E-Governance
V.M.Rao
ABD PUBLISHERS Jaipur, India
ISBN: 978-81-8376-114-7
First Puhlisnt>d 2007
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Contents
1. E-Governance: An Introduction
1
2. E-Governance Practices: A Global Perspective
8
3. The Evolution of E-Democracy: Role of E-Governance
107
4. E-Governance Implementation: Lessons from Experience
145
5. E-Governance in India: Vision and Strategies
174
6. Developments and Implementation
of E-Governance 7. Modified IT Act 2000
Index
199 252 314
"This page is Intentionally Left Blank"
1 E-Governance: An Introduction
Meaning E-Governance or electronic governance may be defined as delivery of government services and information to the public using electronic means. Such means of delivering information is often referred to as information technology or 'IT' in short form. Use of IT in government facilitates an efficient, speedy and transparent process for disseminating information to the public and other agencies, and for performing government administration activities. The term governance may be described as the process by which society steers itself. In this process, the interactions among the State, Private Enterprise and Civil Society are being increasingly conditioned and modified through the influence of information and communication technologies (lCTs), constituting the phenomenon of e-Governance. Examples of these shifts in dynamics are exemplified by: (1) the use of the Internet by Civil Society, NGOs and
professional associations to mobilize opinion and influence decision-making proo'sses that affect them,
2
E-Governance: An Introduction
(2) the increasing electronic delivery of government and commercial services and information, (3) the electronic publication of draft legislation and statements of direction for public feedback, and (4) on the infrastructure side, the increased adoption of e-enabled community centres, the liberalization of telecommunication markets and trends towards webenabled mobile telephony and digital television are facilitating this evolution.
Concept and Scope E-Governance is thus a wider concept than e-Government which is the use of ICTs in the dissemination and services of government. Following the COMNET IT/UNESCO Global Survey on On-line Governance published in 2000 (UNESCO document CII-2000/WS/09), the Commonwealth Netw'ork of Information Technology for Development (COMNET-IT), in association with and with the financial support of UNESCO, has developed national profiles detailing current status alld developments in this area. Whilst impacts of e-Governance in the commercial, NGO and professional areas are covered in these studies, the main focus centres around specific government initiatives, such as: the development of cyberlaws, the liberalization of telecommttnications, plans for e-Government, plans for the development of an Info-Society, the deployment of community e-Centres, instances of public feedback to statements of direction, draft legislation and so on, and (7) web sites of Government agencies, particularly if these offer value beyond a public relations image.
(1)
(2) (3) (4) (5) (6)
In this book, we use the terms Ie-Governance' and Ie-Government' instead of 'online governance' and 'on-line government' because we are effectively convened with all ICTs, not only application of remote access through telecommunications.
E-Governance: An Introduction
3
e-Governance is not only about introducing or using technological tools. It is fundamentally about a change in mindset and work culture in order to integrate government . processes and functions to serve the citizens better. Information and communication technologies can only enhance the transformation of work culture by serving a variety of ends: better delivery of government services to citizens, improved government interactions with business and industry, citizen empowerment through access to information and participation for decision-making, and more efficient government management. In this process, it is crucial that the capacity of government to be open to criticism as well as the application of a new social contract, between all stakeholders, confirming a shared responsibility on the transformation processes. The respect for human rights and freedom of expression is essential to promote and maintain public participation in public consultation spaces. This implies that government personnel have to learn to network and to place people in the centre of the political process. So, the effectiveness of leT in government is closely r,elated with the capacity of governments to induce a culture of change placing networking within its institutions as instrumental to transparency and knowledge exchange and creation. It forces a rethinking of the way hierarchical structures are placed. The transition to a more horizontal government structure, where integration of functions plays a greater role, takes time since the main players need to change attitudes and behaviour as they acquire new skills and knowledge that make them confident in the work culture. According to recent data, there is a close relationship between levels of infrastructure development, education, democrati¥tion, political leadership and commitment to the principles of good governance and the level and quality of e-Governance implanted in the countries. These are strong indicators of e-readiness and the opportunity cost of such endeavour. The resulting benefit can be less corruption, increased transparency, greater convenience, efficiency, revenue growth, and/ or cost reductions, as well as increased legitimacy.
4
E-Covernance: An Introduction
Use for Interaction with Public Traditionally, the interaction between a citizen and a government agency takes place in a government office. With emerging information and communication technologies it is pOSSible to locate service centres closer to the clients. Such centres may consist of an unattended kiosk in the government agency, a service kiosk located close to the client outside the government agency, or the use of a personal computer at home or office. In all the cases the public traditionally looks for information and services addressing his/her needs and in both cases relevance, quality and efficiency are of paramount importance. Therefore, the establishment of e-Governance requires a good knowledge of the needs that exist in the society and that can be offered using ICT. One of the reasons why e-Commerce is well positioned even in countries where e-Governance still lags behind, is that customers know what products and services they want and sellers know what and how they can deliver those. The development of e-Governance includes (1) publishing, (2) interaction, (3) transact. These activities aim at: broadening access to government information such as laws, regulations and data; increasing public participation in decision-making through, for example, the publishing of e-mail addresses of government officials and on-line forums; making government services more readily available to the public through e-Filing of government documents, online permits. To date, most effort, in e-Governance, is centred on publishing and not in the subsf'quent phases of interaction and transaction. Governments, particularly in developing countries face limited resources to move fast in e-Governance, so a strong partnership between the public, government, business and the civil society is instrumental in determining the expected outcomes and the effectiveness of e-Governance. The term e-Governance refers to the process of using information technology for automating both the internal operations of the government and its external interactions with citizens and other businesses. Automation of internal operations reduces their cost and improves their response time while at
E-Governance: An Introduction
5
the same time allowing government processes to be more elaborate in order to increase their effectiveness. Automation of interactions with citizens reduces the overhead for both the government and the citizens, thus creating value for the economy. As an example, consider an online service that can be provided by the transport department for the renewal of driving licences, currently a leading e-Governance application in India. At present, the application works as follows: The applicant visits the regional transport office, completes the renewal form on paper, and submits the form to a clerk, along with a photograph, proof of residence, proof of date of birth, and transaction fee. The clerk processes the application form manually. The applicant typically has to wait in the office for several hours before receiving the renewed driving licence. Besides the inconvenience to the applicant, previous traffic violations are not properly verified, and there is no provision for easy management of expired licence records. With the deployment of the e-Governance framework, we expect the following improvements. In a typical scenario, persons visiting the state government portal can choose to renew their driving licences by completing the renewal forms online. In the future, the information could be digitally signed by the citizen to ensure nonrepudiation using the public key infrastructure of the e-Governance framework, possibly managed by the government. The solution verifies the applicants digital signature, residential address, and traffic violation records in real time using the citizen records maintained in the framework and support for inter-agency collaboration. It then requests the applicant to make online payment for the renewal fees by means of credit card, debit card, etc. On verifying the payment details with a payment server, the application is added to the list of driving licence applications to be approved, and a notification is sent to the approving authority in the government. The approving authority logs on to the state portal, views the pending renewal applications, and approves or rejects them. Approved applications are automatically forwarded to the licence printing application. The driving licence card is then sent to the applicant by courier. The system periodically archives or
6
E-Governance: An Introduction purges the renewal applications and archives the expired driving licence records. The accepted and rejected applications may have to be purged on different schedules.
E-Governance Framework The design and development of such complex solutions poses significant challenges. One such challenge is that in current development environments, the application developers have to work at a low level of abstraction. This means taking care of low-level issues such as interprocess messaging, tools integration, and data modelling while defining the application logic. Similarly, solution reconfiguration and management requires the solution administrator to have a detailed understanding of the application logic, making the task timeconsuming and error-prone. Handling these challenges effectively requires highly skilled and experienced information technology (IT) professionals, increasing development costs for effective e-Governance solutions. Solution administrators typically lack these IT skills, rendering change management impossible. In solutions developed to date, each e-Governance solution has customized existing products to address an individual government agency requirement. However, this might not always be the most economical way to develop a solution. In most industries, around 85 per cent of the processes are same across companies within that industry. A similar fraction of the processes can be expected to be similar across different government solutions. Clearly, it is desirable to develop these processes once and then reuse them for many solutions. This is also likely to be true for data models, user interfaces, etc. For example, the address verification process in the driving licence renewal solution considered above can be reused while developing a passport renewal solution. Similarly, the traffic violation record verification process can be offered as a service to insurance businesses to be reused in a car insurance solution. Lack of information (metadata) on available processes and components and difficulty in customizing these for a specific need currently hinder their reuse for multiple solutions. One can readily conclude from the preceding discussion that there
E-Governance: An Introduction
7
is a need for a framework that can simplify the development, deployment, and management of e-Governance solutions. The e-Governance framework proposed in this chapter addresses the requirements identified in the preceding discussion by: (1) Enabling modelling of a hierarchy of building blocks
(2)
(3)
(4)
(5) (6)
that can be used to abstract government process to a higher semantic level. Enabling specification of workflow for government processes independent of standards; the platform takes care of generating the deployable solution that conforms to the appropriate standards. Enabling reuse of effort across solutions by providing tools to develop generic, parameterized applications or processes that can be stored in a repository with appropriate metadata and effectively reused by various applications with appropriate customization. Extending programming models to specify the customization points in an application or solution during development, and intuitive interfaces to enable modification of solutions easily after deployment without the need for the business user to modify the application source code. Extending programming models to simplify specification of multilingual and multidevice interfaces. Providing tools to author the wrappers for the legacy applications and workflows integrating multiple applications to automate processes spanning several government agencies. The current framework prototype described in this chapter will evolve with customer engagements. The approach is to maximize the reuse of available tools and middleware. In the initial stages, the focus of the effort is on the Indian e-Governance market; however, the platform can be extended to suit the needs of other countries as well.
2 E-Goveman.ce Practices: A Global Perspective
Introduction In order to achieve declared administrative and social goals, pervasive harnessing of ICTs is being brought to give a push to public service reform. Some of the key features driving this reform can be identified as: (1) Public pressures for increased accountability and value
for money in public service operations. (2) International agency and peer pressures for progress in areas such as civil rights and effective financial management. (3) Progressive decentralization and devolution from Central Government to regional offices, local authorities and in some instances, contracted private sector serviceproviders. (4) Increased public awareness and expectations resulting from the pervasiveness of the media, both national and international. There may be some variations in the perceptions, if not the definition, of c-Governancc and its manifestations. Whilst it is
E-Governance Practices: A Global Perspective
9
generally acknowledged that the term implies an electronic interface to the citizen, there may be a danger of attributing an exclusive interpretation to this scenario. Such a narrow interpretation risks turning e-Governance into an expensive 'veneer' or dressing, over inherent inefficiencies and redundant processes. The emerging consensus viewpoint is that the real challenge in administrative systems reform is the inculcation of attitudes that acknowledge data and information to be a corporate resource-and therefore shareable and subject to standardsas well as introducing process and regulatory changes that fly in the face of established hierarchical decision-making structures. Also, since resources, particularly with emerging or less developed economies, are at a premium, sustainable rates of change as well as rate of pay back on investments for e-Governance are an issue. Whilst sections or sectors of the economy may be clamouring for the facilities of e-Governance, large proportions of the population perceive conflicting priorities and are not likely to be in a position to exploit these facilities if they existed (due to affordability, access, language and literacy barriers). In this regard, the potential role of intermediaries assumes greater significance. In many societies, however, the progressive strengthening of these institutions (such as local councils or committees and NGOs) is itself a slow maturing process. Deliberate programmes that recognize the potential contribution of these intermediaries to complement the over stretched and at any rate inadequate structures of central government merit development. For government, the mere transfer of back-office processes to an electronic customer interface, no matter how effective the information-management and the process re-engineering, risks a limited pay back unless contexted within national cross-sectoral processes as well as the 'information' of society through sectoral policies and facilitation measures for the harneSSing of ICTs. Trade facilitation, for instance, could be interpreted restrictively if limited to a streamlining of customs and possibly some other authorizing departments. Handling agents, traders, banks and insurance companies all form part of the national system that
10
E-Governance Practices: A Global Perspective
cuts across both government and private sector. Similarly, for health services and other areas (GIS, etc.). The challenge for coordinated development and improved governance therefore is not limited to the traditional boundaries of government. Arguably, the private sector-and thence civil society-might have an equal stake in the definition and implementation of ICT enabled systems. In the inculcation of an ICT-orientation in the various socio-economic sectors, only the more mature governments see a role in transition-beyond the provision of efficient administrative systems-to a proactive catalytic and facilitation role, engaging society and private sector in partnerships for the innovative application of ICTs to commercial and self-help activity. A good example is Canada's franchising of arrangements extending to its 8,000 public access centres for commercial or social interests. On the infrastructure front, the liberalization of telecommunications progresses at a steady pace, but a number of consolidation issues lag behind. For example, in several instances, the lack of a national Internet exchange subjects an inordinate amount of traffic (and revenues) to international operators. Interestingly, one comes across several instances of countries articulating, as part of their vision, the opportunity of becoming a regional hub for ICT expertise, thereby ignoring or perhaps playing down the fact that the sustainability of quality services to the meet of exponentially growth of national demands is a major issue in itself. Also, in an increasingly networked world, every country is a hub, with multiple external and internal interfaces. Perhaps the reality is that hubbing is an intrinsic prerequisite for economic and social performance in the emerging world order. Islands and Small States seem to constitute a special case, with unique challenges and opportunities. The traditional issues of economic vulnerability and geographical isolation are exacerbated in the digital era by lack of critical mass in terms of service provision and sweeping globalization. And yet these countries are facing the greatest opportunity, in relative terms. Government in these environments is often effectively a single-layer central
E-Governance Practices: A Global Perspective
11
administration, and there is an opportunity to tap into wider virtual markets. Access to information and education through leTs is potentially vast, relative to the national supply, and planned seamless information and technical infrastructure building are within relatively easy reach. All this enables a leap-frogging of social and economic development into the digital age, given the political and managerial leadership and foresight.
(A) Botswana Background Botswana was formerly British protectorate of Bechuanaland and adopted its new name upon independence in 1966. Theeconomy, closely tied to South Africa's, is dominated by cattle raising and mining. It is situated in Southern Africa just north of South Africa. It is completely landlocked and has a semiarid climate, warm in winter and hot in summer. The land is very rich in natural resources and the terrain is predominantly flat to gently rolling tableland with the Kalahari Desert in the southwest. Botswana has a population of about 1.5 million and is a parliamentary republic. The GDP in 1999 was 5.7 billion dollars with a real growth of 6.5 per cent and 47 per cent of the population below the poverty line. The economy is structured with agriculture still providing a livelihood for more than 80 per cent of the population but supplies only about 50 per cent of food needs and accounts for only 3 per cent of GOP. Subsistence farming and cattle raising predominate. The sector is plagued by erratic rainfall and poor soils. Diamond mining and tourism also are important to the economy. Substantial mineral deposits were found in the 1970s and the mining sector grew from 25 per cent of GOP in 1980 to 38 per cent in 1998. Unemployment officially is 21 per cent but unofficial estimates place it closer to 40 per cent. The Orapa 2000 project should have been the main force behind continued economic expansion. The early history of the people and territory of Botswana is still being uncovered, as archaeologists sift evidence from legend. Indications of settled communities go back as far as the
12
E-Governance Practices: A Global Perspective
fourth century. Before that, the territory was sparsely populated by hunter-gatherer communities of the San people. Major settlements took place in the early 16th century. British missionaries arrived in the 19th century. Botswana Paramount Chiefs Bathoen, Sebele and Khama 'the Great', sought British Government protection against the Boer threat in the last quarter of the 19th century. Today Botswana is working hard to strengthen its ICT network yet the statistics show that there is still considerable work which needs to be carried out. 1999 statistics show that Botswana had 77 telephone mainlines per lOOO population and 31 personal computers for every 1000 population. It also had 9 Internet hosts for every 10,000 people.
Use of E-Governance The size and population of the country are two aspects that may present some challenge in the deployment of Information and Communication Technology in Botswana more so since return on investment tends to increase with population density. The other challenges faced by the country are similar to those faced by other developing countries in that it is faced with rural-urban population migration and is largely dependant on expatriates in key professional positions. For the acquisition of ICT facilities the country is also highly dependant on the developed countries. In addition to this, David Magang, Botswana's Works, Transport and Communications minister said that making the Internet available is one of the biggest challenges currently faced by the country. He said that although the Internet market is fully liberalized in Botswana, most of the users are currently corporate institutions and government organizations and that Internet penetration is low both in urban and rural areas, and it should be the stakeholders, including the government, who should promote the use of Internet more in rural areas. The possible reasons for this besides a poor infrastructure is the high cost on Internet connectivity including connection charges and subscription fees and telephone charges for dial-up access. He said a preliminary estimate indicates that to date (May 2001), Botswana has 30,000 Internet users compared to 10,000 in 1999.
E-Governance Practices: A Global Perspective
13
And currently there are nine licensed Internet service providers and six licensed data gateway service providers. Recently, the Botswana Telecommunications Corporation (BTC) set up an ISP called Botsnet, mainly with the idea of providing service to Botswana companies that want to get to the Internet. They have set up standard mail and a Botsnet Web server. They offer some special features, like online registration, access to HTML Mail, and a way to search the Botswana telephone directory. Botsnet intends to expand to give users some news channels, a chat board and even a way to set up personal Websites. They will also be offering e-Commerce services. Botswana has an established national development planning process. In 1999 Botswana had no national ICT strategy but the government had its ICT Vision 2003 which basically said that: (1)
(2)
(3)
(4)
(5)
Botswana will have made significant and positive steps towards becoming a regional leader in the exploitation and utilization of IT within its government administration. In addition, government will have played the leading role in helping the private sector to embrace IT in the interests of national objectives. Quality IT systems will be implemented in key government sectors where competitive advantage can be gained over regional nations or where increased revenues or savings can be realized to help fund the IT Vision. IT will be supported by a workforce whith has been well trained to carry out its duties and r~ponsibilities in IT. In addition, senior officers will be well versed in the critical issues for successful IT management. A Data Communications Infrastructure will be in place to allow ministries and departments to share information and to transfer data electronically amongst themselves in a secure and managed environment. IT systems will be in use in key areas to improve government services to the private sector and the public and to reduce instances of excessive queuing and wasted time.
14
E-Governance Practices: A Global Perspective (6) Common IT systems will be in place across all ministries for the management of key resources and activities. (7) Each ministry will be developing and generating its own relevant information databases, providing decisionmakers with up-to-date and accurate management information through computer workstations. In addition, ministries will be working closely together 00 IT initiatives of mutual interest. (8) Each ministry will be largely in control of running its own IT systems, with its own dedicated IT support unit working closely with GCB, and will operate within a framework of agreed policies, standards and guidelines. (9) Government will be interchanging information electronically with local authorities, the private sector and other external bodies in a managed and secure environmen t. (10) The volume of paperwork flowing between ministries and physically stored in registries will he reduced and greater emphasis will be placed on the electronic storage of data and its subsequent retrieval on computer networks. (11) A Botswana Centre for Geographic Information will be established to make best use of existing information and to optimize future information sharing and management. (12) Government will be working closely with the private IT services sector to ensure quality and continuity of service in the required areas and will appraise them of future plans to help them develop their business activities.
In order for the successful implementation of the above strategy to happen a number of issues would need to be addressed successfully. These issues include: (1) Getting the top management into adequate level of ICT awareness to ensure meaningful participation in the implementation.
E-Governance Practices: A Global Perspective (2) (3) (4) (5)
15
Setting implementation priorities and time scales. Estimating implementation costs and benefits. Assessing the staffing implications. Ensuring alignment of this strategy to the National and Local government ICT strategy.
Government has no plans at present to interact electronically with the citizens of Botswana. The prevailing view in the public sector is that while Botswana has an enviable telecommunications infrastructure both in terms of reach and diversity of products, there is insufficient access to the technologies (Internet) by the ordinary person on the street to justify the cost of investing in the development of e-portals as a key method of reaching the citizen for the delivery of service. This is borne out by the low (compared to USA and the first world) telephone density and even lower access tool (Personal Computer) density. For now, civil servants believe that using traditional methods of service delivery whether these are counter services, or any other public sector service, are more appropriate to reach the optimum number of citizens. Development of e-Governance has tended to be restricted to back office systems targeted at specific groups, e.g., development of comprehensive business support systems for the members of parliament. There are, however, plans to develop infrastructure (Government Data Network) to support normal back office systems, as well as high bandwidth applications such as distance learning, telemedicine, and appropriate use of videoconferencing in the next two years. The plans are approved for implementation in the current development plan of the country but have not been given much pUblicity as the clients of the infrastructure are intended to be mainly government departments. Plans are also afoot to provide a wide cov~rage of access to the Internet in the public school system as government realizes that for its citizens to compete effectively in the global village, the nation must start to invest on availing technology skills right from the primary school level.
16
E-Governance Practices: A Global Per~pective
(B) Canada Background Canada is part of the North American continent and is considered to be a world leader in the field of innovation in the Public Sector and Government. To paraphrase the Clerk of the Privy Council and Secretary to Cabinet in his speech at the Assistant Deputy Ministers Forum, when it comes to a state that you start receiving e-mail from your mother at work you realize that there is no turning back now. The steps towards e-Governance in Canada struted in the late 1980's through the use of e-mail.in1991-92 government departments and programmes had their first web presence, in 1994 the Information Highway Advisory Committee (lHAC) was set up. IHAC had a mandate to assist gove:t;nment in understanding how information management and information technology is changing economies and societies. The IHAC tabled reports and recommendations in September 1995 and September 1997 and these documents have guided government decision making and have enable Canada to emerge as a world leader in the adoption and use of information management and information technology. In 1995 Green Lane was established on the Information Highway, in 1997 the vision for connectedness was set up, in 1998 the six pillar connectedness agenda was launched on a national level. The Speech from the Throne in October 1999 set a goal for the Government of Canada to become a "model user of information technology and the Internet" and "by 2004 Canada should be known as the Government most connected to its citizens around the world. By this time Canadians should be able to access all government information and services online at the time and place of their choosing".
Use of E-Govemance A lot has been done but where is Canada today and where does it want to go? The Public Service of Canada needs to get better at digitizing information. The websites belonging to federal departments and agencies are not always well organized or
E-Governance Practices: A Global Perspective
17
linked to each other. It needs to begin making inroads to modernize service delivery and to start delivering services in manners that make sense to Canadians and it also needs to start looking at innovative manners to implement and use eGovernance such as for example the use of online auctions as happened for the two bands of the Radio Spectrum or the Leadership Network site (http://www.leadership.gc.ca). The way forward is to try and bring all the parts into one coherent whole and this is being done through two main initiatives. The first called Service Canada aims for a single window access to government services, by telephone, the web and face-to-face with multiple channels always as a back door. The second called Government Online is an SF!' initiative in which by December 2000 all departments had an online presence with information on programmes, services and key forms. A comprehensive list can be found on http://canada.gc.ca/ depts/ major / depind_e.html which gives direct links to the primary websites of Government of Canada departments and agencies, as well as links to websites maintained by organizations for which various departments and agencies are responsible. What are the benefits to Canadians? In its adoption of Information and Communication Technology in the process of government, Canada looked towards its citizens to help in the design of e-Governance. This methodology is characterized as citizen centred government and it is a vision that recognizes the different ways that people interact with their government: Citizens as taxpayers who expect value and results. (2) Citizens as clients who expect accessible, quality services. (3) Citizens as participants in the democratic process.
(1)
It is the challenge of the Canadian Government to enable its citizens to explore all the three aspects of their citizenship. The approach to achieve this goal is outlined in the document Strategic Directions for Information Management and Information Technology. This document outlines, in a comprehensive manner, the direction and opportunities geared toward a more collaborative, integrated model of delivering government services and programmes. It outlines a series of
18
E-Governance PI1cdces: A Global Perspective
priorities that will lever government's significant Information Management-Information Technology investments towards a more integrated, collaborative model of government. Each priority area is supported by detailed workplans with clearly defined milestones. In facing the challenge the Canadian Government analyzed the changing landscape in which it operates. A number of principles emerge. The first is that technology, globalization and the rise of the digital economy are changing our world. The second is that in tandem with the rise of the digital economy is the growing understanding of the citizen as the principal driver of change. The third is the recognition that in the digital economy knowledge is a key resource and how well knowledge is created, managed, shared, transmitted and stored is of growing importance. The fourth is an emphasis on how Information Management and Information Technology as key strategic resources are changing the human resources landscape. This takes us to a second issue which is that of the change in governing in a digital world. It is the vision of the Canadian government to allow citizens to choose how they wish to access information and services. Electronic service delivery should be accessible to all people around the country irrespective of their income, language or disability. To enable this electronic service delivery the federal government has devised a strategy. The key elements of this strategy are: (1) a government-wide information management-information technology infrastructure that provides a secure and trusted environment to connect with citizens and the private sector, (2) a world-class government information management-information technology workforce and (3) successful adoption of integrated g-overnance frameworks to guide information management-information technology investments, manage risks and set standards. In discussing the above one should not get the impression that the Government of Canada is still beginning to provide services through electronic means. It offers an impressive range of services and information online such as those shown below: The Canada Site is a gateway to all federal websites and provides one stop access to electronic directories and many
E-Governance Practices: A Global Perspective
19
commonly requested forms and publications. This site receives as many as 7 million hits each month. The Canadian Health Network brings together the resources of over 460 Canadian health-related organizations to provide members of the public and health intermediaries access to a unified source of valid, Internet-based health information, geared especially towards Canadians. The National Job Bank which is available at kiosks across the country and through the Internet. This job bank lists job openings in communities across Canada. Other such services are The Electronic Labour Exchange, CanLearn Interactive which is a resource to explore education and training opportunities and Youth Resources Network Canada which brings together career information, programmes and services for young people aged 15 to 30. EFILE which allows tax professionals who are approved electronic filers to prepare and deliver income tax returns electronically. There are various other services such as travel and culture with sites for the Consular Services, the National Film Board of Canada Collection ONLINE, Access to Canada's Heritage Collections. In addition there are also environment related resources such as Green Lane and Millennium Eco-Communities Website and resources related to services for business such as Canada Business Service Centres, Incorporating a Business, Patent Applications, Export Information and Export Services. Looking ahead there are a number of other services being developed like a revamp of the Canada Site, a national health information highway, the application for benefits and all related transactions, filing of taxes, online passport renewal, national park reservations, one-stop access to information on the environment and others. The Canadian Government had to reach the following targets: Up-to-date, accurate, bilingual information on key pro~ammes and services available online. (2) Commonly used forms available to download and print.
(1)
E-Governance Practices: A Global Perspective
20
(3) The ability to contact departments through the Canada
Site. (4) The Canada Site will continue to be revamped and organized around citizen needs and topics of interest. A technology and policy framework will be in place that protects the security and privacy of Canadians in their electronic dealings with government. Whereas in the next few years the following are expected: (1)
(2)
(3)
(4)
(5)
deliv~rables
Key federal programmes and services-the ones that matter most to Canadians-will be available online. Clients will be able to complete secure and interactive transactions online. Secure and interactive electronic forms will be available. Technical and content support will be provided through various help services. The service will have predictable response times based on published service standards. An easy to use, advanced search capability will be available on the Government of Canada portal and all federal department and agency websites. Clients will be able to find information and services even if the exact name of the programme or service is unknown. Common search principles with similar navigation rules will be implemented across all federal websites, and all sites will have a common look and feel. One-stop access points (or portals) available through the Canada Site, with information and services organized according to types of activity, areas of interest and common citizen needs. Plans are already underway to develop portals for seniors, consumers, aboriginals, the environment, and innovation resources for small- and medium-sized enterprises. Innovative partnerships. The Government On-Line initiative will place increased emphasis on online service delivery partnerships with provinces, territories, municipalities, businesses, volunteer organizations and international partners.
E-Governance Practices: A Global Perspective
21
In the beginning of this profile a statement was made about change being driven by the citizens who are eventually the service receivers. In order to have gone a full circle the results from a recent Price Waterhouse Coopers Survey give us the state of play in the current scenario in Canada. Just to report some of the results from a presentation made by PWC on Lessons Learned about e-Governance in Canada it says that: (1)
(2)
(3)
(4) (5)
(6)
(7) (8) (9)
Poorer, older, less educated Canadians will not have access. Canadians have begun using government online with one-third of Canadian Internet users accessing government services but mostly for access to information rather than applying for a service or filing a tax-return. Canadians are using government web sites because it is more convenient in that it takes less time, its easier and simpler, no need to physical travel, etc. Canadians accessing government web sites want all services on line even those not used regularly. Canadians are ready to carry out online transactions with the number of Canadians doing Christmas purchasing online quadrupling. Canadichls want integrated government portals with 86 per cent saying that single website allowing them to access a broad range of government services would be helpful. Provincial governments have a key role to play in the attraction of users. Security remains an issue with users. Implementation should be planned in waves.
In view of this the work carried out by the Canadian Government can be seen as a good blueprint on which other governments can plan their electronic service delivery.
(C) Estonia Background Estonia has made significa.nt steps towards the information age and several processes initiated earlier,are starting to bear fruit.
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E-Governance Practices: A Global Perspective
The government has been able to assign about one per cent of its budget to information technology development in the public sector for eight consecutive years now. This has brought PCs to the desks of more than 90 per cent of employees of ministries, authorities, inspectorates and other government institutions who need to work with computers. The Estonian Government has replaced paper documentation prepared for its sessions with digital documents and launched an Intetnet-based system for government sessions. As from of this year all Estonian municipalities are connected to the Internet. A national network of public Internet access points is also taking shape. Recently, the Digital Signature Act was approved by Parliament. This gives the basic legal framework for the development of e-Commerce.
Development of Information .Infrastructure PeaTee, the backbone network for government institutions started in 1998, has now matured to reach its planned volume. The number of government institutions and their subdivisions to be connected to PeaTee has passed the 550 mark (i.e., more than 10,000 computers). About 80 per cent of these entities enjoy the benefits of 2 Mbps or even 10 Mbps transfer speeds. Connection costs have steadily decreased at the same time. The rapid success of PeaTee has driven new developments in information infrastructure. The KulaTee (Village Road) programme of rural data communications, kicked off at the end of 1998 with preliminary studies, yielded the first leased line connections to municipalities last year. Project completion, which meant a minimum of 64 kbps leased line capacity to each of the 245 existing municipalities, was in late 2000. The only obstacle to keeping this schedule may be lack of funding. Although the government has listed KulaTee as one of its priorities, this has not spared the programme from budget cuts. KulaTee also offers the possibility of providing Internet access to several schools and opening new public Internet access points at the municipalities or libraries. As part of networking the public libraries, leased-line public Internet access points have
E-Governance Practices: A Global Perspective
23
been opened at more than 60 libraries all over Estonia. They are equipped with new computers and printers acquired through the public procurement process. It is worth mentioning that KiilaTee has brought together a number of government institutions, commercial entities and organizations. A national cooperation system has been formed, led by a working party in each county and a central programme council. For libraries, the project partners are the Ministry of Culture, the Estonian Informatics Centre and county governments which are jointly organizing the work. The end of the year 2000 saw the end of the special monopoly rights of the Estonian Telephone Company.
More Attention to Support Activities A backdrop for building communications networks is active work in the supporting areas of IT standardization, data security and language technology. During the past three of years, the IT standardization committee has published more than 30 Estonian IT standards. A new edition of the standard Requirements on Information Technology in the Estonian Language and Cultural Environment was completed in early 2000. This should encourage hardware and software vendors to adapt their products to Estonian requirements. The same goal is served by language technology activities, preparing semi-manufactured language resource products for all software vendors. Software vendors are being encouraged to put more effort into Estonian products, even if this will not promise immediate profit. Many software vendors dealing with Estonian language products actually acknowledge that this business may provide a good return on investment. There is a sufficient number of Estonian computer users already-about 40 per cent of the 1.4 million population. In the field of data security, a draft document of security classes has been drawn up, complete with a set of the basic measures to be taken. Manuals have been published for top management and IT personnel, to help them secure emerging information systems and increase their reliability. The Estonian Government has devoted serious attention to
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E-Governance Practices: A Global Perspective
copyright protection of software, including legalization of programmes in use.
Service Orientation and Efficiency IT solutions will help government institutions to streamline their work, share information faster and concentrate on producing the information and offering the services that are vital for the citizens of Estonia. The system of state registers in Estonia is quite complicatedthere are many registers, the same data is often gathered over and over again for different needs, quality of data is sometimes low, etc. To improve the situation the register of databases was implemented. This registry of data repositories, implemented last year at the Estonian Informatics Centre, has greatly improved cooperation and cross-use of data between repositories. The register of databases is one part of the main development project called 'Registers Service Layer' launched in 2001. Establishment of a joint service layer on the basis of Internet technology has opened the possibility of offering different e-services on the basis of different state databases. The first pilot projects have successfully been completed. At the same time, government institutions are preparing for a transition to electronic business as prescribed in the document management programme initiated by the State Chancellery. The Digital Signature Act, passed in 2000 by the Parliament, provides a foundation for the use of digital documents with exactly the same legal consequences as their paper counterparts. In addition to the present availability of official forms on the Internet, people also have the option of filling them in and submitting them through the same channel (the Estonian tax authority already accepts tax declarations submitted electronically). This popular service is already used thousands of times every business day. We will soon witness successful remote communication between the government and the citizens, without undue delay or cost, now seems to be within reach. Information and services of all government institutions are now provided through a single integrated portal-the State Web Centre (http://www.riik.ee). which is a path to the home pages
E-Governance Practices: A Global Perspective
25
of all government institutions. Through this single window, people should be able to access all institutions and clerks and get solutions to as many problems as possible. The operator of the information server promptly routes user queries to the right clerk. As the next step, the current institution-centric approach should be made even more problem- and service-centric. This calls for effective cooperation between all government institutions and the emergence of common operating principles and rules. The main obstacle may prove to be the legacy management structure that stems from rigid power hierarchies and favours bureaucracy. The challenge is to develop modern management structures, based on cooperation networks and cross-institutional information processing mechanisms. The planned administration reform will hopefully accommodate that. Requirements for information publicity are also taking shape. Freedom of Information Act stipulates both requirements for government institutions to inform the public about their performance, as well as methods of how people should be able to access this vital information. Thus, every institution has to create a digital document registry that can be accessed at any time by any computer user via public data communication networks. This Act and others like it will fill several serious holes in current legislation and thereby certainly help to open up various aspects of decisions made by the government, including perhaps some that, for some reason or another, have been concealed from the public until now.
Information Policy The principles of the Estonian Information Policy were approved by the Parliament of Estonia on May 13, 1998 (http:! / www.eik.ee/english/policy).This policy document gives a proper framework for actions toward the information society.
Action Plan The Information Policy serves as a basis for an Action Plan, which in turn is the basis for all government organizations to plan and
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E-Governance Practices: A Global Perspective
start different projects and programmes. The Action Plan is discussed once a year in the Government of Estonia and it has been approved first on April 1998 (http://www.eik.ee/english/ policy /plan.htm).
The Coalition Agreement The February 1999 Coalition Agreement (http://www.riik.ee/ government) of the Reform Party, Pro Patria and M66dukad (Moderates) forming the Government Coalition describes some actions based on the Information Policy.
IT Management Organization According to the amendments to the Government of Republic Act recommended by the government and adopted by the Riigikogu (Estonian Parliament) in June 2000, the Ministry of Communications is coordinating the work of the state information systems. In all ministries, county governments and state organizations IT development and maintenance is managed/ coordinated by IT managers.
Some Basic Facts and Indicators (1) Total number of conventional phone lines per 100 inhabitants-35.4 (2) Total number of mobile phone subscribers per 100 inhabitants-31.5 (3) Mobile telephone transmission networks cover 99 per cent of Estonia's populated area. (4) Number of people having used the Internet in the last six months - 400,000 (28% of the population). (5) Number of users of online banking systems-180,000 (13%). (6) RIPE host count by DNS domains (real)-33,280 (July 2000).
(D) Hungary Background The Republic of Hungary has a population of around 10 million people, following the end of the Second World War Hungary
E-Governance Practices: A Global Perspective
27
became part of the Soviet dominated Eastern European block and its government and economy were refashioned on the communist model. During 1956, increasingly nationalist opposition, pushed the Government to announce its withdrawal from the Warsaw Pact, and this led to a massive military intervention by Moscow. During the Gorbachev era Hungary led the movement to dissolve the Warsaw Pact and steadily moved toward multiparty democracy and a market-oriented democracy. After the fall of the USSR in 1991, Hungary developed close political and economic relations with Western Europe and is now being considered as a potential member of the European Union. As regards telecommunications, historically, Hungary has had an underdeveloped communication network. Until 1989 telecommunications used to be a state monopoly and was bundled up with traditional postal services and broadcasting. In 1990, the first transformation came about. The company that had the monopoly for these three services was split into three. The second transformation came around with the Telecommunications Act that became effective in the summer of 1993. This Act essentially established the theoretical framework of the current structure of telecommunications and accelerated the reform in the telecommunications sector. The future for telecommunications in Hungary is as yet not clearly charted, like many other countries, due to the fast rate or change in this sector. Yet as more services become liberalized and the termination of exclusivity of services, which will last until 31 December 2001, comes into effect, an exciting time for the Republic of Hungary is on the horizon.
Use of E-Governance Hungary has realized that a planned investment in information technology and its supporting infrastructure is required for the development of the information society. The effects of such an investment together with the benefits of the information society makes the return on such investment worthwhile. The birth of a global telecommunications network and the convergence of telecommunications, computer engineering and entertainment
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E-Governance Practices: A Global Perspective
electronics technologies open up new prospects for global trade in information services. In the course of this process, telecommunications itself is becoming part 'of information technology, and its services have an increasingly 'intelligent' content. This infrastructure should be capable of connecting any user network run by businesses, institutions or private individuals, and suitable for intelligent data processing. In addition to this the Hungarian Government has created a Commissioner for ICT within the office of the Prime Minister with two main lines of action related to the establishment of an Information Society National Action Plan. The first line of action is called the Szechenyi Plan which is an ambitious initiative for mid-term national economic development and has a time horizon of six years. The yearly budget for 2001 and 2002 allocated is approximately 1 billion US dollars and government expects a similar contribution from the private sector. This plan has seven priority areas called programmes. In each programme there are several sub-programmes. One of the seven programmes is dedicated specifically to the development of the information society and information economy. In this programme, there are five sub-programmes, covering the areas of e-Governance; improvement of the availability and access of IT resources; creating the foundations for the e-Economy, enhancement of information culture, improvement of accessible contents, improvement of quality of life and rising awareness. A second line of action related to the establishment of an information society plan is to publish a National Strategy for Informatics. This document is intended to serve as the basic guideline for. the development of the Information Society in Hungary. There are several other ongoing activities. The first pilot project on Certificate Authority and Digital Signature system started in October 2000 at the Ministry of Interior. The Ministry of Interior issued new personal identification card and driving licenses harmonized with the EU recommendations and standards of the member states. The system is based on a nationwide IT network, connecting 254 offices in municipalities. The offices are situated at the local governments and supported by the M~nistry of Interior. The offices are one-stop contact points
E-Governance Practices: A Global Perspective
29
between the citizens and government. The local governments and other authorities can use the wide area network for various transactions on the intranets and the Internet as well. The Ministry of Environmental Protection established a website that provides information on the state of the environment. Also, a fully operational network for the collection, processing and monitoring of environmental data in Hungary that will be fully compatible with the European Environment Information and Observation Network (EIONETt There is a national database of substances damaging the ozone layer, too. The digitalization of Hungarian authors' literary works (in the framework of Neumann Digital Library and Multimedia Centre) is in progress. Furthermore, the establishment of the National Audio-visual Archive is in progress, too. The development of high-speed Internet access for National Cultural Institutions (in cooperation with the National IT Infrastructure Development Programme/NIIF) continues. The John von Neumann Computer Society (NJSZT) has joined the European Computer Driving Licence (ECDU Foundation in 1997. There are more than 150 accredited Test Centres, coordinated and controlled by NJSZT. There are more than 30,000 candidates and more than 16,000 completed ECDLs. The Hungarian Quality Assurance System for ECDL Centres is recognized as international best practice. The ECDL Programme is accredited by the Ministry of Education for the Further Education Programme for Teachers. Government has pledged the use of information technology for its operation and its primary aim, in the legislative institutions and the central and local agencies of public administration is to standardize existing systems in five to ten years. It wishes to upgrade the most important registration systems to meet modern standards. (The records involved in this scheme cover data on personal identification, business, social security, tax and customs affairs, real estate, motor vehicles and criminals). This scheme may result in direct savings of billions of forints, while its indirect effects may generate an even greater increase in revenue. Government is also trying to coordinate the use of up-to-date
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E-Governance Practices: A Global' Perspective
information processing methods in the prelimmary phase of decision-making (handling and flow of documents, availability of data for control by decision-makers, data protection, etc.) in that it may help ease the burden on decision-making bodies, reduce the excessive influence of the specialized institutions and accelerate the decision-making process. Hungary's presence in international fora and organizations will also require that it become connected with the telecommunications and information processing systems of the EU member countries (for instance, the European Nervous System (ENS) and in common with a number of EU states, a long-term modernization objective of Hungary is that both private individuals and enterprises should be able to communicate with government agencies and other authorities by computer, without the need for printed documents (tax affairs, official certificates, access to non-classified government information, etc.). On a legal front Hungary should take legal measures to protect government information processing systems (the legal force of electronic documents and their archiving, rules for the acquisition of information, the accessibility and protection of data bases, consequences of unauthorized access, etc.). On the level of public information processing systems which include education, research and culture, in the next 10 to 15 years all schools, libraries and research institutes should be enabled to establish computer links with one another. Direct access to international networks may help schools and universities retain their more qualified staff. It is also envisaged that the Hungarian citizen would be able to exercise his democratic right directly from the home through the use of his Pc. On a business level these systems should concentrate on the background services that improve the general conditions of economic activities (banking and credit transactions, electronic accounting systems, real estate trading services, capital and commodity market information, data bases, etc.). The government should lay particular emphasis on the protection of personal rights, copyright and business know-how, not only in the traditional fields of civil law , but also in the new branches of administrative law which are increasingly important for the
E-Covernance Practices: A Global Perspective
31
business community (for instance, the monitoring system for public services rendered under concession agreements). With regards to the enabling infrastructure the telephone capacities of the country can be expanded at an annual rate of about 15 per cent and about thirty-one telephone lines are available for every 100 inhabitants. It can safely be predicted that by the 2010, TV and radio transmission and postal services will be close to European standards. In other areas of telecommunications and information processing, market forces should guarantee more rapid development. (E) Jamaica
Background The Government of Jamaica has made the integration of information technology into the Jamaican economy a high priority and a strategic imperative. It aims to promote Jamaica as a Caribbean hub for IT activities and investment. A threepronged approach envisages transformations in human resource development, in infrastructure and in the enactment of an enabling legislative and policy framework. A Cabinet subcommittee for IT is steering the process, together with a newly set up Central IT Office (CITO). The former Ministry of Industry and Commerce now has 'Technology' added to its name and government has publicized its intention to generate 40,000 ITrelated jobs in the coming three-year period. Strategic and other measures being adopted iii. the short term include: (1)
(2)
(3) (4) (5)
The annual allocation of 2 to 4 per cent of the national budget to IT initiatives. Catalyzing ministry tactical plans, with an emphasis on education, for the harnessing of ICTs in the various socio-economic sectors. The introduction of a strong IT component in the Public Sector Modernization Programme. Accelerating the introduction of computer labs in educational institutions. Facilitating private sector initiatives to dramatically increase public access to the Internet.
E-Governance Practices: A Global Perspective
32
Create a Chief Information Officer position within each ministry. (7) The establishment of a transparent regulatory framework, adaptable to the emerging e-business environment and covering areas such as privacy, intellectual property and digital signatures. (8) A system of investment incentives to spread IT activities geographically across Jamaica. (9) The development of an appropriate infrastructure to facilitate the delivery of government services. (6)
In addition, a series of high-profile pilot projects are being undertaken to demonstrate the benefits of IT in the short-term. These projects are intended to further the goal of universal access and emphasize public access to information. The post office network is earmarked for the delivery of a wide range of community services, such as online health-care, weather and disaster preparedness bulletins, the marketing of products and agricultural extension services. Expansion of this infrastructure will also facilitate greater public access to government services, communication with government agencies, Parliament and parliamentarians, thereby reinforcing the democratic process. Long-term goals include: The creation of a nation wide public IT network which is competitively priced, utilizes multiple sources and relies on the private sector. (2) The provision of efficient government services to the public through the use of IT. (3) The use of IT to increase international trade. (4) The adoption ofe-Commerce for government functions, as a stimulus to private sector take-up. The latter will also be facilitated through the provision of the infrastructural components for the take-up of e-Commerce and e-Business, particularly by SMEs. 0)
Use of E-Govemance Currently, the quality of service to the public is deeIPed as poor and is characterized by: 0) cumbersome procedures; (2) long delays; (3) unsatisfactory resolution of problems faced by clients;
E-Governance Practices: A Global Perspective
33
(4) high private costs of compliance with laws and regulations; and (5) discourteous behaviour. The Jamaican public sector displays characteristics commonly found in most established bureaucracies. Rigid laws and regulations govern Public Sector entities. Compliance with these laws and regulations takes precedence over achieving organizational objectives. In turn, this reduces responsiveness to emerging situations and discourages innovation. Decision-making is hierarchical and most decisions get pushed up the senior level. Many senior level officials regard themselves as policy makers, controllers or .regulators, rather than facilitators. In addition, both managerial and operational business in the public sector need re-engineering. Most of the current business processes were established decades ago and continue unchanged. In spite of major changes in the external environment and the role of the public sector, business processes have not been restructured. Many business processes that could be completed in one-step or location are fragmented between different organizations or different sections within a given organization. However, the government has begun to make important changes in the operations of public sector institutions to improve efficiencies through a Public Sector Modernization Programme. The Public Sector Modernization Programme is being funded by the Government of Jamaica, the World Bank, and the British Department for International Development and the European Union. The aim is to modernize 17 pilot agencies and 3 pilot Ministries, in order to enhance efficiency and improve performance, as well as the quality of service provided to the public. Ten pilot agencies will be transformed into Executive Agencies, with greater responsibility for service delivery, financial management and human resources management. Executive Agencies will be rewarded for realizing efficiency gains, improving effectiveness or realizing revenue increases. Conversely, sanctions will be applied for poor performance. Other aspects of the public sector programme include: (1) privatizing or contracting out government services in cases
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E-Governance Prac'.kes: A Global Perspective
where these services are better performed by private providers; (2) reforming the government procurement system to improve transparency and efficiency; (3) the establishment of comput~rized information systems in the public sector to improve financial and personnel management. The next phase of the programme envisages extending the reforms to the entire public sector. Under the National IT Strategy the relevant goals state that: (1) The Government of Jamaica plans to provide its citizens
with efficient government services through the use of IT. (2) Networks will be established to allow access to government services from libraries, post offices, banks, hospitals and other public locations. The government will coordinate the locations access, presentation methods, and sharing of resources. The key focus is to have citizens throughout the country, even in rural areas, be able to find and receive information and services from different government organizations consistently and easily. Actions towards this end include: (1) Delivery of two types of services: (i) providing information to the public, and (ii) allowing transactions
to be performed. Early emphasis is to be placed on the former, i.e., provision of information to the public. The Minister of Commerce and Technology will establish a goal to provide a certain percentage of information services to the public within the next three years. For example, 25 per cent of information services will be provided by the year 2003. (2) Identifying a set of government services su~table for electronic self-service. Enough progress has been made in other countries in the area of electronic government to permit identification and widespread deployment of a core set of commonly requested government services that citizens can initiate and complete in a single electronic session.
E-Governance Practices: A Global Perspective
35
(3) Expand locations where public can access information and obtain public services. To ensure that all citizens have equal access to technology, establish a network of kiosk or computer systems that provide government information and services in prominent locations in each region of Jamaica, or broaden access to the rural communities, IT needs to be placed where the public can use it in convenient community locations, such as libraries, post offices, banks, hospitals, and other government offices. For example, rural public libraries can be networked with main libraries to expand the services that are available to the public throughout the country. (4) Use partnerships to obtain support, knowledge, loans, computers, services and training to further the development of the IT industry in Jamaica. Develop partnerships with industry, universities, and multilateral and multi-national organizations. Partnerships are vital to achieving strategic IT goals. These partnerships facilitate major culture changes throughout the government. Public and private sector partners work together to provide more efficient and effective government services.
(F) Malaysia Background Malaysia has embarked on a number of measures to ensure that information and communication technologies (lCTs) playa vital role in that society. The nation was selected as one of the case studies in the prestigious Report of the Digital Opportunity Initiative. The Report notes Malaysia's comprehensive policies that are being developed to encourage ICT use in various sectors of the economy, as well as to accelerate the growth of the ICT sector. Trade and investment policies, such as financial and nonfinancial incentives, a fair trade system, and import and export duties, promote local and foreign investment. With the privatization of the government telecommunications department in 1987, and the formation of the National Telecommunications
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E-Governance Practices: A Global Perspective
Policy (NTP) in 1994, the market has now been fully liberalized. The Malaysian Government's Master Plan for the telecommunications industry provides guidelines for competition, interconnection charges, tariff rates and network development. At the end of 1995, all operators signed interconnection agreements with Telekom Malaysia to provide seamless communication regardless of carrier, though most carriers have not signed agreements among themselves. The computer and software markets have also been fully deregulated, though restrictions exist on participation in government bids, and there are equity requirements for setting up manufacturing facilities. These barriers do not pose an insurmountable barrier to competition, but encourage the establishment of joint ventures and local distributorships with Malaysian companies.
leT Infrastructure The Malaysian Government has invested heavily in world-class infrastructure. Malaysia's Multimedia Super Corridor (MSC) is designed to create an ideal environment for ICT -related production as well as provide the backbone for an information superhighway. The network contains a high-speed link (10 Gb/s network) that connects the MSC to Japan, ASEAN, the US and Europe, and is capable of supporting extensive public administration, education and business applications. The intent of the superhighway is to provide quality access to global information as quickly and easily as possible. Simultaneously, the Demonstrator Application Grant Scheme (DAGS) is intended to facilitate social and economic progress through the innovative use of ICT. It provides funds for citizens to access the opportunities associated with the MSC and to be involved in multimedia development. The telephone penetration rate--as a measurement of the ICT readiness of the country-rose from 16.6 per cent to 23.2 per cent between 1995 and 1999, while fixed lines in the rural areas rose from 5.2 per cent in 1994 to 11 per cent in 1999. Malaysia is aiming to continue the establishment of basic telecommunications infrastructure, with plans for 250 Internet
E-Governance Practices: A Global Perspective
37
access points, 250 mobile phones and 500 fixed lines for every 1,000 people within the next 5 years. This is in addition to the development of other primary physical infrastructure, such as power supply, transportation, airports, office buildings and extended business areas. As result of fair trade and investment policies, foreign direct investment in Malaysia reached US$6 billion in 1997, but then dropped to US$3.8 billion in 1998 due to the Asian economic crisis. In 1999, flows of foreign direct investment again increased by 31 per cent and GNP rose 5.4 per cent-much faster than initially forecasted. This increase was led by manufacturing, particularly in ICT-related electronics (for export), and this sector is now the key driver of growth in the economy. In 1999, the contribution of the ICT sector to GNP was approximately 36.5 per cent. A number of incentives and projects are underway to foster entrepreneurship and business efficiency. The government provides both financial and non-financial incentives to Malaysian businesses. Financial incentives include zero income tax for a period of 10 years, R&D grants, and a 100 per cent investment tax allowance on new investment in the MSC. Nonfinancial incentives include unrestricted employment of foreign knowledge workers, no restrictions on global capital, and limited restrictions on ownership. The growing economy has created a demand for skilled knowledge workers and professionals. Skilled labour is still in short supply, especially in the ICT sector and manufacturing industries. To address this issue, the Malaysian government is investing in a high-quality, comprehensive education system designed to meet the demands of the evolvinb workplace. At the Multimedia University, for example, new skills such as information and knowledge management, as well as programming applications, will be incorporated into the education and training curriculum. Several additional efforts have been made to increase ICT literacy. The Computer In Education (CIE) Programme has provided computer laboratories to 90 secondary schools and 20 primary schools: Between 1996 and 1998, about 1,230 teachers were trained to conduct the CIE
a
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E-Governance Practices: A Global Perspective
course. Computer Aided Design and Computer Aided Manufacturing (CAD and CAM) courses were also taught in secondary technical schools. Malaysia has made a concerted effort to provide relevant content to technology users through a number of specific initiatives: for example, Agritani is developing a portal that serves agriculture communities, including farmers, agriculture agencies, consultants, and agriculture service providers; and Cybercare enables orphanage communities in Malaysia to share news, barter goods, train volunteers and increase administrative efficiency. E-Commerce initiatives are helping to provide Malaysian businesses with more efficient access to input and product markets, both locally and globally. For example, MyBiz, an eCommerce platform designed for small and medium enterprises helps facilitate collaborative marketing by linkmg 300 companies including 26,000 employees in a business community network. The same platform can be used to make procurement processes more efficient and effective.
