 23

(E) Boarding & Lodging (Per Participant)

State 300 300 District 200 200 Average Cost Per Training Day Per Partcipant 250 (F) Boarding & Lodging (Per Faculty) State 300 12



District 200 8 Average Cost Per Training Day Per Partcipant 10

(G) Stationery (Per Participant Per Training Day)

100 100

(H) Rewards / Certificate (Per Participant Per Training Day)

50 50 Average Cost Per Training Day Per Partcipant 1111 No. of Training days for Officials 12 No. of Training days for Members 6 Inflation 8%

Year 1 Year 2 Year 3 Average training cost per day per participant 1111 1200 1296 Level-wise No. of PRI officials & Members to be Trained

Level Officials Members ZP 6 2 BP 3 1 GP 1 1

Implementation Phasing (No. of PRIs) Level Year 1 Year 2 Year 3 Total

ZP 12 12 14 38 BP 177 177 177 531 GP 2821 2821 2821 8463 Cost for Training PRI Officials

Participants To Be Trained (Number) Cost (In Crores) Level

PRI Officials

To Be Trained

(Number) Year 1 Year 2 Year 3 Year 1 Year 2 Year 3

ZP 228 72 72 84 959904 1036800 1306368 3303072 BP 1593 531 531 531 7079292 7646400 8258112 22983804 GP 8463 2821 2821 2821 37609572 40622400 43872192 122104164 Year-wise Total Cost 45648768 49305600 53436672 Total Cost of Training PRI Officials 148391040 Cost for Training PRI Members

Participants To Be Trained (Number) Cost (In Crores) Level PRI Members To Be

Trained (Number) Year 1

Year 2

Year 3 Year 1 Year 2 Year 3

ZP 76 24 24 28 159984 172800 217728 550512 BP 531 177 177 177 1179882 1274400 1376352 3830634 GP 8463 2821 2821 2821 18804786 20311200 21936096 61052082 Year-wise Total Cost 20144652 21758400 23530176 Total Cost of Training PRI Officials 65433228

TOTAL 213824268 Half Yearly 35637378



d. Information Education and Communication

Number of GPs GP 8463

IEC for the country 500000000 Number of GPs in Country 229645 Per GP IEC cost 2177.273618 Number of GPs in UP 8463 IEC cost for UP 18426266.63 e. Application Software cost

Blended Man-month Cost for Development Man-month cost for customisation 34700 Development Effort per module (manmonth) 6 Customisation Effort for modules developed centrally (manmonth) 3 Total Number of Modules to be developed at State 4 Total Number of Modules to be customised at State 7 Development Cost 4560000 Customisation Cost 728700 Total Software Application Cost 5288700 Module Details D - Development, C - Customisation S. No. Module Name Category

1 Planning C 2 Financial Management C 3 Scheme Management C 4 PRIs Meeting Management C 5 PRIs HR Management C 6 Village profile management C 7 Government to Citizen service delivery D

8 Management Information System (MIS) and Key Performance Indicators (KPIs) C

9 Development of workflow D 10 Integration with database D 11 Integration with line department software D

f. Block Support Group Cost

Sites (Number) Deployment Months 7

BP 531 Yr1 Yr2 Yr3 Yr4

Per Month 12000 12960 13996.8 15116.544 Yr1 Yr2 Yr3 Yr4

Total BSG 19116000.00 82581120.00 89187609.60 72241963.78

dpr_ bihar

Documents

project execution

epri study project phase

state government officials

state of bihar

government of bihar

nic state

epri mission mode project

various government officials