Strategic Compact for ICT Convergence Malaysia's leadership recognized the need for a cooperative partnership to achieve its development objectives and its ambitious vision. To leverage and coordinate public, private and community sectors, the National Information Technology Agenda (NITA) was developed as a major strategy for national development. The National IT Agenda (NITA), launched in December 1996 by the National IT Council (NITC), provides the foundation and framework for the utilization of ICT to transform Malaysia into a developed nation. The NIT A vision is to use ICT to transform Malaysia, across all sectors, into an information society, then a knowledge society, and finally a 'values-based' knowledge society. The necessity for a strong ICT infrastructure has been recognized by Malaysia who has built up its capability in ICTs to improve its capacities in every field of business, industry and life in general. Currently Malaysia is in full gear to meet the challenge of globalization by enhancing the nation's
E-Governance Practices: A Global Perspective
39
competitiveness, through the infusion of knowledge in all production-based industries and steering toward a knowledgebased economy. One key initiative aimed at fast tracking Malaysia into the information age is the Multimedia Super Corridor. Two smart cities have been developed within this corridor, namely, Putrajaya and Cyberjaya. The MSC envisions the harnessing of multimedia to help spearhead economic developm~nt for Malaysia to achieve developed nation status by the year 2020. The address describes the hard and soft infrastructure that has been put into place. This includes, for example, a fibre optic backbone network covering 360 kilometres. The Government has put in place a legal framework, and institutional framework with coordinating mechanisms and a set of ICT policies and guidelines. National and state ICT councils have been established. The National IT Council (NITC) represents the highest ICT forum that acts as a think tank and advises the Government on national ICT strategies. The NITC is chaired by the Prime Minister. No matter how good a domestic infrastructure is in place there is a need for a regional or perhaps even global ICT framework to deepen cooperation and to regulate the now borderless world. Challenges faced by government in the midst of ICT convergence are seen to be:
Political: From the political dimension, the three most significant challenges are managing a borderless virtual· world, the erosion of control and disempowerment of the technologically poor states. (2) Secur~ty: Poor enforcement of rCT security policies and systems with inadequate security features may result in security incidents such as thefts and espionage of government and corporate information and illegal access to personal information. Cyber attacks can also paralyse a country's defence and even cripple key sectors of a country's economy. (3) Socio-cultural: The lCT revolution has resulted in a shortage of skilled know ledge workers and the 'brain drain' to more developed countries. There is also a
(1)
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E-Governance Practices: A Global Perspective
widening gap between IT 'haves' and 'have-nots' across nations and within nations i.e. between rural and urban areas and between the younger and older generation. Another challenge is the 'hollowing' of culture, which is the erosion of values and ethics through mass global culture pervading the Internet and electronic media. (4) Economic: Globalization has further aggravated the existing unequal distribution of wealth and income, creating imbalance, leading to polarization. Keeping abreast with the ever-changing ICT trends comes with a high cost. Countries which are slow in grasping the opportunities provided by the latest technology such as e-Commerce, will be at a serious disadvantage. In order to respond to the challenges highlighted, government and the public service need to undertake the following initiatives:
Strategic ICT Planning Several countries have undertaken initiatives to come up with their Strategic ICT Plan for example UK has its UK Online, Singapore with its Singapore One and its IT 2000 Masterplan. Malaysia has its NITA (National I Agenda) and the MSC (Multimedia Super Corridor) project and recently has come up with its K-Economy Masterplan.
Reinventing of Govemment There is also a need to transform current government processes in order to improve services. Malaysia has embarked on various initiatives to reinvent Government processes such as eGovernance Flagship Applications, empowerment of the State and Local Governments and the setting up of a special committee to oversee the whole government ICT initiatives, that is the Government IT and Internet Committee (GITIC).
Human Resource Development The lack of trained IT and knowledge workers to support application diffusion in both the public and private sector is a
E-Governance Practices: A Global Perspective
41
major challenge in efforts to expand the use of IT in the country. As such the Malaysian Government has adopted various strategies to enhance ICT literacy and skills. Some of the initiatives undertaken include: (1) Establishment of COtI1puJ~( labs in schools. (2) Establishment of new private higher education insti tu tions. (3) Allocation of special funds for ICT training by the Human Resource Development Council.
In addition, the Smart School initiative under the MSC project, also responds to the need for Malaysia to make the critical transition from an industrial to a knowledge-based economy. The Malaysian government has also undertaken a special study on IT Manpower requirements to support the application and diffusion of IT. The study focuses on several important components including human resource reguirements and occupational classification of public sector I'h. personnel, the effectiveness of IT training programmes and the relevant online IT services to industry users.
Enhancing Security Issues ~urrounding security of ICT systems have also become a major concern. Hence to ensure a conducive and safe electronic environment, the necessary steps in enhancing ICT security has to be undertaken. In tandem with what other countries are doing, the Malaysian Government has undertaken the following measures: Establishment of an ICT Security Division in MAMPU. (2) Appointment of ICT Security Officers in agencies. (3) Establishment of the Government Computer Emergency Response Team (GCERT). (4) Publication of the Malaysian Management of ICT Security (MyMIS) Handbook:
(1)
At the national level, a number of initiatives have also been undertaken such as the establishment of the National ICT
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E-Governance Practices: A Global Perspective
Security and Emergency Response Centre (NISER) which provides for skill development and consultancy services relating to ICT security and establishment of Malaysian CERT (MyCERT), established to tackle security issues for the private sector.
BridgiI!g the Digital Divide The issue of digital divide is one that is common across most countries. The Malaysian Government has also undertaken numerous programmes to reduce this phenomenon such as: (1)
(2)
(3)
(4) (5)
The 'Medan Infodesa' programme which provides training ana hardware to rural communities by the Ministry of Rural Development. The 'Internet Desa' programme by the Ministry of Energy, Communication and Multimedia which involves supplying of computers to provide free Internet access to rural communities. The K3P (Kumpulan 3 P-Pendengaar, Penonton, Pembaca) programme initiated by the Ministry of Information, which has set up centres called 'Pondok Harmoni', equipped with PCs and Internet access. Setting up of eServices kiosks at both community and public areas. Provision of government services via Interactive Voice Response (IVR) which can be accessible through telephones.
Reviewing the Legal Framework The development of IT and multimedia without the parallel development of laws can result in abuses and in turn discourage the use of such technologies. The use of The Internet has raised a few concerns and issues, namely: Integrity and security of information. (2) Legal status of online transactions. (3) Privacy and confidentiality of information. (4) Intellectual property rights.
(1)
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Taking cognizance of these issues, the Malaysian Government has already approved and passed its own set of cyberlaws: (1) Digital Signature Act 1997. (2) Computer Crimes Act 1997. (3) Telemedicine Act 1997. (4) Communications and Multimedia Act 1998.
The Personal Data Protection Bill is also currently being drafted and the existing Copyright Act is being aligned to the electronic environment.
Promotion of E-Commerce Governments should take cognizance of the fact that the Internet has changed business rules and the way business is being conducted. E-Commerce activities are expected to give rise to new economic development opportunities and in the process produce different impact to businesses and organizations. Amongst Malaysia's efforts to promote e-Commerce include: (1) Conducting an e-Commerce readiness assessment to
identify the gaps and map appropriate strategies. (2) Supporting e-Commerce through effective legislation. (3) Encouraging local manufacturers to pursue e-Commerce. Three major policies and strategic directions are to be undertaken by the government in order to move towards a Kbased society and economy, namely: (1) New policy and regulatory framework to promote the
development of the communications and multimedia sector and industry. (2) Strategies for widening access an.d content development. (3) Policies for building trust and confidence in e-transactions.
Building National Communications Infrastructure This can be achieved through the implementation of efficient communication media (wired/wireless) and transmission modes
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(narrowband / broadband) as well as improvement in education facilities such as online education and smart schools. Acknowledging the fact that digital divide exists and has to be addressed, steps are undertaken to bridge the gap through the implementation of Universal Service Provision and e-Community projects.
Providing Global Communication Links Global communication links have been improved through access to global satellite facilities such as cable and satellite systems as well as the Internet gateways (IDe, ARIX) and international exchanges (PSTN). Other services provided include COINS global and mobile international roaming.
Facilitating Knowledge Development In the area of knowledge development, efforts have been undertaken to improve and increase training facilities such as the establishment of the Multimedia University, training centres and colleges. Research and development and the aspect of Intellectual Property Rights have also been given emphasis. Participation and sponsorship from industry has itself become a national agenda of which the issue has been discussed in various industry forums. Further actions that need to be addressed in order to support the National Communications and Multimedia Agenda, amongst which are: (1)
(2) (3) (4) (5) (6)
Raising awareness for ICT adoption. Enhancing network infrastructure. Improving policy and regulations. Enhancing operational efficiency. Capacity building. Adapting appropriate e-Commerce technology, harnessing technical and operational standards and striving for sustainable technology transfer.
Use of E-Govemance Malaysia'S e-Govemance programme aims at reinventing how the government works as well as improving the quality o(
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interactions with citizens and businesses through i~proved connectivity, better access to information and services, high quality services and better processes and systems. Of the six eGovernance pilot projects being implemented, four of them have gone 'live' at their respective pilot agencies. These include the Project Monitoring System (PMS), e-Procurement, Generic Office Environment (GOE) and the services projects. The Human Resource Management Information System (HRMIS) and the Electronic Labour Exchange System or ELX are currently under development and will be rolled out in the near future. The implementation of e-Governance has taken a holistic approach encompassing elements such as applications, networks, security, process re-engineering, operations and support, change management, and skills and knowledge. In moving forward into the future, four guiding principles have been identified, namely: collaboration between the public and private sectors, sharing of data and information, customer satisfaction and information and data security. There are currently 6 pilot applications, multiple websites and on multiple platforms. In the future, more and more services will be included in the government e-Services portal and there will be greater sharing of data and information through the adoption of concepts such as single point of data entry, data integration and single sign on. An issue faced is whether the government should standardize on the use of a single platform or product for the whole of government or whether to allow the current use and adoption of heterogeneous platforms/ products as long as they can inter-operate with each other. Another issue concerns the implementation of the second wave of eGovernance applications which should have started two years ago but have been delayed due to delays in the implementation of the first wave of applications. While the e-Governance programme is being implemented, government computerization continues in other agencies. A service provider has been appointed to provide wide area connectivity to all agencies implementing e-Governance via an intranet called the E-Governance*Net. The issue facing the government is that many agencies have already implemented
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their own networks using. the services of other providers. Migration of agencies to the new Federal Government Administrative Centre in Putrajaya has compounded the complexity of the communications issue as these agencies require connectivity to other agencies within Putrajaya and to the outside world. There will therefore be gradual migration of agencies to the E-Governance*Net, a more cost effective implementation approach to developing application systems which are more 'bandwidth' friendly, and the use bf new communication and network technologies. Regarding the issue of security, Government has established an IT Security Policy as well as adoption of smartc;ards and the public key infrastructure. In the future, more awareness, enforcement and standardization activities will be carried out. In the re-engineering of processes, current e-Governance applications have implemented automation and streamlining of current processes which may result in new roles and responsibilities for certain personnel. In the future, applications will be built with more customer focus, departing from functionbased type of processes. This will entail the elimination of boundaries, restructuring of organizations, establishment and adoption of common procedures with continuous improvement embedded. As ministries and agencies move to Putrajaya and as more and more agencies implement e-Governance applications, there is invariably an increasing need to share resources. The government is in the process of establishing a Shared Services Outfit or SSO which provides centralized facilities such as Help Desk, Command and Data Centre, Networks and Enterprise Systems Management. The major challenge lies in getting buyin from agencies willing to share resources as well as in utilizing the services that will be offered by the SSO. The future points to greater IT coordination and support with upgrade policies, service contracts or service level agreements (SLAs) with service providers, and maintenance procedures. One of the biggest perceived challenges faced in implementing e-Governance is the 'people' probl€ .~ -·that is, in getting their buy-in, support and commitment. As such,
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implementation of each of the e-Governance application is inevitably linked to a cohesive change management programme involving its three main tenets namely transition management, communication management and benefits realization. The future success of e-Governance lies in the ability to sustain change where success is measured and a change in mindsetl culture has occurred. Finally, in the area of skills and knowledge, government has established dedicated project teams to implement the various applications with the consortia appointed. However, it has been found that transfer of technology from the consortia to the government team members has not happened as desired. This situation is at times attributed to the non-availability of the technology recipients, and the fact that the consortia may be too focused on getting their applications finished on time.
(G) Malta Background Malta is a small island state with a population of 400,000 people. In 1987 the government embarked on a large-scale modernization programme which among other things foeused on putting the Island on the world-map of information technology. The change programme within the public sector was spearheaded by a new agency acting as a change agent and an IT enabler and the first Information Systems Strategic Plan was published. Much has been done and still more is planned to be done. All ministries and government departments are connected to the Malta Government Network, known as MAGNET for short, and a large proportion of public officers have their own e-mail address and Internet access. Government also has its own official website and plans are in hand to transform this website into a portal with the capacity to support e-Governance initiatives.
Use of E-Govemance In its white paper on the Vision and Strategy for the Attainment of e-Governance published in October 2000, the Office of the Prime Minister outlined its vision and strategy to attain
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e-Governance in Malta. It is made very clear from the outset that such a vision can only be implemented if both the private and the public sector contribute to it. Government should act as an enabler, creating the right environment through a proper legislative framework and institutional set-ups. Government will also implement e-Commerce solutions in its businessoriented. activity. The Private sector on the other hand should be able to support, supply and implement the solutions that would be in demand throughout all sectors of the economy. Government's vision for the creation of a Maltese Information Society and Information Economy is underpinned by a number of principles which are: (1)
(2)
(3)
(4) (5) (6)
All Maltese will have the opportunity and the means to participate in the Information Society and the Information Economy irrespective of their financial, social or educational circumstances. Government will actively promote the creation of the Information Society and the Information Economy via the provision of transactional online e-Governance Services. Government will provide the necessary policy, institutional and regulatory framework that is required for the successfut.proliferation of electronic commerce. Businesses will be encouraged to adopt electronic commerce. The achievement of computer literacy by all sectors of the population will be actively pursued. The necessary measures will be taken to build up a critical mass of Information Technology specialists that will be required to sustain the growth of the Information Society and the Information Economy.
The creation of the Information Society and Information Economy in Malta would transform Maltese society in a manner which would result in service improvement, universal access to education, a thriving economy, affordable communications of th.e highest standards and a country which is among the frontrunners in the Global Information Society.
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As already argued above, the achievement of the Information Society and Information Economy in Malta requires the building of the national capacity to sustain this development. This is envisaged to happen through partnerships between the Public and the Private Sector. Government will build the legal and regulatory framework through a number of Bills: The Electronic Commerce Bill which provides a secure legal basis for electronic communications, contracts, signatures and transactions, and establishes the framework for Certification Authorities and their regulation. (2) The Data Protection Bill wh'ch will ensure the protection of data, in Qrder to protect the rights of individuals visa-vis personal information. (3) The Computer Misuse Bill which criminalizes offences relating to the misuse of computers and related equipment. (1)
In building the national capacity government is faced with a number of other challenges such ~s the promotion of a widespread uptake of the Internet by businesses and households which is one of the major challenges government has to face in the creation of the Information Society and Information Economy in Malta. Together with this government has to:
convince the Private Sector to invest in the adoption of e-Commerce solutions; (2) accelerate and upgrade those initiatives aimed at producing IT specialists in order to fill the shortage of labour supply that the country faces. This is planned to be achieved again through a partnership with the Private sector and by the implementation of strategies for a mixture of IT literacy in schools, life-Iong'learning, vocational training and tertiary education; (3) explore initiatives set at promoting universal use"of the Internet. This could be achieved through three potential initiatives which are the dissemination of e-mail on a
(1)
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national scale, the creation of a Malta Internet Exchange and a National Free Maltese Internet; and (4) develop a high quality and affordable telecommunications infrastructure which could be achieved through the maximization of the current infrastructure and the liberalization of the telecommunications industry, a process that has already started and is at an advanced stage in Malta. The achievement of the Information Society and Information Economy in Malta requires a champion to drive the initiative in a focused and concentrated manner. A number of bodies in Malta have been created in the past with this in mind and the White Paper mentioned above identifies the Information Society and Economy Commission as this driver. This commission has been set up with the following terms of reference: (1)
(2)
(3)
(4)
(5)
Identify quantifiable benchmarks for the development of an Information Society and Information Economy in Malta and monitor the achievement of these benchmarks on an annual basis. Promote the creation and development of an Information Society via the appropriate training initiatives both within and outside the ambit of formal educational structures. Recommend initiatives and programmes relative to training and human resources in specialized IT-related professions in order to support the Information Society and Information Economy in Malta as well as build an IT industry in Malta. Propose the necessary legal framework that is required for the regulation of all forms of electronic communication. Develop and implement awareness programmes on its own and in conjunction with government entities and the private sector, that are targeted at all sectors of the community and that will focus on the benefits and opportunities of the Information Society and Information Economy in Malta.
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(6)
Recommend measures to increase access to information and communication technologies at homes, schools, businesses and public offices, including measures aimed at those in the disadvantaged groups, (7) Recommend measures to government and"lworking with its institutions for and towards the attainment of the Information Economy. (8) Establish working groups and task forces to highlight specific sectoral issues with respect to the Information Society and Information Economy and develop and propose recommendations for action. (9) Work with government entities and the private sector to encourage Information Society and Information Economy initiatives in the delivery of the public services and information. (10) Monitor trends in IT legislation overseas and recommend legislation that will establish a framework for the attainment of an Information Society and Information Economy in Malta. (11) Align national objectives in the attainment of the Information Society and Information Economy with those of the European Union, to which Malta aspires to accede in the short-term. It is envisaged that all e-Governance Services will pass through one on-line portal. The portal is seen as the interface that brings together the services offered by government with its users and will be made up of a-three tier architecture. Access to the portal should be through multiple chan~els and service provision through the portal would be characterized, among others, by having access from a wide range of locations, a 24 hours 7 days a week service, seamless one stop-shopping for a range of Government Services from a number of Government Departments and increased efficiency. Key to the success of the Information Society and Information Economy in Malta is the security by which online transactions can be made. The portal would address a number of key features related to security and these are:
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E-Governance Practic.es: A Glebal Perspective (1)
(2)
(3)
(4)
(5) (6) (7)
Secure authentication and d3.ta encryption processes and prevention from unauthorized use. A multi-step authorization process using private data stored in a Public Key Infrastructure (PKI)-protected vault on the e-Governance portal to achieve equivalent levels of information entropy to that provided by the private key used for e-signing. The super-registration of data by clients, on a voluntary basis, into a personal PKl- protected vault on the e-public service portal for data items such as digital photographs, income details, family details, phone contact details, roles in organization, etc. Access by government systems to the data in this vault would be totally under client side control. The super registration process would also be used for PKl registratiop. Data-protection compliance and multi-step authorization processing, which will be carried out at the e-Governance Portal by using the episode knowledge base and data held in the personal vaults. Electronic signing of HTML forms of XML or XSL files which are transferred to the e-Governance Portal. Electronic signature requirements for all interactions between the e-Governance Portal and back-end systems. Message digests for all client-side interactions that should be archived to deal with any contract or service delivery issues that might arise later on.
The Public Key Infrastructure (PKI) already mentioned above is the technology currently being adopted worldwide for the provision of online security and personal authentication. Whereas in other larger countries several certification authorities exist and a need for cross-certification is required, the Maltese scenario is such that a simple scaled down version of government PKI is used. The provision of e-Services can be conveyed through several routes with direct access from PC over the Internet being the most obvious channel. Yet other factors of social inclusion and public convenience would point to the utilization of alternative
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channels. The exploration of these other alternative channels is required because of a relatively low level of Internet penetration (penetration rate in Malta is around 10%) together with unsatisfactory and expensive Internet serv~ce provision. The alternative channels mentioned above are mobile telephony, value added services through normal telephony, interactive TV, kiosks, over the counter service and call centres. The services provided are also varied and consist of the provision of information, transactional e-services, electronic commerce and e-Democracy. Currently a number of services are already available or pilot projects have been launched. Services that are already available are the listing of government tenders, government agencies and officials, national events, employment possibilities, public service information, budget expenditure, laws and regulations and government expenditure. These services are normally provided through the World Wide Web or e-mail but the level of utilization is either moderate or low. A number of other initiatives are being launched or planned. These are the provision of national statistics, national archives, tax information, payment ofbilIs, application forms, opinion polling and the provision of feedback by the citizen. The establishment of the Information Society and Information Economy requires a focused effort and requires that the concept is accepted and adopted by the people who will be using it. The White Paper mentions the development of a communications strategy to achieve this goal. Financing of the Information Society and Information Economy is mainly dependent on government yet other external sources such as the European Union and large international players in the field of IT should be explored.
(H) Mauritius Background Mauritius is situated in the south-west of the Indian Ocean, 2000 km. from the east coast of Africa. It is of volcanic origin and has been formed millions of years ago following two series of volcanic eruptions, separated by a long period of erosion. Volcanic activity has, however, completely ceased in Mauritius.
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E-Governance Practices: A Global Perspective
The island has an area of 1,864 sq.km. and is almost entirely surrounded by coral reefs. Mauritius has a maritime climate, tropical during summer and sub-tropical during winter. The island had for a long time remained unknown and uninhabited. It was probably visited by Arab sailors during the Middle Ages, and on maps of about 1500, it is shown by an Arabic name 'Dina Arobi'. In 1598, a Dutch squadron, under the orders of Admiral Wybrand Van Warwyck, landed at Grand Port and named the island Mauritius, in honour of Prince Maurice Van Nassau, 'Stathouder' of Holland. The first Dutch settlement lasted only twenty years. Several attempts were subsequently made, but the settlements never developed enough to produce dividends and the Dutch finally left Mauritius in 1710. They are remembered for the introduction of sugarcane, domestic animals and deer. Abandoned by the Dutch, the island became a French possession when, in September 1715, Guillaume Dufresne D' Arsel landed and took possession of this precious port of call on the route to India. He named the island Isle de France, but it was only in 1721 that the French started their occupation. The French stayed on the Island till 1810 until a strong British expedition was sent to capture the island due to raids by the corsairs on British trade ships. A preliminary attack was foiled at Grand Port in August 1810, but the main attack launched in December of the same year from Rodrigues, which had been captured a year earlier, was successful. The British landed in large numbers in the north of the island and rapidly overpowered the French. The British administration, which began with Robert Farquhar as governor, was followed by rapid social and economic changes. One of the most important events was the abolition of slavery in 1835. The planters received a compensation of two million pounds sterling for the loss of their slaves which had been imported from Africa and Madagascar during the French occupation. The abolition of slavery had important repercussions on the socio-economic and demographic fields. The planters turned to India, from where they brought a large number of indentured labourers to work in the sugarcane fields. Cultivation of sugarcane was given a boost and the island flourished, especially with the export of
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sugar to hngland. Economic progress necessitated the extension and improvement of means of communication and gradually an adequate infrastructure was created. Use of E-Govemance The Presidential address at the opening of the First Session of the National Assembly lays down the agenda of the new government and i." his speech of the 3 October 2000 to the Third National Assembly the President stated that the development of information technology and telecommunications has been given top priority. Quoting the President Government is fully conscious of the importance of the 'new economy' of information and communication technology and the opportunities which it affords to countries like ours. Government will develop the Information Technology and Communications industry to increase national wealth, create new opportunities and jobs. Extensive deployment of information and communications technology will promote and democratise access to information. An intelligent village will be set up as a digital free zone to accelerate the development of the IT industry. The necessary incentive schemes and improved facilities will be provided to attract foreign investment. The use of IT in education is central to supporting the development of an efficient workforce for sustaining economic growth. Computer-aided learning facilities will be put in place right from the pre-primary level. Partnerships and alliances will be devised with local and international technology leaders to ,attract high calibre IT professionals to support and drive the net economy. The existing legal framework will be reviewed and consolidated to provide for the emergence of a knowledge society, and to create the right environment to boost the growth of-the IT industry. In addition, an IT Promotion Agency will be set up in order to market and promote Mauritius as a centre of excellence for information technology and telecommunications.
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Government will lead the way by bringing its services closer to businesses and the people by implementing the concept of one-stop non-stop delivery channel. It will further leverage on existing infrastructure by setting up information kiosks in public areas including a modernized postal service to offer customized and value-added e-services. The way to e-Governance was initiated in 1996 with the government on the Internet project which had as its main objectives to put all ministries on the web. The websites of these ministries consist of information on the aims, objectives and services provided by the ministry to the public. Most of the ministries provide regular updates concerning new acts, publications and events. Despite the lack of interactivity on these sites, the access rate to these sites has been increasing with time. The government is paving the way to an e-Governance through numerous projects already undertaken. Such projects are Government on the Internet which is a portal to all ministries/ department websites initiated in 1996 and to date each ministry has a regularly updated website. The Contributions Network Project implemented under the Ministry of Finance, comprises the setting up of an electronic one-stop shop for all payments and contributions of the private sector to government. The electronic submission of Income Tax and VAT returns is operational since May 2000. The Tradenet project has been operational since 1994 under the Ministry of Finance. This system deals with the electronic authorization by customs for delivery of goods, the electronic submission of sea manifest by shipping agents, electronic declaration and processing of bills of entry and the transfer of containers. The Government Data Centre (GDC) aims at creating a 'Connected Government' through which public sector will communicate and work together more effectively and where services will be delivered to the public and private sector electronically in a timely manner. The GDC will have the responsibility of implementing electronic delivery of government services. In the long term, a full fledged GDC will offer the following services to public sector institutions from a central location wherever possible: Internet Access, Email, e-Governance Services, Government Call Centre, Helpdesk
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for technical support, Intranet Services, Server Co-location facilities, Consultancy Services, Web Design and Development Services. Other projects are the Electronic Transfer of Deeds, while e-mail for the civil service, electronic procurement and electronic processing of permits are examples of future projects. On April 20, 2001, Cabinet has taken note of the proposed amendment to the Industrial and Vocational Training (Imposition of Levy) Regulations 1989 to make provision for employees to submit their returns electronically to the Ministry of Social Security, National Solidarity and Senior Citizen Welfare and Reform Institutions. In addition to this, government has furthermore laid stress on the e-Governance issue by its commitment to lead the way by bringing its services closer to businesses and the people by implementing the concept of one-stop non-stop delivery channel. It will further leverage on existing infrastructure by setting up information kiosks in public areas including a modernized postal service to offer customized and value-added e-Services. On 5th February 2001, a high-powered ministerial committee on ICT, chaired by the Prime Minister, was set up. Three taskforces set up under the aegis of this committee are 'Cybercities & Business Parks' headed by the Deputy Prime Minister and Minister of Finance, 'E-Education' headed by the Minister of Education & Scientific Research and 'e-Governance' headed by the Minister of Information Technology & Telecommunications. In the implementation of e-Governance projects the stakeholders are varied and include ministries, departments and other external agents depending on the project. The private sector, professional assqciations or NGOs are involved and examples of this partnership can be seen in the projects such as the Servihoo Portal which has as its objective to be the portal for the Republic of Mauritius, is a Telecom Plus initiative and provides personal email hosting, interactive chat, electronic gr,"eting cards, e-Commerce sales, forums, polls and guest book, another initiative is the Virtual Mauritius which is an e-Commerce platform to sell services including online shipping, real estate, insurance and entertainment and another initiative
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E-Governance Practices: A Global Perspective
is the Virtual Appeal Clip managed by an NGO called SPES and it depicts skills training using ICT to create a new generation creative and productive workforce from the marginalized illiterate kids at risk to themselves and to society. The implementation of this online activity has also brought about a number of lessons. It is clear that in the implementation of projects the commitment of top level people and that of users, standardization for better interconnectivity and practical security guidelines and policies to ensure a seamless but secure e-Governance system together with collaboration among the players for information sharing are critical enablers of e-Governance. On the other side of the coin are the issues that needed to be dealt with and for Mauritius these were managing the change especially with the users, ensuring that the commitment from top level people remained constant at all stages of the project, dealing with the legal changes to enable computerization and enhance standards for future integration and upgrades. (I) Mexico
Background Mexico has an area of 2 million square kilometres with a 9,000 km. coastline and a climate that varies from tropical to desert. By the early 1300 AD, the Aztecs established roots on an Island in lake Texcoco, site of present day Mexico City. In 1521 the Spanish explorer Hernan Cortez captured and razed the Aztec city, building a Spanish city in its place. In 1821, Mexican revolutionaries captured Mexico City and broke all ties with the Spanish crown. The city was occupied by the United States in 1847 during the Mexican War and by France for four years starting in 1862. Heavy fighting ensued from 1910 to 1915, the years of the Mexican Revolution. The end of the Revolutionary movement marked the beginning of a period of dramatic social changes which led to the creation of the Mexican Constitution of 1917. Widespread land reform and nationalization of the country's basic industries were achiev~d during the 1930's. The last 60 years have been characterized by industrial
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.expansion, rapid population growth and political domination. In the first six years of the 1980's development slowed down as a result of a recessionary world economy. Vast austerity and strict debt restructuring measures were a direct result of that· decade for the Mexican economy. In the past few years, the Mexican Government has carefully tried to steer a new and prosperous Mexico in the direction of becoming a first-world economy. However, and despite the efforts in allying itself as partner in trade with Canada and the United States unexpected political and economical events in the early 1990's have conspired to delay achievement of this goal. Today Mexico has a GOP of 484 billion with 4 per cent growth in 1999. It has 23 Internet hosts for every 10,000 population, 112 telephone mainlines per 1000 population and 44 PCs per 1000 population. The population stands at around 100 million and it has a growth rate of 1 per cent. In the year 2000 Internet hosts numbered 41 per 10,000 population.
Use of E-Govemance The public sector in Mexico faces issues similar to those faced by other public sectors around the world and these are issues of transparency, lean governme.nt, deregulation, private-public partnerships, efficiency, e-Governance, etc. In addressing these issues e-Governance is seen as a tool for the development of a better public sector for Mexico. The Government of Mexico has initiated a number of initiatives that have placed it on the map of e-Governance. Some notable projects relate to access to government information. The pilot project Mexico On Line is developed by the President's Office. Its goal is to diminish the distance between the citizen and the government by involving the former in the public decision-making with a 24 hours a day 7 days a week digital broadcasting channel, working interactively with Internet users, crossing the country's geographic boundaries and allowing every connected Mexican in the world to be in touch with his/ her government. This channel is only the first step in a longterm Citizen's Participation Plan, which eventually will intensify online consultations.
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E-Governance Practices: A Global Perspective
The creators of Mexico On Line aim to break the old paradigms about the citizen-government relationship. By using the new technologies they seek to foster a democratic participative clJ.lture, where citizens can express their opinion, ask questions and solve their problems relating to governance/ government. To date, there has been a provision of informatIon, interactive facilities and routing of citizen concerns to the appropriate authorities. In the future, the service seeks to enhance its credibility, introduce opinion polling and provide consultation for public policy formulafion. The broadcasting channel can be found in the President's Webpage which also downloads free software for its use. At present the channel provides following main features: 0) Live broadcasting of the programme 'Mexico en Linea' (a 'phone-in' discussion programme). (2) Broadcasting of the President's Programme. (3) The radio programme transmitted by the President every Saturday is broadcast on this channel at the same time. (4) 24-hour Channel. (5) The remaining transmission time is dedicated to Mexican music and public campaigns supporting the federal government's programmes. Another initiative is direct access to laws, regulations, official documents and government programmes, electronic systems for the procurement of government, a social security system and the use of information technology in the educational sector. The Mexican Government also intends developing further the use of IT systems in order to improve the quality of service provided to citizens, carrying out studies to establish norms and standards for the application of IT in the provision of services to the citizen. The new tax administration system, is one such programme available on the Internet whose objective is to modernize and strengthen tax administration, ensuring that tax collection is carried out in an opportune and effective way. Another project is that of the federal register of transactions
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which is a project developed by SEDOCAM and which incorporates the various transactions that are carried out by departments and various entities within the Public Sector. SEP has also developed a system, Tele-SEP, which consists of a system of transactions and services, public directories and general educational material contained in one database and also accessed by one telephone number or through the Internet. The Ministries of the Federal Public Administration all have an Internet site that describes the services offered to the citizens, the organizational structure, directory of the principal civil servants and the most important activities carried out. A large majority of local governments have a website which is used to consult information related to the different economic activities of the different governments, their industry, tourist attractions as well as state information. The Government of Nuevo Leon State is directly incorporating the concept of e-Governance. It is now offering the electronic payment of motor taxes and it is announcing that in this year the payment of house taxes, commercial taxes, water services, driving licence renewals and general citizens enquiries will be available through the Internet. The Mexican City Government better known as the Federal District provides not only information but also uses the benefits of commercial electronic banking to pay motor taxes and performs opinion polls about governance issues. In terms of consultation processes, a good example is Mexico's Citizen's Consultation and Participation System for Science and Technology. Soon after the presidentia"l elections of July, 2000, 'transition teams' were set up for different public issues. Their main goal was to define and plan the direction that the new government was to take on each topic. The Science and Technology Transition Team considered the use of the Internet for public consultation. The goal was to create an effective way of communication between the Transition Team
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decision-making require a permanent consultation with all the actors involved. The Participation System on the Internet allowed the reception, classification, discussion and publication of the proposals made by the members of the science and technology community. It offered flexible catalogues for the classification of proposals, forums for discussion and a virtual library with statistics related to user's profile. The user could get information about previous proposals for his/her better participation, choose a topic, send a proposal and take part in a discussion forum. Besides, it gave him/her the option of making public his/her participation. Even though at the beginning it was only designed for the scientific community. It was later extended to the whole citizenry. Unfortunately, despite the positive experience, the system was not retained beyond its initial consultation phase. Another significant project was that for Citizen's Consultation for the 2001-2006 National Development Plan. The 2001-2006 National Development Plan (PND) represents the main Federation's planning instrument which contains not only the government's principles but also its objectives and strategies. It is the central document for the whole federal public administration and is legally approved by Congress. In December 2000, at the beginning of the new presidential period, a planning system was organized to promote citizen participation in a nation-wide programme whose purpose was to involve citizens in the drafting of the 2001-2006 National Development Plan. Public servants in government saw in this process a formal mechanism to note citizen's opinions, proposals and expectations about some relevant development issues at different levels: federal, local, municipal, family and even the individual level. Citizen participation was possible via mailed surveys and the Internet. Additionally, the ministries organized citizen meetings in which outstanding academics and opinion leaders participated. Proposals were collected on about 110 national issues classified under the three most important gc . .:rnment areas:
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Human and Social Development. (2) Growth with Quality. (3) Law and Order.
(1)
A total of 117,040 questionnaires were received by the Internet and mailed surveys, and 196,854 proposals were withdrawn from them. The Internet page built for the PND extended the possibilities of participation, speeded the registration of opinions, and permitted the participation of Mexicans living abroad, who submitted over 43,000 proposals. The citizen's participation process represented a significant commitment by society and government. Suggestions were gathered and analyzed and many of them were included within the PND's objectives and strategies. All the proposals were sent to the different public agencies for their analysis and possible inclusion in the PND. Furthermore, all actions taken by society and government to work out the PND will provide important elements for institutional regional or local plans, thus furthering the PND's goals. There has been some concern that the compilation and integration of the proposals received were not clear to the public, because citizens were not able to verify if their proposals were being used, and if so, how. The offices responsible for the reception and management of the proposals within each ministry are not publicly known either. There are also some relevant cases of online consultation at the local level. A pilot project of online consultation is being conducted in Estado de Mexico (State of Mexico, http:! / gem.edomexico.gob. mx/portalgem/sectores.htm). The state government designed a Participation Programme for the Modernization of Fiscal Law for the year 2002, with the purpose of receiving by the Internet comments, suggestions and proposals for a legal reform at state and country levels. Another consultation process is the Consultation Forum for the Creation of a State Attorney for the Protection of the Environment. Inputs will be received by the Internet and through other media. All citizens are invited to participate, as
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well as environmental organizations, universities and society in general. On the private and NGO sector side there are a number of websites that focus attention on Mexican Political, Social, Economic and Government Issues the most common of which are those related to the media. The website of the biggest Mexican Telephone Company, Telmex, shows the main political and government news and presents a daily opinion poll about what they consider the relevant issue of the day. The second largest biggest TV Mexican company, Television Azteca, also has a similar website to the former one.
E-Mexico Project The Mexican Government has adopted an ambitious plan to reduce the digital divide that exists in the country through the development of a national system called e-Mexico, that will allow the greatest possible part of the population to have access to ICTs (http://www.e-mexico.gob.mx). The purpose of this initiative is to enable citizens to communicate among themselves, with their government and with the rest of the world. The e-Mexico national system has as its main target to offer access to a series of contents and applications in the matter of education, health, commerce, tourism, government services and other community services, in order to contribute to quality of life as well as offering more opportunities to companies and promoting faster and more equitable development for all regions and communities, especially the most needy areas. The e-Mexico national system will provide sufficient telecommunications bandwidth to small communities to allow simultaneous Internet access for a minimum number of computer terminals in each community, as well as additional telephone lines so as to provide higher quality telecommunication services at lower prices. In the first phase of this project, 2,400 communities will be covered, to which in a second phase 10,000 points of presence will be added. Although the Federal Government is providing leadership and substantial economic support for the project, e-Mexico is a grid of distribution and information in which ministries, schools,
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libraries, researchers and individuals as well as private operators are participating. It is intended as an integrating project of technological and operator convergence, linking existing public and private networks to generate synergy and advantages to benefit society.
(J) Morocco Background Telecommunications, postal services and information technology are a key sector of the Moroccan economy and are considered of vital importance for the achievement of the government's main growth, job creation and disparity-reduction targets. Major institutional reforms have been carried out in this area. . The Secretariat of State for Postal Services and Information and Communication Technology is the government agency that has been assigned the mission of bringing Morocco into the information age, promoting the development of a competitive and dynamic telecom industry in order to ready Morocco for the challenges of the 21st century, and making postal services more competitive by improving their management methods and bringing them up to the highest international standards. For this purpose, the Secretariat plans to: 0) Ensure access to telecom, postal and IT services for Moroccan businesses in order to improve their competitiveness. The Secretariat considers it critically important that optimal conditions of timing, quality and price be met in satisfying business demand for such services. The range of available services must also be wide enough to meet the expressed demand. (2) Ensure access to modern means of communication and information for the disadvantaged and inhabitants of remote areas. For this purpose, the Secretariat is working with other appropriate government agencies to define objectives with respect to land-use planning and universal telecom and postal service, with a view to guaranteeing sufficient coverage of needs at a reasonable cost to the general public and to operators. It is working
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(3)
(4)
(5)
(6)
(7)
(8)
to put in place the necessary mechanisms to ensure that providers of postal and telecom services can carry out their public service mission effectively and in a manner that is responsive to public needs. Promote modernization and efficiency in the government administration and particularly in public institutions that provide social services in the fields of education and health care, by expanding their access to information technology and developing their capacity to use IT effectively. Improve the overall performance of postal services and increase their financial self-sufficiency by developing all segments of the postal market (new, higher-quality services, long-term improvement of the quality of all services) and enhancing productivity. Gradually liberalize the postal market, streamline regulations and offer the private sector opportunities for greater participation. Grant postal operator BAM sufficient financial and commercial independence to make it a modern, dynamic business operating in an increasingly competitive environment. Promote the development of postal financial services in order to give a larger segment of the population access to financial services (savings, credit and insurance products), particularly in the country's most remote rural areas; to mobilize savings and use them to stimulate private investment and the development of financial markets; and to diversify the postal operator's sources of revenue at a time of growing liberalization of postal services, redefinition of the State monopoly in the area, and transformation of BAM's legal status. Support the emergence of new economic activities in Morocco based on IT development and use.
Use of E-Govemance Institutional Achievements The legislative and institutional framework for postal services,
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telecommunications and information technology has been overhauled. The changes include: (1) Morocco's signing of to the World Trade Organization
(2)
(3)
(4)
(5)
(6)
(7)
(WTO) Agreement on Basic Telecommunications, of which it was one of the main architects. The enactment of Act 24/96 in August 1997, allowing competition in all segments of the telecommunications market and the privatization of the historic carrier. The Act provided for the separation of postal and telecom operations through the creation of a public postal institution (BAM) and an independent telecommunications company (lAM). It also e5tablished a telecommunications regulatory agency (ANRT) reporting to the Prime Minister. The enactment of 15 decrees and executory orders under Act 24/96. With respect to interconnection, an executory decree established general principles for interconnection, a dispute settlement mechanism, required elements of interconnection contracts, and general technical and pricing principles for interconnection services. Other executory decrees regulate leased lines and ini:roduce a list of value-added services that may be provided following a simple declaration to the regulator. The adoption of an 'information technology development plan', which wU.s finalized and made public. The' online government' initiative, aimed at linking all departments and their staff, was announced by the Government Council on October 28 and should be fully operational by the end of 200l. The 'e-commerce initiative' was launched with the drafting of regulatory texts on electronic data exchange and electronic signatures, and approval for three Moroccan companies to provide e-Commerce services on national platforms. A bill on intellectual property, with a specific section on information technology, was introduced in Parliament.
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At the same time, significant progress has already been made toward full liberalization of telecommunications and opening up the industry to the private sector, including: (1) The granting of a second licence for mobile telephone
(2)
(3) (4)
(5) (6)
services using GSM technology tp a consortium led by Telefonica of Spain and Portugal Telecom, in August 1999. The granting of two licences to operate GMPCS networks for the provision of digital paging and localization services, as well as telephony, fax and data transmission, in the first half of 2000. The granting of three licences for VSA T telecommunications networks, in March 2000. The approval of more than 1,800 Internet service providers (ISPs) and Internet cafes, many of which are subsidiaries of EU-based operators. The decision by the Moroccan Government in January 2000 to fully liberalize the telecom industry. With respect to postal services, authorization for four private firms to offer attractive products that meet market demand for fast, reliable international delivery of documents and parcels.
Infrastructure Achievements Considerable effort has already been made toward achieving the objectives listed above. With respect to telecommunications, the number of telephone lines increased from 260,000 at the end of 1987 to 1.5 million in 1999. The average waiting time for installation of a line has been cut from 80 months to 1.4 months (including rural areas). The transmission network's capacity has increased from almost 4,000 to 466,000 circuits, using primarily fibre-optic technology. The use of SDH fibre-optic technology and the near-total digitization of transmission and switching systl!ms have substantially improved network reliability and now support an expanded range of services including videotex, ISDN, Internet and high-speed links. The number of automated rural communes has increased from 65 to 1,058, or 82 per cent of the 1,297 rural communes. The number of payphones
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increased from 484 at the end of 1987 to 36,000 at the end of 1999,83 per cent of which are managed by private operators. As of January 2001, there were over 2.7 million subscribers to NMT-450 and GSM-900 cellular systems, which cover the main roads and the administrative centres of all the prefectures and provinces of the Kingdom. The near-total digitization of transmission and switching systems, and the development of new networks, have noticeably improved service quality and reliability. The Internet, introduced in November 1995, is spreading slowly but surely. There are now 'over 1,800 ISPs and Internet cafes, with over 200,000 subscribers to Internet service and steady growth in the Internet cafe market. There has been explosive growth in computers since 1991 as a result of lower prices and lower import duties, which were cut from 42.5 per cent to 17.5 per cent on January I, 1996. Moroccans own an estimated 200,000 personal computers, for a penetration rate of 0.7 per cent. Annual sales vary between 40,000 and 50,000 units. The number of computer firms is estimated at over 800; they employ an estimated total of 4,000 people and have annual sales of about 3 billion dirhams (DH). Initiatives to improve the management of postal services are also in progress. The creation of Barid Al-Maghrib (BAM) in 1998 established a platform for sustainable improvement in order to enhance the effectiveness of postal services. BAM has produced a corporate strategy and investment plan for the 19992003 period. A study is being conducted to recommend appropriate business structures and systems to support efficient implementation of the strategic options. New products have appeared and new partnerships have been established to offer more and higher-quality financial services. The expanded network of points of sale, consisting of 2,400 retail locations, offers partners (banks and insurance companies) an attractive opportunity to reach new regions and new customers who are not being served at present. Management of postal cheques and of the national savings bank has been computerized, delivering steady improvements
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in service: New IT -based fund transfer services have been introduced, including electronic money orders and access to the Eurogiro network for foreign transfers. New domestic express mail services have been launched (Poste rapide nation ale, Rapid'j and Rapid'H). Pilot cyber-mail sites have been installed at post offices and universities. For the second year in a row, BAM reported healthy earnings (approximately 92.7 million DH in 1999, compared with 55 million DH in 1998).
Development of Telecom Infrastructure Since telecommunications is a key sector and an engine of economic growth in Morocco, the objective is to increase competitiveness and promote the development of a competitive, dynamic telecom industry that can bring Morocco into the information age. Therefore, the Secretariat of State intends, among other things, to: (1) Promote the development of the telecommunications
c:n (3) (4) (5)
(6) (7)
infrastructure required for new multimedia applications. Extend access to telecom services to all segments of the population and to all parts of the country. Expand the telecom market. Promote competition in all segments of the telecom market. Revise the regulatory framework for telecommunications services to allow the use of alternative infrastructures and strengthen the competitive environment, so as to spur development of the telecommunications market. Ensure availability of and access to business services that can increase business competitiveness. Strengthen Morocco's role as a regional telecommunications platform.
To this end, the following actions will be taken.
Extension of Fixed Public Telecommunications Network Despite the broad geographic reach of the fixed public telecommunications network and coverage of all the rural
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commune seats and many other centres, sustained effort is still required in order to increase teledensity, particularly in rural areas and the urban periphery. (1) The government's target in this area is a telephone
density of at least 10 per cent by 2005 and 15 per cent by 2012. (2) Public telephones are to increase from 1.14 per 1,000 people at present to 2 by 2005 and 4 by 2012. (3) The service quality target, as measured by the malfunction reporting rate per subscriber per year, is 20 per cent by 2005 and 10 per cent by 2012.
Extension of Cellular Network Mobile telephony is the segment of the telecommunications market that is posting the strongest growth rates and generating the most value-added. To meet the growing demand for cellular services, efforts will be made to increase network density, diversify services and improve service quality. The network density target calls for coverage of all the main rqads linking the provinces and the prefectures. . The service quality effort will focus on improving coverage in the urban periphery and inside buildings in urban centres. The diversification objective is to expand the line of services to include data transmission, Internet access and messaging. Because of the spectacular growth of mobile telecommunications and demand for broadband multimedia services,....the establishment of third-generation (lMT-2000) cellular systems must be accelerated. The government's objective in this area is to make frequencies available for such systems and to put in place a system for granting licences and defining licence content.
Development of National High-speed Telecommunications Infrastructure In order to create a telecommunications infrastructure capable of carrying the flow of traffic for services that require high transmission speeds, such as high-speed Internet,
E-Governance Practices: A Global Perspective videoconferencing, radio and television broadcasting, and applications such as medical imaging, the government has set the following medium- and long-term objectives: (1) Continue rolling out high-speed transmission and
switching networks. (2) Step up the migration of public fixed telecommunications networks to IP-based systems. (3) Link all PBXs to a backbone. (4) Extend high-speed access 'to the doorstep' of all administrative and business customers in the medium term an4 of all residences in the longer term. (5) Establi¥t alternative infrastructures. (6) Condu~t a feasibility study for a national multiservice satellite system.
Intemet Since the Internet is increasingly becoming the standard for the exchange of all types of economic, commercial and cultural information, the government plans to promote wider Internet use. In addition to extending the telecommunications infrastructure, certain measures need to be taken specifically to support Internet development: (1) Improve terms of access to and interconnection with
public telecommunications systems for ISPs. (2) Extend the MARWAN academic network, a high-speed information system designed to promote research and training. (3) Develop national content on the Internet. (4) Computerize the schools and introduce IT into education at all levels. (5) Increase the number of graduates in the field and retrain unemployed graduates in IT. (6) Implement the 'online government' programme. (7) Set up public telecentres with Internet access. (8) Use IT as a land-use planning tool by launching digital city projects and developing local portals and a unifying national portal.
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(9) Develop national e-Commerce platforms.
Expansion of Rural Service Developing telecommunications infrastructures in rural areas will help stabilize the population, provide access to basic services, improve agricultural production and promote the emergence of non-agricultural activities. The objective here is to achieve teledensity of at least 3.5 per cent by 2005 and 7 per cent by 2012, and to install at least one payphone in every community with a population of more than 250 by 2005 and in every community with a population of more than 100 by 2012.
Linkage to Global Systems Linking Morocco to global cable and satellite systems will provide the country with a complementary, secure and diversified infrastructure for services (voice, data and image) and global connectivity, and will strengthen its role as a leading regional platform for telecommunications. To do this, the government intends to implement a policy to facilitate linkage to global systems for Moroccan operators.
Universal Service and Wide Access to Basic Telecommunications To promote the welfare of vulnerable populations and reduce regional disparities, the government plans to carry out the following initiatives in the medium and long term: Set price caps for universal service. (2) Introduce measures that address the following objectives:
(1)
(i)
Hi)
Expand local calling areas in order to gradually reduce disparities in access to the fixed public network between residents of large urban centres and subscribers to small- and medium-capacity systems; Reduce the rate gap between local calls and domestic long-distance calls;
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E-Govemance Practices: A Global Perspective (iii) Introduce special rates for people with disabilities, the elderly and low-income people to provide the following benefits: (a) lower subscription rates; (b) connection charge payable in instalments; (c) adapted communications interfaces for people with disabilities (e.g., voice dialling, TTY). (3) Expand and adapt universal service to keep pace with technological change and user requirements.
Strengthening the Role of the Private Sector Having taken the first major steps of opening up telecommunications services to the private sector and to competition, the priority now is to allow private investment in Itissalat al Maghrib (lAM), the main public telecommunications operator. The government believes this is necessary to enable lAM to position itself effectively in the fast-changing domestic and international telecom markets. An international call for tenders was published in October 2000 in order to select a strategic partner; as a result, Vivendi has acquired a 35 per cent interest in lAM. The transaction will be followed by a public offering of a portion of lAM's stock on international and domestic equity markets. The public offering should help integrate lAM into the world telecommunications market, develop the domestic capital market and strengthen our presence on foreign markets. To support this process, the government took several measures prior to the call for tenders to choose a strategic investor: (1) Publication of the revised interconnection agreement,
which lAM offers to all new entrants and competitors to ensure consistency with international best practices and with pricing systems in other competitive markets. (2) Definition of the principles of the universal service and land-use planning system, particularly how it will apply to lAM in the long term and during the transition period
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which will follow the current situation, in which lAM is the only :)rovider of these services.
Accelerating the Liberalization Process The government is of the view that increased competition will yield faster growth in the telecommunications industry as a whole and improved performance. It has therefore decided to speed up the process of liberalization in telecommunications services so that the industry will be completely open in 2002, under rules that are transparent and fair to both new and existing operators. The following specific measures are planned in order to further liberalize the telecommunications sector: (1)
(2) (3) (4)
(5) (6)
(7)
Expand the range of services that can be offered by simple declaration. Process all additional GMPCS licence applications. Grant telecommunications licences for trunked radio systems. Issue a telecommunications licence for the marketing of non-voice systems nationwide and another for non-voice long-distance services; voice services will follow. Issue two licences for international telecommunications covering all the services. As stipulated by its licence, the second GSM operator will be authorized to build its own domestic infrastructure immediately and to provide international service using its own facilities. More generally, the government intends to grant other licences in order to guarantee users a choice between differelilt operators in all market segments, with a view to total liberalization of the tclecom market.
Improving the Regulatory Framework for Liberalization While the quality and credibility of the regulatory framework for telecommunications were clearly demonstrated by the successful issuance of the second GSM licence, the Secretariat of State believes the following improvements are necessary:
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Amend Act 24/96 in order to (i) allow the national telecommunications regulatory agency (ANRT) to set graduated penalties for violations of the Act, regulations and licences; (ii) replace the ANRT's a priori controls with a posteriori controls; (iii) finalize the separation of the National Postal and Telecommunications Institute (INPT) from the ANRT. (2) Ensure consistency between the Competition Act and Act 24/96, and take the necessary steps to permit a smooth transition from specific telecommunications regulations to general competition regulations as the telecom market becomes truly competitive. (3) Ensure that the ANRTconducts public consultations and publishes its decisions, including rationale, so as to increase regulatory transparency.
(1)
Postal Services For postal services, the Secretariat of State's objective is to offer citizens in all parts of Morocco high-quality service at the lowest price. It is planning major reforms in the sector in order to increase BAM's competitiveness and efficiency, gradually liberalize the sector, and enable postal financial services to more effectively mobilize small savings.
Information Technology Information technology is vital in modern society and must therefore be considered a strategic sector thelL makes a significant contribution to economic and social development. The Secretariat of State's priority is to promote IT applications in 0) education and training; (2) government administration, through implementation of the "online government" initiative; (3) the upgrading of businesses; (4) culture; (5) closing the digital divide; (6) supporting decentralization and land-use planning.
Adoption of Legal ~nd Regulatory Framework Building an information society, the main goal of any telecom development policy, requires an appropriate legal and regulatory environment which creates confidence and provides
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a framework for the use of information technology, and which is capable of adapting to fast-paced technolog;cal change. The Secretariat of State's action programme in this area consists in improving and adapting legal and regulatory texts related to: '(1) The protection of privacy, by instituting disclosure and
(2) (3) (4) (5)
authorization procedures for the creation and use of personal files, and an entitlement for citizens to access their files and make corrections. The confidentiality and security of electronic communications and transactions. The evidentiary weight of electronically transmitted data and electronic signatures. Consumer protection. Adaptation of the tax system and customs code to eCommerce.
Data Standardization The development of advanced information exchange systems and the networking of databases and information systems necessitates the standardization of data and protocols, in accordance with international standards. The availability of technical standards and standardized data would enable businesses and administrations to improve their organization, their information systems and their databases, and facilitate the introduction of electronic data exchange mechanisms. Before embarking on the standardization process, the government is conducting a study in order to establish a standardization body, which will conduct the standardization process (establish standards), coordinate the standardization of information by administrations and professional organizations, develop standardized databases containing public or sectoral information, and define the encoding and the formats for the exchange of electronic data.
Online Govemment The government will use IT as an instrument to modernize Morocco's administration. The objective is to promote
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information access and exchange between the administration, citizens and businesses through online processes. Efforts in this area will be directed toward: (1)
(2) (3) (4) (5) (6)
Integrating common services and applications. Realizing economies of scale. Introducing standard data exchange procedures. Ensuring data security. Bringing the administration closer to citizens. Outsourcing some operations.
Upgrading Businesses and E-Commerce The spread of information technology in business, particularly SMEs, is an important issue for Morocco's economy. The development of networks, mobile communications and multimedia, and the use of these technologies by business, is not just a matter of productivity enhancement but also an opportunity for businesses to conquer new markets otto make themselves stand out from the competition by developing new services related to their products, which will help generate growth and jobs. Since e-Commerce helps spur the introduction of IT by businesses, the Secretariat of State is working to facilitate access to and use of e-Commerce by means of appropriate incentives, including tax incentives. At the same time, the agency is preparing a legal and regulatory framework designed to build confidence and create conditions conducive to the promotion of e-Commerce. The agency is particularly interested in promoting, in partnership with the chambers of commerce and crafts, the development of virtual trade shows that offer services and products in areas such as tourism, handicrafts and agriculture.
Decentralization and Land-use Planning IT is unquestionably a useful instrument for integrating and developing land-use policy, deconcentration and decentralization. (2) The main objective in this area is to ensure better distribution of communication and information
(1)
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infrastructures and equitable access to those infrastructures in terms of technical conditions and pricing. For this purpose, the Secretariat of State will implement a strategy organized around the following priorities: (1) Creation of community telecentres providing all
segments of the population with access to communication and information services, including the Internet, on the most economical terms, and reducing the isolation of rural areas. The government's objective is to open a community telecentre in each commune. (2) Creation of a conducive environment for the development of distance services such as distance education, telemedicine and remote information services. The Secretariat of State plans to promote their use, in partnership with local communities, by creating 'city portals' in order to: (1) publicize local economic, cultural and tourism potential; (2) facilitate information access and exchange at the local and inter-regional levels; (3) promote the development of distance services; and (4) develop virtual commercial showcases for local products.
Presentation of the Cultural Heritage The movement toward an information society provides an opportunity to strengthen Morocco's cultural identity through digitization of the cultural heritage and its dissemination, whkh can be increased exponentially through the use of IT. The heritage digitization policy will pursue the following objectives: (1) create electronic archiving systems at the administrations; (2) promote public access through (3) digitization of heritage collections and the general library and archives; and (4) creation of multimedia cultural spaces.
Education and Training The far-reaching impact of IT in the fields of education and training calls for a strategy and action programme in order to:
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E-Governance Practices: A Global Perspective (1) popularize IT tools in educational institutions; (2) introduce basic computer training in primary and secondary schools; (3) generalize computer training and Internet use in all institutions of higher learning; and (4) increase the number of connections supported by the MARWAN network in order eventually to link up the entire education and training system.
This programme must be accompanied by measures to increase the student capacity of training institutions in disciplines related to information and communication technology. In addition, another programme aimed at retraining unemployed graduates in IT trades and educating government officials and employees in multimedia tools and the Internet has been launched.
(K) New Zealand Background The Government of New Zealand published its vision for eGovernance in May, 2000. This recognizes that the key forces of change-including globalization, the rise of knowledge economies and new technology-are transforming the relationship between government, business and society. Public attitudes and expectations of government in more mature societies are changing quickly and the government acknowledges that it must change the way it relates to the public it serves. Indeed, the creation of e-Governance is perceived as a key to New Zealand's future social well-being through its focus on better understanding and meeting individual New Zealander's needs and creating opportunities for greater public participation in government and democratic processes. In addition, at a third of that country's Gross Domestic Product, government activity constitutes a large part of the economy. In this context, value for money looms as a very significant objective. A number of examples of e-Governance are already in evidence in New Zealand. They range from the New Zealand Government Online website (http://www.govt.nz). to being able to register a new
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company on the Internet (http://www.companies.govt.nz.) or to getting comprehensive statistical information about New Zealand from Statistics New Zealand's website. The task for the government is to build on these individual initiatives and develop them into a comprehensive plan for achieving the benefits of e-Governance more widely on behalf· of all New Zealanders. The planned development of eGovernance aims to .improve the ability of all people to participate in the democratic process. But, left to develop by itself, e-Governance has the potential to create new divisions in society between those who have the skills and tools to use the new technologies and those who do not. E-Governance is expected to improve government in four important ways: (1) It
will be easier for people to have their say in government. For example, the introduction of new administrative measures will be subjected to public feedback through electronic means. (2) People will get better services from government organizations. For example, public transactions can be done round the clock and from geographically remote locations. This will be of particular benefit to those thousands of New Zealanders who do not live in the main centres of population. This will improve flexibility, speed and access to government services, and will lower the cost of government. (3) People will receive more integrated services because different government organizations will be able to communicate more effectively with each other. For example, reporting an incident or change in domestic circumstances would be shared between different institutions, and a person need only go through that process once instead of several times. (4) People will be better informed because they can get upto-date and comprehensive information about government laws, regulations, policies and services, and would go about their leisure or business in a more informed and compliant manner.
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The State Services Commission (SSC) has been taskeq with the coordination and delivery of e-Governance. Within the next five or so years, New Zealanders should be able to do the following: 0) Electronically register information with the government-for example, births, deaths and marriages-at a time and place that suits them. (2) Conduct their financial dealings with government organizations electronically. (3) Complete and send all government forms from one place on the Government's Internet site. (4) Have their say on a wide range of government proposals and policies through the Internet. (5) Benefit from high quality health care from a public health service that provides integrated and personalized services from GP to specialist to hospital to pharmacist based on individual patient record management made possible through comprehensive and highly secure information sharing and analysis. (6) Have confidence that effective controls backed up by good legislation will safeguard privacy. (7) Benefit- from the reduced costs and time involved in property transactions because land survey and title information is available electronically and transactions can be registered the same way. (8) Notify changes of address, so that one entry on 'the Internet can ensure multiple Government agencies are notified automatically. The e-Governance vision is seen as supporting two important goals. T!'tey are: 0) Restoring trust in government and providing strong social services. (2) The e-Governance vision will play an important role in achieving this goal. It will (i)
increase collaboration between government organizations;
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(in strengthen the relationship between people and the state through greater opportunities for participation; and (iii) provide the state sector with an opportunity to improve' the effectiveness and efficiency of their services to the public while, at the same time, reducing the cost of delivery. Those three factors will help restore trust in government and provide strong social services. (3) Helping grow an inclusive, innovative economy for the benefit of all. New Zealand's ,e-Governance vision emphasis inclusionthe ability of all people to take part in the economy. It is also seen to complement well similar developments in business and commerce. Together, e-Governance, e-Business and e-Commerce will play an import';lnt role in the development of an economy based on the combined impact of the knowledge and skills of all New Zealanders.
E-Govemance Programme The e-Governarlce programme and the e-Governance Unit within the State Services Commission were formally established for four years on the 1st July, 2000. The role of the e-Governance Unit, as agreed ?y Cabinet, embraces: (1)
(2) (3)
(4) (5)
Strategy:, Develop and manage the delivery pf an overar'hing e-Governance strategy, as well as supporting policies, standards and guidelines. Leadership: Facilitate uptake by government agencies of the.e"Governance vision, Coordination/Collaboration: Identify opportunities for collaboration across government agencies; leverage existing il"lformation management and technology investment, and provide coordination. Policy: Provide e-Governance policy advice to the Minister of State Services. Monitoring: Monitor progress toward achievip.g the e-Governance vision.
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The E-Governance Unit has a central role in defining and achieving the government's objectives for c-Govcrnance. The delivery of e-Governancc is the responsibility of all government agencies in partnership with the Unit. Public Service departments and some other government organizations have nominated e-Governance agency leaders who meet monthly. The role of the agency leader is to drive the implementation of e-Govcrnance in their organization. Responsibilities include acting as a conduit for two way communication between their organization and the EGovernance Unit, ensuring mandatory requirements from the programme are included into their organization's work plan and working within their organization to ensure that the approach to online service delivery is consistent with the policies and standards developed in the e-Governance programme. Two CIO (Chief Information Officer) networks support the managers who are accountable for the design and delivery of the technical and information management dimensions of e-Governance. The CIO networks (one for policy departments and one for operational departments) typically focus on the implementation of the interoperability framework, technical standards and guidelines, and leveraging of go\ternment IT infrastructure. An e-procurement network concentrates on' establishing a common approach for government to procurement, including syndicated procurement and e-procurement. The E-Governance programme consists of a number of projects. These range from policy development and implementation, development of standards and guidelines to delivery of solutions and applications. These are outlined below:
Authentication The authentication project is looking at ways of ensuring that government services delivered over the Internet are going to the right person. This will be achieved by electronically verifying that people are who they say they are, and that privacy is protected at all times.
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Awareness of e-Govemance Activity This project is aimed at keeping central and local government people up to date with what is happening on electronic government projects. It one of several activities to ensure government agencies are ready for e-Governance.
Electronic Billing and Payments A strategy for a whole of government approach to electronic billing and payment systems is under development. This would enable government agencies to carry out financial transactions securely over the Internet, either between each other or with people and business. Geo.~patial Information
Addresses, road and place names make up what is called geospatial information. This information can be shared over the Internet. Geospatial information is vital for a wide range of government functions. For example, it is necessary for running an election-registering people against the correct electoral district and Territorial Authority, or helping to achieve emergency services' responses, the management of civil defence emergencies, or underpinning land use decisions. The government is now looking to make sure that address, road and place name information used nationally is fit for these purposes, consistent, up to date, and readily accessible. When the New Zealand government portal website is launched in July 2002, geospatial information will be present behind the scenes allOWing you to search for informatiori relating to a specific geographical area, for example school zones or police stations.
Govemment Information Discovery (GUIDE) The government portal will be useful only if the information and services made accessible are described consistently. The GUIDE project is taking care of the way in which government information and services-online and offline-are described now and how those descriptions should be managed over time. These descriptions are called meiadata. The reason government is not just describing online government information and
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services, is that it is useful for people to know where they need to go or who they need to call to carry out other government related tasks.
Government Portal This portal is a single website giving structured access to other web sites, in this case, the websites of New Zealand government agencies. It is a convenient way of finding out about government information and services from one place, without having to understand how government is structured and therefor~ which sites you need to use. Portals are usually grouped by industry or sector type, for example, health, education, building industry. They are sometimes organized by types of services, for example registration and licensing, or purchasing. The New Zealand government portal will be a website providing search capability for, and links into the online and offline information and services of most government agencies.
Government Services Online The vision for e-Governance in New Zealand is that citizens will be able to find public information and services within government departments quickly and easiIy over the Internet. - Between August and November 2001 the Government Services Online project will identify the most useful services. These services were made available through the portal website from June 2002.
Government Web Guidelines The primary goal of this e-Governance project is to ensure government websites are accessible to the people using them. People cannot be excluded from government services and information provided over the Internet because of disability or . lack of reliable access to high-speed technology. The guidelines will detail how government websites should be built so that everyone can use them.
Internet SkilIs of Public Servants This project will encourage the adoption by government of
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training schemes to ensure public servants use the Internet in an efficient and productive way. It is one several activities to ensure that government agencies are ready for e-Governance.
InteroperabiJity Framework The business systems and processes supported by information technology (IT) that exist within each government agency will need to agree some common practices of making information available. Each government agency runs its own business and technology systems. The Interoperability Framework project will introduce an agreed, standardized system of decision-making processes about investment, development and management of IT resources. These standard processes will be used where age,ncies work together to provide information and services to the public.
Leveraging Infrastructure 'Leveraging infrastructure', means using more effectively the government's existing technical capabilities throughout its central, regional and local agencies. Infrastructure includes staff, business processes, computer hardware and software. The project has now analyzed the current infrastructure and has proposed a first draft of a technical architecture. The work will be taken forward by the Interoperability Framework project.
National Infonnation Infrastructure Protection (NIIP) NIIP seeks to improve the protection of New Zealand's critical infrastructure from cyber attacks. New Zealand people and business depend on the continuing supply of various services such as power, telecommunications and health care. Critical infrastructure includes the wires, machines, and software needed to make this happen, such as power lines and telephone exchanges. NIIP seeks to bolster the protection of this critical infrastructure from cyber-threats such as computer misuse and hacking.
Procurement The government is looking at ways to smarten up how it buys
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goods and some services. It is doing this various ways, including syndicated procurement is where government agencies can collectively purchase goods and services such as electricity, fuel, motor vehicles and travel. This will result in savings from lower prices, improved terms and conditions and reduced costs of tendering. Syndicated procurement builds on the strategic sourcing approach being taken by leading government agencies. Strategic sourcing enables an agency to define and consolidate their requirements for all goods and services, understand the supply market, and negotiate with suppliers.
Secure Electronic Environment The Secure Electronic Environment Project is developing solutions so public servants can securely work together over the Internet.
Shared Policy Workspace Often more than one government agency contributes to the development of a single policy. By implementing a shared policy workspace people from different government agencies in different locations will be able to use the Internet to work on policy documents to develop policy that cuts across several areas. (1) Republic of Korea
Background The Korean Government has a long history of IT -based administration. It set up the 1st Office Automation Project which computerized several statistics (1978-1982), and the 2nd Office Automation Project which computerized civil service personnel, payments, pensions, etc. (1983-1986). Subsequently, the 1st Public Business Networking Project developed six networks such as the People's Identification Data Network, the Land Registry Data Network, the Vehicle Registry Data Network, the Employment Network, the CustomsClearance Management Network (1987-1991). This was followed by the 2nd Public Business Networking Project which developed many networks (1992-1996)-the Post Office Network, the Welfare Network, the Fishing Boat Management Network, the
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Customs Clearance Electronic Document Exchange Network, the Industry Property Right Management Network, the Meteorological Information Network, the Office Supplies Catalogue Management Network, the Economy and Trade Network, the Agriculture Technique Management Network, the Environmental Protection Network, the Inland Revenue Network. Networks were established separately without regarding interoperability.
E-Governance Vision and Strategy In 1998, the Ministry of Government Administration and Home Affairs published its Vision and Strategy for e-Governance: Toward 21st century electronic government. The report aimed to promote a knowledge-based government which delivers high quality service and does best work through IT-based innovation. The strategy aims to: (1) Deliver one-stop service to every citizen any time,
anywhere. (2) At least match the private sector performance. (3) Be transparent and customer-friendly. For these purposes, the government set up six initiatives: (1) To deliver information and service electronically. (2) To re-engineer business process and exchange electronic documents. (3) To share information resources and protect privacy. (4) To establish information technology standards and connect all PCs to the network. (5) To promote civil servants' IT literacy. (6) To modify laws and rules for .electronic business.
The Vision and Strategy for e-Governance consists of three development stages. The first stage (1998-1999) was a preparatory period for an electronic governance: (1) Connecting government departments and administra-
tions with the administrative intranet.
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The second stage (2000-2001) is the construction period for integrated information: (1) Connecting central and local governments with a
network. (2) Exchanging electronic documents among the central and local governments. (3) Giving public servants e-mail addresses and Internet access. The third stage (2002) is the operationalization period for electronic govern men t: (1) Exchanging electronic documents between the public
sector and the private sector. (2) Constructing open and transparent government. (3) Supporting policy, etc. In 1999, the Action Plan for e-Governance, incorporating the following actions, was published: For one-stop and non-stop service the government will develop: (1) a Comprehensive Information System that connects 21
data networks, (2) the Electronic Ombudsman System, (3) the Family Record Online System, and (4) a Web-based Service Delivery Systems. For diversifying electronic service delivery routes: (1) an Integrated Call Centre, and
(2) an Integrated Kiosk System. For open government: (1) the Government Information Locator Service,
(2) the Open Government Service, (3) the Local Administration Information Bank, and (4) Web Bulletin Board Service of Local Governments.
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For promoting government productivity: (1)
(2) (3) (4) (5) (6) (7)
business process reengine~ring, electronic document exchange between public entities, electronic document management, government knowledge management, personal resource information management, electronic organization management, and personnel and payment integration.
For interoperability: data storing and sharing, (2) defence against hackers and viruses, and (3) backup systems.
(1)
For infrastructure the government will develop: (1)
(2) (3) (4) (5)
the government intranet, data code standardization, information technology and resource standardization, public key infrastructure, and key management infrastructure.
For civil servants' information literacy: electronic mail addresses for all office workers, (2) training opportunities for all officials, (3) testing opportunities, and (4) the Cyber Training Centre.
(1)
For institutional solutions the government aims to: to amend laws and rules, (2) enhance the Chief Information Officer functions, and (3) enhance cross-departmental information resource management. (1)
Implementation of E-Governance
Networking Public Entities The Government Superhighway Network (GSN) connects three government complexes within a 160 km. radius and almost all
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departments and administrations are fully connected with the GSN. All of the 16 provincial government networks are also connected and all of the 232 municipal government networks have been recently connected. However, some small and remote governmental branches require a satellite solution.
Empowering Public Servants Korean public servants number approximately 800,000 (including provincial and municipal personnel but excluding military personnel). Office workers comprise 73,000. Personal computers are used by about 86 per cent of the office workers. All of the PCs are connected with LAN. E-mail addresses are used by about 91 per cent of the office workers. However, Korean public documents are not exchanged via email, but via groupware called electronic document systems. The electronic document systems are distributed to all departments and administrations, all provinces and most of the 232 municipalities. Government is also planning to train all public servants to deal with IT.
Electronic Document Exchange Korean departments and administrations have exchanged electronic documents for several years. However, exchanges are limited within a department or an administration because electronic document systems are different from one another. There are 20 different electronic document systems in Korea's administration. Therefore standards for electronic document systems were announced last year and a number of suppliers upgraded their systems. Cross-departmental document exchange had been undertaken among seven ministries. Now electronic documents are exchanged among the General Service Divisions of departments and administrations. Within a short span all divisions of the government will participate in the pangovernmental document exchange.
Data Sharing for Street-level Service The Korean Government made a start on integrated street-level
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services. There are 21 types of data such as personal ID, vehicle registration, water and sewage, disaster management,. regional development, fishing management, forest management, road planning, etc. The databases are managed both by central government and by local governments, and ten of the 21 databases are linked to the Comprehensive Information System (Cn in four municipalities. (The municipalities usually deliver street-level services.) The CI system is established in all of the 232 local governments in Korea. The remaining databases will be linked to the CI system. One of the beneficial results of data linking is exemplified by the Productive Welfare Data Sharing, which will support means-testing welfare subsidies. When the CI system is fully established, it will reduce the documents for applying for a welfare service from 60 to 13, and the workdays for dealing with it from 21 to 3.
Information Service Central departments and administrations have their Internet home pages. So do all the provincial governments and practically all the 232 municipal governments. Prominent cases are the Open Procedure Service, the Home Minwon Service, the Local Administration Information Bank Service (LAIB), the open Plaza Service and so on. The Open Procedure Service was started in the Seoul Metropolitan Government, which shows the detailed process of office: who files the application, when the application arrives, when the application is Signed, where the application stops, why the application is rejected, etc. The service makes the office process so transparent that people are able to forget their doubts and just see publi<; servants at work. The system has been distributed to about 200 provincial and municipal governments so far, as well as to all government entities and local authorities by this year. The Home Minwon Service delivers 3,300 application forms and provides information on 4,400 kinds of application through a single website. LATB is an information bank of provincial and municipal goverJilments. The governments present their
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information in the given formats. The information consists of about 400 items such as the organization, the boundary, the information resources, etc. and the number of items will be enlarged by this year. The Open Plaza Service is providing very high input to the democratic process. All citizens can post their opinions on the Open Plaza and all citizens can read them. People criticize the government and public servants through the Open Plaza, which is accessible by the President, governors and supervisors. These activities influence government policymaking. Some candidates for the Members of the National Assembly lost their membership of the Assembly after the April 2000 gen
(1)
Moreover, information such as cultural treasures, museums and art galleries via the Internet is being established, and an integrated tourist information system will operate by connecting local authorities and travel agencies.
Electronic Service Delivery Electronic service is delivered through PC communications, the Internet, telephones and kiosks. The kiosks are located in about 100 municipalities and serve people with a number of rertificates. PC communication service is used for 20 certifications, but these services will not be fully developed because of the Internet
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service. The number of Internet users in Korea stands at over 14 million increasing at the rate of 900,000 per month, mainly among young people in their teens and twenties. 72 per cent of regular Internet users go online two or three times a week. About 70 per cent of the total Internet population are using e- mail. Of those who did conduct online commerce, 50.8 per cent used credit cards, 45.6 per cent bank online payment and only 2.3 per cent made use of some form of cyber money. Public-key cryptography is fast becoming the foundation for e-Commerce and other applications that require security and authentication in an open network such as the Internet and intranet. The new method makes it possible to use PKI technology for a faster broader, flexible range of network-based businesses as well as processing both encryption and decryption. Notable public services already delivered online include: The National Tax Administration has developed an electronic filing system for tax returns. The NTA is establishing the E-filing Centre, and receiving applications for e-filing from tax agents. On the other hand, many municipal governments have developed and use an electronic local tax system through which residents pay their local taxes. (2) An EDI system for processing applications for medical insurance and their appraisal is being expanded all over the country. Hospitals and public health care centres will be connected so that they can share medical information concerning blood, organ transplants and contagious diseases. An integrated service centre for the four major social insurance services has been established to streamline the process of billing and charging and to enhance the quality of service. (3) The Korean Industrial Property Office (KIPO) has developed and started an Immediate Notification System as of July 3,2000. With the help of the system, applicants can be notified of any phYSical errors or obvious reasons for refusal of their patent application as soon as they file their electronic application or registration documents with KIPO. (1)
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The private sector also participates in the public service. A job information site called Humanpia (www.humanpia.com) is a leading local job information system which has merged with local recruitment information. These electronic service deliveries are fragmented and imperfect. Therefore the Korean government has set up a new project-'IT-based Reform for Government Systems'. The system aims to deliver to people electronic services through a single window and people will be able to make all the requests online concerning their life events.
Bridging the DigitaJ Divide The South Korean Government has launched an initiative to bridge the digital divide. Computer education is now mandatory at all primary schools and the government will expand IT training opportunities to all levels of society, including young children and soldiers. The Ministry of Education (MOE) presented a programme aimed at boosting English language proficiency by reinforcing English as the medium of instruction at primary and middle schools. English proficiency is seen as a basic requirement towards achieving IT literacy. The education of soldiers was also addressed. The Ministry of Defence (MOD) requires, all of the approximately 270,000 soldiers to sit for web search specialist certification exams annually before being discharged from the service. The major goal of the Ministry of Information and Communication is to expand opportunities to those who are apt to be left out of the information age. The high speed Internet network has been expanded to about 200 towns this year. Free public access to personal computers (PCs) will be more readily available. Public libraries and social welfare centres should be equipped with PCs connected to the net in addition to those available at most post offices. A programme that gives free PCs and five years of free Internet access service to about 50,000 children in the lower income group is also being studied. About 10 million workers need to be formally trained in IT.
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Overhauling the Relevant Laws and Regulations The information society brings with it a fundamental change to the framework and the way of living that have been accepted in an industrial society. Thus, -the current rules and regulations need to be revised to meet the needs of the new society. An annual survey has been conducted since 1995 to assess which rules and regulations should be revised to create a better environment for the information society. The enactment and revision of 63 legal statutes was completed on the basis of the annual reports from 1995 to 1997. The Electronic Commerce Act (1999) and the Digital Signature Act (1999) were enacted in order to facilitate the widespread use of IT by the private sector and we will present measures to enhance the protection of privacy. Overhauling the relevant legal statutes will be continued on electronic procurement, the management of information resources, telemedicine and geographical information systems, amongst others.
(M) South Africa Background The Government of South Africa has embarked on a number of ri;easures to ensure that information and communication technologies (leTs) playa vital role in society. On the 9th February 2001, President Thabo Mbeki outlined, in his address to Parliament, the principal programme areas for the year 2001. The President reflected on a wide range of socio-economic and political issues that need to be addressed in order to accelerate and consolidate national growth, development and democracy. The President indicated that the government has started the process of introducing managed liberalization of the telecommunications industry. The policy process will ensure greater regulatory certainty in the telecommunications industry by creating an enabling environment for local and foreign direct investments. It is envisaged that this process will improve the competitiveness and efficiency of the sector, thereby enabling it to contribute to national growth, employment and redistribution of national wealth.
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E-Govemance Vision and Strategy The President announced the establishment of the Presidential International Task Force on Information Society and Development to assist government in narrowing the digital divide with the rest of the world. This is to be followed by the appointment of members of the Presidential National Commission on Information Society and Development, which will deal with skills development issues in the ICT sector. The role of broadcasting has also been accorded a high priority with the appointment of the CEO and other senior managers at the South Africa Broadcasting Corporation. Consistent with government's commitment to promoting access to information as enshrined in the Constitution, the roll-out of community radio stations is to continue with a specific focus on under-served areas. The development and funding of community programming is to be carried out in collaboration with civil society and international development organizations. Other steps were announced as part of government's integrated rural development strategy including the restructuring of the Postbank to enhance its developmental role and an accelerated roll-out of Public Information Terminals (PIT) to provide easy and cost effective access to government information. Priority has also been given to e-Commerce policy with discussions taking place between government and stake holders as well as amongst stakeholders. Government has fast-tracked the legislative process aimed at providing the required certainty in the industry with regard to, amongst others, security, intellectual pr'\lperty nights, domain names and privacy of e-Commerce transactions. Four government departments are intimately involved with IT and Communications Technologies: the Department of Communications (DoC) deals with the provision of infrastructure, access and connectivity. The Department of Public Service (DPSA), deals with provision of services efficiently, equitably and accessibly. The Department of Arts, Culture, Science and Technology (DACST) is concerned with language issues, making the Internet truly universal through access in the language of the populations concerned, and issues of research
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and development in the ICT sector. The Department of Trade and Industry (DTI) deals with matters of commerce, international trade and the IT industry. The DoC has launched a series of initiatives under the collective label of the 'Info. Com 2025' programme, which seeks to achieve broad-based growth and equitable development through communications and information technologies. Some of the key elements of the Info.Com programme include: (1)
(2) (3)
(4)
(5)
A Commission for Information Communications Technology (CICT). The Universal Service Agency (USA) telecentre projects. Public Information Terminals (PITs), Internet-2000, and Web Internet Lab. Projects designed for rapid expansion of access to the Internet and for experimentation with Internet applications. TradeNet: Liaison with the Department of Trade and Industry to promote international trade opportunities via e-Commerce. Houwteq: A national training institute for study, research, and development in Technology and software.
These and other initiatives reflect the way in which government is responding to the challenge of using enabling technologies and new business paradigms to improve its service delivery and Plans for e-Commerce legislation are well advanced, as shown in the following timetable of events: (1) Discussion paper launched in July 1999. (2) Stakeholder working group submissions collated November 1999. (3) Green Paper: Issued on November 2000. (4) E-Law Conference: Stakeholders invited to discuss proposed framework/outline of the Bill and make recommendC\tions. (5) E-Bill (2nd quarter 2001) dealing with legislative issues. (6) E-Legislation. (7) Policy Directions (Beyond e-legislation) including policy positions, regulations and guidelines and self-regulatory
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measures-contracts, industry norms and practices, codes. An important development was the creation of The State Information Technology Agency, SITA, in April, 1999. Its mandate is to serve as the information systems facility of the State, chiefly responsible for the management and execution of IT-related work for, and on behalf of the Government of South Africa. The guiding philosophy of the prOVision of government services is to bring IT Value through cost effectiveness, increased productivity and citizen convenience. The technical pillars of this philosophy rest on minimum information security, interoperability, economies of scale and no duplication. The transition to a Citizen Focused Service Delivery model is expected to offer:
A common service provider model for procurement of IT goods and services. (2) The removal of duplication through inventory of government systems (central database). (3) Integrity of providers with an objective for black economic empowerment. (4) Partnerships around skills transfer, training and local employment.
(1)
The first phase in the transition is to strengthen the internal workings of government through the roll-out of a public service technical network, the provision of applications, systems and inff)rmation and the engagement of local manufacturers and skills. The second phase of the transition is to create universal access involving the expansion of network access devices. To this end, a number of e-Govemance initiatives are already underway, including: E-justice (2) Integrated justice system (3) Automated Fingerprint Identification system (4) Smart card
(1)
E-Governance Practices: A Global Perspective (5) (6) (7) (8)
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Government wide call centre G2G-government wide intranet G2C-single electronic window to government services Electronic document management systems.
Creating the Enabling Policy Environment An e-Commerce policy and legislative framework needs to consider a complex set of issues touching all major aspects of economic life including technology, micro and macro economics, social and political angles and global and national concerns. A national policy is perceived as important because the growth of e-Commerce, as a vehicle into the new Information society / economy, requires transparent, predictable and flexible regulation and legislation in certain areas. The measures must address fundamental legal barriers, security and privacy concerns, lack of understanding and preparedness by those who stand to benefit, the need to ensure harmony and compatibility with the international trading regime, and universal access and service. Both government and the private sector have a role in addressing challenges, threats, risks and legal barriers presented by e-Commerce. The government sees its role as a facilitator fundamentally responsible for laying out a legal and regulatory foundation for e-Commerce: a policy instrument to address uncertainties such as validity, legal effect and enforceability of transactions conducted through electronic means. The private sector remains a critical driving force in implementing e-Commerce applications, providing technological solutions and using some self-regulatory mechanisms to address challenges.
(N) United Republic of Tanzania Background Tanzania is situated in East Africa and has a total population of around 33 million. Tanzania is bordered on the south by Mozambique, Malawi, and Zambia; on the west by Zaire, Burundi, and Rwanda; on the north by Uganda and Kenya; and on the east by the Indian Ocean. T<1?Zania is the largest of the
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East African nations, and it possesses a geography as mythic as it is spectacular. The country has a surface area of 945 thousand square kilometres and a climate which varies quite a bit, considering that its environment includes both the highest and the lowest points on the continent. While the narrow lowland coastal region is consistently hot and humid, the central regions of Tanzania are sufficiently elevated so as to offer much cooler temperatures. The rainy seasons extend from November to early January and from March to May. The history of human habitation in Tanzania goes back almost two million years, and the fossils found at Olduvai Gorge by Louis and Mary Leakey now stand among the most important artefacts of the origins of our species. Artefacts of later Paleolithic cultures have also been found in Tanzania. There is evidence that communities along the Tanzanian coast were engaging in overseas trade by the beginning of the first millennium AD. By 900 AD those communities had attracted immigrants from India as well as from southwest Asia, and direct trade extended as far as China. When the Portuguese arrived at the end of the 15th century, they found a major trade centre at Kilwa Kisiwani, which they promptly subjugated and then sacked. The Portuguese were expelled from the region in 1698, after Kilwa enlisted the help of Omani Arabs. The Omani dynasty of the Bu Said replaced the region's Yarubi leaders in 1741, and they - proceeded to-further develop trade. It was during this time that Zanzibar gained its legendary status as a centre for the ivory and slave trade, becoming in 1841 the capital city of the sultan of Oman. In Tanzania's interior, at about the same time, the cattlegrazing Maasai migrated south from Kenya into central Tanzania. Soon afterward the great age of European exploration of the African continent began, and with it came colonial domination. Tanzania fell under German control in 1886, but was handed over to Britain after WWI. Present day Tanzania is the result of a merger between the mainland (previously Tanganyika) and Zanzibar in 1964, after both had gained independence. Tanzania has like many African nations experienced considerable strife since independence, and its
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economy is extremely weak. However, political stability does appear to have been established in recent years. Today Tanzania has a GOP of around 8.5 billion US dollars with an annual growth of 5 per cent. Figures show very low Internet and computer penetration with 2 personal computers for every 1000 people and 5 telephone mainlines for every 1,000 population. Internet hosts in 1999 stood at 0 for every 10,000 population.
Use of E-Govemance It is an accepted fact that information poverty has been a
characteristic of most countries in the African continent and this is not because the planning mechanisms of these countries lack data on which to base various meaningful socio-economic planning exercises but rather the problem has been the in('ll:>ility of African countries to develop and maintain appropriate information infrastructures. In his speech to the opening of the workshop on elaboration of information and communication policy for the United Republic of Tanzania, in 1997, the Principal Secretary and Secretary to the Planning Commission said that Tanzania had achieved a measure of information generation and processing capacity. Quoting from his speech "Presently there are information systems which have been developed at micro level in various institutions to meet their information requirements. However, these systems are being developed in an uncoordinated approach and utilized in isolation irrespective of their potentiality for meeting cross-sectoral information needs." The Principal Secretary noted that Tanzania is committed to the strengthening of the Information and Communications sector and welcomed any support from international communities in the strengthening of this sector. He stated that the information challenges facing Tanzania were immense and Tanzania needed to pursue its efforts to participate in the Global Economy, and the strengthening of the information and communications infrastructure was a prerequisite.
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In an earlier survey of Online Governance by COMNET-IT in association with UNESCO, to which the Tanzania Commission for Science & Technology responded under initiatives for the use of informatics and telematics in government and public service, two examples were given: the Parliament World Wide Web and the Bank of Tanzania World Wide Web. In addition to the above, there are other initiatives which should be mentioned and which are described by Richard Heeks in a background paper on e-Governance in Africa. Quoting from this paper the Government of Tanzania has implemented management control mechanisms through the use of information technology. It has recently launched its integrated human resources and payroll systems covering 280,000 public servants. While the capital invested was significant at around 6.5 million US dollars, the savings already accrued in improved management, reduced ghost workers, improved control and accuracy, mean that the project has already paid for itself. The Government of Tanzania has also implemented an Integrated Financial Management System (IFMS) at all ministries in Dar es Salaam and Dodoma via a wide area network. IFMS has improved control over expenditure management, resulting in more timely and detailed reporting. Internet-enabled versions of both systems will soon be rolled out nationwide. Another example of the use of information technology for the good of the citizen or community in this case is the case of the Kibidula Farm Institute which provides research and local expertise in health, agriculture and construction techniques in rural central Tanzania. But there is no running water, no electricity and no efficient means of communication with the outside world. However, the Kibidula Farm Institute was then supplied with a solar-powered satellite ground station with e-mail and Internet connectivity. This has provided to address serious local health and medical issues. Subsequently, the Farm used the link to manufacture a single-engine airplane from parts right in the bush and to keep it running through Internet e-mail consultations with the American company that produced the kit. By the late 1990s there were two planes used to get supplies and medical relief to even more remote villages.
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Citizens therefOre receive the benefits of the ICT revolution but indirectly via an intermediary. What accounts for the long-term success of this ICT-based project? First it is a good example of an NGO clearly understanding the need~ of its target population. The Farm as an intermediary NGO was able to translate the action dimension of its clientele's needs into corresponding informational components and then to establish a mechanism permitting reliable acquisition of that information on a timely basis. This example shows how NGOs can act as intermediaries between Citizens and ICTs. Once again this example is adopted from Heeks. Another ICT initiative is Tanzania Online which is a gateway to information on development issues in Tanzania. It is a UNDP fUN, Government of Tanzania and Economic and Social Research Foundation (ESRF) initiative to address problems faced by government officials, policy makers, private sector, civil society, donor community, researchers and academicians accessing information on development issues in Tanzania. The objective is to provide an interactive facility for easy access to a comprehensive set of documents about development in Tanzania, analytic work about priorities in development and progress towards poverty reduction and other development targets. The expected output of the initiative is an up-to-date online Internet-based database consisting of a comprehensive set of documents in full text on development issues in Tanzania. Tanzania Online expects to improve access and exchange of information among and between key government institutions, the public, donor community, private sector, civil society, researchers and academicians. Tanzania Online database includes analytic documents concerning development in Tanzania, work about priorities in development, progress towards poverty reduction and other sector reform developments. The subjects covered are: Education, Agriculture, Mining, Tourism, Trade, Industries, Health, Poverty Reducti<m, Water Environment, Women Development, Private Sector Development, Science and Technology, and others on development issues. The website
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disseminates its information content in various ways in order to reach various targeted stakeholders. Anyone from anywhere in the world with an Internet connection can access and download information. A Current Awareness list is e-mailed to users with no Internet access. The output is in text or Portable Document Format (PDF). Initial funding has been provided by the UN System (through a Swedish Grant) and the Tanzanian Government. Tanzania Onliw is implemented by ESRF.
3 The Evolution of E-Democracy: Role of E-Govemance
Introduction Does the evolution of e-Democracy practices, such as online consultations, enhance the current system whereby the polity governs society, and continues to have limited and controlled input from the citizen, or shall we see the evolution of a new form of democracy? These are pressing issues for modern governments as the new technologies are contributing to the creation of faster communications, the sharing of information and knowledge, and the emergence of new forms of our respective cultures. E-Democracy is explored as a subset to the greater, and more important, philosophical topic of democracy itself. This sets the framework for an assessment of whether or not e-Democracy shall be a natural extension of representative and liberal democracy, as practiced today in most western countries. These reports to date represent guidelines for policy implementations for e-Governance that can be used by governments, whether they are developed or developing. countries. This chapter addresses some of the changes we are witnessing as the e-Democracy movement grows. Networked communities are quickly evolving through the Internet, and
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citizens are increasingly using the new technologies to organize themselves so their voices can be heard, and to develop tools to attempt to influence government policy and programmes at the political and public administration level. Writers and researchers, analyzing and assessing the emergence of e-Democracy, often leave out the broader philosophical nature of democracy itself. For purposes of this chapter it is important to put the whole question of how leTs will be used to further engage the citizenry into a wider context of democracy as we practice it. There are different schools of thought as to whether leTs will change the nature of democracy, or if leTs will simply result in an extension of democracy we now practice and understand. There has been much talk in recent years of public cynicism toward politicians and public officials. Much of this is based, amongst other rEasons, on a lack of knowledge and understanding of the inner workings of government, including the public service and legislative arm. This combined with the lack of government programmes, in many instances, to inform people of what the government is dOing, or to engage people in the development of public policy are only some of the many symptoms of why there is such growing cynicism in the public in the last two decades. The reasons for the cynicism are wide and diverse, and it is not the role of this chapter to come to conclusions about this prevailing public attitude, but to suggest that the new leTs could contribute to creating renewed faith in government bodies through the creation of an interactive government engaged in wide dialogue with an interactive citizenry. The important issue to hand is that there be a vigorous debate and discussion about the nature of democracy and how all our new technologies can be used to produce a more engaged and interactive citizenry. Such an achievement is going to take commitment and hard work by many sectors of society, not solely governments or legislative bodies
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traditionally, most democratic governments have relied on interest groups, experts, and academics to assist them with the input of new legislation, legislation to be amended, regulations, or public policy. To make significant changes that would draw the citizenry more widely into the process requires commitment and attitudinal change. Cost factors also come to bear on this as well as the question of how to engage people for their input and opinion. Referendums, offline and online, could be one first step towards bringing the wider public into the whole process of government. However, this raises an even more fundamental question: Does the public want to be more engaged in government or do they simply want the opportunity to make their views known every once in awhile? If governments do engage the public more frequently into public debate over issues of the day, how often do they do this? What mechanisms will be available to facilitate this process? How often should referendums be used and what subject matters should be considered priorities for referendums? What institutions within government need to be set up to make the wider transition to e-Democracy beyond online voting and online consultations? These are just a few questions that need to be addressed and scoped out if we are to move to a new form of democratic participation and beyond online voting (very limited at the moment) and online consultations (at a very nascent stage). Groups and individuals outside government are developing their online tools and methode logy to create different methodologies of e-Democracy in order to influence governments and the issues of the day. Online activists and interested citizens alike also use e-Democracy tools to enhance democracy within their own groups and amongst themselves. Thus, weSee a culture of a different approach to traditional democracy developing outside the sphere of government circles (with some input into government, and some politicians making effective use of ICTs to further their political goals) while governments make tentative steps to move into the arena. Governments are traditionally conservative and slow to
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move due to the nature of their organizations and the duty to take all interests of society into consideration when undertaking change. For the moment there is a difference in cultures occurring and a wide gap between what individuals and groups are doing online and what governments are currently capable of doing online, especially in their relationships with the public. The challenge of governments in the next few years will be to set out mechanisms on how to embrace more of the public into the decision-making process. 'More importantly governments, especially the elected bodies, need to take a leadership role in engaging the public in wide debate on how, or if, ICTs can and should change our current dynamics of democracy. for while many might argue that being online is crucial for politicians to continue to get elected, the evidence does not point to this being a deciding factor at this time. The debate is a fluid one. We all need to become partners in a debate on the nature of democracy in our very changed world, which will then lead to ways and means whereby ICTs can be strategic tools for the democratic process. Governments are concerned about the decline in public approval of their institutions. There are tools available that can help reverse this attitude - it is now a question of how extensively these tools can be used to effect this change. As this Report shows, it is becoming increasingly important to engage the citizen. Tools for consultation are still run from the top down but, if done properly, the goals of an interactive government and an interactive citizenry can be reached. Democracy as practiced now by many countries is an evolving concept. The principles and practice of democratic ideals vary from jurisdiction to jurisdiction, but underpinning all democracies are the underlying tenets of liberal democracy as evolved in the past two to three hundred years. There is representative democracy (and many electoral and legislative forms of this type of democracy), participatory democracy (practiced in some jurisdictions, such as the town hall meetings tradition in the United States), and direct democracy (the closest example of this today is the practice of decisions of national importance by a referendum amongst the electorate.)
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These are but a few examples. There is a hint that the evolution of e-Democracy could take us into a new form of democracy, which would reflect a wider voice of the public. But there is no clear vision of what such a democracy would entail, and how it would differ from current practices or reflect the overall society. In our current system of representative democracy, elected officials, and the institutions adopted from this system, have been the traditional means in recent times of governing in the interests of society. So the question is: will leTs and the tools that continue to be developed enable people to have access to more information (often a negative if there is too much information or a lack of organization or critical skills to assess the importance of the information that can then be turned into knowledge) and to have the ability to better communicate with govern~ent? Both these abilities could be a result of the rapid transformation of our collective societies because of the emergence of these information and communication technologies. However, as we have learned, technology is only a medium and a driver of new and important trends in society to the extent that they are driven by new ideas, conceptual constructs that contain innovation and creativity. Technology is not the creator of change, but is simply a tool. Usage of technologies, no matter their form, result in cultural evolutions because of the way that people adapt them. Implementation of new technologies may change the way societies organize and administer themselves, but they are never the driver of ideas, only the facilitator. Original ideas come from the mind of one person or from collective debate that then drives philosophical, cultural, societal, organizational, and administrative change. Thus, the usage of ICTs for the purposes of e-Democracy principles, as articulated to date, is only the beginning, and simply one tool, on the road to possible new forms of democracy. It is how we use this tool and the way in which we frame the debate that will result in these new forms and an extension of our current structures of democracy. Whatever the outcome of the debate, it is becoming apparent that the emergence of e-Democracy is starting to have some
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impact on both governments and society. It is the continued practice of e-Democracy, the development of new tools and ideas, and a debate on the overall subject of democracy, which will bring us to a possible new plateau of a system of democracy that will reflect our increasingly changing culture and societies. This is not a suggestion to change what we"have, but to build on the strength of the forms of democracy that have been developed over the past centuries.
E-Democracy: An Emerging Concept Some e-Democracy advocates, such as Steven Clift and author Howard Rheingold, believe that if parliaments and other elected bodies do not institute reforms to develop e-Democracy mechanisms there will be severe political consequences, such as political candidates seeking office who do not use online technologies to deal with the voters will not be elected. These views are based on the belief that the online generation expect their leaders to communicate to them in this new generation's medium of use. These arguments assume that there are a host of c!tizens arming themselves with the tools to have a direct influence on legislative and policy development, and who also have the will and desire to engage in the emerging e-Democracy process. However, the current literature does not reflect any empirical evidence that there is a significant shift towards citizen engagement in the political process due to ICTs. In fact, democracy is as threatened in developed countries by a laissezfaire attitude that leads to inequalities, and power becomes concentrated in the hands of specialized groups. Recognizing this to some degree, Steven Clift in his work has also focused on building online communitie~ to mobilize like-minded individuals around the world, to increase their communication with each other in regard to issues of the day so that their voices may be heard. Officials in the United States, Canada, and the United Kingdom are seeking ways to combat voter apathy, especially because of the declining engagement amongst yOlo ...3 people. For example, in the UK, only 59.7 per cent of voters voted in the
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last general election, and less than 30 per cent of young people under 30. Some argue that this is rather a political problem, and there will not be significant shifts to new forms of democracy or participation by the citizenry because of leTs. They suggest instead that the new leTs will serve only to strengthen existing democratic institutions, but not dramatically change the legislative bodies of public sector institutions. On the other extreme end of the spectrum, some contend that while the Internet provides new sources of information for those who are interested in political affairs, they remain skeptical about its potential to transform the participation of the citizenry. These authors posit that it will be business as usual and that the new leTs will not create the great revival of democracy as argued by proponents above. Others argue that social and economic biases will continue on the Internet, further marginalizing those who have little interest in or knowledge of public affairs. Michael Margolis and David Resnick, authors of Politics as Usual: The Cyberspace Revolution insist that initial expectations for such a democratic revival were short-lived and simply produced 'politics as usual'. The electronic form of governance, of which e-Democracy is an extension, emerges in the midst of various theories about governance, one of which is the concept evolved by French philosopher Michel Foucault, of 'governmentality', wherein he articulated a kind of rationality integral to the art of government. Foucault was concerned with the 'how' of governing, and for him governmentality was a 'way or system of thinking about the nature of the practice of government.' He used 'rationality of government' interchangeably with 'art of government', to include who can govern, what governing is, what or who is governed. For him the most significant development in modern government, and by extension modern democracy, is the introduction of economy as the main objective of political practice, and population as representing the end or goal of government, with the apparatuses of security as its essential mechanism. But what of the concept of democracy itself and how does this align with the new online movement for increased ' participation by the citizen?
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Theoretical Frameworh. of Democracy Theories of democracy are as numerous as those thinkers who have written about it through the ages. So too the concept of the citizen and exactly who is to be included within the term has changed dramatically since articulated in ancient Athens. There are many conflicting interpretations of what constitutes a democracy, the meaning of political participation, representation, and scope of citizens' capacity to choose freely. Historically, the city-state of Athens was the first democratic state that engaged in direct democracy from the citizenry. In the close to 200 years that democracy did thrive in Athens there were different evolutions of how it engaged in democratic practices. At the height of their practices of democracy, 6,000 to 8,000 citizens of Athens would gather almost weekly to form a consensus on legislative issues. On first blush it appears this system was an ideal democracy. However, this was not a true democracy as we understand it today as vast numbers of citizens of Athens were excluded. Those not participating were the slaves and members of families who were not recent citizens of the City but considered immigrants (an immigrant family could be one that arrived in Athens even as much as four generations or more earlier). Women were also excluded, thus eliminating over half the population from the process. However, the democratic practice in ancient Athens is an early, though flawed, example of the practice of direct democracy and the reaching of consensus amongst the participants. Throughout the centuries, democracy has undergone major changes, as the size of the citizenry has evolved from a narrow, exclusively defined body that participated in a collective will within a small city-state, to a genuinely universal suffrage in many countries, and a metamorphosis of ancient democracy into what is today called a representative, liberal democracy. Academic author Robert Dahl argues that this latter form of democracy leads to both accountable and feasible government, with the potential of stability over large territories and periods of time. The writer and theorist, Carol Gould, on the other hand,
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maintains that a theory of democracy is necessary that both elaborates freedom and equality, and effectuates them in practice, arguing that the form of decision-making should be participatory to the extent feasible, and representative otherwise. The author and philosopher Alain Touraine, distrusting participatory democracy as lacking in wisdom, and dissatisfied with deliberative democracy, advocates the need for a liberating (representative) democracy - where there is a "democratic will to enable those who are subordinate and dependent to act freely and to discuss rights and guarantees on equal terms with those who possess economic, political, and cultural resources." He proposes this as a limitation on what would otherwise lead to the omnipotence of those who control the financial and information resources. In such a regime, the concept of citizenship is based on a guarantee that all citizens of a country have the same legal and political rights, regardless of their social, religious, or ethnic background. This concept also carries the notion of an actively responsible individual, though he further cautions that in modernized societies, it is in danger of being reduced to the "freedom to consume in the political marketplace". The theoretical framework, to be used in this Report, is the definition of democracy by Joseph Schumpeter who defines representative or liberal democracy in terms of its structural characteristics, as follows: . Pluralistic competition among parties and individuals for all positions of government power. (2) Participation among equal citizens in the selection of parties and representatives through free, fair and periodic elections. (3) Civil and political liberties to speak, publish, assemble, and organize, as necessary conditions to ensure effective competition and participation.
(1)
Point one allows citizens to choose from alternative candidates. Point two allows for periodic elections that translate votes into seats in government, promoting transparency, so that representatives can be held accountable for their actions. Point
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three allows for multiple sources of information so that citizens can make informed choices. This model of democracy is useful to a discussion of electronic governance and electronic democracy in that it gives equal weight to the value of mass participation as to the other two core democratic functions of politics. Within this framework, and reflecting the classical liberal view of the role of parliament in representative democracy, government websites (though not specifically envisioned by Schumpeter), as a means of creating an informed citizenry, should therefore ideally serve two primary functions: "the 'top down' provision of information from the legislature to the public, and a 'bottom up' channel of communication from the public to the elected members". This also includes interactive communication between government agencies and departments and the public. There have been arguments for many ways in which government web sites and other features of the new ICTs have the potential to increase the democratic participation of the citizen. The debate is heated but it remains difficult to find systematic comparative evidence. James Fishkin outlines four conditions that must exist for a greater engagement by the citizen: political equality, (2) deliberation, (3) participation, and (4) non-tyranny (that includes the tyranny of the majority).
(1)
A system that achieved all four conditions simultaneously he calls a "democracy of civic engagement". The OECD Public Administration (PUMA) Group that has been conducting extensive studies on e-Governance and e-Democracy has articulated three main components of governments in their programme evolutions, policy and legislative implementations, required for online interactions between government and the citizen: information, (2) active participation, and (3) consultation.
(1)
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Many governments have pledged to move in this direction but movement towards results is slow. This may be partly explained due to the hierarchical nature of organizations and the current role of representative government in these democracies. External groups and individuals on an international scale are working to change this dynamic (as will be illustrated below.) Governments are moving at a slower and different pace than those groups and citizens who are using the Internet to try to influence the evolution of policy and legislation. It is not the purpose of this paper to discuss the relative merits of the various forms of democracy, including the different forms of representative democracy as practiced in different countries, nor whether or not it would benefit the society for the citizen to have a greater role in the decisionmaking processes of government, but rather to explore whether there is a potential for increasing that role through the use of the new leTs and e-Democracy. Do they have the prospect of increasing the completeness of the debate on the issues and the public's engagement with it? And if so, are those who participate statistically representative of the entire citizenry? The question as to whether or not the movement of governments online and a growing influence of the citizen online working to influence government policy and legislative development, will result in new forms of democracy will not be answered for a long time. Only historical evolutions and changes in society in the coming decades will decide the question. What can be stated at this juncture is that ICTs are beginning to shape the form of democracy citizens now practice, albeit in a small, but significant, way.
Meaning of E-Democracy There are as many interpretations of what constitutes e-Democracy as there are interpretations of democracy. And because e-Democracy is in its beginning stages, there is much confusion about what it encompasses and how to clearly define it. Steven Clift, of DO Wire, is an acknowledged expert and· leader in the worldwide e-Democracy movement. He describes
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e-Democracy as referring to "how the Internet can be used to enhance our democratic processes and provide increased opportunities for individuals and communities to interact with government and for the government to seek input from the community" (democracy online http://www.dowire.org). Characteristics of the Internet which he feels support eDemocracy are that it provides opportunity to participate in debates as they happen, participation is less limited by geography, disability or networks, and it facilitates the access to information and provision of input by individuals and groups who previously had not been included in these debates. Another organization that specializes in e-Democracy is the International Teledemocracy Centre in Scotland. Their stated goal is to strengthen democracy through the use of innovative ICT to deliver improved democratic decision-making processes, thereby increasing citizen participation-specifically through the use of electronic consultation and electronic petitions. This is undertaken within a backdrop of the devolution of control to the Scottish Parliament for its own domestic legislation. The Centre takes its cue from the OECD study on e-Governance and e-Democracy, concentrating on the last two of the three types of interaction outlined in the OECD's study: a two-way relationship where citizens are given the opportunity to give feedback on issues; and a relationship based on partnership where citizens are actively engaged in the policy-making process. The UK-based Dialogue by Design, summarily defines eDemocracy as "the use of computers to enhance the democratic process." As a proponent of its own data management software to be used in the e-Consultation process, it is clearly unapologetic in its view that ICTs have the potential to transform the political world as dramatically as the invention of the printing press did over five hundred years ago. Ake Gronlund, from the Umea University in Sweden, however, is concerned that definitions of e-Democracy often focus on ICT use and projects, rather than on democratic processes and institutional innovation. In order that the term Ie-Democracy' does not become merely a convenient shorthand for ICT use in democratic processes, he argues that it should be
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assessed in terms of its defining processes, not to what extent ICTs are used. He notes that as e-Governance is still in its early days, e-Democracy is a marginal occurrence, but he does not discount its potential for the future, though which initiatives will be successful and which directions e-Democracy will take will depend on the actions by many different actors.
E-Govemance and E-Democracy: Inter-relationshi p Some proponents of e-Governance in Canada and internationally have dispensed with the term 'e-Governance'. For many eGovernance is used to encompass all electronic activities and programmes, with e-Democracy included as a 'growing' part of e-Governance. Terms such as 'digital government' and 'digital voice' have more and more corne into use instead. E-Democracy is treated more as a result than as an equally important part of the equation. The emphasis on the use of ICTs by government and elected officials in the business of government often overshadows the real difficulties involved in online citizen engagement, which is presented almost as an extension of the more traditional consultation methods. In fact, the subject of online consultation is actually a work in progress and we are witnessing the early stages of its growth. A pilot on online consultation was recently completed by the Centre for Collaborative Government, in conjunction with the Department of Canadian Heritage, to develop and test the concept of a 'Digital Commons': "a place where Canadians can openly discuss, debate and share issues and experiences electronically in an open forum." The discussion agenda, determined by the government, was highly controlled and run by them, with the "focus on the role of government and of elected officials as participants in such a space." While the final report from the consultation contains recommendations for an e-Democracy framework by doing more pilots, the emphasis of the pilot undertaken was on "government comfort and familiarity with online citizen engagement" rather than from the viewpoint of the citizen's participation in governance. Theirs appears to be a method of enabling government to
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adapt gradually to the idea of citizen engagement, and it may well be argued that this approach is needed in order to move government and politicians into an acceptance of this new reality. The downside, however, is that although their report constantly speaks of increasing citizen engagement, it proceeds from the top-down perspective rather than incorporating the citizen's viewpoint. Gilles Paquet, of the University of Ottawa Centre on Governance, views governance in relation to organizations, moving from centralized to distributed governance. In his view, "e-Governanc.e presents a real transformation in democratic governance, including design, decision-making and service delivery capabilities. E-Governance refers to new processes of coordination made possible or even necessary by the advent of technology-and the spreading of online activities in particular. As a result, e-Governance refers to an IT-led reconfiguration of public sector governance-and how knowledge, power and purpose are redistributed in light of new technological realities." The Internet has certainly brought about a decentralization of power in one respect. In the wired world, individuals can now make their own choices as to which authorities and information sources they will accept. It may be argued that this is leading to a greater democratization of knowledge, empowerment of the individual, and the potential for more informed interactions between the citizenry and organizations, including government. Moreover, since individuals now have ready access to a variety of information resources, governments have to adopt new proactive measures to compile and disseminate information in a competitive information environment. Effective ability to access government information, and to use information as a tool in all aspects of one's life, has become more and more vital in today's society. Recent research into e-Governance practices, applications, and successes and failures of government websites illustrates the following: (1)
E-Democracy is a growing trend amongst outside groups, but most governments are still very much struggling with the concept.
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(2) E-Governance is changing the ways in which government does business with the public and, in the process, is creating demand for some form of participation from the citizen. This gives some credence to the ongoing thinking that e-Governance will eventually result in some form of e-Democracy. (3) E-Democracy movements are founded on information precepts and engage in the sharing and developing of knowledge. (4) For the citizen to influence government policy, programmes or policy evolution, the creation and sharing of knowledge by governments with the public will become mandatory.
Citizen Participation in E-Democracy Discussions of e-Governance and e-Governance inevitably lead to the question of citizen participation. This can take many forms and different subject headings, such as participatory democracy, e-participation, teledemocracy, and e-Democracy. The latter has come to be the umbrella term for citizen participation in the political, bureaucratic and legislative process. While there are many sites on the Internet where citizens may organize their own petitions, some governments such as Scotland and Queensland, Australia are exploring ways to adapt the legal right to petition the government to the online medium. One regional government in Jutland, Denmark is building a system whereby local citizens will be notified bye-mail when the government plans to take action on an issue in which they have indicated an interest. Two e-Democracy advocates, Stephen Coleman, of the Institute for Internet Research, Oxford and John G0tze, in the Swedish Government, argue that the main thrusts of e-Democracy for legislators and public administrators will be online voting and online consultations. Online consultation is mostly restricted to the bureaucratic side of government in many countries, but in jurisdictions like the US, the UK, and Sweden, it refers to consultations between the citizenry and the political side of government as well.
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The e-Democracy movement is driven by the emergence of ICTs that allow swift exchange of communications, the ability to share information and build communities of networks of people and groups who, amongst other things, share common interests and ideologies. What once took months or years to turn into an issue can now occur in less than a day. The Internet is becoming more and more an important organizational tool for all manner of groups and citizens who, in the past, had a difficult time either being heard by the government or influencing policy. The size and timeliness of the international protests over the globalization policies of the OECD and the WTO were due to groups being able to organize themselves over the Internet, mobilize support for the issues, and exchange information and communicate messages in real time. In Seattle, Washington D.C., and Prague, the initial G8 protests were organized both off line and online, but it was the Internet that gave this movement the international momentum to make it the effective demonstration, and the somewhat collective voice of outsiders, that it became. It has become the symbol not only for the voices able to speak from the Internet, but of the fact that the citizenry has found a tool by which they can bypass all the normal channels of government. Many people talk about the 'individual' being in control, or having great power because of the ability to tap into the world through the keyboard. It has also been identified as the power of the consumer to buy the product he wan~s, or read the online newspaper of choice. But more central to this development is the degree to which people can communicate, form opinions, make judgments from available data, and then act upon them. The Internet is a medium that allows ideas to flow among thousands of channels, a form of 'capillary action', that the French philosopher Michel Foucault viewed in the multiple and decentralized way that power is exercised. People are empowered not because one can get onto the Internet and buy a product, read a newspaper or research out some knowledge, but by the ability to talk back (true interactivity), dialogue, and go to whatever source an individual wants to choose.
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This is not to say there are thousands upon thousands of people out there engaged in political activism. But there are legions of people who are engaging in conversation (or whatever activity they choose). Many of these people are not restrained by the dictates of mass media. In today's wired world, ~ith the increased demand for more and faster information, man~ would say that the interactive citizen has evolved from what Manuel Castells, author of "The Internet Galaxy" termed "virtual communitarians" (people who use ICTs for social organization), and that the Internet has put new power and knowledge into the hands of the citizen. In practice, one of the primary functions of government has been the creation and dissemination of information. Governments have always been considered to be the largest library in any jurisdiction because of the enormity of their information holdings. Perhaps the Internet is now the largest library in the world given the billions of web pages, joined-up chat rooms, newsgroups, listservs, etc. As a result, a citizenry that is able to seek and obtain information and knowledge from any place in the world through the Internet will, in all Iikelihood, also expect more from government. Current research indicates that at this stage of development few governments have effectively been able to involve their citizenry electronically in the democratic process in any great numbers. Many governments have reached a stage where they are able to dispense information more effectively, which often passes as a means of enhancing the democratic process. But there are also some government initiatives seeking to help citizens to get online, seek feedback on government reports online, and develop listservs and discussion groups to'elicit the views of the citizens. There are many groups actively participating in online activities in the hope of influencing government policies. One of these is Open Democracy which describes its goal as a "true arena for democratic change, for dosing the distance between people and power, influencing global policy and ... share knowledge across borders and differences." According to Steven Clift, Democracy Online consultant in Minnesota, those engaged in online activities involving social
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or political changes see the Internet as a medium to foster, enhance, and change the way people have traditionally engaged in the democratic process. The Internet is a medium that could result in hundreds of thousands of people around the world participating in the political process as citizen politicians. However, the reality and the promise of what could occur are far apart. There is the question as to whether citizens would in fact use the Internet tool to become more involved with the decisionmakinr; process of government, if they were given the opportunity. This question may likewise be reflected in an emerging trend, which surfaced in a sample survey, showing that people are increasingly spending more time in isolation sitting in front of their terminals. A survey in 2000, of 4,113 adults, conducted by Stanford University's Institute for the Quantitative Study of Society, found that "55 per cent of Americans have access to the Internet at work or at horne, and approximately 20 per cent of regular Internet users spend more than 5 hours a week online. Of those 20 per cent, 13 per cent spend less time with family and friends, 8 per cent attend fewer social events, and 25 per cent spend more time working at hom~ in addition to spending a full day at the office." Another finding of that study also corroborates the UCLA's Center for Communication Policy's latest study of Internet usage, that the more than 70 per cent of Americans who use the Internet now consider online technology to be their most important source of information, ranking :t higher as an information source than all other media, incluJing newspapers and television. Indeed, a majority of US Internet users (surveyed by the Markle Foundation as part of their Internet Accountability study) viewed the web as a 'library' and not an online shopping mall. But whether this will translate into a greater involvement in political or government affairs remains to be seen, and there are conflicting studies. A survey conducted in 2002 by the Forrester Consultancy Group found that, despite the numerous programs to implement e-Governance in Great Britain, only 10 per cent of the population are going online for government services, while
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at the same time online retail sales have skyrocketed to one billion pounds sterling a year. Clearly, the British would rather go shopping. Without doubt, the Internet has been a tool of enrichment for large numbers of the population. It has allowed diversity, the rise of the entrepreneur, the mushrooming of home businesses, the bringing together of family and friends through instant communications. It has also been a voice for many who previously did not have the means to express themselves because prior media of the expression of communication have been controlled by the few. But the question remains as to whether the Internet too will eventually become another medium of expression also controlled by the few or a free-for-all of opinion and bias not grounded in factual or thoughtful discussion. While the Internet has become more and more an intrinsic part of our cultures, nevertheless there are sehous issues to be dealt with, especially that of the digital divide. Modern societies and governments have traditionally operated on a hierarchical model of information flow and interaction. So, for the most part, have traditional information technologies. Because new technologies have in the past influenced the evolution of society and, as a consequence, the nature of government, it is anticipated by many that leTs will contribute to an increased interactivity with the public. The potential for wide change in the e-Governance area now exists beyond simply e-Governance service delivery, but also in the promise of wider interaction with the citizen. What this will entail and the speed with which it may be accomplished is still very uncertain. Indeed, evidence of the lack of programmes and initiatives in many jurisdictions for actively engaging the citizenry through electronic means speaks to its much lower priority for government than the electronic delivery of services, and fuels the assertion by many others that it will simply be 'business as usual' for governments. However, the problem is not necessarily lack of government action in making widespread commitments to conducting online consultations (though at the political level in many countries there is still much reluctance to change the status quo). One of
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the major problems in government departments and agencies in achieving this goal is simply the lack of financial and human resources to create a 'back office' that would take care of all the activity that would occur once online consultations are undertaken on a regular basis. On the other hanel, the January 24, 2003 issue of the Economist, which surveyed a number of developments brought about by the new ICTs, emphasizes the promise and potentiality of these technologies to bring about a shift in power to the ordinary citizen: " ... every big change in communication technology, from the printing press to television, has eventually produced big, and often unexpected, changes in politics. As the internet becomes mobile and ubiquitous, it will bring about changes of its own. Precisely what these will be is not yet clear, but the earliest claims of cyber-dreamers-that the internet will produce a shift of power away from political elites to ordinary citizens-may well become reality." A key issue that must be addressed as part of any discussion on e-Democracy is that of the digital divide, as there can be vast disparities between those who will benefit from access to the new technologies and those who are either technologically illiterate or do not have the financial means to go online. Not only have the new ICTs changed the economy, whereby technological literacy and access have become more and more vital, but such a divide, perpetuated by economic barriers, will preclude many from engaging in the e-Democratic process. A report published by Citizens Online, a registered charity in the UK established to explore the social and cultural impact of the internet on society, revealed that three times as many welloff families in the UK are going online for the first time as those with low incomes. Interestingly, this group, which is committed to universal access and tackling the issues of the digital divide, is funded by the private sector and not by government. Similar results concerning income-related home access were reported in a recent study done in Canada by the survey company Ekos:
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0) while home access increased across all groups, growth rates were more significant in upper income households; (2) a majority of upper income households (81 % with $8099K and 83% with $100K and over) and upper middle income households (60% with $40-59K and 72% with $60-79K) have home access; (3) less than half (46%) of lower middle income households ($20-39K) and a little over one in three (35%) of lower income households (less than $20K) have home access; (4) the division of home access based on income has continued to widen between upper and lower income households from a 39 point gap in 1997 to a 48 point gap in 2001. Canada, the United States, Britain, Denmark and Sweden, among others, have implemented community access programmes to attempt to bridge this divide in some measure. Though by no means do they fully resolve the issue of the digital divide, these programs seek to provide free internet access for every citizen by establishing hook-ups in public libraries, schools, community centres and kiosks. There are almost weekly press releases by Industry Canada announcing the establishment of more public access points in both rural communities and urban areas across Canada. Britain's goal is to have a public access point no farther than 1 kilometre from every individual in the country, so that government information and service delivery is accessible to all. A Report released by the US Census Bureau in February, 2002, entitled a Nation OnLine shows that the vast majority of Americans now have access to computers and the Internet in great numbers and on a daily basis. While it paints an optimistic picture of Internet usage, it does not deal with the digital divide .
•
0) "The rate of growth of Internet use in the United States is currently two million new Internet users per month. More than half of the nation is now online. (2) Children and teenagers use computers and the Internet more than any other age group.
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The Evolution of E-Democracy: Role of E-Governance (3) 90 per cent of children between the ages of 5 and 17 (or 48 million) now use computers. (4) 75 per cent of 14-17 year olds and 65 per cent of 10-13 year olds use the Internet. (5) Households with children under the age of 18 are more likely to access the Internet (62 per cent) than households with no children (53 per cent). (6) Computers in schools substantially narrow the gap in computer usage rates for children from high and low income families. (7) Approximately 24 million of the 65 million employed adults who use a computer at their job also work on a computer at home."
A study by the Washington, Pew Internet & American Life Project, released in April, 2002, illustrates the extent of eGovernance usage in the country: "While many government site users focus on their personal needs in dealing with government agencies, there is abundant evidence that a new 'e-citizenship' is taking hold: 0) 42 million Americans have used government web sites
to research public policy issues. (2) 23 million Americans have used the Internet to send comments to public officials about policy choices. (3) 14 million have used government web sites to gather information to help them decide how to cast their votes. (4) 13 million have participated in online lobbying campaigns. " A similar study of e-Governance usage in 27 countries around the world, was conducted by the European firm, Taylor Nelson Sofres, with the following findings: 0) 26 per cent of people globally have used the Internet to
either access government information, prOVide personal information to the government, or transact with e-Governance services. (2) E-Governance usage varies globally-Norway and Denmark have the highest e-Governance usage at 53 and
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47 per cent respectively, Finland 46 per cent, US 34 per cent, France 18 per cent, Germany and Korea 17 per cent, and Great Britain 11 per cent. Overall, one might argue that the penetration rate of the Internet in a number of countries around the world does create a cultural climate for e-democracy to grow based on the numbers of people online. Email and mailing lists have led to the emergence of virtual communities. Yet, in stark contrast, the Internet's reach in most of the developing countries ranges only from less than 1-5 per cent of the total population. For example, in the Philippines it is currently put in the range of 2-3 per cent and in Nigeria 0.1 per cent. While some developing nations such as Malaysia, Brazil and Taiwan have made substantial progress, approximately 87 per cent of people online live in post-industrial societies. There are twice as many users in Sweden than across the entirety of Sub-Saharan Africa. The potential is also there for the Internet to become dominated by a few large, corporate interests, or subsumed by government regulation that could inhibit the freedoms offered by this new technology. There are efforts by many governments, worried about the potential freedoms a medium such as the Internet brings, to curtail both access and content on the Internet. Canada, the United States, the United Kingdom, France, Australia, and many other countries have implemented laws making it possible to engage in wide surveillance of citizens. In the US the government is planning to converge databases of public and private sector organizations, in order to track citizens both in the US and abroad. In his annual report, the Privacy Commissioner of Canada warned that privacy rights have been under assault as a result of these new laws. All these inhibiting legislative and regulatory changes could potentially create a climate where we see citizens anxious about their online activity. In MalaYSia, the government closed down an Internet publication, Malaysiakini, that advocated e-Democracy and robust online public discourse. The Malaysian Government has stated their commitment to e-Governance and freedom on the Internet through their e-Governance strategy. Yet, according to
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the publisher of Malaysiakini, it appears the government was nervous about an outlet that did not express views they endorsed. In other words, the clear message from the government was that it was they alone who would set the agenda. From her perspective through the lens of the digital and democratic divides, Pippa Norris, author of Digital Divide: Civic Engagement, Information Poverty and the Internet Worldwide, argues that optimistic claims that the new leTs will facilitate a new era of direct democracy, "like a virtual Agora, while attractive ... are implausible in practice as soon as we understand who becomes involved in digital politics." She maintains that it will simply reinforce the activism of the activists, and it is unlikely it will reach the "disengaged, the apathetic, and the uninterested," further increasing the divisions between the actives and the apathetics.. While the leTs may have set the stage for the potential of e-Democracy to take hold in society, there are many uncertainties and questions that still remain. Is there significant progress towards an e-Democracy culture, and will it truly provide representation for all citizens, when there is both unequal access to the technology and unequal technical capabilities of citizens? The figures above show that there is a definite culture of Internet usage emerging that creates the environment for e-Democracy, but how realistic is it that it will come into being? Will e-Democracy simply be another version of voting, and be used as a limited means for governments to consult with people on different political and public sector issues? Will there be a new form of democracy emerging, as this Report suggests, or will it be an augmentation of representative democracy with an Ie' added on? Will people engage themselves in political and government issues, and will their voices actually be heard and taken into account, or will the Internet be simply another tool for politicians and governments to enforce top-down decisions? These are questions that are central to: the current e-Democracy debate; (2) the future of e-Democrc.cy itself;
(1)
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(3) and how the form of democracy as we currently know it may evolve into a new form of participatory or direct democracy or (4) take a shape we have yet to articulate. No treatment of e-Governance and e-Democracy could help but raise these questions. However, they represent much broader issues than can be effectively covered in this Report, which instead, is limited to the role of the citizen in the evolving e-Governance structure. The issues above present some of the limitations, but one must also consider those means that are currently being used to engage the citizen in the decision-making process.
The Role of Public in Government Consultation Representative form of parliamentary democracy in Canada, the United Kingdom, Australia, New Zealand and other western democratic governments around the world has resulted in the development of specific practices on how to consult with the public on issues of the day and the development of legislation. Parliament and provincial or state legislatures create legislation through the Committee process of their respective assemblies. These Committees invite members of the public to submit briefs and comments on the bill being considered. In some instances, Parliamentary committees will travel across the country, holding public hearings to get input from professional groups and associations, non-governmental organizations, academics, and citizens groups and individuals with expertise in the specific subject of the proposed legislation. This process is also followed when the government releases White papers (the government's intent on a given issue, of what they propose to do in the way of legislation) or Green papers (a discussion paper of the various alternatives the government is considering on a certain issue). In Canada and other countries they are generally announced in different ways, especially in official government publications and details given on how to provide input. Ministers' staff and public administration officers also ensure that the White paper or Green or other Discussion
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papers are circulated to people who should know about it and whose input the government is seeking. This is a very controlled mechanism run from the top. On important pieces of legislation, concerted efforts are made by the government in power to seek input from specific groups or allies of the legislation. In Canada, since Confederation and the formation of Canada, in 1867, a system has evolved of public sector officials seeking ·out representatives of vested and specific interest groups from the different regions of the country, who would be invited to Ottawa to take part in discussions. The system tends towards elitism, as the practice has been for favourites to be selected for their input. Except for public meetings, sometimes required by law, and committee meetings across the country on major political issues of the day (such as with the ongoing debates on the Canadian Health Care System or the Constitutional discussions in the late eighties), the average citizen has not been a major factor in public input into legislative and public sector debates. Online consultations being run at the provincial and federal levels in Canada are an attempt to change this process and are tentative steps towards engaging the citizen in the development of the policy making process or input on major issues of the day. Similar activities, in varying degrees, are taking place in many other jurisdictions in the world. While governments continue to work from a top down position there are pressures from outside groups and citizens, using online tools, to change the current system of engagement between the government and the public. In the last twenty years, the use of opinion polls and focus groups by public sector organizations has become common, but this represents only very limited input from the citizen. Television presents a public forum where political issues of the day may be discussed, and phone-in shows for people to express their opinions. But media programs, including the radio talk shows, are more a medium for listeners to sound their opinions than they are a venue for government to have an educated debate for input on their agendas. The United States has similar mechanisms but, in addition, have a tradition of town hall meetings as a mechanism for publiC
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input into the democratic process. These town hall meetings, originating in the New England states over two centuries ago, have spread across the countl"y. Politicians from the local and state levels are very involved in the process. Town hall meetings are convened on any issue that is relevant to the local town or county. It has been a tradition that robustly involves people in the democratic process. In fact, there has been some suggestion that the wide interest in e-Democracy in the United States, where there is growing involvement, stems from this tradition of the town hall meeting.
Involving the Citizen Online An online organization in the US, called Teledemocracy Action News and Network, describes their purpose as follows: "We are primarily dedicated to the creative use of modern technologies (lCTs) and face-to-face deliberative techniques in all forms that directly empower citizens to have authentic input into political systems at all levels of governance around the world." Other groups, such as the Centre for Democracy and Technology (QDT) in Washington, have a similar goal of getting people more involved in the democratic process through the use of technological tools. The potential to achieve such a goal may be possible, as can be seen by examples below of people who are working to get governments to go online and engage the citizen in the process of government. But for the moment, most of those groups working in an e-Democracy environment are reliant on government and reacting to what government is doing to create input. There are many others who play active roles but two of the more well known approaches in developing online communities of e-Democracy participants are those by e-Democracy experts, Steven Clift and Ann Macintosh. The Clift approach is to build a community of networks in which people can engage themselves in political discourse, develop ways to input into government policy and decisionmaking, send people to appropriate sites, and recommend ways to use technology to be able to influence the process of government. Much of what he does is from his own perspective,
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using the means through his newsgroup wire list, Democracy Online newswire ('do-wire') tracking developments in e-Democracy and sharing them with colleagues around the world. Clift works with governments to encourage them to get online, use tools to engage citizens, and use the Internet as a tool for online voting. The Macintosh approach has been a traditional one of working with governments from an academic institution to develop tools to help legislators and administrators obtain public input on issues of the day. Through her International Teledemocracy Centre she has been engaged in online consultations on a number of policy issues for the Scottish parliament, developed tools to obtain public input, including programs directed specifically at youth, and has also worked with the London Council on recent transport issues. Macintosh also does work with the European Union on their e-Democracy projects. Although her work is set by the government agenda, hers differs from Clift in that much of her e-Democracy research is done from the perspective of an academic researcher. She provides in-depth analysis, based on extensive research, on the different projects in which she is engaged. Clift writes papers and proffers tips and advice from his own perspective, as an effective advocate who has been responsible for building an international community of networks dealing with some form of e-Democracy. His 2650-member do-wire list serves to keep the interested subscribers up to date, posts notices of important events, and points people to web sites, articles, and other newsgroups and listservs of interest. Clift is proactively devcIoping a culture of e-Democracy whilst Macintosh contributes through the input of researched papers and online consultations developed through government funding. Her role is not so much an advocate as a facilitator, creating an information base of knowledge on the subject matter, which is made available through the lTC's website. Some argue that the current focus of governments on providing easily accessible online services drives the push to e-Participation, in that it presents a challenge to those governments between a consumer's view of the world and a
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citizen's view-the former focussed on services, the latter on policies, which promotes e-participation and democracy. Governments putting online their legislation, legislative proposals and background documents on issues may be a start towards bringing more citizens into the process. But it is still very much a top-down approach by government, as an analysis shows that the groups and individuals engaged in e-Democracy mainly rely on the agenda set by government and react to what government is doing to create input. This is a natural extension of our current system of representative democracy. In Canada there have been tentative steps towards citizen engagement at the federal level by Human Resources and Development Canada, who conducted a series of workshops in 2001/2002 on the possibility of developing online consultations, but these were solely from the perspective of members of parliament and of the public service. Other departments and agencies such as the Law Reform Commission, Department of Foreign Affairs and International Trade, Health Canada, Statistics Canada, Department of Indian and Northern Affairs, and the Library of Parliament have all conducted some form of online consultation over the past 2 years. The number of responses were not large nor necessarily a wide representative sampling of the population. However, these online consultations do represent a tentative step forward. The Ontario government's website proclaims its strategy on citizen engagement, claiming they are 'committed to' greater citizen involvement, and outline 'possibilities' of what could be done, with no indication of when or how they intend to develop these, let alone implement them. Most recently, an online consultation was utilized in Ontario to gain citizen input for the Premier's throne speech, and again the numbers responding demonstrated that this method of engaging the citizen is still in its infancy.
Reforms through E-Democracy Online Consultations Online consultation is a methodology that includes the use of ICTs as part of the process for obtaining input from .he citizel)
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into government policies and initiatives. It coni:inues to use other traditional offline methods of submitting that input, by complementing rather than replacing existing structures. There is a multitude of activity in the United States, especially at the state and local levels. France has many online consultative activities, as do the Scandinavian countries (see Swedish example below). The State of Queensland in Australia is developing extensive e-Participation tools through use of web sites, kiosks and other mechanisms to extend e-Participation. The British Government is actively pursuing ways and means to change the current methods cf representative democracy and to bring people into the system through the use of the new ICTs. In July 2002, the UK Government released their e-Democracy Consultation Report, In the Service of Democracy: A Consultation Paper on a Policy for E-Democracy, outlining their strategy on how they intend to modernize electoral procedures, and encourage greater citizen participation in policy-making and the processes of democracy: "The Government's e-participation strategy seeks to find ways in which new technologies can be utilised in the democratic process to connect politicians and the public between elections. The proposals seek to provide greater opportunities for consultation and dialogue between government and citizens." Thl! report emphasized that the goal remained the improvement of democracy not the promoting of technology. They see technology as an enabler, a tool to achieve policy goals, as opposed to the solution to a problem. The paper is a consultative document and funds were allocated for both the consultation process and the follow-up reports and implementation. It encourages citizens to send their comments on the proposals to the government, and offers the options of online or offline input - in writing by mail, fax, or e-mail to the Office of the e-Envoy, or by going to the website: http://www.edemocracy.gov.uk The consultation paper is an ambitious first step towards some form of democratic change from a national government.
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The two main thrusts of their democratic reform agenda are e-Participation and e-Voting, and the paper makes a clear distinction between them as follows: (1) e-Voting: The use of ICT to facilitate participation in
elections or other ballots under statutory control. This comprises e-Voting in: elections to the UK, Scottish and European Parliaments, the devolved assemblies and local councils; (ii) referendums; (iii) private ballots under statutory control. (i)
This track also includes online registration of voters and online application to be an absentee voter. (2) e-Participation: The use of ICT to open new channels for participation in the democratic process between elections. This comprises e-Participation of citizens in: government's policy process; the processes of policy-making, law-making and scrutiny by elected representatives; (iii) the processes of policy formulation in political parties; and other civil society organisations." (i) (ii)
With the aim of intensifying the engagement of its citizens, the city council of Kalix in Sweden conducted an experiment in online deliberation. It enabled the citizens to have online discussions with local politicians and each other and to give their opinions on the renovation of the town centre. Over a two-week period citizens could participate through the Internet, as well as through traditional means of communication such as the telephone, post and fax. Most (86%) of those participating chose to use the Internet. The citizens were also able to vote on the issue online. To ensure that only those entitled to do so could vote and that they voted only once, the council set up a password-protected website and issued a password to registered voters. For citizens without a computer the council arranged for PCs to be made available at schools and libraries.
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Approximately 1,200 of the 15,000 inhabitants participated, 72 per cent of whom reported the experience as a valuable democratic initiative. In November 2001, the government of Queensland, Australia approved a comprehensive community engagement policy and e-Democracy policy framework. The Queensland Government is committed to exploring the many new opportunities the Internet brings and to discovering ways in which this medium can strengthen participative democracy within Queensland. Their commitment, through a three-year e-Democracy trial, to extend opportunities for community participation in the democratic process via the Internet, included measures to: (1) post a number of issues on the website on which the
government desires wide consultation and feedback; (2) provide online access to government consultation documents relevant to those issues, such as discussion and policy papers, and draft bills; (3) broadcast parliamentary debates over the Internet; and (4) develop a system to accc:pt petitions to the Queensland Parliament online. An examination of their website shows an e-Democracy Unit established in the Office of the Premier. "They have broadcasts of parliament online and an online petition system operational (launched August, 2002). An online community consultation trial was launched in November 2002 to develop a standard mode'l, and these are expected to be running by mid-2003." Stephen Coleman reported that ten online consultation experiments undertaken in the UK, which produced some positive results, also found that the public: (1) is interested in political issues that directly affect them;
(2) wants to be heard but not necessarily take over the political process; (3) feels the political elite is difficult to reach; and (4) considers themselves' outside the equation'. He argued that just because a government has implemented online service delivery does not mean this will automatically
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lead to greater democracy. There is definitely a potential for the new ICTs to invigorate democracy but only if harnessed to achieve a 'two-way accountability'. In the second part of its consultation paper the UK Government lays out seven criteria of online consultations, which form part of the Code of Practice on e-Democracy developed by the Office of e-Envoy UK: (1)
(2) (3)
(4)
(5)
(6)
Timing of consultation should be built into the planning process for a policy (including legislation) or service from the start, so that it has the best prospect of improving the proposals concerned, and so that sufficient time is left for it at each stage. It should be clear who is being consulted, about what questions, in what timescale and for what purpose. A consultation document should be as simple and concise as possible. It should make it as easy as possible for readers to respond, make contact or complain. Documents should be made widely available, with the fullest use of electronic means (though not to the exclusion of others), and should be effectively drawn to the attention of all interested groups and individuals. Sufficient time should be allowed for considered responses from all groups with an interest. Twelve weeks should be the standard minimum period for a consultation. Responses should be carefully and open-mindedly analyzed .. and the results made widely available, with an account of the views expressed, and reasons for decisions finally taken.
Departments should monitor and evaluate consultations, designating a consultation coordinator who will ensure the lessons are disseminated. The 2002 study undertaken by the British organizations, SOCITM (Society of Information Technology Management) and Idea (The Improvement and Development Agency), discovered that e-Democracy initiatives carried out in smaller, local jurisdictions were much more successful than in larger states.
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An excellent example is taking place in the town of Jesi in Italy, where the development of a civic network has created a democratic space for discussion and interaction between citizens and ,government, and where the high number of visits to the web site and of citizen participation to the open debate testifies to its success. A second example, in the town of Grefsen-Kjelsas in Norway, demonstrated that although there is a high level of Internet usage and literacy, combined with an affluent, active and involved population, this does "not necessarily ensure swift take-up of e-Democracy" nor result in a wave of democratic renewal. Their e-consultations exposed the limitations of this method, showing that the Internet will play only a partial role in the consultation process.
Online Voting The British Government has maintained, since the last General Election in June 2001, that one of their main goals is to bring youth into the democratic process. The paper sees e-Voting and e-Participation through the use of ICTs as means to engage this age group. In the UK general election of 2001, 60 per cent of the total registered population voted, whereas only 40 per cent of those between the ages of 18-24. Given the nature of the Internet and the age groupings of those who use it (80% of the age group 16-24,70 per cent of the age group 25-44) the government hoped that ICTs could be an application to bring the younger voters into the democratic process in order to improve representative democracy. But participation overall was poorer than expected when online voting was tried in a number of electoral wards, in the May 2002 local elections across the UK: For example in Swindon, which mirrored most areas, only 10.8 per cent of the voters chose to cast their votes via the Internet from home, local libraries and council-run information kiosks. The 2002 Report nevertheless remains optimistic about the potential of online voting, although it recognizes there are other factors to be addressed as well. A recent study commissioned by Elections Canada, and
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done by Jon Pammett and Lawrence Leduc, of those who did not vote in the 2000 Canadian federal election, produced even more surprising results. Qualifying the 960 non-voters into those who: (1) had access to a computer;
(2) were 'very or fairly likely' to vote via the Internet if this were possible; and (3) were 'very or fairly interested' in the 2000 election, the survey found there would be only a potential rise of 2.82 per cent in the voting rate if Internet voting were implemented. The United States federal government and many states, especially California and Arizona, are working towards developing methodologies to achieve online voting. However, as the system of registration of voters is much different in the United States than in parliamentary democracies (the political parties register the voters not electoral commissions), online voting is seen as being further away from reality. In the US presidential election 2000, the Federal Voter Assistance Programme conducted a pilot of remote Internet voting among US military officers overseas. It used the Department of Defense's public key infrastructure to provide authentication. The pilot raised many issues, not least how to increase the size of the system for a larger population and how to ensure the usability of the chosen security system. Brazil, the world's third largest democracy, has been using computer-based tabulation to monitor the integrity of their elections for a number of years. In the 1990 general election in the state of Santa Catarina, the Brazilian Government first introduced the concept of electronic voting by having citizens cast their paper ballots and election workers entering the results into a computer system for tabulation. By 1996, after presenting identification at polling stations to verify eligibility, citizens used electronic voting kiosks to choose their candidates nationwide. By 1998, almost two-thirds of the voting population had cast electronic ballots in federal, state and local elections (Holmes, 2001). While this is not strictly online voting, it does
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enable the results to be published more quickly and accurately, and serves to educate the public in the skills needed for future online voting. Despite the fact that some governments are experimenting with online voting in the hope that more citizens will vote, it is inconclusive whether online voting will help to facilitate a greater civic participation in the electoral process, and indeed the Pammett/Leduc study suggests it will be minimal. There is no evidence as yet that the use of ICTs will rekindle involvement in representative democracy. What seems to be very much needed is a renewal of debate on the nature of democracy itself that will lead to a re-engagement of citizens in the political process. The use of ICTs would be but one small tool in this overall effort. Responding to government-initiated consultations is the most common means of trying to influence policy. However, ICTs offer the possibility of much wider and varied forms of participation. For the purposes of the proposed e-Participation policy the UK consultation paper sets out four main types of political activity and interaction: (1) Citizens and government.
(2) Citizens and representatives. (3) Political parties. (4) Civic activity. The UK paper recognizes that it is important to ensure that all sectors of society are brought into this new vision. It also addresses the issues of trust, privacy and security, three issues about which people have expressed anxiety when asked about their online activities. To this end it articulates very specific principles that need to be incorporated, and recognizes the importance of the inclusion of all, the building of trust, and the necessary policy issues to ensure that citizens will become engaged and that the goals of e-Democracy will be achieved. Seeking to find an interactive role for the citizen in an effective and meaningful way is one of the major challenges now facing governments. There is a clear understanding th"t the new ICTs provide the opportunity and the means to engage the
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citizen. The major obstacle governments will have to solve in order to meet this new challenge will be to develop administrative means and a sufficient back office, consisting of resources, funding, and personnel, to achieve this. Another task will be the finding of ways and means to tabulate and assess the responses received from citizens. New ideas require creativity and innovation. The movement towards online consultations within government, with concomitant pressures from an increasingly interactive citizenry, will test the capacity of governments to change. Providing the short answer to the question of what is the citizen's role in the e-Governance and e-Democracy equation, Stephen Coleman, in his opening address to a recent conference, warned that citizens felt they were 'outside the equation'. Ironically, it was Coleman who said in an online debate on new methods for democratic decision-making called, Boosting the Net Economy 2000: "All of this must be conducted by trusted bodies. Neither government nor commercial firms are sufficiently free of interests to enable them to build such trusted structures. " As shown above, there are continuing gaps between different layers of society, depending on income and place in the society, of those who are online at home and at work and those who are not. The digital divide of cyberspace in developed countries is a serious issue that governments are grappling with. Together with the extent of the digital divide, voter malaise, disinterest, and the public's cynicism about and distrust of their politicians and governments, it is uncertain whether the new ICTs, though they may have the potential to strengthen
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problem-definitions, backgrounds, professions, interests, values or traditions must find common ground, must build a shared framework within which they can work together." His is a vision inclusive of a broad public contribution, and his work is liberally referred to in a recent Privy Council Office (Canada) report. Yet in actual practice, based on the re-characterization of e-Governance as an elusive concept, and the exclusion of that broad public voice of different viewpoints, beliefs and backgrounds, from a seminal conference on the future of e-Democracy, that dialogue is in danger of taking place among the clites. Again, this is a fundamental issue, which has to be addressed by politicians and public administrators alike if e-Democracy is to evolve and encompass the majority of our citizens. If citizens are to be engaged online, the tools n('cd to be provided, the issues broadcast widely, the facts made clear and stated in a palatable, understandable form, access to the means for input given to those who will be directly affected by the issues, a safe public space provided for an informed debate, and rational incentives for the ordinary citizen to enter into them. There is some evidence in several countries around the world, as shown in the examples above, that if the leaders and politicians make the effort, people will respond. E-Democracy is in its nascent state and while we cannot accurately predict what shape it will take in generations to come, we do know that there will be changes. The key to the success of e-Democracy will be the participation and partnership of all the stakeholders in government and the citizenry alike.
4 E-Govemance Implementation: Lessons from Experience
Introduction Information and communication technologies can only enhance the transformation of work culture by serving a variety of ends: better delivery of government services to citizens, improved government interactions with business and industry, citizen empowerment through access to information and participation for decision-making, and more efficient government management. E-Governance is not only about introducing or using technological tools. It is fundamentally about a change in mindset and work culture in order to integrate government processes and functions to serve the citizens better. In this process, it is crucial the capacity of government to be open to criticism as well as the application of a new social contract, between all stakeholders, confirming a shared responsibility on the transformation processes. The respect for human rights and freedom of expression is essential to promote and maintain public participation in public consultation spaces. This implies that government personnel have to learn to network and to place people in the centre of the pulitical process.
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So, the effectiveness of leT in government is closely related with the capacity of governments to induce a culture of change placing networking within its institutions as instrumental to transparency and knowledge exchange and creation. It forces a rethinking of the way hierarchical structures are placed. The transition to a more horizontal government structure, where integration of functions plays a greater role, takes time since the main players need to change attitudes and behaviour as they acquire new skills and knowledge that make them confident in the work culture. According to recent data, there is a close relationship between levels of infrastructure development, education, democratization, political leadership and commitment to the principles of good governance and the level and quality of e-Governanc.e implanted in the countries. These are strong indicators of e-Readiness and the opportunity cost of such endeavour. The resulting benefit can be less corruption, increased transparency, greater convenience, efficiency, revenue growth, and/ or cost reductions, as well as increased legitimacy. Traditionally, the interaction between a citizen and a government agency takes place in a government office. With emerging infmmation and communication technologies it is possible to locate service centres closer to the clients. Such centres may consist of an unattended kiosk in the government agency, a service kiosk located close to the client outside the government agency, or the use of a personal computer at home or office. In all the cases the public traditionally looks for information and services addressing his/her needs and in both cases relevance, quality and efficiency are of paramount importance. Therefore, the establishment of e-Governance requires a good knowledge of the needs that exist in the society and that can be offered using ICT. One of the reasons why e-Commerce is well positioned even in countries where e-Governance still lags behind, is that customers know what products and services they want and sellers know what and how· they can deliver those. The development of e-Governance includes (1) publishing, (2) interaction, (3) transact. These activities aim at: broadening
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access to government information such as laws, regulations and data; increasing public participation in decision making through, for example, the publishing of e-mail addresses of government officials and online forums; making government services more readily available to the public through e-filing of government documents, online permits. To date, most effort, in e-Governance, is centred on publishing and not in the subsequent phases of interaction and transaction. Governments, particularly il'! developing countries face limited resources to move fast in e-Governance, so a strong partnership between the public, government, business and the civil society is instrumental in determining the expected outcomes and the effectiveness of e-Governance.
Mozambique's leT Policy The Government of Mozambique, after lengthy consultations with a variety of stakeholders defined in its leT policy six priority areas, which are all related to its main objectives as defined by the Poverty Alleviation Programme (PARPA). These six priority areas are: (1)
(2) (3) (4) (5) (6)
education; human resource development; health; universal access; infrastructure; and e-Governance.
E-Governance is one of the priority areas but in fact can only be effective if is accompanied by interventions in the other areas as well: provision of information and services through the internet makes sense only if a substantial part of the citizens has access to the net, which, in turn, requires the development of infrastructures and human resources. Thus, the priority areas are interrelated and interdependent. E-Governance, according to the policy, will improve the quality of services at the different levels, increase speed, and efficiency as well as reduce costs. A process of reform in the pUblic sector is taking place. This reform aims to analyze and
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r~essons
from Expt;!rience
redesign the functions performed by each unit of work and ministry, exploring ways in which integration is key and takes into consideration the organizational structures and processes, information systems and the human role with the goal to enhance value, quality and efficiency to the Public Administration. ICT is placed high as a tool to improve service delivery within government and to the public, however, the change process requires a management system ready to address the transformations on the organizational culture. For instances, the lack of improvement in the management of government information would lead to reduced effectiveness and efficiency in delivering government programmes and services; reduced opportunity to improve services; decreased information quality; loss of public trust and credibility; inability to demonstrate accountability even if ICT are used. In order to advance with e-Governance programme, surveys are being carried out in the different government institutions to assess the e-Readiness and to establish the capacity building programmes necessary for the future. The implementation strategy is also addressing areas such as project management; coordination and integration of ICT related activities; the conceptualization of the legal framework for telecommunication and ICT usage; and a strategy for integrating all e-Governance initiatives. Different projects have been formulated C'Tld are being implemented:
GovNet-the government's electronic network that will link through a intranet the central, provincial and local government bodies. (2) SIP 2000-a standardized registration system for all civil servants. (3) e-SISTAFE-standardized and computerized system for the administration of public finances, including electronic payments of salaries. (4) Computerized land register-the creation of a cadastre (land register) at the national, provincial and district
(1)
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(5)
(6) (7) (8) (9)
149
level, which will be easily updated and accessible and verifiable. Civil identification system-a system that will facilitate the emission of identification cards and include a register for all citizens. Mozambique Development Gateway. Health information system. Electoral Management System. One Stop Shop for Government transaction.
E-Governance in Mozambique and the Implementation Challenges
Mozambican Government in the Internet One element of e-Governance is the visibility of government on the Internet. This visibility, similar to e-Commerce, increases possible demand on government services. This visibility can be very general, such as a web page where information about the country is made available to possible clients, ranging from tourists to enterprises, or more specific, i.e., making public the activities of a particular government agency. Five years ago, the use of the Internet by government agencies was extremely low. Some ministries did already use e-mail. However, e-mail is, by nature, a more personalized form of communication, and is not intended to serve the communication needs of the broader public. Since then, and as part of the ICT Policy, a concerted effort by the government, the Eduardo Mondlane University (UEM) and private agencies has lead to an increased presence of the government on the Internet. There is one central web page (www.govmoz.gov.mz) from where all government agencies can be reached. Moreover, there is another page (www.mozambique.mz) where general information on Mozambique can be found including government information. This page is designed to serve a broader, foreign audience willing to invest in or make a visit to Mozambique. Both pages are maintained by the Centre for ICT (CIUEM) of UEM. At the same time, individual ministries are creating their web pages and developing a service platform.t.o the public with their own resources.
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E-services Whereas six years ago, e-Governance was non-existent in Mozambique, in the mean time, many government agencies have entered into the digital era. In Table 1 we list 25 central government agencies and provide information as to their accessibility bye-mail address published in the web. Seven out of 25 ministries have published their e-mail addresses on the central web page of the Mozambican government or on their own web page, although all of them have email addresses that are used not only inside the government but also with personal interaction with the public. Nine ministries do not have a web page. Some of the existing web pages, however, do not cover the entire ministry but only one or two directorates (e.g., MOPH, MPF, MIREME) and four websites arc still under construction. Only three ministries offer a website that covers the entire institution (MINED, MESCT, Youth and Sports). Most pages arc in Portuguese, although some (MIREME, MOPH) use English as well. The information offered cover essentially: (1)
(2) (3) (4) (5) (6)
information about the organization; contacts; agenda of the Minister; events; laws and regulations; policy statements.
Some ministries offered other services in addition to those indicated above and are starting to move into e-transacting. For example, MESCT allows for the download of forms and other documents of public interest, consultation of the final results of science competitions, competitive funds and fellowships. In addition, its web page is also used to promote debates on public policies related to the work of the ministry. The public, in general, can send comments about a proposed policy and their comments not only are used to revise the documents on discussion but can also be accessed by other participants in the debate. This method was very successful during the design of
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Table-l The State of E-Govemance in Mozambique
Agency
E-mail WebAddress site in the Web Page
Presidency Prime Minister Ministry of State Administration (MAE) Ministry of Agriculture and Rural Development (MADER) Ministry of Former Combatants Ministry of Environment (MICOA) Ministry of Culture Ministry of Defence Ministry of Education (MINED) Ministry of Higher Education, 5&T (MESCT) Ministry of Industry and Trade (MIC) Ministry of the Interior (MINT) Ministry of Justice Ministry of Youth and Sports Ministry of Women and Social Action (MIMUCAS) Ministry of Foreign Affairs (MINEC) Ministry of Public Works (MOPH) Ministry of Fisheries Ministry of Planning and Finance (MPF) Ministry of Mineral Resources and Energy (MIREME) Ministry of Health (MISAU) Ministry of Labour Ministry of Transport and Communications Ministry of Tourism (MITUR) Ministry for the Presidency and Diplomatic Affairs
N N N
N N N
N N Y N N
Y N N N N Y Y N N N Y
y*
Y N N N Y Y
y**
Y N N N N
y**
N N Y N N
N N
Y y**
Y Y
y**
Y N
* Not mentioned in www.govmoz.gov.mz ** Under construction
•
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our science and technology policy. The added value brought by this me~hod of knowledge exchange and creation through networks, was a successful experience that can be used for a strategic planning and implementation of more shared public spaces. In order to address some of the needs of MESCT's clients it is possible for the public to use the computer room at the ministry to access relevant information related to our services and to higher education, science and technology in general. Unfortunately this service is only offered in Maputo. Maintenance of the pages seems to constitute a problem with few exceptions. Although e-Governance is advancing only four, out of the 25 ministries, use at least up to a certain level all facilities that the Internet offers: information, communication, services. Few transactions or deliveries are done through the Internet, and for most services it is still necessary to visit the physical structures and deal directly with civil servants at the ministry's offices. Moreover, key service providers such as the Ministries of Agriculture; Fisheries and Mining (exploitation rights, land titles, etc.) do not yet use the Internet for the provision of these services. Several public agencies such as the Central Bank, Customs and the Centre for the Promotion of Investments (CPI) also operate on the Internet. Another key agency is the National Institute of Statistics (INE). Through its web page one can access up-to-date information and statistics on demography, poverty, health, macro-economic indicators. INE is currently working on the construction of an interactive system where data will be stored in a data warehouse and accessed through multidimensional tables. This system will offer almost complete access to relevant statistical information to the public. Mozambique's government has embarked on a road to a more intensive use of ICT in administration and in improving the contacts between the government and citizens and has built the initial basis for the full implementation of the e-Governance programme.
Connectivi ty Although over the last decade a rapid increase has occurred
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in the access to telecom services, connectivity remains a serious problem. Currently, teledensity is about 7.6 fixed phone lines per 1000 inhabitants. The cellular network, now operated under two competing licenses, serves approximately 560,000 people and covers according to one of these providers almost 25 per cent of the national territory. However, it should be stated that coverage is often deficient and that geographical coverage and capacity is limited, mainly, to the capital, Maputo, along the two principal international corridors (MaputoSouth Africa and Beira-Zimbabwe) and in some tourism development areas such as Xai Xai, Bilene, Vilanculos and Mozambique Island. Internet access is even more restricted. In Maputo City, a Television Cable operator has expanded into offering fast, broadband, Internet services. However, its action radius is restricted to the heart of the City and does not reach the outskirts. This provider is working on expanding its operations into Maputo's satellite city Matola, but these operations are still very small-scale. An optical fiber connects Maputo, the capital, to Beira, the country's second most populated city. VSAT connections are being established in most provincial capitals as part of an effort to expand e-Governance into the provinces. Moreover, one of the major Internet operators has opened local facilities in all provincial capitals reducing significantly the costs of those who depend on dial-up connections. However, the capacity of these lines remains small. Indeed, for the government it is easier to do the investment in hardware, than to sustain the recurrent costs of maintenance and phone bills. The connections currently on offer with a quality that enables a government agency to act on and through the Internet surpass national carrying capacity. The Quality/ Cost ratio is normally more favourable in Maputo, implying that it is more difficult to use ICT to strengthen the vertical connections in ministerial organizations that link district and province and province and capital. As a considerable part of the citizens lives outside Maputo, it is of key interest that cheaper solutions are found. Currently, several alternative options are being studied to
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improve coverage. These options range from the use of the power network through wireless connection through the use of mobile stations, e.g., similar to the Citizen Assistance Service Centres in Bahia, Brazil.
Relations between Public and Private Sectors The expansion of ICT in government structures requires the establishment of new infrastructures, the purchase of new machines, and expanding education and training in ICT to provide the required knowledge and skills. Privately owned corporations offer these goods and services. Software can be bought from corporations/companies such as Microsoft and Oracle, who also provide the required training of the engineers who will manage the systems. Hardware can be acquired from Dell, IBM and many others. National companies such as Mcel, TDM, Teledata and Virconn build the necessary infrastructures, whereas foreign companies control access to gateway to the Internet outside Mozambique. Thus, the expansion of e-Governance implies automatically the establishment of strong and long-terru relationships between the public and the private sector. This requires the establishment of a regulatory framework that promotes these partnerships. One may ask what shape that relation should take. One option is for the Mozambican government to wait for the emergence of a significant private demand and ride on the infrastructures put in place in response to that demand. However, in a country such as Mozambique, with low income, high illiteracy rate and low level of private demand, might be insufficient to justify a rapid expansion of quality Internet connections into provincial and district capitals. Indeed, today an operator that offers a broadband connection-TVCaboonly operates in the centre of Maputo City, where 88 per cent of the access to the Internet in the country is concentrated. With the private demand lagging behind, it appears that the relation has to be reversed and that the government will have to drive the creation of the infrastructures that will enable the expansion of ICT in°to the provinces and districts. However, a cash-starved government such as that of Mozambique is
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unable to sustain the full load of such investments. It will have to try to create partnerships, with the private sector, and attract private long-term investment through the creation of enabling conditions and incentives for such participation. This makes the e-Governance project very dependent on the assessment these companies make of future gains. At this stage, e-Governance in Mozambique is highly dependent on donors' support. Some countries and multilateral agencies have, through their development agencies, pledged funds for project that support the expansion of e-Governance in Mozambique. Sustainability is an issue placed high in the government agenda for it is the government role to support the demand growth that will lead to reduced costs and build the necessary human capacity to run, efficiently, the system. The Mozambican government has established partnerships with different enterprises such as Microsoft, Oracle and others to provide the hardware and software infrastructure necessary and build the required expertise for the implementation of components of its policy towards various sectors and also as to e-Governance.
The Demand for Intemet Services It is extremely difficult to estimate the need for e-Govemance services. One of the possible indicators of that need for e-services is the level of use of government's websites. Unfortunately, no systematic inventory of this use has been made. The only available data is from MESCT. These data show: (1) A considerable monthly variation in the number of
visits, ranging from only 431 in December 2003 to almost 6000 in April 2004. (2) There is a considerable daily variation, with a low number of visits during weekends and public holidays; this suggests that most visits are either made from an office or for professional aims. However, almost 40 per cent of all hits in the month of May were outside office hours, between 17.00 and 08.00, suggesting a considerable private capacity among MESCT's current audience to access the Internet.
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E-Governance Implementation: Lessons from Experience (3) The most visited pages are those that provide information about grants, academic degrees and the Internet competition on math equations. (4) Downloaded documents correspond typically to services provided by MESCT (Quality and Innovation Fund, study grants, etc.). (5) In May 2004, MESCT's website was visited by 2,386 different computers (URL's). (6) Thirty URL's were respons\ble for 27.6 per cent of the hits; out of these, 6 URL's were internal (MESCT).
These data, obviously help us little to understand to what extend MESCT is reaching and serving its clients through the Internet and the mechanisms that determine whether people will use it. It does show, however, that in one Month (May 2004) its page was accessed by at least 2,310 computers from outside the ministry. Taking into consideration that MESCT caters for a rather small universe (17,000 university students, 1,800 university staff and 500 researchers at research stations), it seems that in this case its web page is, indeed, serving a considerable demand.
Standardization and Norms E-Governance concerns basically the integration of procedures and information. Such integration can only be successful if a common vision is created about the key concepts and if procedures are standardized. Currently, MESCT is engaged in building an integrated system for the higher education sector for data management and storage. This system would bring together higher education institutions in one network, which would be more cost-effective than having the rather small institutions developing individual solutions. However, to do so, the institutions will have to standardize concepts and proced ures. In this particular case the usefulness of standardization is not restricted to the computerization of management. MESCT needs to monitor the development of the sector to be able to assess the effect.iveness of current policies and to design new strategies. Thus, the need of the government to standardize
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concepts and procedures is completely compatible with the digitalization of the sector. The same is happening to E-SISTAFE and to SIP, projects under the Ministries of Planning and Finance and State Administration.
Rapid Development of ICT We are often led to believe that digital storage of information is safer than the conventional way, on paper. However, this claim is highly debatable. Although paper may decay, eaten by insects and fungi or be burned, digital information carriers are no guarantee for safe conservation over a long period of time. Actually, the preservation of electronic information poses a significant additional challenge: (1) Digital data are subject to different forms of decay.
Similar to conventional paper records, they are subject to material decay caused by the degeneration of its material support. A disk may suddenly turn Ifaulty' and the information it carries is lost. (2) Whereas the life expectancy of some of the digital information carriers is surprisingly short, traditional forms have survived centuries. Today we are still capable of reading the writings left behind in the pyramids of Old Egypt, although its scripture is no longer in use. Digital data, however, suffer from a very fast technical decay. This technical decay is due to the gradual upgrading of the software and machines that are used to read it. We all have the experience of having databases written in programmes languages that died out, and the incompatibility between programmes from different providers or even between different versions of the same programme. Thus, a document we saved ten years ago in WordPerfect may no longer be accessible because our current version of word no longer recognizes the text.
Economies of Scale E-Governance is not a cheap solution. The investment in
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equipment and the recurrent costs related to maintenance and connectivity makes it an expensive endeavour. The unit costs of this investment can be brought down if economies of scale exist. MESCT's endeavour to create an integrated system for the higher education institutions is a good example: bringing together the public and private institutions will reduce costs and improve efficiency. As the project encompasses campuses and institutions in different parts of the country, it will imply costs of connectivity, but as these connections will be used for other aims as well, such as offering Internet access to staff and students in parts of the country where such access is very restricted or non-existent, the added value may justify the investment. The eLonomies of scale may surpass the restricted dimensions of government institutions, or even, as in the case of MESCT's project, that of the main stakeholders. Bringing VSAT or other wireless options to a university will offer third parties, e.g., private enterprises, an opportunity to engage in using leT. In that case, the government will act as a catalyst, triggering the expansion of access to leT. into the country. Even with economies of scale e-Governance could be seen as a wasteful tool if it is not able to respond the people's interests in consultation and participation. If e-Governance is well targeted, it will not only enhance the capacity of the government to respond to these interests, but it :will also create new demands and stimulate a more active participation. In certain cases, scale may be an additional instrument to improve the balance between costs and benefits.
Need for Know-how E-Governance requires two types of know-how. One concerns the normalization and standardization of concepts and procedures. The other concerns the hardware and software related to the use of leT. Both needs are sine qua non and have to be addressed if e-Governance is going to have any success. In the particular case of Mozambique, one should emphasize that know-how is extremely restricted. Mozambiql1e has approximately 60 university graduates in computer sciences.
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There is a considerable demand for these graduates. Government agencies find it difficult to compete with the NGO and private sectors be,cause of budgetary restrictions and lengthy bureaucratic recruitment procedures. Moreover, investing in their upgrading may be rather risky, as this will raise their market value and therefore increase the risk of their departure to a better-paid position outside government. Table-2 Number of ICT Related Professional in Government Institutions Professional Training
Women
Information Technology Technician Programmers and System Operators System Engineers B.Sc. in other areas System Analysts
Male Total
12 2
35
47
o
4 5
5
19
6 5 24 1
o
1
Reference: National Commission for ICT. The government is aware that leT is crucial to the country's developmental goals, and through the ICT implementation unit is organizing training and awareness courses to the civil servants, planners and policy-makers. Recommendations Based on the Mozambican case we can say that, the use of ICT to improve government efficiency and transparency dependents how well we tackle important areas such as:
Improvement of Information Management Too often the introduct4m of ICT and the construction of web pages is seen as an objective on its own. However, the success of these endeavors depends largely on the capacity of government bodies to manage the information under their control. This requires standardization of concepts and procedures, as well as the creation of secure storage systems, back-ups and redundancy. Digital data may prove hlghly
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volatile and entrusting archives to hard disks might be the securest way to their loss if preventive measures are not taken.
Improvement of Services to the Public E-Governance is citizen centered. Obviously, putting a computer on somebody's desk is not enough to shift the focus of government to the citizen. To achieve this, one has to change the existing organizational culture. Civil servants should realize that their work is indeed a service to the public. Improvement of attitude requires a cultural change that can only happen if the leadership fully understands and supports the need for attitudinal and behaviour change.
Improvement of Education Level To guarantee that the people can exercise their citizenship one needs an educated citizen. The -technology used in the processing, storage and publication of data and in the transactions with the citizens is a secondary issue, it is the capacity to interact between the citizen and government, that will guarantee the .quality of services. Every person has the skills and knowledge that are relevant to his or her survival. To equate an uneducated society with a society without knowledge is therefore totally ludicrous. However, survival in a period where the world has shrunken to a village and ICT are increasingly permeating the different aspects of life, makes it necessary that people acquire the knowledge and skills to fully benefit from these technologies. For that reason, it is necessary to invest in raising the level of education of the population. The use of ICT is heavily dependent on literacy and related skills of reading information in computer screens.
Adequate Technological Solutions Currently, different options exist as to the various aspects related to ICT and it is likely that in the near future new options will eIl1:erge. It is up to the government to find the different combinations that respond adequately to the geographical, cultural and educational diversity existing in Mozambique.
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The efficiency of ICT usage depends on increased teledensity and mobile penetration and the scale-up of initiatives such as the development of mUlti-purpose community centres and e-schools.
Possible Causes of Failure: An Evaluation (1) Planning to Fail or Fail to Plan: The first step in any
project is to plan the project. The success of the project will depend on the skill and expertise with which it is planned and conceptualized. It is often felt that Government Department shy away from spending a few lakhs in preparation of project plans for eGovernance projects worth hundreds of crores. And at times unskilled individual decides the plan and they plan fail. The plans are made without clear objectives, unclear roles and responsibilities. There are no parameters for financial controls. Areas like risk assessment, feasibility assessment, prioritization and strategy are not even thought lest be addressed completely. So, whereas there exists no plan in some projects, in others the planning is done for failure. (2) Mission hrpossible: Another cause of project failure is to visualize the impossible. The project consultants as hired by various Government Departments generally promise the moon to the departments. They expect that whatever they suggest will be implemented in government without realizing the fact that the government has its on limitations. At times there are procedural and departmental constraints, other times legal constraints and at times even constitutional constraints. Consultants without even realizing the ground reality propose solutions which are redundant, non practical and non-achievable. As a result their reports lie in the shelves of Government Officers catching dusts. There always exists a vision and reality gap between what is proposed and what can be implemented. The initial over expectations created by consultants leads to difficulties in managing customer
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E-Governance Implementation: Lessons from Experience expectations later. The reality and vision gap is the second step towards e-Governance failure (3) Misunderstanding Governance: The consultants taken by the government at time totally misunderstand the governance process and the institution of government. They do not realize that the government will be governed by constitution and the laws therein. A simple example from India is that the consultants most often suggest centralized e-Governance solutions without realizing that India is a federal state and there is clear distinction of subjects between state and centre in the constitution. To implement a solution as suggested by them will require constitutional amendments which are not easy to implement. Consultants feel that government will change according to the solution suggested by them. They have an impression that government has to fit into their solution and not vice versa. In reality they have to actually ensure that their solutions fit into government needs. Further the consultants do not realize that government is a complex structure which has existed over years and any big changes are very difficult to implement. There are other political, social, economic, security constraints for the government leading to certain changes totally unacceptable. Therefore whatever solutions are suggested have to be after proper understanding the government and its complexities. Misundersting government and governance is third step leading to eGovernance projects to fail. (4) Bottleneck is at the Top of Bottle, Always: It is often sited that the project has failed because the staff at the lower level is not ready to adapt to the computerized environment. However in Indian scenario the success of computerization in Indian Posts, Indian Railways and Public Sector Banks has proved otherwise. Therein the staff at the bottom is also using computers and the changes are very fast. Then why the changes in various Government Departments are not taking place. It is
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more because of the top leadership. The departments in Government of India are mostly headed by individuals who are near to their retirement. Majority of the Secretaries, as they are termed have just few months in service and therefore they are not keen on any new initiative or a reform process. This has been happening since many years. The top officials are lovers of status quo and develop resistance to change. With no support from the top leadership the e-Governance projects do not get encouragement and therefore meet death. Further, even if one secretary is reformist there will be new secretary to take his place within two months who will bring back the British legacy of working. Further, at times there are individuals and vested interests who try to de-rail the projects. At time the leadership appointed for project coordination is inadequate and unskilled. The resistance created by top leadership is the fourth step towards e-Governance failure. (5) Vendor Driven e-Govemance: It was a shock to the whole nation when one of the leading names in consultancy published a report and stated that e-Governance in India is Vendor Driven. It was then realized that in multiple e-Governance projects the vendors for hardware, databases, operating systems, software applications, etc., were driving e-Governance. The Government Officials in most cases were mislead to believe that the vendor's solutions were the e-Governance solutions. Not to say what made Government Officials to believe those vendors. Vendors in a quest to sell their solutions, sold anything and every thing to the government. The author recalls that in an instance multiple copies of Voice to Text software were bought by a Department as e-Governance application. Needless to say, they were n~ver used and Personal Secretaries continued to take dictations. Vendor driven e-Governance therefore is the fifth cause that leads to failure in e-Governance projects.
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E-Governance Implementatio'l: '~essons from Experience (6) Focus on Ie' than Governance: Every seminar, every author, every Government Officer stresses that e-Governance is more about Governance than 'e'. However, the implementers in government have not realized the importance of same. Majority of the nations across the world have their e-Governance initiatives spearhead from the Ministries of Information Technology, as if e-Governance is about IT and not Governance. It is not realized that for successful implementation of the e-Governance programme the programme managing unit must be placed under the Prime Minister or the President to lead to successful implementation. The team for this programme management unit must comprise of individuals with experience in diverse government background. In many countries it had been observed that the teams are drawn from electronics and IT background which may lead to skewed implementation challenges. Further, it must be realized that e-Governance is beyond Internet Governance. In a nation there are very few people who have access to internet and very few who are internet users amongst them and further few who use internet for e-Governance. Therefore e-Governance solutions must be planned with multiple access facilities. Focus on IT and electronics is the sixth and most important causes of failure of e-Governance. (7) Employees as Stakeholder Universe: Majority of the projects take government employees as the only stakeholders. The consultation process happens with the senior government employees and rest stakeholders are neglected. The Government Departments feel that they know all the requirements of the stakeholders and therefore it is useless spending time on such project. Despite the lectures on outside in approach, the projects are actually conceptualized on inside out approach only. It is only the senior employees who take the decision. Further at times the Departments are even scared that if they get into stakeholder consultations
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there will be lot of resistance from other stakeholders and the project will end before it takes off. The Departments in this case do not realize that they will face higher resistance from these stakeholders at the time of implementation and they will also not be able to capture their needs properly. The Department/ Client remains satisfied with the consultant for it is giving answers to all the problems of one stakeholder that is the project leader or in better case his Department, neglecting other stakeholders. The con'lultant is happy because it is saving its time and resources on stakeholder consultation. Therefore, the stakeholder universe limited to employees is another cause of failure. (8) Lets Build Rome in a Day: Most e-Governance projects arc given unachievable timelines. Most of the time Ministers or leaders make announcements and the deadlines than the quality become key challenge in project implementation. For a project to be successful and error free minimum time is required. Taj Mahalthe Best Project in the world-took 17 years and 20,000 workers to be completed. Even though we may not require 17 years now but two to three years is minimum time for an e-Governance project to actually be ready to be launched from its planning. It may take another two to three years for training and adoption of the project by all stakeholders. A change is not easy to implement and we must be patient in implementing change via e-Governance. The time taken will further help to improve and rectify the project. Unachievable timelines and race to achieve them is further a cause vf e-Governance failure. (9) Individualized (not institutionalized) Projects: Most of the e-Governance projects are individual driven. There are even statements and suggestions by various Government Departments that the tenure of e-Govcrnance project leaders should be fixed for the timeframe of the project. But the approach of individualizing the projects is not appropriate and leads
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to project failures. The project leaders who institutionalize projects are better project leaders than anyone else. The projects which are driven by individual!> die after the individuals leave the organizations. But projects which have been institutionalized stay for ever. The National e-Governance Plan in India has been institutionalized by setting up of an e-Governance Programme Management Unit (EGMPU) which is one of the initiative towards institutionalization of e-Governance in India. However, the states still follow the individualized e-Governance which leads to failure after the e-champions leaves. (10) Procedural Loops: The procedural loops are another hindrance in the e-Governance project implementation. All projects need to go through a competitive bidding process which may take even more time than the implementation of the project. At times the project approval time is even more than the implementation time. There will be an EOI advertised, there will be an expert committee to evaluate, RFPs will be released, Pre-bid Conferences held, Project consultant is selected then financial approvals are taken and so on. There will be a steering committee, a standing committee, a working group and many others who will involved in just the approvals and procedures of the projects. At times the project files keeping on moving between one department and another or one table to other. Such procedural delays often lead to failure of projects. The government procedures are highlighted in following statement: liThe Government has this morning formed an anticorruption squad to look into the conduct of the anticorruption commission, which has been overseeing the anticorruption task force, which was earlier set to investigate the affairs of a government ad hoc committee appointed earlier this year to look into the issue of highlevel corruption among corrupt government officers."
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(l1)Witch-hunting Reformers: Witch hunting of the reformers is another constraint in e-Governance implementation. The reformists generally take decisions for quick implementation of the projects but later face various inquiries from various agencies and seniors. But that does not mean that the individuals who commit frauds in name of reforms should be let free. One criteria that can easily distinguish a true reformist from a fraud is the success/failure of e-Governance initiatives. Individuals who collide with private sector will not be able to give any result in the projects. Author recalls from his personal experience that one of the Department finally closed many such initiatives by individual who was misleading nation in name of reforms and e-Governance. However, author also recalls certain vested interest launching a media campaign, e-mails against true champions of change. Should we decide the project success based on the feedback or satisfaction of two crore population on ground or comments of two individual online is to be thought of. Such misleading stories about individuals actually lead to a hindrance in development ot nation and dampen the spirit of change leaders. No, individual thereafter comes forward to support the change. These vested interest who loose with change actually launch such campaign for their on personal gains and the vested / politicized media supports such individuals who sabotage the change process. Based on such reports the government agencies launch witch hunting the reformists and thereafter every new project leader is sacred to take projects. The e-Governance actually falls flat on such witch hunting. "The reformer has enemies in all those who profit by the old order, and only lukewarm defenders in all those who would profit by the new." (12) Front-office vs. Back Office e-Govemance: Unless the back end integration of systems take place, the front end efforts may not lead to any success. The integration
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Exp~rience
of various departments, supporting applications and databases is must for true front office results. However, in most cases various kiosks are established as example of e-Governance in states. Such kiosks devoid of any backend integration just act as internet cafes or movies theatres. The true e-Governance application will be achieved only when the front office is integrated with the' backend application. Creating front offices without any back office integration is another cause of e-Governance failure. (13) Unsustainable Business Model: Any business model which is not self-supporting is never everlasting. The same applies to e-Governance projects as well. The government subsidized/funded projects may sail through for sometime but in long run may not sustain themselves. The projects actually require a business case, wherein even the private partners can participate and take the responsibility of project success. (14) Media Hype and Media Bite: Many project leaders today are taking projects to create media hype. They announce various initiatives just to remain in news. Projects are announced even before they are ready to be launch thereby creating lot of hype and over expectations amongst stakeholders. And .as they say the bubble burst sooner or later, the true picture of projects is revealed with time. Not only the media hype is disadvantageous, so is the media bite. Many projects face problems wherein media over blows small errors. We must realize that e-Governance is emerging area and it will be with these errors that the future systems will improve. However, with false reporting in various media the projects many time faces lot of problems leading the project leaders into lot of problems. (15) e-Governance - vernance = EGO: If we remove 'vernance' from e-Governance only e-Go is left. And one of the important cause of failure of e-Governance is EGO. Herein ego is not only of the individuals but of Government Departments as well. At times the line
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departments do not cooperate with the IT Department and feel that it is interference in their functioning. At times there is even conflict amongst various departments for the subject allocation of e-Governance. All this lead to lot of EGO clashes and at times failure of e-Governance implementation. And in case a junior officer hurts the ego of a senior officer than he may be even thrown out leading to jeopardized e-Governance. (16) Silos of Success: There are many e-Governancc projects which are successful as silos but when the integration with large projects is required these projects fail to deliver. Therefore the projects need to planned in such a way that tomorrow they may be integrated with other projects. It is easier to achieve a pilot say, on e-district but when it comes to full scale roll out of the same it is difficult. Similarly hundreds of NGOs have implemented many pilot projects based on kiosk model in India but have failed to roll out such projects. The projects succeed in the controlled environment but fails beyond it. The failure is evident not only with exceeding boundaries but also with time. One of the international award winning project of India died a natural death within few years. Therefore much e-Governance failure may be attributed to silos of successes. (17) Politics of e-Govemance: The vote bank politics and politics of governance is another cause of e-Governance failure. One of the former Chief Minister in one of the states of India, discarded computers as fad of riches. His voters who constituted mostly of illiterate population of the state would not have got any advantage of e-Governance and therefore he would not have got any votes out of IT. No doubt the state remained the last in the annual e-readiness assessment done by the Union's Department of Information Technology. Many initiatives initiated by one of the reformer and former Chief Minister in a southern state in India were rolled back or scaled down by new CM. In one of the projects in the capital state of India the
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opposition took charges of corruption up to the legislative assembly. In another case a PIL has been filed by certain vested interests to derail a prestigious project of a southern state. At times there are politics amongst the officers as well wherein one officer tries to sabotage projects initiated by another. At times rumours of corruption are spread by various vested interests. The politics of e-Governance is a very important aspect and should not be neglected else it may become a cause of e-Governance failure. (18) Award-driven Projects: Certain e-Governance projects are now started just for getting nominations in awards. They are conceptualized with a view that they fit into the category of awards of various international agencies and national departments. More importance is given to writing project entries than the implementation of projects. The multiplicity of such awards have further added to above problem of award driven initiatives. In India the e-Governance awards are instituted by many organizations--one of the GOI department, one national IT magazine, one of the IT association, one of the consultancy organization and may be many more. Last year the Department awarded as many as twenty-five awards. Further, the awards are generally awarded by the project entry as submitted and not by ground level investigation. This leads to e-Governance leaders spending more time on making award entries than implementing projects. A project may be highlighted as an award winning project abroad but at ground level it may have failed to deliver any benefit to stakeholders. Further, the actual successful projects are not even awarded. The race for awards may at times become a stumbling block in e-Governance success. (19) PPP Misinterpreted: The concept of PPP is often misinterpreted to mean Public Money for Private Partners. In fact, the projects where the private partners
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are dependent on government money are not true PPP projects. True Public Private Partnership is an equal investment of private partners in government projects. This partnership may be in form of manpower, technology, resources etc. However various groups interpret that by involving the private partner the government is draining public money to private partner. Therefore care must be taken on proper implementation of such partnerships. A failure in associating with a right partner may lead to project failure. (20) Big Bang e-Govemance: One needs to learn to walk before one starts running. The radical changes in government through e-·Governance may lead to lot of resistance to change and there governments must opt for sequential change. Radical changes may fall as they are difficult to implement and may lead to lot of resistance. The best approach in e-Governance implementation is to think big, start small and scale fast. The big bang approach must be avoided as it may lead to failure. (21) Neglected Advocacy: Inadequate stakeholder communication and la(:k of advocacy is another step towards the failure of e-Governancc initiatives. The neglected advocacy may lead to gaps in perception in various stakeholders and their expectations. The advocacy efforts right from the beginning will help the project acceptability at a later stage. Advocacy is necessary even for the internal employees of the organization. The champions of change may lead an advocacy campaign for the e-Governance project acceptability. Neglected Advocacy is a big cause of e-Governance failure. (22) Budget Utilization Syndrome: The annual budget allocation for any head in Indian Government lapses at the end of each financial year. Further, if funds allocated in one year remain unutilized it is very difficult to get
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funds under the same head in the next financial year. Majority of the Government Departments who have IT funds allocation therefore spend a lot of funds on purchasing of hardware in month of March without realizing that the hardware as purchased will be required for future or not. This race to spend funds without purpose defeats the purpose of many e-Governance initiatives. The project runs into costs overshoots because of purchase of unnecessary hardware. The hardware becomes technologically outdated by the time the application is developed. The budget utilization syndrome is therefore another cause of e-Governance failure. (23) Large, Complex Centralized Systems: Visualizing large cO!l1plex ('entralized projects may also lead to project failure. Such projects not only take long time to implement but because of their cross departmental linkages are difficult to implement. Projects which spread over various levels of government are further complex and complicated. The integration of Federal, State and Local Government is not only complex but difficult to implement. Therefore the feasibility of such projects is the most important in the whole process. The projects have to be implemented with proper planning otherwise these large, complex and centralized systems may fail to deliver the local needs. (24) Reverse Re-engineering: Reverse Engineering is a concept wherein a solution is already suggested and then the need for that solution is analyzed. In one of the project a department suggested they have decided to give smart cards to its stakeholders and wanted an organization to suggests which cards may be given and what application may be incorporated. The department failed to understand that the smart cards may not actually be the right solution for the needs of their'
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stakeholders. Such reverse re-engineering is not only fatal but leads to project failure. (25) Blame Game e-Govemance: Everyone takes credit for success and no one takes responsibility for failure. There are e-Governance projects which may end up in some bottlenecks and at time are handed to new teams. New teams instead of building already fallen system generally start a blame game that the previous team did this and that. The system lacked such multiple applications, is having security loop holes, etc. The first team blames the second and second the first. The blame games ends up in complete failure of the project.
5 E-Govemance in India: Vision and Strategies
Introduction Department of Information Technology (DIT) is responsible for: (1)
(2) (3)
(4) (5)
(6)
Policy matters relating to Information Technology; Electronics; and Internet (all matters other than licensing of Internet Service Provider). Promotion of Internet, IT and IT enabled services. Assistance to other departments in the promotion of e-Governance, e-Commerce, e-Medicine, e-Infrastructure, etc. Promotion of Information Technology education and Information Technology-based education. Matters relating to Cyber Laws, administration of the Information Technology Act, 2000 (21 of 2000) and other IT related laws. Matters relating to promotion and manufacturing of Semiconductor Devices in the country excluding all matters relating to Semiconductor Complex Limited (SCL), Mohali; The Semiconductor Integrated Circuits Layout Design Act, 2000 (37 of 2000).
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(8) (9)
(10) (11) (12)
(13)
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Interaction in IT related matters with International agencies and bodies, e.g., Internet for Business Limited (IFB), Institute for Education in Information Society (lBI) and International Code Council - on line (ICC). Initiative on bridging the Digital Divide: matters relating to Media Lab Asia. Promotion of standardization, testing and quality in IT and standardization of procedure for IT application and tasks. Electronics Export and Computer Software Promotion Council (ESC). National Informatics Centre (NIC) Initiatives for development of Hardware/Software industry induding knowledge-based enterprises, measures for promoting IT exports and competitiveness of the' irrlustry. All matters relating to ~rsonnel under the control of the Department.
National E-Govemance Action Plan (2003-07) Backdrop The Government of India has approved the National e-Governance Action Plan for implementation during the year 2003-2007. The plan seeks to lay the foundation and provide the impetus for long-term growth of e-Governance within the country. The plan seeks to create the right governance and institutional mechanisms, set up the core infrastructure and policies and implement a number of Mission Mode Projects at the centre, state and integrated service levels to create a citizencentric and business-centric environment for governance. The National e-Governance Action Plan was presented to the Hon'ble Prime Minister on 6th November, 2003 . The Plan has been approved in-principle and endorsement has been given to the overall programme content, implementation approach and governance structures. However, for budgetary outlays separate approvals from Planning Commission/Ministry of Finance are envisaged.
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Key observations made while endorsing the Plan: (1) Adequate weightage must be given for quality and
(2) (3) (4) (5) (6)
speed of implementation in procurement procedures for IT services. Incorporation of suitable system of incentivization of states to encourage adoption. Trend of delivery of services through common service centres should be encouraged and promoted. Wherever possible services should be outsourced. Full potential for private sector investment should be exploited. Connectivity should be extended up to block level through NICNET /SWANs.
As stated under the Hon'ble Prime Minister's 15 important initiatives announced on Independence Day 2002, government intends to implement a comprehensive programme to accelerate e-Governance at all level of the government to improve efficiency, transparency and accountability at the GovernmentCitizen interface. An extract of the Hon'ble PM's announcement as Independence Day 2002, pertaining to e-Governance is reproduced as under: "The Ministry will implement a comprehensive programme to accelerate e-Governance at all levels of the government to improve efficiency, transparency and accountability at the Government-Citizen interface.... " National Development Council (NDC), while approving the Tenth Five Year Plan has directed that four Empowered SubCommittees be set up. One of these Sub-Committees set up by the Planning Commission on 31st March 2003 is for Governance Reforms including e-Governance, chaired by Deputy Prime Minister. An extract of the PM's statement at NDC (Dec., 2002) pertaining to e-Governance is reproduced as under: "E-Governance, which can contribute significantly to better governance, is a major thrust of the Tenth Plan ............ I urge all concerned to implement this strategy. "
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In the Priority Agenda approved by the Cabinet in September 2003, implementation of National e-Governance Action Plan has been accorded highest priority and identified as Item No.1 under Category 1 for review by the Hon'ble Prime Minister directly. A Core Group on Administrative Reforms (CGAR) has been constituted in March 2003 under the Chairmanship of Cabinet Secretary to draft plans for phased, time-bound prioritized adoption of e-Governance in Government of India. From the various announcements stated above and the actions taken at the administrative level, it can be seen that introduction of e-Governance in the Central Ministries/ Departments and at the States/UTs level, has been accorded highest priority. Department of Information Technology jointly with Department of Administrative Reforms & Public Grievances (DAR&PG) prepared a National e-Governance Action Plan for implementation in the government at the centre and states and was presented to the Hon'ble Prime Minister which has been approved in principle.
Core Policies Suggestive list of Core Policies: (1)
(2) (3) (4)
(5)
(6)
(7)
Overall Vision, Mission, Strategy and Approach. E-Governance technology architecture, framework and guidelines. Funding Strategies-business models BOO, BOOT, etc. Human Resource Strategy-for project leadership, implementation and operation, team performances, collaboration among agencies, networking with stakeholders, motivations/participation issues. Policy on front-end facilitation counters, kiosks, integrated service centres, etc. - ownership, funding/ subsidy, types of service, charges, etc. Policy on back-ends department automation-role of private sector, role of government, safeguards, right to information, privacy, etc. Policy on integrated services (ownership, responsibility, etc.).
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17R
(8)
(9)
(0)
(11)
(2) (3)
Process Re-engineering-policies, guidelines with respect to criteria for redesign of processes, interfacing with workflow, record management, transaction requirements, quality standards, requirements for audit and accountability, escalation procedures, collaboration among different agencies, sharing of information, security standards, process monitoring, tracking system deficiencies, performance measurements, etc. Policies and guidelines on Geographic Information Systems. Policies and guidelines on electronic payment mechanisms. Policies on employment generation through EG, development of skills, linkages with banking institutions and entrepreneur development programmes, etc. Prioritization policy for selection of Project interventions. Policies, strategies and guidelines for managing content, prescribing authorization, privileges, validation, content authoring, collaboration among content contributors, ownership issues, etc.
Core Projects (Mission Mode Projects> S. Mission Mode Projects No.
Line Ministries/Departments Responsible
Central Government 01 Income Tax 02 Passport Visa & Immigration Project 03 DCA21 04 Insurance 05 National Citizen Database
Ministry of Finance/Central Board of Direct Tax Ministry of External Affairs/ Ministry of Home Affairs Department of Company Affairs Deptt. of Banking . Ministry of Home Affairs/ Registrar General of India (RGI)
E-Governance in India: Vision and Strategies 06 Central Excise
07 Pensions
08 Banking
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Department of Revenue/ Central Board of Excise & Custom Deptt. of Pensions & Pensioners Welfare & Deptt. of Expenditure Deptt. of Banking
State Government (tentative, to be finalized in consultation with the States) 01 Land Records 02 Road Transport 03 Property Registration 04 Agriculture 05 Treasuries 06 Municipalities
07 Gram Panchayats 08 Commercial Taxes 09 Police (UTs initially)
Ministry of Rural Development Ministry of Road Transport & Highway Department of Land Resources Department of Agriculture & Cooperation Ministry of Finance Ministry of Urban Development and Poverty Alleviation Ministry of Rural Development Ministry of Finance Ministry of Home Affairs
Integrated Services 01 EDI (E-Commerce) 02 E-Biz
03 Common Service Centres 04 India Portal
05 EG Gateway
Ministry of Commerce and Industry Department of Industrial Policy & Promotion/ Department of Information Technology Department of Information Technology Department of Information Technology /Department of Administrative Reforms and Public Grievances Department of Information Technology.
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Selection Criteria for the Mission Mode Projects (1)
(2) (3) (4) (5) (6)
Impact in terms of number of people likely to be affected by project. Impact in terms of likely improvement of the quality of service. Impact on the economy or economic environment in the country. Impact in terms of the likely cost-benefit of investments in the project. Readiness and willingness of ministry/department to position a National Mission Project. Feasibility of implementing the project from a financial, administrative and political perspective within a reasonable time frame.
Core Infrastructure (1) (2) (3) (4) (5) (6) (7) (8)
National e-Governance Intranet ( NICNET, ERNET and other service providers). State wide Intranets. National e-Governance Data Centre. State Data Centres. Security Infrastructure. Resource Centre for e-Governance (PKI, etc.). GIS National Spatial Data Infrastructure. Language Resource Centre.
Core Integrated Services Projects (1) (2)
(3) (4) (5) (6) (7)
India Portal. Single window web based delivery of information and government services at the national level. State Portals. . Single window'web based delivery of information and State Government services at the State level. Electronic Document Interchange. Formatted transaction of business documents (invoice, purchase, etc.) electronically. e-Biz.
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(8) Single window government to business portal offering services for the complete lifecycle of business. (9) e-Procurement. (10) Publishing of tenders/RFPs, bidding online, block tendering, empanelment of agencies, etc. ~11) Payment Gateway. (12) Facilitating transactions involving payments, etc.-
Support Infrastructure Support infrastructure would cater to areas such as: (1) Service delivery infrastructure at State, District, Block and Village levels including wireless infrastructure for last mile connectivity. (2) E-post. (3) Design, development and deployment of low cost technology solutions. (4) Integrated Service Delivery Front-ends.
Human Resource Developmentffraining Human resources development/ training and capacity building activities would comprise training for: (1) (2) (3) (4) (5) (6)
E-Governance policy makers. Chief Information Officers. Project specific training. General IT skills and competencies. Special training programmes for specialists. Security, use of local language solutions, advanced courses architecture, language technologies. (7) Equipping national/state institutions of public administration for e-Governance training, etc.
Technical Assistance The technical assistance under this Scheme may include: (1) Support for undertaking survey of needs, expectations, etc. (2) Benchmarking of interventions. (3) Feasibility studies.
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(4) Planning and design of various projects. (5) Capacity building of institutions which would be involved in the implementation and monitoring of the projects.
Awareness and Assessment (1) (2) (3) (4) (5) (6) (7) (8) (9) (10)
E-Readiness assessment of various States/Departments. Setting up of Virtual e-Governance Forums. Assessment of e-Projects. Best practices for e-Governan~e. E-Governance National Resource Database. Newsletters on e-Governance, workshops/seminars/ conferences. Competitions and awards. E-Governancc forum for NGOs, Pvt. Sector, Academic. Training institutions. Publicity and awareness (media, films, etc.).
Organisational Structures (1) National Electronic Governance Council/National Information Services Board. (2) National Institute for Smart Governance (NISG). (3) State Electronic Governance Councils/State Information Services Board. (4) Electronic Government Standards Institution. (5) National Informatics Centre (NIC).
Research and Development (R&D) Research and Development would need be taken up in areas such as: (1) (2) (3) (4) (5) (6)
Architecture. Standards. Integration strategies. Language technologies. Electronic payment systems. Security and other areas related to e-Governance.
The Framework for E-Govemance The e-Governance framework would include Back-ends
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(databases of the different government agencies, service providers, state governments, etc.), Middleware and the Frontend delivery channels (home PCs, mobile phones, kiosks, integrated citizen service centres, etc.) for citizens and businesses. The Middleware comprises communication and security infrastructure, gateways and integrated services facilitating integration of inter-departmental services.
Government Decisions The National e-Governance Action Plan was presented to the Hon'ble Prime Minister on 6th November, 2003. The Plan has been approved in-principle and endorsement has been given to the overall programme content, implementation approach and governance structures. However, for budgetary outlays separate approvals from Planning Commission/Ministry of Finance are envisaged.
National E-Governance Strategy A pproved ~'\ (1) Centralized initiative, decentralized implementation. (2) Identify services to be targeted. (3) Prioritize services (mission), identify measurable service goals (outcomes). (4) Identify, appoint and empower mission leaders. (5) Create mechanism for effective private sector participation. (6) Put in place a common infrastructure, policies, standards and framework. (7) Service delivery through Common Service Centres. (8) Think Big, Start Small and Scale Fast.
Implementation Approach Approved Approval of broad framework and strategy. (2) Identification of priority projects by CGAR /NDC at centre/states and local bodies (Mission Mode Projects). (3) Encourage individual initiatives within overall framework. (4) Line ministries to take ownership and responsibility for implementing and overseeing projects in their sectors.
(1)
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(5)
Id~nti£y, position, train and empower project leaders with stable tenures.
Governance Structure Approved 0) Fully Empowered Committee (EC) for mission projects. (2) Fully empowered Project Implementation Committee for each project. (3) Mission leader to be responsible for achieving mission goals and timelines. (4) Missions and overall e-Governance plan implementation to be periodically reviewed by Cabinet Secretary, and monitored by Hon'ble Prime Minister. Mission Mode Projects S.No. Mission Mode Projects
Line Ministries/Departments Responsible
Download
Central Government 01
02
03 04 05
06
07
08
Income Tax
Ministry of Finance/Central Board of Direct Tax Passport Visa & Ministry of External Mfairs/ Immigration Ministry of Home Affairs Project DCA21 Department of Company Affairs Deptt. of Banking Insurance National Citizen Ministry of Home Affairs/ Database Registrar General of India (RGI ) Central Excise DeparhnentofRevenuel Central Board of Excise & Custom Pensions Deptt. of Pensions & Pensioners Welfare & Deptt. of Expenditure Banking Deptt. of Banking
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State Government (tentative, to be finalized in C(1llsllltation with the States) 01
02
Land Records Ministry of Rural Development Road Transport Ministry of Road Transport & Highway
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Property
04
Agriculture
05 06
Treasuries Municipalities
07
Gram Panchayats Commercial Taxes Police (UTs initially) Employment Exchange
08 09 10
Department of Land Resources Registration Department of Agriculture & Cooperation Ministry of Finance Ministry of Urban Development and Poverty Alleviation Ministry of Rural Development
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Ministry of Finance Ministry of Home Affairs
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Ministry of Labour
Integrated Services 01 02
03 04
05 06
07
ED! (E-Commerce ) E-Biz
Ministry of Commerce and Industry Department of Industrial Policy & Promotion/Department of Information Technology Common Department of Information Service Centres Technology India Portal Department of Information Technology and Department of Administrative Reforms and Public Grievances EGGateway Department of Information Technology E-Courts Ministry of Justice/Ministry of Home Affairs E-Procurement Ministry of Commerce and Addition Proposed Supply
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Selection Criteria for the Mission Mode Projects (1) Impact in terms of number of people likely to be affected
by project.
(2) Impact in terms of likely improvement of the quality of service.
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(3) Impact on the economy or economic environment in the country. (4) Impact in terms of the likely cost-benefit of investments in the project. (5) Readiness and willingness of ministry/department to position a National Mission Project. (6) Feasibility of implementing the project from a financial, administrative and political perspective within a reasonable time framc.
Draft Policy Guidelines on Website Development, Hosting and Maintenance (Version 1.0) 1. Introduction The Government is committed to build an organizational environment in Ministries/Departments that inspire and facilitate the realization of an e-Government, which encompasses inter alia the development and deployment of Citizen centric Services through web enabled processes, electronic workflows, enabled applications, collaborative partnerships and participation of citizens, clients and stakeholders. The website of a Ministry /Departmcnt or its portal which integrates several websites of its constituent Offices and units, is a speedy and effective means for dissemination of information, interaction with people and for delivery of services to citizens. The Portal or Website, is significant in terms of its capability and potential in serving as an important link between the Government and the citizens. It presents the face of the organization, its mission, vision, functions, activities, performance, etc. It provides features enabling public and stakeholders give their views / feedback and in realizing Digital Democracy. Effective operation and management of the website and associated electrOnIc workflows, re-engineered processes, enhance the quality of governance, help achieve improved productivities, realize envisaged outcomes, a responsive and transparent Governance leveraging on knowledge, inputs, feedback of Citizens and stakeholders.
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1. It is in keeping with the national agenda and envisaged roadmap for improving governance that these guidelines are being notified to facilitate a drive for modernization and improvement of quality of governance and public services.
2. Applicability These guidelines are meant for the Ministries/Departments of Govt. of India and their Subordinate and Attached offices. 3. Aim & Objectives (i) Making accurate and reliable information, which can be otherwise made public and useful to Citizens, Stakeholders, States, Union Territories, NonGovernment Organizations and people in general easily accessible from the Central Government Ministries/ Departments. (ii) Pursuit of Excellence and Quality for improv~d electronic delivery of information and services to citizens/ clients. (iii) e-interaction and knowledge sharing between Ministries, Departments, States, Union Territories, NonGovernment Organizations and people in general through electronic collaborative processes. (iv) Increasing efficiency and transparency in Government processes through cost effective means, resource sharing and seamless integration and collaboration among Ministries /Departments. (v) Commitment to partnership, networking and value addition through citizen's and stakeholders participation in the decision making (vi) Realizing a knowledge based organizational culture focussed on enhancing Citizen, Client and Stakeholders satisfaction through innovative and proactive behavioural engineering.
4. Content Structure The features available on the Website will facilitate the furtherance of the aims and objectives described above. The Website will include the following contents:
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Mission, Vision, Objectives Client Charter Website will clearly indicate the subjects assigned to the Ministry /Department, its Mission, Vision, objectives, its Citizens' /Client Charter. It will also carry the messages of Minister and Secretary, if any. Roadmap of howlt intends to achieve various objectives and envisaged outcomes may also be given.
(ii) Organizational Set-up and Directory The website will prominently display the logo of Govt. of India and the name of Ministry /Department. The organizational set up with sufficient clarity, containing the details of functional responsibilities entrusted to various Offices/Officers within the Departments/Organizations. The comprehensive and complete list of Attached and Subordinate Offices with links to their Websites needs to be provided. It will have a complete directory with names, designations, e-mail addresses, telephones numbers and postal addresses of Minister, Secretary, Heads of Departments/Directorates, Divisions, Field Offices, Departmental and Public Sector Undertakings, Nodal Officers for Public Grievances, Citizen Charters, IT Managers, O&M Officers, etc. (iii) Functions Website will contain a comprehensive functional map of the Ministry /Department, subjects dealt with along with designation of officers concerned, subjects assigned to Attached and Subordinate Offices, rules, procedures, important studies conducted etc. Ministry /Department may also enclose the list of achievements and milestones and other important events as it may deem fit. The list of publications brought out by the Ministry /Department will also be displayed with associated links for viewing/ downloading such published material. Periodicals, if any, will also be displayed prominently (iv) Constitutional, Legal and Administrative Framework Acts, Rules, Gazette Notifications, Statutory Orders, Important Judicial pronouncements, Notifications,
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Handbooks, Guidelines, Instructions, Compendium of Circulars, etc. (v) Parliament and the Ministry All parliament questions with their answers, queries/ responses and reports of standing committees, etc. may be placed on the website. (vi) Plan, Schemes, Programmes and Projects Information related to the X plan, Annual Plans and Budget of the Ministry / Department or Organisation, with details of Schemes, Programmes, Projects, Externally aided projects, Central Schemes, Centrally Sponsored Schemes, etc. Brief details of envisaged outcomes, resource allocations, modalities, delivery mechanisms, performance monitoring, ongoing programme evaluation/ assessments, Audit reports, Midterm interventions, critical success factors, involvement of stakeholders, inviting feedbacks/ suggestions, etc., will also be mentioned. (vii) Services Offered Website will clearly show the services offered online or through various Offices/facilitation counters, etc., being run by the Ministry /Department, the target beneficiaries, relevant rules, procedures, eligibility criteria, what is expected of Citizens/clients and such other relevant information which would facilitate the Citizens/Clients avail such services. All application forms will be made available online. Ministry /Department will also consider accepting such applications online. Facilitation for redress of Grievances with details of Grievance Officers, Redress mechanisms, Grievance hearings, etc., need to be an integral part of the services offered. Discussion forums, theme based chat with Minister / Senior Officers may also be provided. (viii) Publications and Reports CAG Reports, Annual Reports, White papers, Plan reviews, Statistical reports.
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E-Governance in India: Vision and Strategies (ix) Feedback Mechanism Website will be interactive and will have a mechanism to enable the visitors to give their feedback. The complaints/ suggestions/ observations received on line will be tr~ated as 'Receipt' as defined in Central Secretariat Manual of Office Procedure and will be processed accordingly. The Ministry /Department will al30 devise standardized formats to receive and to respond to the feedbacks. (x) Notice Board, What is New, Announcements, Press Release, Tenders, Procurement and Disposal Website will have a Notice Board which will prominently display the latest developments, current events, future programmes, information relating to new publications brought out by the Departr.1ent, etc. It will also contain information about the seminars, workshops, etc., to be held in future and new appointments at senior level. Press releases, Notices for tenders/ RFPs, procurement and disposal or vacancy, etc., will also be displayed in this section. The Ministry/Department will put up all tender notices, vacancies, etc., on the Website simultaneously with tht> normal procedure. (xi) Advertisement Public Relations and Promotion Advertisement and promotional messages/literature relating to the Ministry/Department may be provided/ published through the website.
(xii) Approved NGOs/Stakeholders Details of Collaborating Organizations/Institutions and Stakeholders along with approved NGOs may be displayed. (xiii) Search Engine Website will have Search Engine to enable the users locate and access information/contents with ease. (xiv) Collaborative Features for Asynchronous Information Exchange, Knowledge Sharing/Chat FacIlity
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The Ministry /Department should examine the feasibility of providing features that enable users from other government Ministries/Departments, States, Undertakings and other Govt. as also Non Govt. Organizations to exchange information and experiences in an asynchronous manner. Chat facility for interaction with concerned Officers on fixed days and at fixed timings can also be implemented. (xv) FAQ and Help The Ministry/Department should also consider putting up rerevant information under an active link titled "Frequently Asked Questions (FAQ)" providing details in significant areas of focus. (xvi) Current Events Calender Details of forthcoming events/meetings, conferences, programmes and other activities scheduled during the quarter /year may be indicated. (xvii) Archives Website will display original contents and their amended version with date of amendment. (xviii) Personnel Cadres, Civil list, Employees Corner and related information. Other Features (xix) Any other feature which the Ministry/department may deem fit and which are specific to the Ministry / Department concerned.
5. Website Features The website will have the following essential features. Bilingual Support The content will be both in English and Hindi keeping in view that a large number of people are Hindi speaking. (ii) Site Map (i)
Site Map is provided for navigation support.
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(iii) Consistency
Uniform look and feel is maintained in all web pages. (iv) Access Access to contents is logical and intuitiv~. (v) Layout of Menu, Icons & Hyperlink The organization of hyper links on the homepage and in the interior pages to intuitively reflect the significance of the information or service associated with the link. Floatable and collapsible menus for effective use of space and icons providing cue to hyperlink contents are to be used effectively. (vi) Search Engine To facilitate the users locate and access information/ contents with ease. (vii) Content Structure Contents may be organized meaningfully with appropriate metatag/labling scheme interfacing with an appropriate uniform electronic record management system adopted in the organization with features such as version control, information on ownership, storage location, file number, keywords, context description, etc. Some of the desirable features of the website and guidelines are given below: a.
Information is available with minimal no of clicks and the location of the user at any given point while navigating through the site is visually displayed to him. b. Site is stable and reliable with predictable behaviour of hyperlinks and menus. c. Site Management/System Administration tasks are facilitated with built in exception reporting, escalation features in the software. d. Website does not enforce client side requirements/ efforts other than use of browsers. e. Visual elements are appropriate and enhance the content presentation.
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f.
Site is well organized and navigation is clear and consistent. g. Content is presented in manageable units. h. Advanced security analysis and mechanisms such as port scans, Trojan sweeps, vulnerability profiles, firewall setups, network sniffers, software & application faults, e-mail vulnerabilities, database & human interface weaknesses, etc., are incorporated in the standard operating procedures. i. Workflow processes associated with inbound/incoming mails and feedback through the website as also logging of outbound/ outgoing responses may be conceptualized and supported.
6. Administration/Maintenance/Updating (i) The Web Administrator will be responsible for overall supervision to ensure that authentic and updated information and services are available on the website. Such responsibility will be with a Senior Official not below the rank of Joint Secretary. He would prescribe all policies, conceptualize and implement processes relating to the development, operation, management and content authoring/updation of the website and applications associated with it. This would also include leading the technical team for implementing necessary backend computerization, process re-engineering, interfacing with information architectures, security procedures and web based solutions. (ii) Officers of the rank of Directors/ Deputy Secretaries will be appointed as Content Administrators or Content Managers for earmarked Divisions or Sections within the Ministry /Department. The role of Content Manager would involve content viewing/updation for the earmarked links/section comprising multiple links in the webpages of the intranet as per access privileges ( i.e., read only OR read-write) decided by the Web Administrator.
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(iii)
(iv)
(v)
Note:
In an ingeneous de~ign of website, content is updated in the intranet by the content manager and later published in the internet by Content Administrators for viewing/ access by the world at large, after approval of such contents by the web administrator or by such other person entrusted and delegated with such responsibility to approve contents. Content Manager will be responsible for timely updating of the website after approval by Content Administrator. Timely deletion of irrelevant and undesired information will also be ensured by him. All Sections/Desks/Divisions will invqriably mark important orders, notifications, circulars, etc., to Content Administrator /Content Manager authorized by the Web Administrator, provided it is permissible under the security instructions issued by the concerned Ministry / Department or Ministry of Home Affairs from time to time. The orders, notifications etc. would be made available in electronic form to the Content Manager. He will update the content and inform the Content Administrator, who will publish such material in the internet section of the Website. This exercise will be completed within five working days of receipt of the content. Content Manager will visit the website at least thrice a week. Any form based feedback, electronic application or e-mail received through the website would be trea~ed as receipt as defined in the Central Secretariat ManQ.al of Office Procedure and will be processed as per business rules. Where such feedback, application or e-mail are received through the web, response will be given online to the extent possible. The duty assigned to Content Administrator, Content Manager will be carried out by the officers so designated in addition to their normal duties.
7. Website Promotion The Ministry/Department will get its website registered with NIC as well as other popular Search Engines. It will also ensure
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that stationery items used in the Department like letter heads, visiting cards, press releases, audio and visual advertisements mention the URL of the website clearly. All the press releases messages, audio and visual ad~rtisements should also be put on website simultaneously to promote the concept of the website/portal of the Ministry / Department as the preferred gateway to information and services.
8. Technical Aspects
8.1 Maintenance and Updating Ministry /Department will decide the content and design of its website with the approval of Secretary concerned and in consultation with NIC or such other technical agencies and organizations with expertise in web design, development, hosting and management of websites. While deciding the content and design of the website, these guidelines will also be taken into account. The web sites will be attractive, interactive, informative and user friendly. It will have adequate security arrangements against the hackers, viruses, unauthorized access/intrusions. In addition, it is desirable that the following features are made available in the software: is essential that the website and associated application/ software systems delivers dynamic, up-todate content to users, offering personalized content where appropriate through a simple but well designed content management process. The software should facilitate dynamic updation of web-pages using asp/ jsp, javascript or such other programming languages using database interfaces wherever necessary and capturing records to the extent possible at the stage of their creation. (ii) The web application design and its implementation may envisage seamless integration of other legacy applications through web enabled interface modules and appropriate workflow process for se~king content approval through required levels of scrutiny. (i) It
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(iii) The website will need to have features that can provide basic statistics of use or to report on errors, set access/ privileges and help in maintenance and management of the Website. (iv) It will also be necessary to conceptualise the manner in which further revision in the software to enable insertion of new features, deletion of unwanted links, reorganizing lay-out, cross referencing content for navigation or other such design aspects and procedures associated with such revision may be carried out easily. (v) The categorization of information and the design of the content repository structure associated with the website need to be planned such that, instance entries in the repository can be u~efully referenced, searched and selected at random. Content labling and their organization may also include appropriate meta-tagging scheme to enable the organisation to have full control over each content types behaviour, display and security and interface backend processes for their updation. (vi) It would be appropriate to conceptualize uniform data definitions and metadata standards in consultation with stakeholders and other Govt. Departments to enable interoperability, content reuse and repurposing through information sharing and collaboration of business processes. Standard Electronic Record Formats such as XML, PDF, may be used for the documents and data exchange.
.
8.2 Authentication and Security Authentication of users is essential to ensure security of the Website. For this purpose, three types of privileges should be provided in the software. (i) Accessibility to information, documents, applications,
forms, etc., for public in general without any password. (ii) Accessibility to identified sensitive information for selected and registered users.
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(iii) Accessibility for Web Administrators, Content
Administrators and Content Managers for maintaining and updating the Website. Another aspect, which needs to be taken care of, particularly when the Web is being used for e-Commerce, is the provision of mechanism to verify the identity of payers and payees and foolproof security arrangements against frauds and misuse. It should also ensure the confidentiality of the parties concerned, the details of Account Numbers, amount, Credit/Debit Card Numbers, etc.
9. Disclaimer and Copyright The Website will invariably display the following disclaimer: " Endeavour has been made to make available updated, correct and accurate information. The errors, if any, whenever brought to the notice will be rectified. But, the Ministry/Department will accept no responsibility and liability, of whatever nature, for the correctness of the material on Website. In this regard, the users are advised to verify, in their own interest, the correctness of the facts from the concerned official or person." It may also contain clear claim of Reservation of Copyrights
for the rr,taterial displayed on the Website, if the Ministry / Department d~sires so.
10. SecuritY cm4,Seqrecy of Information Utmost cate wm be faken to ensure that only those information are kept up on the website which can be made public as per Department's own instructions and security instructions issued by Ministry of Home Affairs from time to time. Care should also be taken to ensure that the sensitive matters are dealt with only on stand alone systems and not on the system integrated with internet.
11. Il.1frastructure and Training Ministry /Department will make endeavour to provide infrastructure and training to more and more official to promote
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a true e-Culture which is a pre-requisite for achieving the objectives laid down in para-3 above. All the officials including those of the lowest rungs will made aware of the benefits of ICT tools. Organizations may need to unlearn attitudes and tendencies for information hoarding, command and control management styles and turf conflicts between perceived competing functional groups. Changing these entrenched behavioural 'patterns and reorienting staff to collaborate will require explicit motivation or incentives, particularly in the early stages. Over time, the need for external motivation or incentives will diminish, especially as the value of sharing and collaborating creates its own intrinsic rewards. Examples include performing a task better and with less effort because of collaboration with colleagues or increasing the quality of deliverables because of knowledge sharing within the division/section or workgroup or between departments.
12. Process Re-engineering and Electronic Workflows To support effective publishing of current information and delivery of services through the web, the website design and applications (which may be written in asp, php, javascript, etc., with connections to SQL/Oracle database) may need to be interfaced gradually with intranet web applications and electronic processes at the backend to combine workflows, business logic and information capture from distributed sources within the Department/Ministry. Transition to an Integrated web enabled environment based on electronic business processes replacing currently paper based processes would need be carried out in a strategic manner in order that the ultimate delivery of information and services through the website are of real value to the citizen/ client. On a reverse cycle, feedback from clients/citizen through the web interface would enable the organization operate with a realistic citizen(client)-centric perspective leveraging on the needs/requirement of the citizens and stakeholders.
6 Developments and Implementation of E-Governance
Standards in E-Govemance Department of Information Technology (DIT), Ministry of Communications and Information Technology, Gol is driving the National e-Governance Plan (NeGP) which seeks to create the right governance and institutional mechanisms and implement a number of Mission Mode Projects at the Centre and State government. Standards in e-Govemance are a high priority activity, which will ensure sharing of information and seamless interoperability of data and e-Governance applications under NeGP. DIT had constituted a Core group on Standards to arrive at an Instihltional Mechanism and Processes to be put in place and recommend key areas for standardization. The Core group had examined various aspects of the Standards-setting exercise and made suitable recommendations. Some of the key priority areas of immediate concern that have been identified for standardization are: (1) Technical Standards and e-Governance Architecture.
(2) Localization of Applications and Language Technology Standards.
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Developments and Implementation of E-Governance (3) Quality and Documentation Standards. (4) Network and Information Security Standards. (5) Metadata and Data Standards for Applications Domain.
Institutional Mechanism and Processes Setup As regards the institutional mechanism and processes are concerned, an Apex body has been constituted under the chairmanship of Secretary, DIT with senior representatives from Government, NASSCOM, Bureau of Indian Standards (BIS), etc. with a mandate to approve, notify and enforce the Standards/ Guidelines formulated by various Working Groups and to oversee that they are in accordance with international practices in this regard. National Informatics Centre (NIC) is the DIT arm with a presence in all the States and Districts in the country. It has a large pool of technical officers. NIC provides a range of services to all the government departments at the Centre, States and Districts. NIC has been entrusted with the task of originating white papers on all the desired standards. A separate 'eGovernance Standards Division' has been created by NIC to steer the process of evolving the Standards. These white papers would serve as discussion papers for working groups to develop the standards / guidelines. Working Groups would be constituted in all the areas mentioned above with members from DIT, Associations, Industry, Academia, representatives from Central & State Government, etc. Once the Apex Body approves the standards/guidelines developed by Working Groups, STQC - Standardization, Testing and Quality Certification, the Directorate of DIT with offices across the country will be responsible for release of these approved standards/guidelines on the web and make them available to all the stakeholders for free download. STQC provides services in Quality and Information Security with specialization in Testing, Assessment and Evaluations using International Standards to Indian industry and users. STQC will further ensure conformance and certification (where required) of these standards. A separate e-Govemance Division' I
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has been created by STQC for this purpose. Subsequent to the issuing of these initial standards/guidelines, STQC will be responsible for enhancement of these standards/guidelines and liaise with the national and international standardization bodies for harmonization and acceptance of these standards. The e-Governance Division of NIC and STQC function in close coordination with e-Governance PMU of DIT, which is responsible for overseeing their working. DIT has constituted "Project Review and Steering Group" (PRSG) under the chairmanship of Secretary, DIT to monitor and review the standardization process to ensure timely completion of various activities under the project. A website on Standards has been constituted which apart from publishing the various activities being carried out by the NIC, Working Groups and other players also facilitates closed collaboration and interaction with the various stakeholders. The e-Governance Standards website address is http:! / egovstandards.gov.in. Various Brainstorming sessions, Working Group meetings, e-Governance Workshop and National summits have been organized (http://egovstandards.gov.in).
India Portal- Mission Mode Project India Portal Project has been identified as one of the Mission Mode Project in the integrated service category under the National e-Governance Plan (NeGP) of Gol. The Portal is envisaged to provide a single window access to the information and services of the Indian Government at all levels from Central Government to State Government to District Administration and Panchayats for the Citizens, Business and Overseas Indians. The beneficiaries are broadly categorized as citizens, corporate organizations, both in State and non-state sectors, the governmenf-itself (Central, State and Local body leveD, media and the world at large. The I:irst version of the Portal is operational now and was launched by Hon'ble Union Minister for Communications & IT, Thiru Dayanidhi Maran in a public function on 10th Nov'2005. The portal address is http://india.gov.in/. Hon'ble Deputy Chairman Planning Commission Shri Montek Singh Ahluwalia presided over the function.
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An attempt has been made through this Portal to provide comprehensive, accurate, reliable and one stop source of information about India and its various facets. The information in the Portal has been well classified into distinct modules, which are also interlinked at relevant places to provide the visitor with a holistic view. Links at various places, too, have been provided to other Indian Government Portals/websites. The content in this Portal is the result of a collaborative effort of various Indian Government Ministries and Departments, at the Central/State/ District level. National Portal Coordinators (NPCs) have been nominated both from Central Ministries/Departments and State Government,. who are responsible for the content development, compilation and maintenance. . A Web Based secured Content Management System (CM:S) (http://portalcontent.nic.in) has been developed to facilitate contribution of content by the NPCs through simple and fri~dly interface. In this regard 32 States/UTs and 63 NPCs have been nominated both from the Central Ministries/Departments who would be providing authentic contents pertaining to their departments. The Portal is being well received by all cross sections of the target audience both in India and across the world. Wide acclaim, feedback and a lot of constructive suggestions are being regularly received by NIC's National Portal Development Team which is on the constant job of further improving and enhancing the scope of the Portal. NIC has carried out a detailed trend analysis to find out the statistics pertaining to hits, page-views, visitors, usages patterns and other such details about the Portal. The India Portal will: (1) Will improve the e-Governance Index of the Country
internationally. (2) Provide seamless search including look and feel. (3) Bring Standards in Content Management. The Portal will have linkage with other Initiatives such as: (1) Common Service Centres (CSC). (2) Single Window Knowledge and E-Learning Portal on e-Governance (eGovWorld).
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(3) Indian Development Gateway (InDG)-Targeted to the Rural community-Contents and services in Health, Education, Agriculture, Rural Energy, e-Governance. (4) National eGovernance Service Delivery Gateway (NSDG)-Standards based Core Middleware infrastructure for Messaging and Routing. Hence it is our endeavour to continue the enhancement and enrichment of this Portal in terms of content coverage, design and technology on a regular basis.
India Development Gateway (lnDG) In early 2002, World Bank-Infodev awarded a planning phase grant to Department of Information Technology, Ministry of Communications and Information Technology, Government of India, for India Development Gateway (InDG). The planning phase of the InDG was successfully completed in 2003. Subsequently, DIT supported the idea of going ahead with the implementation of the InDG. Development Gateway Fowldation (DGF) has given a seed money for the project. This is a development Portal with certain online and offline services, mainly catering to the socio-economic development. The portal will strengthen the 1st level service providers in the identified 5 critical areas, i.e., Health, Primary Education, Agriculture, Rural Energy and e-Governance by providing the contents and services to the local community in local language in these areas. The emphasis of the InDG is on delivery of information and services in the 5 portals through strong partnership with the NGOs, self-help groups and bilateral donors. Hence, the rural and semi-urban sector is the target community. The contents generation on the portal is not only by government but also by the end-user beneficiary. The contents and services on the InDG Portal are region specific and in the respective regional languages. InDG would synergize with various initiatives and efforts happening in such areas like Mission 2007, India Portal, eGovWorld, Knowledge initiative etc. in seamless manner and value add information and services in the respective Vortals
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thereby filling the existing gaps. Possibility of linkage with the GOI's Common Service Centre (CSC) initiative would be explored. The project would leverage on CDAC, which is the implementing agency, strengths, and take the support of the institution's existing i"esources as and when required. Under the DGF R&T centre at CDAC Bangalore, the various tools and applications being developed for the rural community would be utilized in this project to the extent possible. InDG would conduct multiple workshops and Trainings for the Grassroot level people who are the 1st level service providers and end beneficiaries in order to discharge services more effectively. To give right direction and gUidance to this Project Governing Council was constituted under the chairmanship of Shri M.S. Swaminathan and Secretary, DIT as a Co-chair. A Steering Committee has also been constituted under the chairmanship of Secretary, DIT to ensure smooth implementation of InDG. InDG aims at having a self-sustainable business model gradually.
Initiative on National e-Govemance Service Delivery Gateway (NSDG) The National e-Governance Service Delivery Gateway (NSDG) is one of the 26 Mission Mode Projects under the National e-Governance Plan (NeGP) of Gol. The Gateway would act as a routing and a message switch de-linking the back-end . departments from the front-end service access providers. This would simplify the view of the external world to the departments at one end and encourage competition at the front end. Independent service providers will be able to provide services with varying levels of complexity, cost and service quality levels. The NSDG will have as its core functionality the messaging, which involves receiving and sending messages, message processing, message construction and deconstruction, and message routing between the bac.k office service providers and front office (Service Access Providers).
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The supporting modules would be Service-MessageCorrelation (SMC) management, Audit logging, Transaction Management, NSDG Administration, Government Services Directory and providing appropriate interfaces to. enable connectivity to the gateway. It would also have certain common services such as Registration and Authentication of Service Access Providers and Service Providers and Joined up services. Additional services may get added as part of common services. In addition the Gateway would support the back-office and the front office services of various departments of the government to help them connect to fhe infrastructure. As more and wore departments offer services, a traditional Government-Service to Citizens model could get highly complex due to the varying nature of government services. Hence, the NSDG with a common set of specifications would be of the nature of a hub for all these interactions between service seekers (the citizen and businesses) and various service providers (Government Departments) and even among Government Departments. Acting as a nerve centre, this would handle large number of transactions across the entire network; provide a common set of specifications and a single point access. Such an infrastructure would also help inter-departmental working in a coordinated and synchronized manner. As a central message processing mechanism it would also help in tracking all transactions of the Government.
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This project is technically, financially and structurally very challenging and complex; Even to conceptualize the entire infrastructure and identify the various phases in which it could be implemented, close interaction with the various stakeholders is needed. A PoC has been successfully built by GOI and draft Gateway specifications are in place. The initiative is now being carried forward by NISG to validate the standards by industry consultations and handhold the Central Gateway implementation. The draft specifications are: (1) Interoperability Interface Specification (lIS). (2) Interoperability Interface Protocol (lIP). (3) Gateway Interconnect Specification (IGIS). (4) Gateway Common Services Specification (GCSS).
These standards are the messaging standards for G /W infrastructure, which will enable Integrated Service Delivery (ISO) and sharing of data across departments and various frontend service providers in a Secure Message Delivery format. To drive and guide this project, DIT has constituted the following committees under the chairmanship of Joint Secretary (e-Governance), DIT: (1) Advisory Group. (2) Technical Sub-committee.
We envisage multiple gateways in the country (private or government). A National Service Directory (NSD) would be a part of the gateway constellation for gateway address resolution. The initiative is now being carried forward by NISG to implement a Pilot and handhold the Central Gateway implementation. NISG has successfully completed the Pilot implementation of the Gateway based on the standards evolved and had also prepared a set of extensive standards and specifications for the Gateway and Inter-Gateway communication in consultation with Intel. After an extensive interaction between DIT, NISG and Intel, the final draft was prepared and put forward to the Industry for their feedback in an industry consultative meet. Based on the inputs/comments received from thl: Industry, NISG has made the modifications in standards and specification.
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NISG is in the process of preparing RFP and SFC of this project. The functional G /W is proposed to be up and running by June 2007. In order to encourage usage of such a gateway in the e-Governanc~ applications, it will be initially incubated by the government with a provision to become a commercial service later. The role of government as a catalyst is critical in achieving convergence amongst all users/service providers, etc., on the gateway architecture, topology and standards.
Horizontal Transfer of Successful e-Govemance InHiatives This Department launched a major countrywide initiative in April 2002- "Horizontal Transfer of Successful E-Governance Initiatives" aimed at pervasively spreading the benefits of e-Governance across the country. At the outset, area of Land Records, Property Registration and Road Transport were identified as they have potential for improving significantly for the Government-to-Citizen services. Following objectives were kept while implementing these projects Significant and measurable improvement in the quality of government services to citizens. (2) Manual system should be completely replaced.
(1)
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Developments and Implementation of E-Governance (3) Project should be made sustainable commercially within a reasonable time.
The implementations in Karnataka (Bhoomi), Andhra Pradesh (CARD), Maharashtra (SARITA), Himachal Pradesh (V AHAN /SARATHI), etc., were studied for taking their learnings to other states. Under the programme, presently over 30 projects were taken up on pilot scale covering one District each across the different States with the effort to develop model implementation of an eventual state-wide roll out on a selfsustainable PPP (Public Private Partnership) model by replacing manual system completely.
Technology Development for Indian Languages The Department of Information Technology initiated the TOIL (Technology Development for Indian Languages) with the objective of developing Information Processing Tools and Techniques to facilitate human-machine interaction without language barrier; creating and accessing multilingual knowledge resources; and integrating them to develop innovative user products and services.
Aim and Scope It is an important application and has immense potential in the
Indian market. There being eighteen languages in the country, translation from one language to another would yield a large number of pairs. Keeping in view the maximum correspondence in the language pairs, and keeping in view the need for translation of official correspondence from English to Hindi, this pair has been identified as the priority area for MAT system. Because of similarity among Indian languages, the translation among Indian languages is easier than translation from English to Hindi. In view of the above, two areas for MAT, namely: MAT systems for translation among Indian languages and MAT for translation from English to Hindi have been identified as potential areas for research. Because of the complexity of the area, it is feasible to develop only domain specific systems for narrow domains. Fully automatic general purpose high quality machine lranslation systems are extremely
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difficult to build. The difficulty arises from the following reasons: (1) In any natural language text, only part of the information
to be conveyed is explicitly expressed. It is the human mind which fills up and supplements the details using contextual understanding of the world knowledge. (2) Different natural languages adopt different conventions about the type and amount of information to be communicated. In spite of these difficulties, it is possible to employ the computers for machine translation, although it sounds paradoxical. The solution lies in separating language based analysis of texts from knowledge and inference based analysis. The former is left to the machine and later is taken care of by the human readers. Thus, the aspects which are difficult for the human being are handled by the machine and easier aspects are left to the human being. The aim is to minimise the effort of the human being and thereby increase his productivity, hence we refer to it as Machine Aided Translation (MAT) not machine translation.
Machine Translation Support Systems Internationally it is a well accepted fact that it is impossible to develop General Purpose Machine Translation Systems. However, it is practical to achieve reasonable degree of success in development of Domain Specific Machine Translation Support Systems which will largely aid the translators in doing their job faster. Indian Languages are phonetic in nature and are close to each other whereas English stands apart from the linguistic considerations. Demo system for a language pair Kannada to Hindi was developed initially at lIT, Kanpur and this technology was demonstrated at variou& forums and was termed as ANUSARAKA. This technology has now been extended to Telugu, Marathi, Bengali, Punjabi into Hindi and is available for trial through e-mail. This work has been carried out jointly by II1K and University of Hyderabad, Hyderabad.
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Machine Aided Translation between English to Hindi Most of the international and National wire service agencies send news items in English. Manual translation is slow and tedious. The inflow of news items is not evenly distributed, therefore there is burst of translation required just before the newspaper is to go out. Because of these problems, many newspapers in regional languages publish the old news. The project aims at human-aided machine tran',lation of English news stories to Hindi. The news stories will be taken from a wire service agency, simplified and translated, using human intervention as appropriate. The output of the system is expected to be postedited by humans. A demo system for translation of English News stories to Hindi has been developed. The documents/reports used for the campaigns of Public Health are mostly in English language. Translation of these documents in Hindi will go a long way in order to achieve the objectives of the respective campaigns. The system uses the ANGLABHARTI approach developed at lIT, Kanpur. A demo system for translation of Public Health Campaign documents has been developed. Keeping the above in mind, two projects for E-H pair and one project for other Indian Languages to Hindi were initiated for specific domains. ANUSARAKA technology aims at providing access to any other Indian language to a person who knows Hindi. It will be particularly important as the content in Indian languages becomes available on the web or in digital form. It is jointly being developed by IITK and University of Hyderabad, Hyderabad. ANGALABHARA TI technology aims at machineaided translation from English to Hindi for specific domains. It has been developed at IITK and adapted for PC platform at ER&DCI, Noida. MAT technology is also being developed at NCST, Mumbai for translation of English news stories to Hindi and support it on the web.
ANGLABHARTI: An MAT for English to Indian Languages ANGLABHARTI represents a machine-aided translation methodology specifically designed for translating English to
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Indian languages. English is a SOY language while Indian languages are SVO and are relatively of free word-order. Instead of designing translators for English to each Indian language, ANGLABHARTI uses a pseudo-inter lingua approach. It analyzes English only once and creates an intermediate structure with most of the disambiguation performed. The intermediate structure is then converted to each Indian language through a process of text-generation. The effort in analyzing the English sentences is about 70 per cent and the text-generation accounts for the rest of the 30 per cent. Thus only with an additional 30 per cent effort, a new English to Indian language translator can be built. Some of the major design considerations in design of ANGLABHARTI have been aimed at: providing a practical aid for translation wherein an attempt is made to get 90 per cent of the task done by the machine and 10 per cent left to the human postediting; (2) a system which could grow incrementally to handle more complex situations; (3) an uniform mechanism by which translation from English to majority of Indian languages with attachment of appropriate text generator modules; and (4) a human engineered man-machine interface to facilitate both its usage and augmentation. (1)
ANGLABHARTI is a pattern directed rule based system with context free grammar like structure for English (source language) which generate a 'pseudo-target' applicable to a group of Indian languages (target languages). A set of rules obtained through corpus analysis is used to identify plausible constituents with respect to which movement rules for the 'pseudo-target' is constructed. The idea of using 'pseudo-target' is primarily to exploit structural similarity to obtain advantages similar to that of using interlingua approach. It also uses an example-base to identify noun and verb ph rasa Is and resolve their ambiguities. Indian languages are verb ending, free word-group order language with lot of structural similarity. Indian languages can be classified into four broad groups according to their origin.
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These are Indo-Aryan family (Hindi, BangIa, Asamiya, Punjabi, Marathi, Oriya, Gujrati etc.); Dravidian family (Tamil, Telugu, Kannada and Malayalam); Austro-Asian family and TibetanBurmese family. Within each group the languages exhibit a high degree of structural homogeneity. The methodology exploits this similarity to a great extent in its design. Paninian framework based on Sanskrit grammar using Karak (similar to 'case') relationship provides an uniform way of designing the Indian language text generators using selectional constraints and preferences. The lexical database is the fuel to the translation engine. A number of ontological/semantic tags are used to resolve sense ambiguity in the source language. We usc semantics to resolve most of the intra-sentence anaphora/pronoun references. Alternative meanings for the unresolved ambiguities arc retained in the pseudo target language. A text generator module for each of the target languages transforms the pseudo target language to the target language. These transformations do lead to sentences which may be ill-formed. A corrector for ill-formed sentences is used for each of the target languages. Finally, a human-engineered post-editing package is used to make the final corrections. The post-editor needs to know only the target language. The ANGLABHARTI methodology was used to design a functional prototype for English to Hindi on Sun system. Feasibility on extending this for English to Telugu/Tamil was also demonstrated. Thereafter, during 1995-97, the DOE/MITTDIL programme funded a project for porting the English to Hindi translation software on a PC platform in Linux for translating English Health Slogans into Hindi. Dr. Ajai Jain joined the group of researchers at IIT Kanpur and ER & DCI Lucknow INoida was associated with the project for field testing and packaging the software. In year 2000 the project received further funding for making it more comprehensive. The outcome of this project has been release of the first version of the software named AnglaHindi (an English to Hindi version based on Anglabharti approach) which accepts English text with almost no constrain ts
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on its form. AnglaHindi has also been web-enabled and is available for online translation at URL: httpllanglahindi. iitk.ac.in AnglaHindi software technology has been transferred to two organizations and is being made available on both the I jnux and Windows platforms.
Web Based Translation Service for English News Stories to Hindi The domain of news storie'> is highly context sensitive, hence the standard Zlpproachec> of translZltion such as Direct Translation, Transfer Appw(h:h, Intcrlmgua are not adequate. Therefore a Hybrid approach system Vaakya has been developed at NeST, Mumbai. The input text is simplified using a preprocessor. Using the world knowledge and heuristics, the topic of the news story is identified. The processed text is analyzed and tagging of the parts of the speech is done. Lengthy sentences arc simplified using simplification rules. The text is then transformed into a case-frame like structures using the infitization rules. Then generation of the target language is achieved by the parameterized templates from the case-frame structures and the bi-lingual I ,exicon. The major components of the system arc: Topic Identification Parts-of-Speech Tagger. (3) Heuristic Simplification. (4) Knowledge based Phrase Recognition. (5) Parser. (6) Lexicon. (7) Infitization. (8) Translation and Generation. (1)
(2)
Prototype Vaakya system is now being enhanced and adapted for providing web translation service to the news agencies.
ANUSARAKA Machine Translation System ANUSARAKA is a Language Al'cessor rather than a machine translation system in true sense. It helps in overcoming the language barrier by assisting the reader to access information
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from another language. ANUSARAKA analyses the source language text and presents exactly the same information in a language close to the target language. It tries to preserve information from the input to the output text. It is domain free system and has been adapted from Pan in ian Grammar. It has been developed for translation from Telugu, Tamil, Marathi, Bengali, Punjabi to Hindi. The major components of the system are: (1)
(2) (3) (4) (5) (6)
Morphological Analyser. Local Word Grouper. Bi-lingual Dictionaries. Mapper from Source Language to Target Language. Word Synthesizer. Post-editing interface.
The ANUSARAKA has been made available in the public domain as an e-mail server for translation service from Telugu, Kannada, Marathi, Bengali and Punjabi to Hindi. To run the Anusaraka on a given text, send the text bye-mail to
[email protected] with the language name as subject such as 'teIugu' for getting the translation from Telugu to Hindi. This will automatically run the TeIugu to Hindi ANUSARAKA and the output produced will be sent back to the sender. The text should be in 7-bit ISCII coding.
Human Machine Interface Systems These systems aim at a better human-machine interaction which envisages the use of other modes of communication with the computer namely: speech and vision. Speech input/ output and Optical Character Recognition (OCR) Systems are still at nascent stages even in developed <;ountries. They are successful only in specialized domains and restricted environments.
Speech Databases These can serve as test-bed for all application developments in the area of Speech syntComprehensive databases of the different units of speech such as phonemes, words etc. for various Indian languages need to be developed.
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Speech Database for Hindi Sounds Speech signals for 1000 selected words of Hindi have been recorded for two utterances of about 50 speakers. PC based algorithms have been designed for speech signal processing, acoustic analysis of speech sounds and phoneme labelling. An acoustic phonetic database for these words has been created. This is useful for speech synthesis and recognition. This has been developed at CEERI, Delhi.
Optical Character Recognition Systems (OCR) Theses systems are useful for direct transfer of large data into the computer with the help of scanner. The hard copy is fed into a scanner, the image file is then analyzed and image processing are applied for transforming into ASCII file. Efforts are underway to develop OCR for Hindi.
Text-to-Speech Synthesis System Alpha version of Speech synthesis system for Hindi language has been developed. The prosodic rules are under development for further improving the quality of the speech. It is being developed at CEERI, Delhi.
OCR for Printed Devanagari Text Various image processing algorithms have been developed for obtaining the image matrices of the characters and identifying the Devanagari characters and words for laser printed text. This development is being carried out at C-DAC, Pune. Technologies Developed by the Respective Institutes/ Organizations
HindiVani-CEERI, N. Delhi It is a PC based Unlimited Vocabulary Text-to-Speech
Conversion Software for Hindi (Alpha Version) for DOS platform. The text document is generated using a Hindi Editor which supports ISCII standard. The input words are split into syllables, using a parser. An acoustic-phonetic database of all thesc syllables is available in the database, which is subsequently
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used to create words. The concatenation of syllable:-- ll1to words and the superimposition of quality features is done by developing rules. The quality features of speech such as intonation, stress and timing patterns are then improved. A cascade-parallel formant synthesizer is used to synthesize the speech The major components of the system are: (1)
(2) (3) (4) (5) (6) (7)
Word Parser C:oncatenator Parametric Database Knowledge Base (Frequency and Durational Rules) Voice Quality Manager Klatt Synthesizer D / A Converter.
It can be used as an aid for the visually handicapped and
for information retrieval. The system is being ported to Windows environment and prosody rules arc being incorporated for better quality speech output.
Devanagari Optical Character Recognition-C-DAC, Pune OCR s/w has been developed with following input design parameters: (1) Laser printed raster scan image file using 300 and 600
dpi resolution (2) DV - Natraj and DV - Surekh Fonts (3) Font Sizes 12, 14, 16, 18,20,24,28,32,36,40 & 48 (4) Scanning at 300 & 600 dpi using HP Desk Scan - 4C Scanner, black & white, 8 bit, .bmp file format. Shiro-rekha based approach has been adopted. Based on which, Algorithms have been devised for segmentation, tilt correction and Feature Extraction to generate three sets of databases namely Top, Middle and Bottom modifiers. Approximately 95 per cent accuracy has been obtained.
Pocket Tran...lator C-DAC, Pune Pocket Translator is a tool for the foreign tourists to communicate with the locals. It offers instant translation in both script and
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voice from one language to another selected language. It stores standard phrases that are commonly used by travellers at various public utility places. It looks like calculator / casio diary having a miniature keyboard and LCD display unit that will run with pencil cell. Language phrases have been selected in categories of Automobile, Restaurant, help/emergency, shopping, home/ housekeeper, greetings, telephone / postal, directions/signs, SOcialising, tours/leisure, travel/hotel, medical, legal, business, technical terms. It will cuver major Indian languages, viz., Hindi, Tamil, Malayalam, Kannada, Telugu, Bengali, Oriya with English as the interface. The features of the Pocket Translator are: (1) Language Translation (2) l.anguage Phrases (3) Personal data with security lock (4) Address and Phone diary (5) Currency convertor (6) World Time Clock (7) Consumer Information (8) Games. A prototype pocket translator for Hindi with 30,000 bilingual dictionary and 300 phrases has been developed to establish the feasibility of technology.
Indian Language Processing Tools Internet Tools and Technologies Developed by the Respective Institutes/Organizations (1) Displaying Web Documents through Negotiation and Dynamic Rendering: Web authors create documents in a variety of languages using a variety of character sets and fonts. It is not possible for the viewer of the document to have all those fonts and character sets present on his system. Thus either the client is required to download the fonts or install these on his/her system or install some software on his system to help in the process. For a truly portable solution, the client need not specially install any fonts or software on hi~ system.
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The Java-centric solution for displaying the Devanagari documents has been developed. Java Applet using public domain font 'Bhagwan' displays the Devanagari documents in true type font. The applet and the font related information is around lOOk. The Server Java Applet encodes the glyphs and sends it with the document so that Hindi Font is not required at the client side for browsing the document. Hindi Search engine has been developed on Linux platform. (2) Automatic Font I11staller: The users are required to generally download the fonts for viewing the non-Roman web sites or manually install the fonts, which is a cumbersome task. A single executable has been developed to carry out the process whenever the user chooses the font installation option. The font installer program runs on the server and installs the fonts on the client machine. (3) URL Addresses ill Devallagari: The current browsers don't allow URL and filling of forms in HTML pages to be entered in Hindi. Therefore, the world wide web needs to be multiLingualised. It involves conversion of URL in the local language to the internationally agreed format, such as UNICODE, with UTF-8 encoding. The user will be able to fill the forms in the document fetched in a local language. Further, the user is allowed to choose between a set of languages in which to view the document, if the document is available in various languages. The solution is based on the Swing components in JDK1.2 and assumes the font to be present on the 10('a1 machine. (4) I11dian Language Search El1gillP: The search engine should allow indexing and searching of Devanagari HTML documents. The basic component~ are gatherer, indexer, and Search processor. Indexer and !Search processor are being designed as these two modules deal with syntax and semantics of the language of the text. Indexer will perform processing such as keyword extraction, stop word removal, stemming (handling different forms of a word), handling of word synonyms, and term weight calculation. Search Processor looks up the index to find the documents containing the query keywords, calculate a relevance score, and ranks them according to the score. This search engine will also search the keywords occurred in a
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composite word (combined according to 'SANDHI' rules, for example s/w will give a match for keyboard 'ram' if it finds 'rameshwar' in the document). It is assumed that the documents are in ISen. (5) Heritage Website: The website has been developed containing material concerning traditional Indian texts centred around the 'Upnishads and the Bhagwadgita'. The functionality provided is: (1)
(2)
(3) (4)
(5)
There are font-downloading applications (.exe) files. Users can download any Indian language font and install the font. The commentaries include some technical words, which have Sanskrit origin. The definitions for such technical words are displayed with a mouse click. Links between related shlokas within the same Upnishad/Gita for cross referenCing. Each hyperised text has a search mechanism by which user can locate the occurrence of any word and view that particular shlokas with it's translation and commentary. User selected language for viewing the Mool Shlokas.
(6) CD Authoring Tools for Indian Language Documents: The technologies that are being used for publishing on the www viz. HTML, XML, Java, Javascript, etc., are also being increasingly used for document delivery over CDs. These days the entire computer related documentation is accessible using the web browsers. It is expected that this trend will pervade into non-technical publishing also. The development of Indian Language CD Publishers ToolBox, 'site management' tools and searches integrated with a dictionary are underway. (7) Web based E-mail: Hindi e-mail service, has been developed which uses advanced ActiveX technologies available with Internet Explorer 4.0 and later versions of browsers for enabling the keyboarding and fonts for Indian languages on the client Pc. This service provides a facility to type the text in Hindi language for sending an e-mail in Hindi which gets converted into HTML format. This converted Hindi text in HTML and with
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font codes is delivered at the Email address of the user, who can just place it on any Web Page using any standard HTML editor like Netscape Composer. The software components namely ActiveX Controls and Hindi Fonts get downloaded and installed on the client's computer when the user first time accesses the system. Every time the user accesses the e-maIl server, a check is made for the installed components. To be able to send/view mail, the user must first create an account on the system by defining login name and password. An account holder on the system can send a message to any other account holder. The user types in the message using the Inscript keyboard overlay. The message is stored in a database. The data on the server is stored in ISCll. When a request for reading an e-mail message is received, the server retrieves the message from the database and creates a HTML file containing the message with the Hindi font information on the fly and delivers it. Microsoft Visual Interdev is the IDE, which uses the power of ASP (Active Server Pages) to make web pages and connect to the back end Database using ODBC drivers for MS SQL server. Using ASP, queries have been made to the database from the webpage. ActiveX technology based Hindi e-mail, search engine and Bulletin Board System has been developed. Hindi e-mail also stores documents in ISCn format. (8) Hindi Bulletin Board System: It is under development. This web based application allows users to create topics for discussion and maintains threads within a topic. (9) Hindi Search Engine: Development is underway which .involves the following: 0) Manually surf the net and build indexes for documents
in Hindi. (2) Invite the Hindi language document creator to submit web pages URL with page description and keyword in Hindi to the search engine, i.e., build a web based application to collect data in Hindi. (3) Build special search techniques for Hindi based on word morphology / thesaurus! sandhi, etc.
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(4) Deliver HTML document index description in Hindi for search result. (5) Define standards for Meta-tags, etc., for Indian languages such that future spiders can retrieve documents for a particular language. (10) Multi-lingual E-mail Client: A working prototype has
been developed to facilitate the clients for sending and receiving e-mails in Hindi without having need to have Internet connection provided sender and receiver both have this s/w. The application will use technologies like MAPI, Extended MAPI and COM to communicate with the interfaces provided by MS Exchange. The application downloads all the mails received via the POP3 server and stores them locally on the machine. This storage of mails is taken care of by the MS-Exchange. The application provides access to various folders like InBox, Sent Mails, Deleted Mials and OutBox for convenience of the user.
Sanskrit Processing Tools Developed by the Respective Institutes/Organizations DESIKA-C-DAC Bangalore The Software package, DESIKA is a Natural Language Understanding System for Sanskrit. This software incorporates language generation and analysis modules for plain and accented written Sanskrit texts. It is based on the principles of ancient Indian Sciences. DESIKA aims to process all the words of Sanskrit, includes generation and analysis (parsing), has an exhaustive database based on Amarakosha, the most popular Sanskrit lexicon, rule base using the grammar rules of Panini's Ashtadhyayi and heuristics based on Nyaya and Mimamsa sastras for semantic and contexual processing. This software can also analyse Vedic (scriptural) texts. The highlight of DESIKA is the analysis module which is a general purpose Sanskrit parser currently being extended to handle compound and combined word forms dissolution and identification. Vedic analysis is also under way. Rigveda and Taittiriya branch of Krishna Yajur Veda analysis using Taittiriya Pratishakya and Vaidika Prakriya of Ashtadhyayi.
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The DESIKA software helps in understanding a natural language input (typically an isolated sentence) through paraphrasing, voice change, query answering or summarizing, to develop a language-independent knowledge representation scheme based on ancient Indian Sciences, to develop tools for linguistic analysis and to assist in analysis and presentation of scriptural (accented text) knowledge, phonetic and language research, teaching, etc. It was developed on DOS platform and has now been ported on Windows platform.
Sanskrit Authoring System-C-DAC, Bangalore Sanskrit word processor is under development which will even handle special Sanskrit conjucts. The requirements which will be catered by this s/w are: 0) Word Processing in Sanskrit (2) Statistical Tools like concordance, thesauri, electronic dictionaries, etc. (3) Transliteration Facility (4) Search/Sort Algorithms (5) Word Split Programmes for Sandhi and Samasa (6) Fonts for various scripts, web access, web hosting, publishing, etc. (7) Poetry Analysis (Textual/metric/statistical) (8) Manual. content for Amarakosha, Grammar rules, Derivations, Quotes from Vedas (scriptures) (9) Epic like Ramayana, Mahabharata, other Pur an as, Shastraic texts in sutra and Authentic Reference (0) Online readers/primers of Indian Shastraic texts (1) Tools for morphological, syntactic and semantic analysis (12) Tools for linguistic analysis like tagging, lemmatising, statistical studies, etc.
Syntactic and Semantic Analysis of Sanskrit SentencesAcademy of Sanskrit Research, Melkote Software for syntactic and semantic analysis of Sanskrit sentences has been developed on DOS platform with GIST card and is being ported to Windows platform. The sentence: :.as been considered the basic unit for analysis since it is the backbone of
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verbal communication between the human beings. The importance of words will be known only when the meaning of sentence is known. Systematic classification of words and a robust grammar can help in deriving the knowledge from Sanskrit and build a system which will help in the development of Natural Language Processing Systems. The various modules of the system are: (1) Subanta: It can handle generation and analysis of all
the case inflected forms of more than 26,000 stems. (2) Tinanta: It can handle the conjugational forms of roots, in two voices, ten lakaras and three modes, viz." Kevala Tiganta, Nijanta and Sannanta. (3) Kridanta: It is capable of handling generation analysis and identification of case inflected forms of 11 types of Kridantas of 150 roots. (4) Databases: 690 Avyayas, 26, 000 Nominal stems, 600 Verbal roots, kridanta forms of 600 verbal roots, 5 Taddhita suffixes. The parts of speech handled for analyzing are nouns, pronouns, adjectives, participles, indeclinables, indeclinable participle and verbs. Sentences with multiple adjectives and participles can also be analysed. Sentences constructed by picking up any words from the database can be syntactically analyzed. But semantic analysis is done within a limited domain. For handling the semantic analysis, a matrix has been prepared which consists of 52 sets of nouns with their synonyms amounting to 300 nouns, 27 actions denoted by nearly 200 verbs. Syntactic and semantic analysis of simple passage consisting of not more than 10 simple sentences has been done successfull y.
CASTLE-fLN University, New Delhi CASTLE s/w on DOS platform with GIST card has been developed for Sanskrit teaching and learning as a stand-alone application. Under this project, the synthesis aspect of Sanskrit phonology and word morphology has been handled. The various modules developed under this system are:
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Developments and Implementation of E-Governance (1) Pratyahara: It deals with the sound classes of Paninian
(2)
(3)
(4)
(5Y
(6)
(7)
(8)
grammar. It may be gescribed as a shorthand notation to refer to a group of items. Sandhi: Euphonic combination relating to sound units is called 'sandhi'. It is a common module for various types of word formation. A sandhi type depends on the final phoneme of the first word and the initial phoneme of the second word. It also includes a programme for internal sandhi called Natva-satva vidhana. Subanta: This module deals with the nominal inflexion. The System inputs are noun base with its attributes and the output is the 21+3 inflected forms of the noun. Tiganta: Verbal conjugation is called tiganta. This module takes the verb and lakara (tense/mood) as inputs, and generates 9 conjugated forms of the verb in each pada. Kridanta: The primary derivatives are called kridanta. The inputs to the system are the semantic condition, verb root and krit suffix. The kridanta form is the output. Taddhita: The secondary derivatives are called taddhita. System inputs are the semantic condition, noun base and taddhita suffix. Taddhita form is the output. Samasa: Compound formation is known as samasa. Two or more words are joined to form a new word. The inputs to the system are two or more noun bases, which are characterized by a semantic condition, and the normal suffixes. Sri-pratyayas: These suffixes are added to primary verbal roots to derive secondary verbal roots. The derived verb is again sent to the tiganta module to generate 9 conjugated forms of the verb in each pada.
Following Demonstrative modules for learning/ teaching of Sanskrit have also been developed: (1) Teaching Varnmala: This module deals with the
teaching of Sanskrit alphabet along with their characteristics. Exercises for testing knowledge of Varnmala have also been prepared.
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(2) Sandhi Viccheda: The system takes a word as input, and returns the constituent words. (3) Subanta Viccheda: The input word is split into the root word and suffix. Besides, the grammatical attributes associated with the root word, i.e., the noun-base' are also displayed. (4) Tiganta Viccheda: The input word is split into the root word and suffix. Besides, the grammatical attributes associated with the root, which is a verbal root, are also displayed.
Shabadbodha Software Shabdhabodha is an interactive application built to analyze the semantic and syntactic structure of SansIvit sentences. It works on MS-DOS Platform version 6.0 or higher with GIST shell. It has been developed at ASR, Melkote.
SpelJ Checkers Spell checkers are useful for word processing and are mostly integrated with the word processing softwares. Spell checkers in few Indian languages are available. The development of Spell checkers is covered within the scope of the current projects for corpora development. Punjabi Spell-checker has been developed at CEDTI, Mohali.
Special Requirements for Indian Language Processing ([LP) India is a large multilingual society with as many as eighteen constitutionally recognised languages including English and the National language is Hindi. There are multiple scripts for these languages. With increase in trade and development across the country it becomes necessary for the people to communicate in more than one language. In such circumstances, Information Technology (IT) appears to be a promising tool for the development of ILP systems which aim at overcoming the language barrier. These ILP tools coule' t.,p designed using many approaches such as :
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Developments and Implementation of E-Governance (1) Natural Language Interface/Environment for Data
Input/Output support. (2) Operating System level support at the native level for the Indian languages. (3) Indian Language shell over the existing operating systems and applications. (4) Localising existing applications. (5) Developing specific applications.
Capacity Building and Institutional Framework for E-Governance under NeGP NeGP Introduction (1) The Government of India has planned a national level
initiative-National e-Governance Plan, NeGP (for details refer to our website http://www .mit.gov.in ) for increased transparency, efficiency and effectiveness for delivery of citizen services_ E-Governance is also a part of the Government's agenda of governance as mentioned in its National Common Minimum Programme. An important component of the NeGP are projects, which fall essentially within the domain of the State Governments. The State Governments naturally will prioritise/ choose amongst these projects. (2) The nature and scale of e-Governance initiatives planned within the domain of the State Governments, present a considerable enhancement in the aspiration level of government. Major managerial and technological challenges are one consequence of this, particularly in the context of the need for implementation of these projects in a 'mission/projectised mode', (with clearly defined goals, timelines and responsibilities) by concerned departments of the State Governments. There is also a need to manage the entire programme at the state level in a coherent manner with consistent strategies for cost optimization and integration. For achieving this, the State Governments need to provide for overall
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direction, standardization and consistency across initiatives and at the same time, have the resources and flexibility to drive this plan. (3) Keeping in view the enormous task of driving NeGP in line with the overall spirit of service orientation most states are inadequately equipped in terms of personnel and the skill-sets needed to handle the host of issues involved. Many states do not even have an IT / e-Governance department or have a skeletal department that is not designed to deal with the complexity of issues involved. For NcGP to achieve its goals, this is the first gap that needs to be addressed. (4) It is for this reason that the Planning Commission in the current year (2004-05) has incorporated a special Budget entry and has allocated funds as Additional Central Assistance (ACA) to all the States for initiating the National e-Governance Plan (NeGP) programme as communicated by Planning Commission, Gol to State Chief Secretaries (vide F.No.:4(4)/3/2004-C&I, dated 9-2-2005). Planning Commission has issued broad guidelines for use of the ACA indicating that the first pt"iority is capacity building. These detailed guidelines for use of ACA for capacity building are being issued by DIT, as indicated in the broad guidelines issued by Planning Commission. The subsequent release of funds under NeGP would depend on amount sanctioned by the Planning Commission/respective Line Ministry, Government of India based on the specific Project Proposals sent to Gol by the State Government departments. (5) The capacity building guidelines take cognizance of the fact that different states are at different levels of readiness for e-Governance and have differenflevels of aspiration. Capacity gaps are therefore not viewed in an absolute context but relative to the goals set out by the respective state government for itself. Hence the first step envisaged in capacity building is for the state to make a quick 'asis' and 'to-be' assessment. All capacity gaps and
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Developments and Implementation of E-Covt.'rI1c1nce guidelines contained herein need to be seen with reference to this state specific context.
Levels at which Institutional Framework and Capacity Building Needed (6) As NeGP in the states would be cutting across departments. it is expected that the State Government at the highest levels would be providing leadership, direction and vision for e-Governance, which would result in broad roadmap and prioritization of the projects. (7) To facilitate the State administration and to carry out the groundwork for the above, prepare project proposals, implement the projects and oversee O&M thereafter, adequate support through a dedicated, professional team need to be in place with appropriate skill-sets and aptitude at two levels: (i) Programme level (i.e. at State Level) (ii) Project level (i.e. at Department Level).
OJ
• Policy Formulation • Committing Resources • Taking hard deCisions
Leadership & Vision
• Preparing Roadmaps • Prioritization Frameworks, Guidelines
Programme Development
a8 •
1
• Monitoring Progress • Inter-agency Collaboration • Capacity Management
.... U OJ
Programme Management
• Conceptualization • Architecture • ________________ Definition (RFP, SLA. .. )
Project Development
• Bid Process Management • Project Monitoring • Quality Assurance
Project Management
~
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(8) The first level deals with issues that cut across projects such as overall policies, strategies, technologies, common infrastructure and so on. These issues need to be dealt with by a department designated by the State Government typically the State IT department/ e-Governance department. The second level deals with all project It'vel (i.e., departments of State Government initiating l>-Governance projects) issues from conceptualization to implementation and O&M phase. The issues involved here arc considerably different and arc intimately connected with the domain in which the department functions. (9) Further, the Capacity Building would also help to maintain continuity of approach despite changes of key incumbent officers leading e-Governance.
Specific Capacity Gaps (10) It is important to note that this Capacity Building is for building an internal capacity of the Government, so that it has the necessary expertise to carry out the following: (i) Developing Vision (ii)
(iii) (iv) (v) (vi)
Steering the programme/project Making strategic decisions Choosing between options Monitoring Leverage external capacity / agencies for (a) Professional handling of tasks (b) Continuity (c) Detailing out the broad directions (d) Performance against specific goals.
The internal capacity addresses tasks like-preparation of scope of work, preparing RFPs, making internal notesheets for getting approvals/sanctions, selection of external agencies, managing and getting the best out of external agencies, internalizing the outputs/reports of the external agencies, quality assurance, doing costbenefit analysis amongst various technological and other
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(11)
policy options, etc. It should be noted that this team will also directly handle file work, examination of issues, etc. on file and no separate examination by a conventional secretariat set up thereafter is envisage& This team will work directly under the designated Secretary (typically IT Secretary) of the State Government and subject to his overall guidance and administrative control. There are three specific capacity gaps envisaged: (i) Lack of Personnel with appropriate background and
aptitude. (ii) Inadequate skill sets of personnel already deployed. (iii) Lack of appropriate institutional framework to handle the programme. Each of these gaps needs to be addressed adequately. These guidelines indicate a reference framework to do so. They arc not intended to be prescriptive, or mandatory but are recommendatory in nature to address these gaps adequately. States may make modifications as considered appropriate and necessary. (i)
Lack of Personnel with Appropriate Background and Aptitude Personnel with appropriate background and aptitude would be helpful in prioritizing, conceptualizing, developing and managing the e-Govemance projects. The areas of expertise identified as being necessary for handling programme/project level issues are: (a) Business Process Reengineering (b) Change Management (c) Financial Management (d) Technology. This gap would be covered by a judicious mix of two approaches: (a) Sourcing of carefully selected personnel from government, PSUs or any state agency or central agency, with required background and experience. (b) Sourcing personnel from the private sector.
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(ii) Inadequate Skill Sets within the Government This gap would largely need to be addressed through training. The arrangements in this regard are not elaborated in these guidelines but would be separately indicated after all details are worked out and suitable arrangements are made in this regard. (There are already some programme for CIOs offered by IIMs, ASCI, NISG etc.)
(c) Lack of Appropriate Institutional Framework to Handle NeGp' An indicative framework is spelt out in these guidelines below.
(12) Based on specific capacity gaps identified above, capacity building and institutional framework is being suggested to address these gaps. If a State Government already has a framework in place which performs similar roles as indicated below, the same can be retained, with or without alteration, taking the cue from these guidelines.
Apex Level (13) A Programme Steering Council should be setup ideally under the Chairmanship of the Chief Minister in the State to provide overall vision, broad policy direction and guidance to the State e-Governance Programme-SeGP (Le., state specific project areas under NeGP). (14) To achieve the policy goals and objectives as determined by the Programme Steering Council, a high level committee--SeGP Apex Committee is expected to be set up to provide strategy direction and oversee the State e-Governance programme and ensure interdepartmental coordination. A suggested composition is as follows: (i) (ii)
Chief Secretary Chairman Secretary (IT) /Secretary (e-Governance) or any other Secretary designated by State Government Member Convener
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Developments and Implementation of E-Governanct> (iii) (iv) (v) (vi) (vii) (viii)
Secretary (Finance) Member Secretary (Planning) Member Secretary (Administrative Reforms) Member Secretary (Personnel) Member SIO (NIC, State unit) Member Representatives of departments taking up e-Governance projects under SeGP Invitees Ox) Domain/Technical experts Members/ special invitees.
Programme Level (15) A State e-Governance Mission Team (SeMT) needs to be formed to support the Program Steering Council and SeGP Apex Committee and function as the secretariat and full time internal advisory body in undertaking e-Governance projects. This team would be responsible for undertaking the groundwork for providing for an overall direction, standardization and consistency through programme management of the e-Governance initiatives in the State. All interdependencies, overlaps, conflicts, standards, overarching architecture, security, legal aspects, etc., across projects as well as core and support infrastructure shared across several projects would fall under the purview of this group. However, only the SeGP Apex Committee would have the power to issue directions to any department. (16) Given the current structure and skill-sets available, capacity building is required to form SeMT with adequate number of personnel with the requisite skillsets. Capacity Building at State Level (SeMT) would inter alia strengthen the secretariat of the SeGP Apex Committee under the Secretary (IT) or any other sec~etary nominated by the state government, who may currently be supported by a skeletal staff and/or the state unit of NIC. (17) It is expected that the SeMT would typically consist of 5-10 core people initially. The actual size would depend on the scale and maturity of the e-Governance
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programme in the State. For states that have a suitable programme already under way, the SeMT would be significantly larger. SeMT is expected to engage agencies
on task basis, wherever feasible and appropriate, rather than undertaking tasks itself. It is important to ensure that the SeMT does not itself undertake tasks that could have been out source to professional agencies, so that the State gets the benefit of the best advice on various issues.
Project Level (18) Various departments of the State Government taking up e-Governance projects would require a full time dedicated Project e-Gaoernance Mission Team (PeMT). This team would function as the secretariat reporting to the project leader. This team would oversee project execution and would manage implementation and deal with technology, process and change management related issues. This team would also manage outsourcing tasks like: CD Preparation of the Project Proposals (ij) Consulting Assignments for Business Process Re-
engineering, Change Management, Financial Modelling, System Design and Architecture, etc. (iii) Project Management/Monitoring, etc. (iv) Training. (v) Procurement of Hardware, Software, Networking, etc. (vi) Data entry. As several of these tasks would be undertaken by . various projects running in the state, it would be helpful to take advice and support from SeMT time-to-time. (19) The approach for formation and skill-sets required for PeMT would be on similar lines as mentioned for SeMT. (20) It is expected that the PeMT would typically consist of 4-8 core people and have a well-balanced mix of domain expertise (serving/retired officials of the department having detailed knowledge about the department and
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Developments and Implementation ot E-Governance
its processes and functions) and technical expertise (i.e., technology, process re-engineering, change management, project management). (21) PeMT is envisaged to be formed as early as possible, the earlier the bett~. Till such time, the department may take necessary support from ScMT for handling early stages of project, i.e., project proposal formulation and early stage of bid process.
Summary of Institutional Framework (22) The following illustration provides a conceptual overview of the Capacity Building and Institutional framework in the State Government: State Government
Programme Steering Council (eM) \
State Apex Committee (CS)
Departmental Committee
DIT
1
---JI. . .I---I~.1
I..-_S_e_M_T_ _
PeMT
(23) At both the SeMT and PeMT level, the capacity building should be in the areas which enable the teams to have a holistic view and should address all the areas required to make the projects feasible and sustainable. Typically the team should have all the requisite skill-sets, which
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would be helpful in prioritising, conceptualising, developing and managing the e-Governance projects. The skill-sets identified as being necessary for handling programm('/project level issues are Business Process Reengineering, Change Management, Financial Management and Technology. However, the emphasis on various skills would vary in SeMT and PeMT in accordancc with their roles.
Orientation Training for SeMT & PeMT (24)
The SeMT members may require orientation training to facilitate crystallisation and discharge of the role of SeMT. OIT, GoI, is in the process of identifying appropriate agency to conduct such trainings. Similar training programmes would also be required for PeMT members. Such trainings could be provided by a similar agency or by the SeMT of the State.
Approach for Capacity Building The State Government should designate a State Nodal Organi7ation, which would be responsible for initiating and implementing capacity building. This State Nodal Organization would be providing services like selections, contracting of external agencies/persons/ services and administrative support to SeMT. (26) The State Covt. should relca"e the ACA funds to this designated State Nodall )rganization. (27) The State Government has the option of either designating an existing agency or setting up a new agency as a State Nodal Organization. If the State Government so decides, it can directly undertake Capacity Building. However, this may entail operational bottlenecks and should, ordinarily, not be resorted to. (28) If the f,tak decides to form a new agency for the purpose, the same needs to bc registered as either as a company or as a society. (In this caSl' the State Government as an interim measure should transfer the funds to an appropriate body and ensure that this body would (2'1)
23(',
Dcvelopments and Implementatitm of E-Governance
transfer the funds to the new / designated State Nodal Organization after it gets registered as a Company / Sodety). (29) If the state decides to designate an existing agency as a State Nodal Organization, the following issues should be kept in view: It should be a State Government owned/controlled agency working in the area of Information Technology and registered as a company / society. (ii) The' company / society should he a going concern in a healthy financial condition and the networth of the company / society should be positive. (iii) e-Governance and the capacity huilding activity should find necessary prominence within the organization and is not relegated to insignificance by-Gther activities. (iv) The agency should have its own infrastructure and logistics support. (v) It is pOSSible that the designated agency for capacity building is/would be involved in the implementation of the e-Governance projects also. Therefore there is a potential conflict of interest in the two roles. As a part of SeMT the role would be to monitor and oversee the project implementation and as implementation agency it would be involved in actual deliver abIes. Hence in such a situation, due care would have to be taken to ensure that the SeMT members, though technically working for designated agency, arc not involved in e-Governance implementation work in any manner. (i)
nO) Capacity Building by the State Governments should be undertaken through an appropriate combination of the following two options:
(i) From sources p;esent within the Government or PSUs or any state agency or central agency, with required background and experience. In such cases,
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where required, posts may be created in the concerned department or State Nodal Organization identified as a vehicle for setting up the capacity and personnel would be taken on deputation. For domain expertise in PeMT, re-employment of retired personnel could also be considered, whenever appropriate. (ii) From outside the Government set-up - by engaging Consulting agencic'!- having requisite skill sets mentioned in this document and eligibility criteria. The consulting agenCIes are required to provide the skilled manpower having the skills, experience and expertise specified. While doing so, the state would follow appropriate selection process. Alternatively the state could avail of the advice and assistance of NISC to undertake this task on their behalf. However, such support would be under the overall direction of the State Government. Additionally, if considered necessary and with the concurrence of Planning Commission & DIT, contracts could also be entered into with individuals.
Usage of Funds (31) ACA allocation should be first be utilised for capacity building. The remaining amount, including ACA of subsequent years will be utilised for project implementation. (32) The SeMT expenditure required for the next 3 years can be fully met utilizing this ACA. It would cover the expenditure towards: (i) Outsourced Agency Ipersonnel (ij) Operational expense!>
(iii) Training (iv) Hardware and related infrastructure related to effective functioning of SeMT. (33) However, expenses incurred on PeMTs from ACA under these guidelines, would he limited to the initial period
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Developments and fmplementation of E-Governance
till the sanction of the project by the competent authority. Post project sanction, the expenditure incurred on PeMT should be met from the project expenses. The provision for these expenses needs to be made in project costing. Note :Both in SeMT & DeMT, where a consulting agency is selected for providing the services, due care should be taken to avoid situations of conflict of interestsperceived or real. (34) For ongoing e-Governance projects, the ACA fund could be used to set up PeMT and/ or for providing training to the project team. (35) The balance of ACA after catering to all capacity building requirements could be utilised for other Projects, witn further ACA allocation to the State, after due approval of e-GovernancC' projects under NeGP.
Exclusions (36) Capacity building funding does not cover support towards capital expenses. (However, the hardware and related infrastructure expenses required for effective functioning of the SeMT are permissible). Programme funds shall not be used to support overhead costs, building or renovation projects, etc.
Immediate Action Steps (37) The following are the action steps identified: (i) States will need to designate a State Nodal
Organization. The State Govt. should release the ACA funds for capacity building to this designated State Nodal Organization. (ii) The State Government needs to convey to the 01T and the Planning Commission, Government of India its selection of the designated State Nodal Organization in the prescribed format. (iii) Each State has to detail its 'As-is' assessment of e-Governance projects (including the back-end infrastructure) and the plans for initiating e-Governance Projects. Based on. the plans, state
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should prepare a proposal for capacity building in accordance with the guidelines detailed out in this document. This proposal should be sent to DIT with a copy to Planning Commission for concurrence before Capacity Building. Broadly it should cover the following: (a) Specific e-Governance initiatives/projects planned by the State Government over the next 3 years. (b) Broad estimation of the requirements in terms of number of people and domain expertise for SeMT needed on full-time basis. This would be based on the e-Governance initiatives of the State Government planned for the next 3 years. It should be noted that all clements identified for capacity building (Change Management, Business Process Re-engineering, Financial and Technology expertise) are given due emphasis. (c) The details of how the designated State Nodal Organization would meet the capacity augmentation requirement. (As mentioned above the designated State Nodal Organization could use a judicious mix of the options for capacity building, i.e., within the Government and outside the Government setup). The details should include the estimated expenditure and time lines for capacity building. It is advised that the budgeted expenses should be in accordance with the existing market rates for domain experts/ agencies with relevant experience procured through an appropriate transparent process. (38) In case the State Government feels that the existing capacity is adequate and thai no further augmentation is necessary, the details mentioned in Section 37 (iii (a) & (b» still need to be furnished.
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Developments and Implementation of Fi-Governance
(39) The States can utilize the balance ACA towards implementing e-Gov projects, for which the State Departments need to submit a Project Proposal to Planning Commission with copies to Line Ministry and DIT. Detailed instructions/ guidelines on the submission of Project Proposals and approval of the individual projects would be communicated separately to the State Governments. 40) The State Government may take the assistance of the designated State Nodal Organization to develop the Capacity Building proposal or may request NISG for assistance and advice. State Government may also use the option of getting the proposal developed using an external agency through appropriate means (in case the state chooses to go for an open tender route, assistance/ suggested RFP can be provided).
State Data Centre
Preamble The National e-Governance Plan (NeGP) has identified 25 Mission Mode Projects, which are to be implemented in a phased manner over the next 2-3 years by the Line Ministries/ Departments concerned at the central and state level, as applicable, in addition to the various other e-Governance initiatives being taken by the respective States and Central Ministries. State Data Centre (SOC) has been identified as an clement of the core infrastructure for supporting these e-Covernancc initiatives. Under NeGP, it is proposed to create Data Repositories/Data Centres in the States so that a host of Government services can be rendered by the states through common delivery mechanism seamlessly supported by common core Connectivity Infrastructure such as State Wide Area Network (SWAN) and CSC extended up to village level. This enables online Government, i.e., a Government whose service processes arc integrated end . to-end across the Ministries, States, Districts, Talukas, Villages and with key partners, suppliers, businesses and citizens-can respond with speed, ~bility and effectiveness to any Citizen demand.
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Need for il Diltil Centre It is the primary concern of every business owner about the
security and privacy of his data/applications/systems in third party location. In view of this the IT industry has come up with Internet Data Centres (IDC) where the systems are co-located along yvith the other business applications. The setup is generally equipped with state of the art Data Security, System Security, Internet Security, Redundant Power supply, Access Control System. Air-conditioning and other infrastructure. lIt today's technology driven environment to implement such solutions one has to invest huge amount to provide infrastructure to run the e-appli~ations. The SDC is equipped to host / co-locate systems (e.g., Application Servers, SAN, and NAS, etc.) and creah.' a setup to standardise the application development guidelines to host applications at the SDC to use the centralized computing power. The SDC has centralized authenticating system, with high availability, to authenticate the users to access their respective systems depending on the authentication matrix. State Data Centre acts as a mediator and convergence point between open unsecured public domain and sensitive government environment. It enables various state departments to host their services/applications on a common infrastructure leading to ease of integration and efficient management, ensuring that computing resources and the support connectivity infrastructure (SWAN /NICNET) is adequately and optimally used. The design of Modern Data Centre represents many challenges and is a complex task as it involves many stake holders (state departments having varying requirements and access mechanism and delivery channels mechanism to the citizens). The extent to which the SDC must remain operational even when some of its resources are impaired or unavailable will greatly influence how the design objectives of Reliability, Availability, Scalability, Serviceability and also Backup, Redundancy, Survivability and Disaster Management are met.
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Developments and Impk-.1",entation of E-Governance
The data centre design architecture is aimed towards providing the services like: (1) Hosting Services
- Co-located services - Dedicated hosting services - Managed services
(2) Storage and High Availability Services - Managed tape backup services - Storage Capacity on-demand services - Remote Data replication services - Managed load balancing services
en Security Services
-
Firewall services Antivirus services Security audit and assessment Intrusion detection systems Remote IP sec VPN access
(4) Professional Support Services - System Administration services Database Management services Monitoring and reporting services Messaging support services (5) ASP services
(6) R.idl
Shared hosting services Shared database services - Managed mail services
Media Communication Services - Managed live and on-demand streaming - Web conferencing and collaboration - Content digitization , hosting and management
DIT Initiatives The broad requirements for a typical data centre include infrastructure facilities (physical, electrical, air conditioning, etc.) installation and integration of IT infrastructure (servers, telecom equipment, integrated portal/ departmental information system, -
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Enterprise and network management system, security, firewalls/ IDS, networking components, etc.), software and databases. Establishing a State Data Centre would entail substantial investment. Data centre being highly technology-oriented infrastructure requires good expertise in its operation and management and may be a challenging task for the government to operate and manage due to lack of necessary technical expertise in house to handle and sustain the operations in a long run. It may be desirable to adopt an appropriate model for securing the services of existing players in this area. Most of the States are conceptualizing setting up of Data Centres and would need GOI technical and financial assistance both for the project conceptualization/formulation and its establishment. DIT is in the process of formulating Policy Guidelines for providing Technical and Financial assistance to the States/UTs on setting up of State Data Centres. The Guidelines will indicate the different approaches/ options that may be exercised by the States.
Centre for E-Governance As part of the increased thrust on e-Governance, Ministry of Communications & Information Technology, Department of Information Technology, Government of India, has set up a Centre for e-Governance (CEG) at its premises-Electronics Niketan in New Delhi. The Centre, first of its kind in the country, showcases several e-Governance applications and solutions that have been successfully deployed in various states, and offers such other services like technical consultation, proof of concept and thematic presentations. Conducting programmes for creating awareness among decision makers in the Centre and State Governments and helping them in defining and implementing process and policy changes for effective e-Governance are other important objectives of the Centre. The primary activities of the Centre are: (l) To showcase the best practices in the area of
c-Governance.
244
Developments and Implementation of E-Governance (2) Conduct programmes for creating awareness among decision makers in the Centre and State Governments. (3) Demonstrate the feasibility of concepts in e-Governance to the decision makers through workshops, demonstrations video / teleconferencing, etc. (4) Help the central and state governments in defining and implementing the process and policy changes. (5) To enrich the repository of best practices through continuous interaction with subject experts from India and abroad.
The Centre would also draw upon leading companies, technical institutions and business partners in India and abroad and help initiate projects to address specific needs. The Centre would further strive to establish strong links with similar institutions worldwide to enrich the repository of best practices through continuous interaction and participation. The foreign delegations or visitors are also shown the facility that has been created at the centre. The Centre was formally inaugurated on 15th August 2000.
Need for E-Governance World economies have recognised Information Technology (IT) as an effective tool in catalyzing the economic activity, in efficient governance and in developing human resource. They have, therefore, made significant investments in it and successfully integrated it with the development process, thereby reaping the benefits to their society. In India also these developments have impacted the industrial, education, service and government sectors and their influence on various applications is increasingly being felt of late. As the era of digital economy is evolving, the concept of governance has assumed significant importance. The questions often asked in this context are: How government can become more responsive and accessible? (2)- How can the government enhance its role as a catalyst of economic growth?
(1)
Developments and Implementation of E-Governance (3) (4)
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How can one provide better government services? How can the government use advanced technologies for transferring benctits, improving health care and education, re-engineering?
These questions are now adequately answered through the ndoption of e-Governance. The e-Governance has consequently hecome an accepted methodology involving the use of Information Technology in: Improving transparency. (2) Providing information speedily to all citizens. (3) Improving administration effi~iency. (4) Improving public services such as transportation, power, health, water, security and municipal services. (1)
Applications Showcased at the ICentre for e-Govemance The various e-Governance applications showcased at the centre:
BHOOMI (Land Records) BHOOMI is a self-sustainable e-Governance project for the computerized delivery of 20 million rural land records to 6.7 million farmers through 177 Government owned kiosks in the Indian state of Karnataka, which has eliminated red tape and corruption in the issue of land title records, and is fast becoming the backbone for credible IT-enabled Government services for the rural population. BHOOMI has won the Silver Award in the prestigious CAPAM International Innovation Award for the year 2002 initiated by the ('ommonwealth Association of Public Administration and Management.
Stamps Registration and Archiving (SARITA) The Stamps and Registration Department of a State is typically one of the top revenue earners for any government. Stamp and Registration software provides efficient government citizen interface, and also enables enhanced revenue earnings for the Stamps and Registration operation. The heart of this application consists of the Registratiun and Valuation module. Other
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Developments and Implementation of E-Governance
modules are the Networking and Scanning modules that enable exchange of information securely across departments, and 'electronic copying' of the registered documents thereby enabling return of the original document within few minutes of presentation. The application ~nftware also provides a feature of taking a web-photograph and a thumb impression of the client to append on his stamped document. The stipulated turnaround time is approximatdy 25 minutes; 15 minutes for regif>tration and 10 minutes for scanning the document (before gl'tting computerized, it used to take many hours and somctime~ days). The project after being successfully run for IGR, Maharashtra in Pune sites, is being proposed to be implemented in BOT (Build Operate Transfer) basis with participation from private parties.
LOKMITRA (Integrated Citizens' Service Centre) The first of its kind of service in the State of Rajasthan. It provides access to governrrll'nt transaction services via the Internet or e-Kiosks. The objective is to provide a wide range of citizen centric services under one roof so that the citizens do not need to run around diff('rent departments. (1)
(2)
(3) (4) (5) (6)
The LOKMlTRA is one-stop, citizen friendly computerized centre. it is urban centric e-enabled service delivery system. A wide range of utility bills payment and other services of different departments to citizens under one roof. Technology-uses both Client/Server and Internet models. Provides facility for electronic payments also. Multiple e-counters, which can handle all services.
Versatile Online Information for Citizen Empowerment (VOICE) Municipalities have a challenging task of providing various kinds of citizen services. VOICE caters to these challenges through the use of state-of-the-art information technology. In addition to computerization of the day-to-day operations,
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VOICE also provides a powerful community and empowers the citizen. This application ensures a quick, transparent and efficient administration at a lower operating cost with increased revenue collections.
eSeva eSeva is the first of its kind of service in the country, providing a wide spectrum of citizen friendly services that will save citizen the bother of running around various departments. The services offered arc Payment of Utilities Bills, Registration of Birth/ Death, Issue of Birth/Death certificates, Permits/Licences, Reservations, etc. There are 35 eSeva centres (with 280 service counters) spread over the Twin Cities and Ranga Reddy District.
GYANDOOT GY ANDOOT is an intranet in the tribal district of Dhar in Central India connecting rural Cyber cafes catering to the everyday needs of the masses. It is a community-based, highly costeffective and financially self-reliant approach to bringing the benefits of information technology to the doorsteps of tribal villagers. The objective of the GY ANDOOT project has been to establish a community-owned, innovative-and- sustainable information technology project in the most poverty stricken and tribal dominated rural area~. The project is designed to cater to social, economic and development needs of the villagers through an innovative G2C (Government to Citizen) model. There are around 1600 villages in Dhar district and 80 information kiosks/ cyber offices (Soochanalayas). Each kiosk caters to about 25 to 30 villages. The entire network of 31 kiosks covers 311 Panchayats (village committees), over 600 villages and a population of around half a million (nearly 50% of the entire district). Kiosks have been established in the village Panchayat buildings. Information kiosks have dial-up connectivity through local exchanges on optical fibre or UHF links. The server hub is a Remote Access Server housed in the District Panchayat. Some of the services offered at the kiosks arc Agriculture Produce Auction Centres Rates, Copies of Land Records, Online Registration of Applications, Online Public Grievance Redress,
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Developments and Implementation of E-Governance
ONLINE Matrimonial Advertisements, information regarding government programmes, etc. GYANDOOT has won Stockholm Challenge IT Award in year 2000 in the 'Public Services & Democracy' category out of 109 IT projects fr-om all over the world and CSI National IT Award.
WebCITI WebCITI (Web based Citizen-IT Interface) is an e-Governance project for building citizen-IT interface for services offered by district administration at Fatehgarh Sahib in Punjab. It provides web-based interface to citizens seeking services from district administration and provides complete workflow automation in District Commissioners office. It is information dissemination system designed to facilitate public to get information about various government schemes such as eligibility criteria, procedures, contact addresses, downloadable forms, etc. These include issuance of certificates such as death/birth, caste, rural area, etc., licences such as arms license, permission for conferences/rallies etc., benefits from socio-economic schemes, etc. The information about various schemes and procedures, status of an application, etc., can be found through the web interface available at the intranet counters at developmental block/revenue tehsil and kiosks. With the sole mission of bringing district administration closer to the common people thus offering efficient and effective services, WebCITI provide a friendly, affordable, speedier and efficient interface between the government and the public. It also ensures greater transparency, efficiency, objectivity, accountability and speed that can help tackle most of the maladies of the government by providing efficient services to the public. (Developed & Deployed by NIC )
AARAKSHI AARAKSHI is an intranet-based system for the Jaipur City Police to facilitate FIRs, criminals records, vehicle thefts, missing person's records, etc. It is like a private and closed user group accessible to only authorized personnel. Its potential users are all field level officers of the city like police station, circle officers
Developments and Implementation of E-Governance
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SP and even district collector. This application has been developed by Microsoft and can be used as an online communication network for the text, databases, picture, graphics and even video. The entire system is operational in Hindi and hence adds to it user-friendliness. (Developed & Deployed by DIT, Ra~sthan)
Works M(lnagement System (WMS) This is a multifunctional application that has been developed for the Public Works Department (PWD). The WMS is aimed at those government departments entrusted with construction related activities. It captures information at all stages through work progress. (Application Developed & Deployed by C-DAO
National Database on e-Govemance Projects Many state governments and ministries of the Government of India have realized the potential of e-Governance and are now very actively trying to implement e-Governance solutions. Some of these are already in full-blown implementation and have been outstandmg successes. Many more are at various stages ot implementation while an even greater number are at a conceptual stage. While substantial w<;>rk has been done in many places, what needs to be done is quite staggering in relation to what has already been achieved. The objective is to build, with the c.ooperation of all implementing agencies, a live, dynamic, comprehensive database of all major e-Governance applications in the country accessible over the web. This is expected to have multiple benefits and serve multiple objectives. The database puts on display all that we have to offer to others as well as to ourselves. Any organization planning an IT project would be able to instantly ascertain whether any such project has already been implemented anywhere in the country. Intending implementers would know who the key people in similar projects are and how to reach them. It is well known that it is much easier to replicate a solution than to evolve it the first time around. So the leadtime to implement projects can be reduced substantially. If a project is already in operation in a similar environment somewhere in the country, acceptance by all concerned is much
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Devt'lopments and Implementation of E-Governance
faster and smoother elsewhere. So change management becomes much easier and the time and effort involved in such implementations. Due recognition would accrue to the pioneers who created the successes. It would enable others to learn from them if they wish. For implementing agencies, be they Government owned organizations like NIC, CDAC and State PSUs or private IT companies, it offers a unique opportunity to derive the full return and reward, both domestically and internationally, from their successes and the IPRs/products that they have created. It would help and create an archive of e-Governance applications in the country. It would help build a database of key players and resource persons in the national c-GovernanCl' programme. This will also help build an open community of experts / vendors / faci litators and provide a forum for collective identification of e·Governance initiatives and activities in the country.
Minimum Agenda for e-Governance Ministries! Departments of the Central Government 0) (i) Each Ministry /Department must provide PCs with
necessary software up to the Section Officer leveL (ii) LAN must also be set up. (2) (i) 100 per cent training of all staff who have access to and need to use computers for their office work should be ensured. (ii) For this purpose, inter alia, Ministries/Departments should set up or share Learning Centres for decentralized training in computers as per the guideline,> issued by the DIT. (3) Each Ministry /Department should start using the Office f'rocedure Automation software developed by NIC with a view to keeping a record of receipt of dak, issue of letters, as well as movement of files in the department (4) Pay roll accounting and other house-keeping software should be put to usc in dew-to-day operations.
Developments and inlp\t>]lwl1tc1tinn (1f E-Co\'ernal1ce (5)
251
(j) Noti('l'~
for mternaJ meeting should be sent by e-mail to th<: offin'r~. (ij) Simil
Ministril''''/ Depc1rtl1l( '/1 t.., "hould usc the Web-enabled Grievance Rcdn'%al Software developed by Department of AR & j><; (7) Each Minbtrv / Departn1l'nt should have its own website. (8) All Acts, J~l1lcs, Cirl'ulars should be converted into electronic form and, along with other published material of interest or relevance to the public, should be made available on the internet and be accessible from the Information and Facilitation Counter. (9) (i) The websites of Ministries/Departments/ Organizations should specifically contain a section in which various forms to be used by citizens/ customers are available. The forms should be available for being printed out or for being completed on the computer itself and then printed ou t for submission. (ij) Attempts should also be made to enable completion and submission of forms online. (6)
The Hindi version of the content of the websites should be developed simultaneously, as far as possible. (11) Each Ministry/Department would also make efforts to develop packages so as to begin electronic delivery of services to the puhlic, (12) Each Ministry /Department shLluld have an overall IT vision or strategy for a hve year period, within which it could dovetail specific action plans and targets ~including the minimum agenda) to be implemented within (InC' year (10)
7 Modified IT Act 2000
The following Act of Parliament received the assent of the president on the 9th June, 2000, and is hereby published for general information:THE INFORM A nON TECHNOI ,OGY ACT, 20(JO (No. 21 OF 2000) [9th June, 2000]
An Act to provide legal recognition for transactions carried out by means of electronic data interchange and other means of electronic communication, commonly rderred to as "electronic commerce", which involve the use of al tel natives to paper-based methods of communication and storage of information, to facilitate electronic filing of documents with the Government agencies and further to amend the Indian Penal Code, the Indian Evidence Act, 1872, the Bankers' Books Evidence Al t, 18ql and the Reserve Bank of India Act, 1934 and for matters connected therewith or incidental thereto. WHEREAS the General Assembly of the United Nations by resolution A/RES/51/162, dated the 30th January, 1997 has adopted the> Model Law on Electronic Commerce adopted by the United Ndtions Commission on International T r ad" Law;
253
Modiht'J IT Act 2000
AND WHEREAS the said re~olution recommends lIltcr alia that all States give favourable nm51deration to the said Model Law when they enact or revise thVIJ' laws, in view of the need for uniformity of the law app1icanle to alternatives to p<.1per-based methods of communication and storage of information; AND WHEREAS it is considered rwc!!ssary to give effect to the said resolution and to promlltc efticient delivery of Government serV1\'('5 hy means of reliable l'lcctronic records. BE it enacted by Par Iiament in the Fifty· fir5\ Ycar of the Republic of India as follow~:--·-
CHAPTER! PRULlMINARY (I) 1'hi5 Act may be c,lllvd the Information Technology Ad,2000. (2) It shall extend to the whole of India and, save as otherwise provided III this Act, it applies also to any offence or contrav('ntion thereunder committed outside India by any person. 0) It shall come into force on such date as the Central Covernment may, by notification, appoint and different dates may be appOinted for different provisions of this Acl and any reference in any such provision to the commencement of this Act shall be construed as a reference to the commencement of that provision. (4) Nothing in this Act shall apply to,a negotiable instrument as defined in section 13 of the Negotiabll' Instruments Act, 1881; (h) a power-of-attorney as defined in section IA of the Powers-of·Attorney Act, 1882; (c) a trust as ddined in section 3 of the Indian Trusts Act, 1882; (d) a will as defined m clause (h) of section 2 of the Indian Succession Act, 1925 including any other testamentary disposition by whatever name' called; (c\)
Modified IT Act 21l(Jn
2!'i4
2
(el any contract for the sale or conveyapcc of immovable rrope.:rty or any interest in f>uch property; (f) any such class of documents or transactions as may be notifil'd by tlw Central Governnwnt in the Official Gazette 0) In this Act, unless the.: mntext otherwise requires,Short title, extent, commenl'!:ment and application, 26 of 1881, 7 of 1882, 2 of 1882. 39 of 1925.
Definitions (a) "access" with its grammatical variations and cognate expressions means gaining entry into, instructing or communicating with the logical, arithmetical, or memory function rcsounes of a computer, computN system or computer network; (b) "addressee" means a person who is intended by the originator to receive the electronic record but docs not include any intermediary; (c) "adjudicating officer" me.:ans an adjudicating officer appointed under sub··section (1) of section 46; (d) "affixing digital signature" with its grammatical variations and cognate expr('ssions means adoption of any methodology or procedure by a person for the purpo~e of authenticating an t'lcctronic record by means of digital signature; (e) "appropriate Government" means as respects any matter,(i) enumerated in List II of the Seventh Schedule to the
Constitution; (ii) relating to any State law enacted under List III of the Seventh Schedule to the Constitution, the State Government and in any other case, the Central Government;
Modified IT Act 20D!)
255
(f) "asymmetric crypto system" means a system of a secure
key pair con&isting of a private key for creating a digital signature and a public key to verify the digital signature; (g) "Certifying Authority" means a person who has been granted a licence to issue a Digital Signature Certificate under section 24; (h) "certification practice statement" means a statement issued by a Certifying Authority to specify the practices that the Certifying Authority employs in issuing Digital Signature Certificates; (i) "computer" mcans any electronic magnetic, optical or other high -speed data processing device or system which performs logical, arithmetic, and memory functions by manipulations of electronic, magnetic or optical impulses, and includes all input, output, processing, storage, computer software, or communication facilities which are connected or rcIated to the computer in a computer system or computer network; (j) "computer network" means the interconnection of one or more computers through-
,
the use of satellite, microwave, terrestrial line or other communication media; and (ii) terminals or a complex consisting of two or more interconnected computers whether or not the interconnection is continuously maintained; (i)
(k) "computer resource" means computer, computer system, computer network, data, computer data base or software; (1) "computer system" means a device or collection of devices, including input and output support devices and excluding calculators which are not programmable and capable of being used in conjunction with external files, which contain computer programmes, electronic instructions, input data and output data, that performs logic, arithmetic, data storage and retrieval, communication control and other functions;
256
Moditit'J IT Act 2000 "Controller" means the Controller of C('rtifyin~ Authorities appointed under sub-section ( 1) of section 17; (n) "Cyber Appellate Tribunal" means the Cyber Regulations Appellate Tribunal established under sub~ection (1) of section 48; (0) "data" means a representation of information, knowledge, facts, concepts or instructions which are being prepared or have been prepared in a formalised manner, and is intended to be processed, is bC'ing processed or has been processed in a computer system or computer network, and may be in any form (including computer printouts magnetic or optical storage media, punched cards, punched tapes) or stored internally in the memory of the computer; • (p) "digital signature" means au thentication of any del tronic record by a suhscriber by means of an electronic method or procedure in accordance with the provisions of section 3; (q) "Digital Signature Certificate" means a Digital Signature Certificate issued under sub-section (4) of section 35; (r) "electronic form" with reference to information means any information generated, sent, received or stored in media, magnetic, optical, computer memory, micro film, computer generated micro fiche or similar device; (s) "Electronic Gazette" means the Official Gazette published in the electronic form; (t) "electronic record" means data, record or data generated, image or sound stored, received or sent in an electronic form or micro film or computer generated micro fiche; (u) " function " , in relation to a computer, includes logic, control, arithmetical process, deletion, storage and retri<.'val and communication or telecommunication from or within a computer; (v) "information" includes data, text, images, sound, voice, codes, computer programmes, software and data bases or micro film or computer generated micn ::che; (w) "intermediary" with respect to any particular electronic message means any person who on behalf of another (01)
Modified IT Act 2000
257
person receives, stores or transmits that message or provides any service with respect to that message; (x) "key pair", in an asymmetric crypto system, means a private key and its mathematically related public key, which are so related that the public key can verify a digital signature created by the private key; (y) "law" includes any Act of Parliament or of a State Legislature, Ordinances promulgated by the President or a Governor, as the case may be, Regulations made by the President under Article 240, Bills enacted as President's Act under sub-clause (a) of clause (1) of article 357 of the Constitution and includes rules, regulations, bye-laws and orders issued or made thereunder; (z) "licence" means a licence granted to a Certifying Authority under section 24; (za) "originator" means a person who sends, generates, stores or transmits any electronic message or causes any electronic message to be sent, generated, stored or transmitted to any other person but does not include an intermediary; (zb) "prescribed" means prescribed by rules made under this Act; (zc) "private key" means the key of a key pair used to create a digital signature; (zd) "public key" means the key of a key pair used to verify a digital signature and listed in the Digital Signature Certificate; (ze) "secure system" means computer hardware, software, and procedure that-(a) (b) (c) (d)
are T('asonably secure from unauthorised access and misuse; provide a reasonable level of reliability and correct (lperatlOn; are reasonahly sUIted to performing the intended functions; and adhere to generally accepted security procedures;
258
Modified IT Act 20"00
(zf) "security procedure" means the security procedure prescribed under section 16 by the Central Government; (zg) "subscriber" means a person in whose name the Digital Signature Certificate is issued; (zh) "verify" in relation to a digital signature, electronic record or pUblic key, with its grammatical variations and cognate expressions means to determine whether(a) the initial electronic record was affixed with the digital signature by the use of private key corresponding to the public key of the subscriber; (b) the initial electronic record is retained intact or has been altered since such electronic record was so affixed with the digital signature .. (2)
Any reference in this Act to any enactment or any provision thereof shall, in relation to an area in which such enactment or such provision is not in force, be construed as a reference to the corresponding law or the relevant provision of the corresponding law, if any, in force in that area.
'CHAPTER II DIGITAL SIGNATURE 3,
Subject to the provisions of this section any subscriber may authenticate an electronic record by affixing his digital signature. (2) The authentication of the electronic record shall be effected by the use of asymmetric crypto system and hash function which envelop and transform the initial electronic record into another electronic record. Explanation-For the purposes of this sub-section, "hash function" means an algorithm mapping or translation of one sequence of bits into another, generally smaller, set known as "hash result" such that an electronic record yields the same hash result every time the algorithm is executed with the same electronic record as its input making it computationally infeasiblE'-
(1)
Mlldific>d IT Act 200(l
259
(a) to derive or rec()n~truct the original electronic record from the hash result produced by the algorithm; (b) that two electronic records can produce the same hash result using the algorithm. (3) Any person by the lise of a public key of the subscriher can verify the electronic record. (4) Thc' private key and the public key arc unique to the' subscriber and constitute a functioning key pair.
CHAPTER III ELECTRONIC GOVERNANCE 4.
Where any law provides that information or any other matter shall be in writing or in the typewritten or printed form, then, notwithstanding anything contained in such law, such requirement shall be deemed to have been satisfied if such iriformation or matter is(a) rendered or made available in an electronic form; and (b) accessible so as to be usable for a subsequent reference.
i).
Where any law provides that information or any other matter shall be authenticated by affixing the signature or any document shall be signed or bear the signature of any person then, notwithstanding anything contained in such law, such requirement shall be deemed to have been satisfied, if such information or matter is authenticated by means of digital signature affixed in such manner as may be prescribed ry the Central Government. Legal recognition of electronic records. Legal recognition of digital signatures. Authentication of electronic records. EXf11anatioll-For the purposes of this section, "signed", with its grammatical variations and cognate expressions, shall, with reference to a person, mean affixing of his hand written signature or any mark on any documC'nt and th(' expression "signdture" shall be construed accordinglv.
M( ldified IT Act 2000
26U
6.
(1)
Where any law provides for-
(a) the filing of any form, application or any other document with any office, authority, body or agency owned or controlled by the appropriate Government in a particular manner; (b) the issue or grant of any licence, permit, sanction or approval by whatever name called in a particular manner; (c) the receipt or payment of money in a particular manner; then, notwithstanding anything contained in any other law for the time being in force, such requirement shall be deemed to have been satisfied if such filing, issue, grant, receipt or payment, as the case may be, is effected by means of such electronic form as may be pr('scribed by the appropriate Governmen t. (2) The appropriate Government may, for the purposes of subsection (1), by rules, prescribe(a) the manner and format in which such electronic records shall be filed, created or issued; (b) the manner or method of payment of any fee or charges for filing, creation or issue any electronic record under clause (a). 7. (1)
Where any law proVides that documents, records or information shall be retained for any specific period, then, that requirement shall be deemed to have been satisfied if such documents, records or information are retained in the electronic form, if(a) the information contained therein remains accessible so as to be usable for a subsequent reference; (b) the electronic record is retained in the format in which it was originally generated, sent or received or in a format which can be demonstrated to represent accurately the
Modified IT Act 2000
261
information originally generated, sent or received; Retention of electronic records Use of electronic records and digital signatures in Government and its agencies. (c) the details which will facilitate the identification of the origin, destination, date and time of despatch or receipt of such electronic record are available in the electronic record: Provided that this clause does not apply to any information which is automatically generated solely for the purpose of enabling an electronic record to be despatched or received. (2)
8.
Nothing in this section shall apply to any law that expressly providlfs for the retention of documents, records or information in the form of electronic records.
Where any law provides that any rule, regulation, order, byelaw, notification or any other matter shall be published in the Official Gazette, then, such requirement shall be deemed to have been satisfied if such rule, regulation, order, bye-law, notification or any other matter is published in the Official Gazette or Electronic Gazette: Provided that where any rule, regulation, order, bye-law, notification or any other matter is published in the Official Gazette or Electronic Gazette, the date of publication shall be deemed to be the date of the Gazette which was first published in any form. 9. Nothing contained in sections 6, 7 and 8 shall confer a right upon any person to insist that any Ministry or Department of the Central Gov·crnment or the State Government or any authority or body established by or under any law or controlled or funded by the Central or State Government should accept, issue, create, retain and preserve any document in the form of electronic records or effect any monetary transaction in the electronic form. 10. The Central Government may, for the purposes of this Act, by rules, pref,crihe-
262
Modified IT A('t :'W(lO (a) the typl' of digital signature; (b) the manner and format in which the digitil signaturl' shall be affixed, (c) the manner OJ procedure which fadlitatl's identification of the person affixing the digital signature; (d) control processes dnd procedures to ensure adequate intl'gnty, security and confidentiality of electronic r(,cords or payments; and (e) any other matter which is necessary to give' legal effect to digital signatures. Power to makl' rules by Central Government in respect of digital signature. Publication of rule, regulation, etc., in Ell'ctrnnic Gazette. Sections 6, 7 and 8 not to confer right to insist document should be accepted in electronic form.
CHAPTER IV ATTRIBUTION, ACKNOWLEDGMENT AND DESPA TCH OF ELECTRONIC RECORDS 11. An electronic fl'cord shall be attributed to the originator-
(a) if it was sent by the originator himself; (b) by a person who had the authority to act on behalf of the originator in respect of that electronic record; or . (c) by an information system programmed by or on behalf of thc' originator to operate automatically. 12. (1) Where the originator has not agreed with the addressee that the acknowledgment of receipt of electronic record be given in a particular form or by a particular method, an acknowledgment may be given by(a) any communication by the addressee, automated or otherwise; or (b) any conduct of the addressee, sufficient to indicate to the originator that the electronic record has been received.
Modified IT Act 20(lO
263
(2) Where the originator has stipulated that the electronic record shall be binding only on receipt of an acknowledgment of such electronic record by him, then unless acknowledgment has been so received, the electronic record shall be deemed to have been never sent by the originator. (3) Where the originator has not stipulated that the electronic record shall be binding only on receipt of such acknowledgment, and the acknowledgment has not been received by the originator within the time specified or agreed or, if no time has been specified or agreed to within a reasonable time, then the originator may give notice to the addressee stating that no acknowledgment has been received by him and specifying a reasonable time by ",:hich the acknowledgment must be received by him and if no acknowledgment is received within the aforesaid time limit he may after giving notice to the addressee, treat the electronic record as though it has never been sent. 13.0) Save as otherwise agreed to between the originator and the addressee, the despatch of an electronic record occurs when it enters a computer resource outside the control of the originator. (2) Save as otherwise agreed between the originator and the addressee, the time of receipt of an electronic record shall be determined as follows, namely:(a) if the addressee has designated a computer resource for the purpose of receiving electronic records,(j) receipt occurs at the time when the electronic
record enters the designated computer resource; or (ij) if the electronic record is sent to a computer resource of the addressee that is not the designated computer resource, receipt occurs at the time when the electronic record is retrieved by the addressee;
M(lciified 11 Act 2000
26~
(11) if the addressee has not designated a computer
resource along with specified timings, if any, receipt occurs when the electronic record enters the computer resource of the addressee. ' Sav(' as otherwise agreed to between the' originator and the addressee, an electronic record is deemed to be dc~pat('hed at the place where the originator has his plan' of business, and is deemed to be received at the place where the addressee has his place of business. (4) 1'h,' provisions of sub-section (2) shall apply notwithstanding that the place where the computer resource is located may be different from the place where th(' electronic record is deemed to havl' been received under sub-section (3).
(3)
(5) For the purposes of this section,(a) if the originator or the addressee has more than one place of business, the principal place of business, shall be the place of business; (b) if the originator or the addressee does not have a place of business, his usu,al place of residence shall be deemed to be the place of business; (c) "usual place of residence", in relation to a body corporate, means the place where it is registered.
CHAPTER V SECURE ELECTRONIC RECORDS AND SECURE DIGITAL SIGNATURES 14. Where any security procedure has been applied to an electronic record at a specific point of time, then such record shall be deemed to be a secure electronic record from such point of time to the time of verification. 15. If, by application of a security procedure agreed to by the parties concerned, it can be verified that a digital signature, at the time it was affixed, was(a) unique to the subscriber affixing it; (11) capable of identifying such subscriber;
ModItleu
265
II An LlJUU
(c) created in a manner or using a means under the exclusive control of the subscriber and is linked to the electronic record to which it relates in such a manner that if the electronic record was altered the digital signature would be· invalidated, then such digital signature shall be deemed to be a secure digital signature. 16. The Central Government shall for the purposes of this Act prescribe the security procedure having regard to commercial circumstances prevailing at the time when the procedure was used, induding(a) the nature of the transaction; (b) the level of sophistication of the parties with reference to their technological capacity; (c) the volume of similar transactions engaged in by other parties; (d) the availability of alternatives offered to but rejected by any party; (c) thl~ cost of alternative procedures; and (f) the procedures in general use for similar types of transactions or communications.
CHAPTE'!{ VI REGULA TION OF CERTIFYING AUTHORITIES 17. (1) The Central Government may, by notification in the Official Gazette, appoint a Controller of Certifying Authorities for the purposes of this Act and may also by the same or suhsequent notification appoint such number of Deputy Controllers and Assistant Controllers as it deems fit. (2) The Controller shall dIscharge his functions under this Act subject to the general control and directions of the Central Government. (3) The Deputy Controll('f& and Assistant Controllers shall perform the functions assigned to them by the Controller Secure digital signature. Security
266
Modified IT Act 2000 procedure Appointment of Controller and other officers under the general superintendence and control of the Controller. (4) The qualifications, experience and terms and conditions of ~ervice of Controller, Deputy Controllers and Assistant Controllers shall be such as may be prescribed by the Central Government. (5) The Head Office and Branch Office of the Office of the Controller shall be at such places as the Central Government may specify, and these may be established at such places as the Central Government may think fit. (6) There shall be a seal of the Office of the Controller. 18. The Controller may perform all or any of the following functions, namcly:(a) exercising supervision over the activities of the Certifying Authorities; (b) certifying public keys of the CertifyL.'1g Authorities; (c) laying down the standards to be maintained by the Certifying Authorities; (d) specifying the qualifications and experience which employees of the Certifying Authorities should possess; (e) specifying the conditions subject to which the Certifying Authorities shall conduct their business; (f) specifying the contents of written, printed or visual materials and advertisements thaL may be distributed or used in respect of a Digital Signature Certificate and the public key; (g) specifying the form and content of a Digital Signature Certificate and the key; (h) specifying the form and manner in which accounts shall be maintained by the Certifying Authorities; (0 specifying the terms and conditions subject to which auditors may be appointed and the remuneration to be paid to them; (j) facilitating the establishment of any electronic system by a Certifying Authority· either solely or
IV[oJified IT Act 2000
267
jointly with other Certifying Authorities and regulation of such systems; (k) specifying the manner in which the Certifying Authorities shall conduct their dealings with the subscribers; (1) resolving any conflict of interests between the Certifying Authorities and the subscribers; (m) laying down the duties of the Certifying Authorities; (n) maintaining a data base containing the disclosure record of every Certifying Authority containing such particulars as may be specified by regulations, which shall be accessible to public. 19. (1) Subject to such conditions and restrictions as may be specified by regulations, the Controller may with the previous approval of the Central Government, and by notification in the Official Gazette, recognise any foreign Certifying Authority as a Certifying Authority for the purposes of this Act. (2) Where any Certifying Authority is recognised under subsection (1), the Digital Signature Certificate issued by such Certifying Authority shall be valid for the purposes of this Act. (3) The Controller may, if he is satisfied that any Certifying Authority has contravened any of the conditions and restrictions subject to which it was granted recognition under sub-section (1) he may, for reasons to be recorded in writing, by notification in the Official Gazette, revoke such recognition. 20. (1) The Controller shall be the repository of all Digital Signature Certificates issued under this Act. (2) The Controller shall(a) make use of hardware, software and procedures that are s(,(ure from intrusion and misuse; (b) observl" -;uch other standards as may be prescribed hy the Central Government; to ensure that the secrecy and security of the digital signatures are assured.
268
Modified IT Ad
2()(Jll
(3) The Controller shall maintain a computerised data base of all public keys in such a manner that such data base and the public keys are available to any member of the public. 21. (1) Subject to the provisions of sub-section (2), any person may make an application, to the Controlk>r, for a licence to issue Digital Signature Certificates. (2) No licence shall he issued under sub-section (1), unless the applicant fulfils such requirements with respect to qualification, expertise, manpower, financial resources and other infrastructure facilities, which are necessary to issue Recognition of foreign Certifying Authorities. Controller to act as repository. Licence to issue Digital Signature Certificates. Digital Signature Certificates as may be prescribed by the Central Government. (3) A licence granted under this sections shall(a) be valid for such period as may be prescribed by the Central Government; (b) not be transferable or heritable; (c) be subject to such terms and conditions as may be specified by the regulations. 22. (1) Every application for issue of a licence shall be in such form as may be prescribed by the Central Government. (2) Every application for issue of a licence shall be accompanied by(a) a certification practice statement; (b) a statement including the procedures with respect to identification of the applicant; (c) payment of such fees, not exceeding twenty-five thousand rupees as may be prescribed by the Central Government; (d) such other documents, as may be prescribed by the Central Government. 23. An application for renewal of a licence shall be-
Modified IT Act 2UOU
269
(a) in such form; (b) accompanied by such fees, not exceeding five thousand rupees, as may be prescribed by the Central Government and shall be made not less than forty-five days before the date of expiry of the period of validity of the licence. 24. The Controller may, on receipt of an application under sub-section
25.
(1)
of section 21, after considering the documents accompanying the application and such other factors, as he deems fit, grant the licence or reject the application: Provided that no application shall be rejected under this section unless the applicant has been given a reasonable opportunity of presenting his case.
(1)
The Controller may, if he is satisfied after making such inquiry, as he may think fit, that a Certifying Authority has,Application for licence. Renewal of licence. Procedure for grant or rejection of licence. Suspension of licence. (a) made a statement in, or in relation to, the application for the issue or renewal of the licence, which is incorrect or false in material particulars; (b) failed to comply with the terms and conditions subject to which the licence was granted; (c) failed to maintain the procedures and standards specified in section 30. (d) contravened any provisions of this Act, rule, regulation or order made thereunder, revoke the licence: Provided that no licence shall be revoked unless the Certifying Authority h<\S been given a reasonable opportunity of showing cause against the proposed revocation.
270
Modified IT Act 2()O() (2) The Controller may, if he has reasonable cause to believe that there is any ground for revoking a licence under subsection 0), by order suspend such licence pending the completion of any inquiry ordered by him: Provided that no licence shall be suspended for a period exceeding ten days unless the Certifying Authority has been given a reasonable opportunity of showing cause against the proposed suspension. (3) No Certifying Authority whose licence has been suspended shall issue any Digital Signature Certificate during such suspension. 26. (1) Where the licence of the Certifying Authority is suspended or revoked, the Controller shall publish notice of such suspension or revocation, as the case may be, in the data base maintained by him. (2) Where one or more repositories are specified, the Controller shall publish notices of such suspension or revocation, as the case may be, in aU such repositories: Provided that the data base containing the notice of such suspension or revocation, as the case may be, shall be made available through a web site which shall be accessible round the clock: Provided further that the Controller may, if he considers necessary, publicise the contents of data base in such electronic or other media, as he may consider appropriate. 27. The Controller may, in writing, authorise the Deputy Controller, Assistant Controller or any officer to exercise any of the powers of the Controller under this Chapter. Notice of suspension or revocation of licence. 28. (1) The Controller or any officer authorised by him in this behalf shall take up for investigation any contravention of the provisions of this Act, rules or regulations made thereunder. . (2) The Controllcr or any officer authoriscd by him in this behalf shall exercise the like powers w hkh are
Modified IT Act 2000
271
conferred on Income-tax authorities under Chapter Xlll of the Income-tax Act, 1961 and shall exercise such powers, subject to such limitations laid down under that Act. 29. (1) Without prejudice to the provisions of sub-section (1) of section 69, the Controller or any person authorised by him shall, if he has reasonable cause to suspect that any contravention of the provisions of this Act, rules or regulations made thereunder has been committed, have access to any computer system, any apparatus, data or any other material connected with such system, for the purpose of searching or causing a search to be made for obtaining any information or data contained in or available to such computer system. (2) For the purposes of sub-section 0), the Controller or any person authorised by him may, by order, direct any per~on incharge of, or otherwise concerned with the operation of, the computer system, data apparatus or material, to provide him with such reasonable technical and other assistance as he may consider necessary. 30. Every Certifying Authority shall,(a) make use of hardware, software and procedures that are secure from intrusion and misuse; (b) provide a reasonable level or reliability in its services which are reasonably suited to the performance of intended functions; (c) adhere to security procedures to ensure that the secrecy and privacy of the digital signatures are assured; and (d) observe such other standards as may be specified by regulations. 31. Every Certifying Authority shall ensure that every person employed or otherwise engaged by it complies, in the course of his employment or engagement, with the
272
Moditied IT Act 20UU provisions of this Act, rules, regulations and orders made thereunder. 32. Every Certifying Authority shall display its licence at a conspicuous place of the premises in which it carries on its business. Power to investigate contravl~ntions. Access to computers and data. 43 of 1901 Ccrtifying Authority to follow certain procedures. Certifying Authority to ensure compliance of the Act, etl i:~. (1)
Every Certifying Authority whose licence is suspended or revokl'd shall immediately after such suspension or revocation, surrender the licence to the Controller. (2) Where any Certifying Authority fails to surrender a licence under sub-section (1), the person in whose favour a licence is issued, shall be guilty of an offence and shall be punished with imprisonment which may extend up to six months or a fine which may extend up to ten thousand rupees or with both. 34. (1) Every Certifying Authority shall disclose in the manner specified by regulations(a) its Digital Signature Certificate which contains the public key corresponding to the private key used by that Certifying Authority to digitally sign another Digital Signature Certificate; (b) any certification practice statement relevant thereto; (c) notice of the revocation or suspension of its Certifying Authority Certificate, if any; and (d) any other fact that materially and adversely affects either the reliability of a Digital Signature Certificate, which that Authority has issued, or the Authority's ability to perform its services. (2) Where in the opinion of the Certifying Authority any event has occurred or any situation has arisen which may materially and adversely affect the integrity of its computer system or the conditions
Modified tr Act 2000
273
~lIbjcct
to which a Digital Signature Certificate was granted, then, the Certifying Authority shall(,11 usc reasonable efforts to notify any person who
is likely to be affected by that occurrence; or (b) act in accordance with the procedure specified in its certification practice statement to deal with such event or situation.
CHAPTER VII DIGITAL SIGNATURE CERTIFICATES 35.
•
Any person may make an application to the Certifying Authority for the issue of a Digital Signature Certificate in such form as may be prescribed by the Central Government. (2) Every such application shall be accompanied by such fcc not exceeding twenty-five thousand rupees as may be Disclosure. Certifying Authority to issue Digital Signature Certificate. Surrender of licence. Prescribed by the Central Government, to be paid to the Certifying Authority: Provided that while prescribing fees under sub-section (2) different fees may be prescribed for different classes of applicants. (3) Every such application shall be accompanied by a certification practice statement or where there is no such statement, a statement containing such particulars, as may be specified by regulations. (4) On receipt of an application under sub-section 0), the Certifying Authority may, after consideration of the certification practice statement or the other statement under sub-section (3) and after making such enquiries as it may deem fit, grant the Digital Signature Certificate or for reasons to be recorded in writing, reject the application:
(l)
Provided that no Digital Signature Certificate shall be granted unless the Certifying Authority is ~atisfied that-
274
Modified IT Act 2000 (a) the applicant hllids the private key corresponding to the public key to be listed in the Digital Signature Certificate; (b) the applicant holds a private key, which is capable of creating a digital signature; (c) the public key to be listed in the certificate can be used to v(·rify a digital signature affixed by the private kcy held by the applicant: Provided further that no application shall be rejected unless the applicant has been given a reasonable opportunity of showing cause against the proposed rejection. 36. A Certifying Authority while issuing a Digital Signature Certificate shall certify that-
(a) it has complied with the provisions of this Act and the rules and regulations made thereunder; (b) it has publishc'd the Digital Signature Certificate or otherwise made it available to such person relying on it and the subscriber has accepted it; (c) the subscriber holds the private key corresponding to the public key, listed in the Digital Signature Certificate; (d) the subscriber's public key and private key constitute a functioning key pair; (e) the information contained in the Digital Signature Certificate is accurate; and (f) it has no knowledge of any material fact, which if it had been included in the Digital Signature Certificate would Representations upon issuance of Digital Signature Certificate, adversely affect the reliability of the representations made in clauses (a) to (d). 37. (1) Subject to the provisions of sub-section (2), the Certifying Authority which has issued a Digital Signature Certificate may suspend such Digital Signature Certifit\lte,-
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(a) on receipt of a request to that effect fromthe subscriber listed in the Digital Signature Certificate; or (ii) any person duly authorised to act on behalf of that subscriber;
(i)
(b) if it is of opinion that the Digital Signature Certificate should be suspended in public interest. (2) A Digital Signature Certificate shall not be suspended for a period exceeding fifteen days unless the subscriber has been given an opportunity of being heard in the matter. (3) On suspension of a Digital Signature Certificate under his section, the Certifying Authority shall communicate the same to the subscriber. 38. (1) A Certifying Authority may revoke a Digital Signature Certificate issued by it-
(a) where the subscriber or any other person authorised by him makes a request to that effect; or (b) upon the death of the subscriber; or (c) upon the dissolution of the firm or winding up of the company where the subscriber is a firm or a company. (2) Subject to the provisions of sub-section (3) and without prejudice to the provisions of sub-section (1), a Certifying Authority may revoke a Digital Signature Certificate which has been issued by it at any time, if it is of opinion that(a) a material fact represented in the Digital Signature Certificate is false or has been • concealed; (b) a requirement for issuance of the Digital Signature Certificate was not satisfied; (c) the Certifying Authority'S private key or security system was compromised in a manner
276
Modified IT Ad 2000 materially affect.ng the Digital Signature Certificate's reliability; (d) the subscriber has been declared insolvent or dead or where a subscriber is a firm or a company, which has been dissolved, wound-up or otherwise ceased to exist. A Digital Signature Certificate shall not be revoked unless the subscriber has been given an opportunity of being heard in the matter. / (4) On revocation of a Digital Signature Certificate under this section, the Certifying Authority shall communicate the same to the subscriber. (:1)
39. (1) Where a Digital Signature Certificate is suspended or revoked under section 37 or section 38, the Certifying Authority shall publish a notice of such suspension or revocation, as the case may be, in the repository speCified in the Digital Signature Certificate for publication of such notice. (2) Where one or more repositories arc specified, the Certifying Authority shall publish notices of such suspension or revocation, as the case may be, in all such repositories.
CHAPTER VIII DUTIES OF SUBSCRIBERS 40. Where any Digital Signature Certificate, the public key of which corresponds ~(o the private key of that subscriber which is to be listed in the Digital Signature Ccrtificate has been accepted by a subscriber, the subscriber shall generate that key pair by applying the security procedure. 41.
(1)
A subscriber shall be deemed to have accepted a Digital Signature Certificate if he publishes or authorises the publication of a Digital Signature Certificate-
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(a) to one or more persons; (b) in a repository, or otherwise demonstrates his approval of the Digital Signature Certificate in any manner, (2) By accepting a Digital Signature Certificate the subscriber certifies to all who reasonably rely on the information contained in the Digital Signature Certificate that(a) the subscriber holds the private key corresponding to the public key listed in the Digital Signature Certificate and is entitled to hold thl~ same; (b) all represen tations made by the subscriber to the Certifying Authority and all material relevant to the information contained in the Digital Signature Certificate are true; (c) all information in the Digital Signature Certificate that is within the knowledge of the subscriber is true. 42. (1) Every subscriber shall exercise reasonable care to retain control of the private key corresponding to the public key Control of private key. Generating key pair. Acceptance of Digital Signature Certificate. Notice of suspension or revocation listed in his Digital Signature Certificate and take all steps to prevent its disclosure. (2) If the private key corresponding to the public key listed in the I )igital Signature Certificate has been compromise'd, then, the subscriber shall communicate the same without any delay to the Certifying Authority in such manner as may be specified by the regulations. E.\planatiml.-For the removal of doubts, it is hereby de'cIared that the' bubscriber shall be liable till he has informed the Certifying Authority that the private key has been compromised.
27H
Modified [r Act 2000
CHAPTER IX PENALTIES AND ADJUDICATION 43, If any person without permission of the owner or any
other person who is in charge of a computer, computer system or computer network,Ca) accesses or secures access to such computer, computer system or computer network; Cb) downloads, copies or extracts any data, computer data base or information from such computer, computer system or computer network including information or data held or stored in any removable storage medium; (c) introduces or causes to be introduced any computer contaminant or computer virus into any computer, computer system or computer network; Cd) damages or causes to be damaged any computer, computer system or computer network, data, computer data base or any other programmes residing in such computer, computer system or computer network; ((') disrupts or causes disruption of any computer, computer system or computer network; (f) denies or causes the denial of access to any person authorised to access any computer, computer system or computer network by any means; (g) provides any assistance to any person to facilitate access to a computer, computer system or computer network in contravention of the provisions of this Act, rules or regulations made thereunder; (h) charges the services availed of by a person to the account of another person by tampering with or manipulating any computer, computer system, or computer network, Penalty for damage to computer, computer system, etc, he shall be liable to pay damages by way of compensation not exceeding one crore rupees to the person so affected, E,t'/allatioll,-For the purposes of this section,-
Modified IT Act 2000 (j)
279
"computer contaminant" means any set of computer instructions that arl~ designed(a) to modify, d('~troy, record, transmit data or programme residing within a computer, computer system or computer network; or (h) by any means to usurp the normal operation of the computer, computer system, or computer network;
Iii) "computer data basl'" means a representation of information, knowledge, facts, concepts or instructions in text, image, audio, video that arc being prepared or have been prepared in a formalised mannef Of have been produced by a computer, computer system or computer network and arc intended for usc in a computer, computer system or computl'r network; (iii) "computer virus" means any computer instruction, information, data or programme that destroys, damages, degrau('s or adversely affects the performance of a computer resource or attaches itself to another computer resource and operates when a programme, data or instruction is executed or some ot.her event takes place in that computer resource; (iv) "damage" means to destroy, alter, delete, add, modify or rearrange any computer resource by any means.
44 [[ any person who is required under this Act or any rules or regulations made thereunder to(a) furnish any document, return or report to the Controller or the Certifying Authority fails to furnish the same, he shall be liable to a penalty not exceeding one lakh and fifty thousand rupees for each such failure; (b) file any return or furnish any information, books or other documents within the time specified therefore in the regulations faib to file return or furnish the
280
Mtldified IT Act 2UOO same within the tim(' specifIed therefore in the regulations, he shall be> liable to a penalty not exceeding five thousand rupees for every day during which such failure continues; (c) maintain books of account or records, fails to maintain the same, he shall be liable to a penalty not exceeding ten thousand rupees for every day during which the failufl> continues. 45. Whoever contravenes any rules or regulations made under this Act, for the contravention of which no penalty has been separately provided. shall be liable to pay a compensation not exceeding twenty-five thousand rupees to the person aff('cted by such contravention or a penalty not exceeding twenty-five thousand rupees. 46. (1) For the purpose of adjudging under this Chapter whether any person has committed a contravention of any of the provisions of this Act or of any rule, regulation, direction or order made thereunder the Central Government shall, subject to the provisions of sub-section (3), appoint any officer not below the rank of a Director to the Government of India or an equivalent officer of a State Government to be an adjudicating officer for holding an inquiry in the manner prescribed by the Central Government. (2) The adjudicating officer shall, after giving the person referred to in suh-section (1) a reasonable opportunity for making representation in the matter and if, on such inquiry, he is satisfied that the person has committed the contravention, he may impose such penalty or award such compensation as he thinks fit in accordance with the provisions of that section. (3) No person shall be appointed as an adjudicating officer unless he possesses such experience in the field of Information Technology and legal or judicial experience as may be prescribed by the Central Government.
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(4) Where more than one adjudicating officers are appointed, the Central Government shall specify by order the matters and places with respect to which such officers shall exercise their jurisdiction. (5) Every adjudicating officer shall have the powers of a civil court which are conferred on the Cyber Appellate Trihunal under sub-section (2) of section 58, and(a) all proceedings before it shall be deemed to be judicial proceedings within the meaning of sections 193 and 228 of the Indian Penal Code; (b) shall be deer.1ed to be a civil court for the purpose~ of sections 345 and 346 of the Code of Criminal Procedure, 1973. 47. While adjudging the quantum of compensation under this Chapter, the adjudicating officer shall have due regard to the following factors, namely:Residuary penalty. Power to adjudicate. Factors to be taken into account by the adjudicating officer. (a) the amount of gain of unfair advantage, wherever quantifiable, made as a result of the default; (b) the amount of loss caused to any person as a result of the default; (c) the repetitive' nature of the default.
CHAPTER X THE CYBER REGULATIONS APPELLATE TRIBUNAL 48. (1) The Central Government shall, by notification, establish one or more appellate tribunals to be known as the Cyber Regula tions Appellate Tribunal. (2) The Central Covernment shall also specify, in the notification rcf('rred to in sub-section (1), the matters and places in relation to which the Cyber Appellate Tribunal may eXl'rcise Jurisdiction. 49. A Cyber ApPCllcltc Trihunal shall consist of one person
282
Modified IT Act 2000 only (hereinafter referred to as the Presiding Officer of the Cyber Appellate Tribunal) to be appointed, by notification, by the Central Government. 50. A person shall not be qualified for appointment as the Presiding Officer of a Cyber Appellate Tribunal unless he(a) is, or has been, or is qualified to be, a Judge of a High Court; or (b) is or has been a member of the Indian Legal Service and is holding or has held a post in Grade I of that Service for at least three years. 51. The Presiding Officer of a Cyber Appellate Tribunal shall hold office for a term of five years from the date on which he enters upon his office or until he attains the age of sixty-five years, whichever is earlier. 52. The salary and allowances payable to, and the other terms and conditions of service including pension, gratuity and other retirement benefits of, the Presiding Officer of a Cyber Appellate Tribunal shall be such as may be prescribed: Provided that neither the salary and allowances nor the other terms and conditions of service of the Presiding Officer shall be varied to his disadvantage after appointment. 53. If, for reason other than temporary absence, any vacancy occurs in the office of the Presiding Officer of a Cyber Appellate Tribunal, then the Central Government shall appoint another person in Establishment of Cyber Appellate Tribunal. Composition of Cyber Appellate Tribunal. Qualifications for appointment as Presiding Officer of the Cyber Appellate Tribunal. Term of office. Salary, allowances and other terms and conditions of service of Presiding Officer. Filling up of vacancies accordance with the provisions of this Act to fill the vacancy and the proceedings may be continued before the Cyber Appellate Tribunal from the stage at which the vacancy is filled.
Modified IT Act 2000
283
54. (1) The' Presiding Officer of a Cyber Appellate Tribunal may, by notice in writing under his hand addressed to the Central Government, resign his office: Provided that the said Presiding Officer shall, unless he is permitted by the Central Government to relinquish his office sooner, continue to hold office until the expiry of three months from the date of receipt of such notice or until a person duly appointed as hb successor enters upon his office or until the expiry of his term of office, whichever is the' earliest. (2) The Presiding Officer of a Cyber Appellate Tribunal shall not be removed from his office except by an order by the Central Government on the ground of proved misbehaviour or incapacity after an inquiry made by a Judge of the Supreme Court in which the Presiding Officer concerned has been informed of the charges against him and given a reasonable opportunity of being heard in respect of these charges. (3) The Central Government may, by rules, regulate the procedure for the investigation of misbehaviour or incapacity of the aforesaid Presiding Officer. 55. No order of the Central Government appointing any person as the Presiding Officer of a Cyber Appellate Tribunal shall be called in question in any manner and no act or proceeding before a Cyber Appellate Tribunal shall be called in question in any manner on the ground merely of any defect in the constitution of a Cyber Appellate Tribunal. 56. (1) The Central Government shall provide the Cyber Appellate Tribunal with such officers and employees as that Government may think fit. (2) The officers and employees of the Cyber Appellate Tribunal shall discharge their functions under general superintendence of the Presiding Officer. (3) The salaries, allowances and other conditions of
284
Modified IT Act 2000 service of the officers and employees of the Cyber Appellate Tribunal shall be such as may be prescribed by the Central Government. 57. (1) Save as provided in sub-section (2), any person aggrieved by an order made by Controller or an adjudicating officer Resignation and removal. Orders constituting Appellate Tribunal to be final and not to invalidate its proceedings. Staff of the Cyber Appellate Tribunal. Appeal to Cyber Appellate Tribunal under this Act may prefer an appeal to a Cyher Appellate Tribunal having jurisdiction in the matter. (2) No appeal shall lie to the Cyber Appellate Tribunal from an order made by an adjudicating officer with the consent of the parties. (3) Every appeal under sub-section (1) shall be filed within a period of forty-five days from the date on which a copy of the order made by the Controller or the adjudicating officer is received by the person aggrieved and it shall be in such form and be accompanied by such fcc as may- be prescribed: Provided that the Cyber Appellate Tribunal may entertain an appeal after the expiry of the said period of forty-five days if it is satisfied that there was sufficient cause for not filing it within that period. (4) On receipt of an appeal under sub-section (1), the Cyber Appellate Tribunal may, after giving the parties to the appeal, an opportunity of being heard, pass such orders thereon as it thinks fit, confirming, modifying or setting aside the order appealed against. (5) The Cyber Appellate Tribunal shall send a copy of every order made by it to the parties to the appeal and to the concerned Controller or adjudicating officer. (6) The appeal filed before the Cyber Appellate Tribunal under sub-section (1) shall be dealt with by it as
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285
expeditiously as possible and endeavour shall be made by it to dispose of the appeal finally within six months from the date of receipt of the appeal. 58. (1) The Cyber Appellate Tribunal shall not be bound by the procedure laid down by the Code of Civil Procedure, 1908 but shall be guided by the principles of natural justice and, subject to the other provisions of this Act and of any rules, the Cyber Appellate Tribunal shall have powers to regulate its own procedure including the place at which it shall have its sittings. (2) The Cyber Appellate Tribunal shall have, for the purposes of discharging its functions under this Act, the same powers as are vested in a civil court under the Code of Civil Procedure, 1908, while trying a suit, in respect of the following matters, namely:(a) summoning and enforcing the attendance of any person and examining him on oath; Procedure and powers of the Cyber Appellate Tribunal. 5 of 1908. (b) requiring the discovery and production of documents or other electronic records; (c) receiving evidence on affidavits; (d) issuing commissions for the examination of witnesses or documents; (e) reviewing its decisions; (f) dismissing an application for default or deciding it ex parte; (g) any other matter which may be prescribed. (3) Every proceeding before the Cyber Appellate Tribunal shall be deemed to be a judicial proceeding within the meaning of sections 193 and 228, and for the purposes of section 196 of the Indian Penal Code and the Cyber Appellate' Tribunal shall be deemed to be a civil court for the purposes of section 195
286
Modified IT Act 2000
59.
60.
61.
62.
63.
and Chapter XXVI of the Code of Criminal Procedure, 1973. The appellant may either appear in person or authorise one or more legal practitioners or any of its officers to present his or its case before the Cyber Appellate TribunaL The provisions of the Limitation Act, 1963, shall, as far as may be, apply to an appeal made to the Cyber Appellate Tribunal. No court shall have jurisdiction to entertain any suit or proceeding in respect of any matter which an adjudicating officer appointed under this Act or the Cyber Appellate Tribunal constituted under this Act is empowered by or under this Act to determine and no injunction shall be granted by any court or other authority in respect of any action taken or to be taken in pursuance of any power conferred by or under this Act. Any person aggrieved by any decision or order of the Cyber Appellate Tribunal may file an appeal to the High Court within sixty days from the date of communication of the decision or order of the Cyber Appellate Tribunal to him on any question of fact or law arising out of such order: Provided that the High Court may, if it is satisfied that the appellan t was prevented by sufficient cause from filing the appeal within the said period, allow it to be filed within a further period not exceeding sixty days. (1) Any contravention under this Act may, either before or after the institution of adjudication proceedings, be compounded by the Controller or such other officer as may be specially 45 of 1860 2 of 1974 Right to legal representation. 36 of 1963 Limitation. Civil court not to have jurisdiction. Appeal to High Court. Compounding of contraventions authorised by him in this behalf or by the adjudicatul~ oUicer
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Modified IT Act 2000
as the case may be, subject to such conditions as the Controller or such other officer or the adjudicating officer may specify: Provided that such sum shall not, in any case, exceed the maximum amount of the penalty which may be imposed under this Act for the contravention so compounded. (2) Nothing in sub-section (1) shall apply to a person who commits the same or similar contravention within a period of three years from the date on which the first contravention, committed by him, was compounded. Explanation.-For the purposes of this sub-section, any second or subsequent contravention committed after the expiry of' a period of three years from the date on which the contravention was previously compounded shall be deemed to be a first contravention. (3) Where any contravention has been compounded under sub-section 0), no proceeding or further proceeding, as the case may be, shall be taken against the person guilty of such contravention in respect of the contravention so compounded. 64. A penalty imposed under this Act, if it is not paid, shall be recovered as an arrear of land revenue and the licence or the Digital Signature Certificate, as the case may be, shall be suspended till the penalty is paid.
CHAPTER XI OFFENCES 65. Whoever knowingly or intentionally conceals, destroys or alters or intentionally or knowingly causes another to conceal, destroy or alter any computer source code used for a computer, computer programme, computer system or computer network, when the computer source code is required to be kept or maintained by law for the time being in force, shall be punishable with imprisonment up to three years, or with fine which may extend up to two lakh rupees, or with both.
2H8
Modified Ir Ad 2000 l:;yplal1atioll.-For the purposes of this section,
"compu ter source code" means the listing of programmes, computer commands, design and layout and programme analysis of computer resource in any form. 66. (1) Whoever with the intent to cause or knowing that he is likely to cause wrongful loss or damage to the public or any person destroys or deletes or alters any information residing in a computer resource or diminishes its value or utility or affects it injuriously by any means, commits hacking. (2) Whoever commits hacking shall be punished with imprisonment up to three years, or with fine which may extend up to two lakh rupees, or with both. 67. Whoever publishes or transmits OJ causes to be published in the electronic form, any material which is lascivious or appeals to the prurient interest or if its effect is such as to tend to deprave and corrupt persons who are likely, having regard to all relevant circumstances, to read, see or hear the matter contained or embodied in it, shall be punished on first conviction with imprisonment of either description for a term which may extend to five years and with fine which may extend to one lakh rupees and in the event of a second or subsequent conviction with imprisonment of either description for a term which may extend to ten years and also with fine which may extend to two lakh rupees. 68. (1) The Controller may, by order, direct a Certifying Authority or any employee of such Authority to take such measures or cease carrying on such activities as specified in the order if those are necessary to ensure compliance with the provisions of this Act, rules or any regulations made thereunder. (2) Any person who fails to comply with any order under subsection (1) shall be guilty of an offence and shall be liable on conviction to imprisonment
M\lJifipd
n
Act 2000
289
for a term not exceeding three years or to a fine not exceeding two lakh rupees or to both. 09.
(1)
(2)
(3)
70. (1)
(2)
(3)
If the Controller is satisfied that it is necessary or expedient so to do in the interest of the sovereignty or integrity of India, the security of the State, friendly relations with foreign States or public order or for preventing incitement to the commission of any cognizable offence, for reasons to be recorded in writing, by order, direct any agency of the Government to intercept any information transmitted through any computer resource. The subscriber or any person in charge of the computer resource shall, when called upon by any agency which has been directed under sub-section 0), extend all facilities and technical assistance to decrypt the information. The subscriber or any person who fails to assist the agency referred to in sub-section (2) shall be punished with an imprisonment for a term which may extend to seven years. Publishing of information which is obscene in electronic form. Power of Controller to give directions. Directions of Controller to a subscriber to extend facilities to decrypt information. The appropriate Government may, by notification in the Official Gazette, declare that any computer, computer system or computer network to be a protected system. The appropriate Government may, by order in writing, authorise the persons who are authorised to access protected systems notified under subsection 0). Any person who secures access or attempts to secure access to a protected system in contravention of the provisions of this section shall be punished with imprisonment of either description for a term which may extend to ten years and shall also be liable to fine.
2YO
Modified IT Act 2000 71. Whoever makes any misrepresentation to, or suppresses any material fact from, the Controller or the Certifying Authority for obtaining any licence or Digital Signature Certificate, as the case may be, shall be punished with imprisonment for a term which may extend to two years, or with fine which may extend to one lakh rupees, or with both. 72. Save as otherwise provided in this Act or any other law for the time being in force, any person who, in pursuance of any of the powers conferred under this Act, rules or regulations made thereunder, has secured access to any electronic record, book, register, correspondence, information, document or other material without the consent of the person concerned discloses such electronic record, book, register, correspondence, information, document or other material to any other person shall be punished with imprisonment for a term which may extend to two years, or with fine which may extend to one lakh rupees, or with both. 73. (1) No person shall publish a Digital Signature Certificate or otherwise make it available to any other person with the knowledge that(a) the Certifying Authority listcd in thc certificate has not issued it; or (b) the subscriber listed in the certificate has not accepted it; or (c) thc certificate has been revoked or suspcnded, unlcss such publication is for the purpose of vcrifying a digital signature created prior to such suspension or revocation. (2) Any person who contravenes the provisions of subsection (1) shall be punished with imprisonment for a term which Protected system. Penalty for publishing Digital Signature Certificate false in certain particulars may extend to two years, or with fine which may extend to one lakh rupees, or with both.
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74. Whoever knowingly creates, publishes or otherwise makes available a Digital Signature Certificate for any fraudulent or unlawful purpose shall be punished with imprisonment for a term which may extend to two years, or with fine which may extend to one lakh rupees, or with both. 75. (1) Subject to the provisions of sub-section (2), the provisions of this Act shall apply also to any offence or contravention committed outside India by any person irrespective of his nationality. (2) For the purposes of sub-section (1), this Act shall apply to an offence or contravention committed outside India by any person if the act or conduct constituting the offence or contravention involves a computer, computer system or computer network located in India. 76. Any computer, computer system, floppies, compact disks, tape drives or any other accessories related thereto, in respect of which any provision of this Act, rules, orders or regulations made thereunder has been or is being contravened, shall be liable to confiscation: Provided that where it is established to the satisfaction of the court adjudicating the confiscation that the person in whose possession, power or control of any such computer, computer system, floppies, compact disks, tape drives or any other accessories relating thereto is found is not responsible for the contravention of the provisions of this Act, rules, orders or regulations made thereunder, the court may, instead of making an order for confiscation of such computer, computer system, floppies, compact disks, tape drives or any other accessories related thereto, make such other order authorised by this Act against the person contravening of the provisions of this Act, rules, orders or regulations made thereunder as it may think fit. 77. No penalty imposed or confiscation made UI\der this Act
Modified fT Act 2000
292
shall prevent the imposition of any other punishment to which the person affected thereby is liahle under any other law for the time being in force. 78. Notwithstanding anything contained in the Code of Criminal Procedure, 1973, a police officer not below the rank of Deputy Superintendent of Police shall investigate any offence under this Act. Publication for fraudulent purpose. Act to apply for offence or contravention committed outside India. CHAPTER XII NETWORK SERVICE PROVIDERS NOT TO BE LIABLE IN CERTAIN CASES
79. For the removal of doubts, it is hereby declared that no person providing any service as a network service provider shall be liable under this Act, rules or regulations made thereunder for any third party information or data made available by him if he proves that the offence or contravention was committed without his knowledge or that he had exercised all due diligence to prevent the commission of such offence or contravention. Explanatioll.-For the purposes of this section,(a) "network service provider" means an intermediary; (b) "third party information" means any information dealt with by a network service provider in his capacity as an intermediary.
CHAPTER XIII MISCELLANEOUS 80. (1) Notwithstanding anything contained in the Code of Criminal Procedure, 1973, any police officer, not below the rank of a Deputy Superintendent of Police, or any other officer of the Central Government or a State Government authorised by the Central Government in this behalf may enter any public place and search and arrest without warrant any
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person found therein who is reasonably suspected or having committed or of committing or of being about to commit any offence under this Act. Explanation.-For the purposes of this sub-section, the expression "public place" includes any public conveyance, any hotel, any shop or any other place intended for use by, or accessible to the public. (2) Where any person is arrested under sub-section (1) by an officer other than a police officer, such officer shall, without unnecessary delay, take or send the person arrested before a magistrate having jurisdiction in the case or before the officer-in-charge of a police station. (3) The provisions of the Code of Criminal Procedure, 1973 shall, subject to the provisions of this section, apply, so far as may be, in relation to any entry, search or arrest, made under this section. Network service providers not to be liable in certain cases. 81. The provisions of this Act shall have effect notwithstanding anything inconsistent therewith contained in any other law for the time being in force. 82. The Presiding Officer and other officers and employees of a Cyber Appellate Tribunal, the Controller, the Deputy Controller and the Assistant Controllers shall be de('med to be public servants within the meaning of section 21 of the lndian Penal Code. 83. The Central Government may give directions to any State Govertttnent as to the carrying into execution in the State of any of the provisions of this Act or of any rule, regulation or order made thereunder. 84. No suit, prosecution or other legal proceeding shall lie against the Central Government, the State Government, the Controller or any person acting on behalf of him, the Presiding Officer. adjudicating officers and the staff of the Cyber Appellate Tribunal for anything which is in good faith done or intended to be done in pursuance of this Act or any rule, regulation or order made thereunder.
Modified IT Act 2000
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H5.
(1)
Where a person committing a contravention of any of the provisions of this Act or of any rule, direction or order made thereunder is a company, every person who, at the time the contravention was committed, was in charge of, and was responsible to, the company for the conduct of business of the company as well as the company, shall be guilty of the contravention and shall he liable to be proceeded against and punished accordingly: Provided that nothing contained in this subsection shall render any such person liable to punishment if he proves that the contravention took place without his knowledge or that he exercised all due diligence to prevent such contravention.
(2) Notwithstanding anything contained in sub-section 0), where a contravention of any of the provisions of this Act or of any rule, direction or order made thereunder has been committed by a company and it is proved that the contravention has taken place with the consent or connivance of, or is attributable to any neglect on the part of, any director, manager, secretary or other officer of the company, such director, manager, secretary or other officer shall also be deemed to be guilty of the contravention and shall be liable to be proceeded against and punished 45 of 1860. Act to have overriding effect. Controller, Deputy Controller and Assistant Controllers to be public servants. Power to give directions. Protection of action taken in good faith. Offences by companies accordingly. Explanation.-For the purposes of this section,(i) "company" means any body corporate and includes a firm or other association of individuals; and (ii) "director", in relation to a firm, means a partner in the firm.
Modified IT Act 2000
2<,15
86. (1) If any difficulty arises in giving effect to the provisions of this Act, the Central Government may, by order published in the Official Gazette, make such provisions not inconsistent with the provisions of this Act as appear to it to be necessary or expedient for removing the difficulty: Provided that no order shall be made under this section after the expiry of a period of two years from the commencement of this Act. (2) Every order made under this section shall be laid, as soon as may be after it is made, before each House of Parliament. 87. (1) The Central Government may, by notification in the Official Gazette and in the Electronic Gazette make rules to carry out the provisions of this Act. (2) In particular, and without prejudice to the generality of the foregoing power, such rules may provide for all or any of the following matters, namely:(a) the manner in which any information or matter may be authenticated by means of digital signature under section 5; (b) the electronic form in which filing, issue, grant or payment shall be effected under sub-section (1) of section 6; (c) the manner and format in which electronic records shall bl' filed, or issued and the method of payment under sub-section (2) of section 6; (d) the matters relating to the type of digital signature, manner and format in which it may be affixed under section 10; (e) the security procedure for the purpose of creating secure electronic record and secure digital signature under section 16; (f) the qualifications, experience and terms and conditions of service of Controller, Deputy Controllers and Assistant Controllers under section 17;
2%
Modified IT Act 2000 (g) other standards to be observed by the Controller under Removal of difficulties. Power of Central Government to make rules clause (b) of subsection (2) of section 20; (h) the requirements which an applicant must fulfil under sub-section (2) of section 21; (i) the period of validity of licence granted under clause (a) of sub-section (3) of section 21; (j) the form in which an application for licence may be made under sub-section (1) of section 22; (k) the amount of fees payable under clause (c) of subsection (2) of section 22; (1) such other docum('nts which shall accompany an application for licence under clause (d) of subsection (2) of section 22; (m) the form and the fee for renewal of a licence and the fee payable thereof under section 23; (n) the form in which application for issue of a Digital Signature Certificate may be made under sub-section (1) of section 35; (0) the fee to be paid to the Certifying Authority for issue of a Digital Signature Certificate under sub-section (2) of section 35; (p) the manner in which the adjudicating officer shall hold inquiry under sub-section (1) of section 46; (q) the qualification and experience which the adjudicating officer shall possess under subsection (3) of section 46; (r) the salary, allowances and the other terms and conditions of service of the Presiding Officer under section 52; (s) the procedure for investigation of misbehaviour or incapacity of the Presiding Officer under subsection 0) uf section 54; (t) the salary and allowances and other conditions of service of other officers and employees under subsection (3) of section 56;
Modified IT Act 2()()()
2<)7
(u) the form in which appeal may be filed and the fec thereof under sub-section (3) of section 57; (v) any other power of a civil court required to be prescribed under clause (g) of sub-section (2) of section 58; and (w) any other matter which is required to be, or may be, prescribed. (3) Every notification made by the Central Government under clause (f) of sub-section (4) of section 1 and every rule made by it shall be laid, as soon as may be after it is made, before each House of Parliament, while it is in session. for a total period of thirty days which may be comprised in one session or in two or more successive sessions, and if, before the expiry of the session immediately following the session or the successive sessions aforesaid, both Houses agree in making any modification in the notification or the rule or both Houses agree that the notification or the rule should not be made, the notification or the rule shall thereafter have effect only in such modified form or be of no effect, as the case may be; so, however, that any such modification or annulment shall be without prejudice to the validity of anything previously done under that notification or rule. 88. (1) The Central Government shall, as soon as may be after the commencement of this Act, constitute a Committee called the Cyber Regulations Advisory Committee. (2) The Cyber Regulations Advisory Committee shall consist of a Chairperson and such number of other official and nonofficial members representing the interests principally affected or having special knowledge of the subject-matter as the Central Government may deem fit. (3) The Cyber Regulations Advisory Committee-shall advise-
2YR
Modified IT Act 2000 (a) the Central Government either generally as regards any rules or for any other purpose connected with this Act; (b) the Controller in framing the regulations under this Act. (4) There shall be paid to the non-official members of such Committee such travelling and other allowances as the Central Government may fix. 8q. (l) The Controller may, after consultation with the Cyber Regulations Advisory Committee and with the previous approval of the Central Government, by notification in the Official Gazette, make regulations consistent with this Act and the rules made thereunder to carry out the purposes of Power of Controller to make regulations. :2) In particular, and without prejudice to the generality of the foregoing power, such regulations may provide for all or any of the following matters, namcly:-
(a) the particulars relating to maintenance-of database containing the disclosure record of every Certifying Authority under clause (n) of section 18; (b) the conditions and restrictions subject to which the Controller may recognise any foreign Certifying Authority under sub-section (1) of section 19; (c) the tenns and conditions subject to which a licence may be granted under clause (c) of subsection (3) Qf section 21; d) other standards to be observed by a Certifyi~ Authority under clause (d) of section 30; ,) the manner in which the Certifying Authority shall disclose the matters specified in sub-section (1) of section 34; (f) the particulars of statement which shall
Modified IT Act 2000
299
accompany an application under sub-section (3) of section 35; (g) the manner in which the subscriber shall communicate the compromise of private key to the certifying Authority under sub-section (2) of section 42. (3) Every regulation made under this Act shall be laid, as soon as may be after it is made, before each House of Parliament, while it is in session, for a total period of thirty days which may be comprised in one session or in two or more successive sessions, and if, before the expiry of the session immediately following the session or the successive sessions aforesaid, both Houses agree in making any modification in the regulation or both Houses agree that the regulation should not be made, the regulation shall thereafter have effect only in such modified form or be of no effect, as the case may be; so, however, that any such modification or annulment shall be without prejudice to the validity of anything previously done under that regulation. 90. (1) The State Government may, by notification in tl}.e Official Gazette, make rules to carry out the provisions of this Act. (2) In particular, and without prejudice to the generality of the foregoing power, such rules may provide for all or any of Power of State Government to make ,rules the following matters, namely:(a) the electronic form in which filing, issue, grant receipt or payment shall be effected under subsection (1) of section 6; (b) for matters specified in sub-section (2) of section
6; (c) any other matter which is required to be provided by rules by the State Government.
M()dlhed IT Act 2000
3U(1
(3) Every rule made by the State Government under this section shall be laid, as soon as may be after it is made, before each House of the State Legislature where it consists of two How,cs, or where such Legislature consists of onc House, before that House. 91. The Indian Penal Code shall be anll'nded in the manner specified in the First Schedule to this Act.
92. The Indian Evidence Act, 1872 shall be amended in the manner specified in the Second Schl'dule to this Act. 93. The Bankers' Books Evidence Act, 1891 shall be amended in the manner spl'cified in the Third Schedule to this Act. 94. The Reserve Bank of India Act, N14 shall be amended in the manner specified in the Fourth Schedule to this Act.
The First Schedule Amendments to the Indian Penal Code 1.
2.
3.
4.
After section 29, the following sedion shall be inserted, namely:"29 A. The words "electronic record" shall have the meaning assigned to them in clause (t) of sub-section (1) of section 2 of the Information Technology Act, 2000.". 11'1. section 167, for the words "such public servant, charged with the preparation or translation of any document, frames or translates that document", the words "such public servant, charged with the preparation or translation of any document or electronic record, frames, prepares or translates that document or electronic record" shall be substituted. In section 172, for the words "produce a document in a Court of Justice", the words "produce a document or an electronic record in a Court of Justice" shall be substituted. In section 173, for the words "to produce a document in a Court of Justice", the words "to produce a document
Moditit:'d II Act 2000
5.
6.
7.
8.
9,
301
or electronic record Amendment of Act 45 of 1860. Amendment of Act 1 of 1872. Amendment of Act 18 of 1HY l. Amendment of Act 2 of 1934. Electronic record in a <. 'ourt of Justice" shall be substituted. In section 175, for the word "document" at both the places where it occurs, the words "document or C'lcctronic record" shall be substituted. In section 192, for the words "makes any talse entry in any book or record, or makes any document containing a false statement", the words "makes any false entry in any book or record, or dectronic record or makes any document or electronic record containing a false statement" shall be substituted. In section 204, for the word "document" at both the places where it occurs, the words "document or electronic record" shall be substituted. In section 463, for the words "Whoever makes any false documents or part of a document with intent to cause damage or injury", the words "Whoever makes any false documents or false electronic record or part of a document or electrOIll( record, with intent to cause damage or injury" shall be substituted In section 464,(a) for the portion beginning with the words" A person is said to make a false document" and ending with the words "by reason of deception practised upon him, he does not know the contents of the document or the nature of tlw alteration", the following shall be substituted. namely'"A person is said to make a false document or false electronic recordFirst-Who dishonestly or fraudulently(a) makes, signs, seals or executes a document or part of a documen t; (b) makes or transmits any electronic record or part of any electronic record; (d affixes any digital signature on any electronic record;
302
Modified IT Act 2000 (d) makes any mark denoting the execution of a document or the authenticity of the digital signature with the intention of causing it to be believed that such document or part of document, electronic record or digital signature was made, signed, scaled, execu ted, tr
Secondly-Who, without lawful authority, dishonestly or fraudulently, by cancellation or otherwise, alters a document or an electronic record in any material part thereof, after it has bcen made, executed or affixed with digital signature either by himself or by any other person, whether such person be living or dead at th~ time of such altera tion; or Thirdly-Who dishonestly or fraudulently causes any person to sign, seal, execute or alter a document or an electronic record or to affix his digital signature on any electronic record knowing that such person by reason of unsoundness of mind or intoxication cannot, or that by reason of deception practised upon him, he does not know the contents of the document or electronic record or the nature of the alteration."; (b) after Explanation 2, the following Explanation shall be inserted at the end, namely:'Expla1latio1l 3.-- For the purposes of this section, the expression "affixing digital signature" shall have the meaning assigned to it in clause (d) of sub-section 0) of section 2 of the Information Technology Act, 2000.' 10. In section 466,(a) for the words "Whoever forges a document", the words ., Whoever forges a documen t or an electronic record" shall be substituted; (b) the following Explallation shall be inserted at the end, namcly:--
Mqdified IT Act 2000
303
£xpLanation.-For the purposes of this section, "register" includes any list, data or record of any entries maintaine4-in the electronic form as defined in clause (r) of sub-section 0) of section 2 of the Information Technology Act, 2000:.
11. In section 468, for the words "document forged", the words "document or electronic record forged" shall be substituted. 12. In section 469, for the words "intending that the document forged", the words "intending that the document or electronic record forged" shall be substituted. 13. In section 470, for the word "document" in both the places where it occurs, the words "document or electronic record" shall be substituted. 14. In section 471, for the word "document" wherever it occurs, the words" document or electronic record" shall be substitu~ed. 15. In section 474, for the portion beginning with the words "Whoever has in his possession any document" and ending with the words "if the document is one of the description mentioned in section 466 of this Code", the following shall be substituted, namely:"Whoever has in his possession any document or electronic record, knowing the same to be forged and intending that the same shall fraudulently or dishonestly be used as a genuine, shall, if the document or electronic record is one of the description mentioned in sectwn 466 of this Code." . ( 16. In section 476, for the words "any document"~, the words "any document or electronic record" shall be substituted. 17. In section 477 A, for the words "book, paper, writing" at both the places where they occur, the words ('book, electronic record, paper, writing" shall be substituted.
304
Modified IT Act 2000
The Second Schedule Amendments to the Indian Evidence Act, 1972 1.
In section 3,(a) in the definition of "Evidence", for the words "all documents produced for the inspection of the Court", the words "all documents induding electronic records produced for the inspection of the Court" shall be substituted; (h) after the definition of "India", the following shall be inserted, namcly:-'the expressions "Certifying Authority", "digital signature", "Digital Signature Certificate", "electronic form", "electronic records", "information", "secure electronic record", "secure digital signature" and "subscriber" shall have the meanings respectively assigned to them in the Information Technology Act, 2000.'.
2.
3.
4.
5.
6.
In section 17, for the words "oral or documentary", the words "oral or documentary or contained in electronic form" shall be substituted. After section 22, the following section shall be inserted, namcly:-"22A. Oral admissions as to the contents of electronic records are not relevant, unless the genuineness of the electronic record produced is in question." . In section 34, for the words "Entries in the books of account", the words "Entries in the books of account, including those maintained when oral admission as to contents of electronic records are relevant in an electronic form" shall be substituted. In section 35, for the word "record", in both the places where it occurs, the words "record or an electronic record" shall be substituted. For section 39, the following section shall be substituted, namely:- 1/39. When any statement of which evidence is given torms part of a longer stateme~·., or of a conversation or part of an isolated document, or is
Modified IT Act 20(H)
7.
8.
9.
305
contained in a document which forms part of a book, or is contained in part of electronic record or of a connected series of letters or papers, evidence shall be given of so much and no more of the statement, conversation, document, electronic record, book or series of letters or papers as the Court considers necessary in that particular case to the full understanding of the nature and effect of the statement, and of the circumstances under which it was made.". After section 47, the following section shall be inserted, namely:-·" 47 A. When the Court has to form an opinion as to the digital signature of any person, the opinion of the Certifying Authority which has issued the Digital Signature Certificate is a relevant fact.". In section 59, for the words "contents of documents" the words "contents of documents or electronic records" shall be substituted. After section 65, the following sections shall be inserted, namely:-'65A. The contents of electronic records may be proved in accordance with the provisions of section 65B.
65B. (I) Notwithstanding anything contained in this Act, any information contained in an electronic record which is printed on a paper, stored, recorded or copied in optical or magnetic media produced by a computer (hereinafter referred to as the computer output) shall be deemed to be also a document, if the conditions mentioned in this section arc satisfied in relation to the information and computer in question and shall be admissible in any proceedings, without further proof or production of the original, as evidence of any contents of the original or of any fact stated therein of which direct evidence would be admissible. (2) The conditions referred to in sub-section (1) in respect of a computer output shall be the following, namcly:-
306
Modified IT Act 2000 What evidence to be given when statement forms part of a conversation, document, electronic record, book or series of letters or papers. Opinion as to digital signature where relevant. Special provisions as to evidence relating to electronic record. AdmissibiLi ty of electronic records. (a) the computer output containing the information was produced by the computer during the period over which the computer was used regularly to store or process information for the purposes of any activities regularly carried on over that period by the person rr-aving lawful control over the use of the computer; (b) during the said period, information of the kind contained in the electronic record or of the kind from which the information so contained is derived was regularly fed into the computer in the ordinary course of the said activities; (c) throughout the material part of the said "eriod, the computer was operating properly or, if not, then in respect of any period in which it was not operating properly or was out of operation during that part of the period, was not such as to affect the electronic record or the accuracy of its contents; and (d) the information contained in the electronic record reproduces or is derived from such information fed into the computer in the ordinary course of the said activities. (3) Where over any period, the function of storing or processing information for the purposes of any activities regularly carried on over that period as mentioned in clause (a) of sub-section (2) was regularly performed by computers, whether(a) by a combination of computers operating over that period; or
Modified IT Act 2000
307
(b) by different computers operating in succession over that period; or (c) by different combinations of computers operating in succession over that period; or(d) in any other manner involving the successive operation over that period, in whatever order, of one or more computers and one or more combinations of computers all the computers used for that purpose during that period shall be treated for the purposes of this section as constituting a single computer; and references in this section to a computer shall be construed accordingly. (4) In any proceedings where it is desired to give a statement in evidence by virtue of this section, a certificate doing any of the following things, that is to say,(a) identifying the electronic record containing the statement and describing the manner in which it was produced; (b) giving such particulars of any device involved in the production of that electronic record as may be appropriate for the purpose of showing that the electronic record was produced by a computer; (c) dealing with any of the matters to which the conditions mentioned in sub-section (2) relate, and purporting to be signed by a person occupying a responsible official position in relation to the operation of the relevant device or the management of the relevant activities (whichever is appropriate) shall be evidence of any matter stated in the certificate; and for the purposes of this sub-section it shall be sufficient for a matter to be stated to the best of the knowledge and belief of the person stating it. (5) For the purposes of this section,-
308
Modified IT Act 2000 (al intormation shall be taken to be supplied to
a
computer if it is supplied thereto in any appropriate form and whether it is so supplied directly or (with or without human intervention) by means of any appropriate equipment; (b) whether in the course of activities carried on by any official, information is supplied with a view to its being stored or processed for the purposes of those activities by a computer operated otherwise than in the course of those activities, that information, if duly supplied to that computer, shall be taken to be supplied to it in the course of those activities; k) a computer output shall be taken to have been t'foduced by a computer whether it was produced by it directly or (with or without human intervention) by means of any appropriate equipment.
'Explal1atiol1.--For the purposes of this section any refefence to information being derived from other information shall be a reference to its being derived therefrom by calculation, comparison or apy other proces".'. 10. After section 67, the following section shall be inserted, namely:-"67 A. Except in the case of a secure digital sIgnature, if the Proof as to digital signature digital signature of any subscriber is alleged to have been affixed to an electmnic record the fact that such digital signature is the digital signature of the subscriber must be proved.". 11. After section 73, the following section shall be inserted, namely:73A. In order to ascertain whether a digital signature is
that of the person by whom it purports to have been affixed, the Court may direct-
Modified IT Act 2110l) (a) that person or the Controller or the Certifying Authority to produce the Digital Signature Certificate; (b) any other person to apply the public key listed in the Digitd Signature Certificate and verify the digital signature purporh.'d to have been affixed by that person. 'Explanatioll. ·-For the purposes of this section,
"Controller" m('an~ the Controller appointed under subsection (I) of section 17 of the Information Technology Act, 2000'. 12. After section Rl, the following section shall be inserted, namcly:-"81A. The Court shall presume the genuineness of every electronic- record purporting to be the Official Gazette, or purporting to be dectronic record directed by any law to be kept by any person, if such electronic record is kept substantially in the form required by law and is produced from proper custody.". 13. After section 8" the tollowing sections shall be inserted, namely:-·-"8SA. The Court shall presume that every electronic record purporting to be an agreement containing the digital signatures of the parties was so concluded by affixing the digital signature of the parties. 858. 0) In any proceedjng~ involving a secure electronic record, the Court shall presume unless contrary is proved, that the serun' electronic record has not been altered since the specific point of time to which the secure status relates. (2) In any proceedings, involving secure digital signature, the Court shall presume unless the contrary is proved that·(a) the secure digital signature is affixed by suhscriber WIth the intention of signing or
:~ 10
Modified IT Act 2000 approving the electronic record; Proof as to verification of digital signature. Presumption as to Gazettes in electronic forms. Presumption as to electronic agreements. Presumption as to electronic records and digital signatures. (b) except in the case of a secure electronic record or a secure digital signature, nothing in this section shall create any presumption relating to authenticity and integrity of the electronic record or any digital signature. The Court shall presume, unless contrary is proved, that the information listed in a Digital Signature Certificate is correct, except for information specified as subscriber information which has not been verified, if the certificate was accepted by the subscriber. " 14. After section 88, the follOWing section shall be inserted, namely:'88A. The Court may persume that an electronic message forwarded by the originator through an electronic mail server to the addressee to whom the message purports to be addressed corresponds with the message as fed into his computer for transmission; but the Court shall not make any presumption as to the person by whom such message was sent. Explanation.-For the purposes of this section, the expressions" addressee" and originator" shall have the same meanings respectively aSSigned to them in clauses (b) and (za) of sub-section (1) of section 2 of the Information Technology Act, 2000.'. IS. After section 90, the following section shall be inserted, namely:"90A. Where any electronic record, purporting or proved to be five years old, is produced from any custody which the Court in the particular case considers proper, the Court may presume that the digital signature which purports to be the digital signature of any
8:'1C
II
Mod Hied IT Act 2000
311
particular person was so affixed by him or any person authorised by him in this behalf. Explanation.-Electronic records are said to be in proper custody if they are in the place in which, and under the care of the person with whom, they naturally be; but no custody is improper if it is proved to have had a legitimate origin, or the circumstances of the particular case are such as to render such an origin probable. This Explanation applies also to section 81A.". 16. For section 131, the following section shall be substituted, namely:"131. No one shall be compelled to produce documents in his possession or electronic records under his control, which any other Presumption as to Digital Signature Certificates. Presumption as to electronic messages. Presumption as to electronic records five years old. Production of documents or electronic records which another person, having possession, could refuse to produce person would be entitled to refuse to produce if they were in his possession or control, unless such last-mentioned person consents to their production."
The Third Schedule Amendments to the Bankers' Books Evidence Act, 1981 1. In section 2-
(a) for clause (3), the following clause shall be substituted namely:'(3) "bankers' books" include ledgers, day-books, cashbooks, account-books and all other books used in the ordinary business of a bank whether kept in the written form or as printouts of data stored in a floppy, disc, tape or any other form of electro-magnetic data storage device; (b) for clause (8), the following clause shall be substituted, namely:'(8) "certified copy" means when the books of a bank,(a) are maintained in written form, a copy of any entry
Modified IT Act 2000
312
2.
in such books together with a certificate written at the foot of such copy that it is a true copy of such entry, that such entry is contained in one of the ordinary books of the bank and was made in the usual and ordinary course of business and that such hook is still in the custody of the bank/'and where the copy was obtained by a mechanical or other process which in itself ensured the accuracy of the copy, a further certificate to that effect, but where the book from which such copy vyas prepared has been destroyed in the usual course of the bank's business after the date on which the copy had been so prepared, a further certificate to that effect, each such certificate being dated and subscribed by the principal accountant or manager of the bank with his name and official title; and (b) consist of printouts of data stored in a floppy, disc, tape or any other electro-magnetic data storage device, a printout of such entry or a copy of such printout together with such statements certified in accordance with the provisions of section 2A.'. After section 2, the following section shall be inserted, namely:"2A. A printout of entry or a copy of printout referred to in sub-section (8) of section 2 shall be accompanied by the following, namcly:(a) a certificate to the effect that it is a printout of such entry or a copy of such printout by the principal accountant or branch manager; and (b) a certificate by a person in-charge of computer system containing a brief description of the computer system and the particulars of(A) the safeguards adopted by the system to ensure that data is entered or any other operation performed only by authorised pen,ons; (B) the safeguards adopted to prevent and detect unauthorised change of data;
Modified IT Act 2000
313
the safeguards available to retrieve data that is lost due to systemic failure or any other reasons; (0) the manner in which data is transferred from the system to removable media like floppies, discs, tapes or other electro-magnetic data storage devices; (E) the mode of verification in order to ensure that data has been accurately transferred to such removable media; (F) the mode of identification of such data storage
(C)
~kvices;
(G) the arrangements tor the storage and custody of such storage devices; (II) the safeguards Lo prevent and detect any tampering with the system; and (J) any other factor which will vouch for the irtegrity and accuracy of the system. (c)
a further certificate from the person in-charge of the computer system to the effect that to the best of his knowledge and belil'f, such computer system operated properly at the material time, he was provided with all the relevant data and the printout in question Conditions in the printout. Represents correctly, or is appropriately derived from, the relevant data."
The Fourth Schedule Amendment to the Reserve Bank of India Act, 1934 In the Reserve Bank of India Ad, 1934, in section 58, in subsection (2), after clause (p), the follOWing clause shall be inserted, namely:-"(pp) the regulation of fund transfer through electronic means between the banks or between the banks and other financial institutions referred to in clause (c) of section 45-1, including the laying down of the conditions subject to which banks and other financial institutions s\lall participate in such fund transfers, the manner of such fund transfers and the rights and obligations of thl' participants in such fund transfers".
Index
a priori, 76
Canada:e~overnance
AARAKSHI, 248-49 Acknowledgement of electronic records, 262-63
experience, 16-21 Capacity building and institutional framework for NeGP,226-40 an introduction, 226-28 approach for, 235-37 immediate action steps, 238-40 levels at which needed, 228-29 orientation training for, 235 specific capacity gaps, 229-34 usage of funds, 237-38 CASTLE,223-25 COT (Centre for Democracy and Technology), 133 Centre for Collaborative Government, 119 CIE (Computer in Education Programme), 37
ad hoc, 166
ANGLABHARTI, 210, 13 ANRT,67,76 ANUSARAKA,213-14 Asymmetric crypo system, 255 Attribution of electronic records, 262 Automatic font installer, 218 Award-driven projects, 170 BAM, 66, 67, 69, 70 Bankers Books Evidence Act, 311-13 BHOOMI,245 Botswana: use of e-Governance, 11-15 Bridging digital divide, 42, 96
Index Citizen online, 133-35 Citizen participation in e-Democracy, 121-31 CITO,31 Clift and Macintosh, 133, 134 Clift, Steven, 112, 117, 123 CLIS, 94 Coleman, Stephen, 121, 138, 143 COM NET-IT, 2, 104 Concept and scope of e-Governance, 2-3 Core policies of e-Governance, 177-78 Core projects for e-Governance, 178-79 CostelIs, Manuel, 123 Cyber Regulation Advisory Committee, 297-98 Cyber regulations appellate tribunal, 281-87 Dahl, Robert, 114 Democracy, 115 DESIKA,221-22 Devanagari optical character recognition, 216 Development and implementation of e-Governance, 199-251 capacity building and institutional framework, 226-40 e-Governance standards, 199-200 horizontal transfer of successful initiatives, 207-08 India development gateway, 203-04 India portal, 201-03
315 Indian language processing tools, 217-26 initiative on NSDG, 204-07 institutional mechanism and processes,200-01 state data centre, 240-51 technology development for Indian languages, 208-17 Dialogue by Design, 118 Digital Signature Act, 22, 24, 97 Digital signature certificates, 273-76 Digital signature, 258-59 DIT (Department of Information Technology), 174,199,203,250 E-Citizenship, 128 E-Democracy: Meaning, 117-19 E-Governance and e-Democracy: interrelationship, 119-21 E-Governance framework, 6-7 E-Governance implementation: an introduction, 145-47 connectivity, 152-57 economies of scale, 157-59 evaluation, 161-73 implementation challenges, 149-52 lessons, 145-73 Mozambique'S ICT policy, 147-49 recommendations, 159-61 E-Governance practices: global perspective, 8-106 an introduction, 8-11 Botswana, 11-15 Canada, 16-21 Estonia, 21-26 Hungary, 26-31
316
Index
Jamaica, 31-35 Heeks, Richard, 104 Malaysia, 35-47 Heritage Website, 219 Malta, 47-53 Hindi search engine, 220-21 Mauritius, 53-58 Hindi Vani, 215-16 Mexico,58-65 Human machine interface Morocco,65-80 systems, 214-17 New Zealand, 80-88 Hungary: e-Governance Republic of Korea, 88-97 experience, 26-31 South Africa, 97-101 Tanzania, 101-06 ICT Vision of Botswana, 13-14 EIONET,29 ICTs, 1,2,4,8-13,31,35-42,97, Electronic governance, 259-62 108-13,116-19,122-25,135-43 Electronic service delivery, 94-96 IFMS, 104 E.-Participation, 136, 137, 142 IHAC,16 E-Seva, 247 ILP: special requirements, 225-26 Estonia: e-Governance INDG (India Development experience, 21-26 Gateway),203-04 attention to support India portal, 201-03 activities, 23-24 Information Technology Act, background,21-22 252-313 information infrastructure, amendment to Bankers 22-23 Books Evidence Act, 311-13 service orientation and amendment to Indian efficiency, 24-26 Evidence Act, 304-11 E-Voting,137 amendment to RBI Act, 313 amendment to IPC, 300-03 Fishkin, James, 116 certifying authorities, 265-73 Foucault, Michel, 113, 122 cyber regulations oppellale tribunal,281-87 GOP, 11,59,103 digital signature certificates, Geospatial information, 85 273-76 Global Information Society, 48 digital signature, 258-59 GNP, 37 duties of subscribers, 276-77 Golze, John, 121 electronic records, 262-65 Government Data Centre, 56 miscellaneous provisions, Govid, Carol, 114 292-300 Gr()n!und, Ake, 118 offences, 287-92 GSN,91 penalties and adjudication, GUIDE, 85-80 278-81 GYANDOOT,247-48
lndt:>x preliminary and definitions, 253-58 Information Society and Economy Commission, 50-51
inter alia, 188 In terna tiona I Teledemocracy Centre, 118 Introduction to e-Governance, 1-7 concept and scope, 2-3 framework, 6-7 meaning, 1-2 use of, 4-6 Jamaica: e-Governance experience, 31-35 Key Pair, 257 KIPO,95 KulaTee programme, 22, 23 Lessons on e-Governance in Canada, 21 Leveraging infrastructure, 87 LOKMITRA, 246 Magang, David, 12 MAGNET, 47 Malaysia: e-Governance experience, 35-47 background, 35-36 ICT infrastructure, 36-38 strategic compact for convergence,38-44 use of e-Governance, 44-47 Malta: e-Governance experience, 47-53 Margolis and Resnick, 113
317 Mauritius: e-Governance experience, 53-58 Meaning of e-Governance, 1-2 Mexico: e-Governance experience, 58-65 background, 58-59 e-Mexico project, 64-65 use of e-Governance, 5Y-64 Middle Ages, 54 Mission Mode Projects, 184-85 Moroccan experience of e-Governance, 65-80 background, 65-66 development of telecom infrastructure, 70-76 information technology, 76-80 infrastructure achievements, 68-70 institutional achievements, 66-67 MSC, 36, 37, 39-41 National e-Governance Action Plan, 175-86 National IT Council, 38, 39 NDC (National Development Council), 176, 183 NDP, 62, 63 NeGP (National e-Governance Plan), 199, 201, 226-38 N ew Zealand: e-Governance experience, 80-88 NGOs, 1, 2,9,57,203 NIC (National Informatics Centre), 182, 195,200,201,250 NIIP, 87 NISER,42 NIT A (National Information Technology Agenda), 38, 40
318 NSDF (National e-Governance Service Delivery Gateway, 204-07 NTP (National Telecom Policy), 36 OCR system, 215 OECD, 114, 118, 122 Online consultations, 135-40 Online government, 77-78 Online voting, 140-44 Open democracy, 123 Pammett and Leduc, 141 Paquet, Gilles, 120 PARrA,147 PKI, 52, 95 Pocket translator, 216-17 Porris, Pippa, 130 Powers of Attorney Act, 253 Price Waterhouse Cooper's Survey,21 Public Sector Moderniza tion Programme, 31,33 PUMA,116 Reforms through e-Democracy, 135-44 Regula tion of certifying authorities, 265-73 Report of Digital opportunity Initiative, 35 Republic of Korea: e-Governance experience, 88-97 background, 88-89 implementation of e-Governance, 91-97 vision and strategy, 89-91
Index Reserve Bank of India Act, 313 Rheingold, Howard, 112 Role of public in government consultation, 131-33 Rosell, Stephen, 143 Sanskrit authoring system, 222 Sanskrit processing tools, 221-26 SARIT A, 245-46 Schum peter, Joseph, 115 Secure electronic records, 264-65 Shabadbodha software, 225 SOCITM,13Y South Africa: e-Governance experience, 97-101 background, 97 creating enabling environment, 101 vision and strategy, 98-101 Standards in e-Governance, 199-200 State Data Centre, 240-51 applications showcased at, 247-49 centre for e-Governance, 244-45 DIT initivatives, 242-43 minimum agenda, 250-51 national database, 249-50 need for e-Governance, 245-46 need for, 241-42 preamble, 240
status quo, 125 STQC, 200, 201 Tanzania Online, 105-06 Tanzania: e-Governance experience, 101-06
319
Index Technology development for Indian languages, 208-26 aim and scope, 208-09 human machine interface, 214-17 Indian language processing tools, 217-26 machine translation systt>m, 209 MAT for English to Hindi, 210
MAT for English to Indian languages, 210-14 The e-Democracy, 107-44 an introduction, 107-44 and e-Governance, 11lJ-2I citizen participation in, 121-23 concept, 112-13 govt. consultation: role of public, 131-33 involving citizen online, 133-35 meaning, 117-19 reforms through, 135-44 theoretical framework, 114-17 Touraine, Alain, 115 UNESCO, 2, 104 URL addresses in Devanagari, 218 Use for interaction with people, 4-6
Use of e-Governance in: Botswana, 13-15 Canada, 16-21 Estonia, 24-26 Hungary, 27-31 Jamaica, 32-35 Korea, 89-97 Malaysia, 44-47 Malta, 47-53 Mauritius, 55-58 Mexico, 59-64 Morocco, 66-70 New Zealand, 83-88 South Africa, 98-101 Tanzania, 103-06 Vender driven e-Governance, 163 Vision and strategy of e-Governance in India, 174-98 an introduction, 174-75 national e-Governance action plan, 175-86 policy guidelines, 186-98 VOICE, 246-47 Warsaw Pact, 27 Web CITI, 248 Website features, 191-94 Website promotion, 194-95 WMS, 249 WTO,67,122
