Improved Delivery of Services to the Citizens PRISM Property Registration Information System Module Improved Delivery of Services to the Citizens New Delhi 28th March 2005 Nirmaljeet Singh Kalsi, IAS Director-cum-Secretary, Department of IT Government of Punjab 1 An experience of Punjab in e-Registration

The Mindset of most Government Employees So far Do nothing and nothing would be done to you. The best approach to the Government work should be: If possible, avoid it - “PUC does not concern this department” approach. If necessary, go slow - play safe, take the longer but safest route If pushed, go in circles - Pass-on the buck to others like Finance, Planning, Personnel, Administrative Reforms, GOI. If cornered, appoint a committee- diffuse responsibility, delay decisions No innovations please. Do not deviate from the time tested, track - Status quo is always the safest and the best policy

Good Governance- Components Rule of law Transparency Accountability Responsiveness Effectiveness & efficiency Equity and inclusiveness Consensus orientation Participation Process Re-engineering Reforms Good Governance Good Governance is the primary objective of all e-Governance projects

How can we improve Governance Mathematical Simulation Model for Corruption Corruption = (Monopoly + Discretion – Accountability) x Authority To reduce corruption Finish monopoly through multiple service delivery channels Reduce & streamline discretion Introduce accountability - at all levels Reduce authority – Empower lower staff Improve ease and transparency IT & e-Governance can help in achieving the above

Reforms Agenda for Good Governance Re-invent the Government for Good Governance Focus on Good Governance & divest other roles to private sector Shift from Command- control regime to market driven regime Un-bundle competitive & commercial functions from State’s roles Strengthening Institutions to perform State domain roles Re-define and Improve Service Delivery to Citizens Bring in Responsiveness, Accountability & Transparency Improve Citizens’ interface with Government Through use of Information Technology (IT) Government Process Re-engineering & Administrative Reforms Improve effectiveness, internal efficiencies in Govt & reduce costs Right-sizing the Government Services Delivery through Public-Private Partnership Empowerment of Citizens, Women & the Disadvantaged

Administrative Reforms & Government Process Re-engineering Comprehensive review, simplification and revision of Punjab Civil Secretariat Manual of Office Procedure Punjab Civil Services Rules Punjab Financial Rules Restructuring of the State Government Departments Re-fixing of work norms Revised functions and roles Implementation of feasible IIPA Report Right to Information Act Simplification of procedures for Citizen Services through Business Process Re-engineering Administrative Reforms Preparation of Citizen Charter Adoption of Single File System Take up Evaluation studies

Land Registration “An efficient land registration system is a precondition for the operation of an efficient land market” World Bank Report

Land Registration in Punjab A system of registration of Deed carrying a State Guarantee Primarily an Agricultural Economy therefore land is the most important asset Property ownership is also critical to commercial activity Main Customers: Citizens, Lawyers, financial institutions, public corporations, local authorities and private firms Basic Statistics Number of Districts: 17 Number of Sub-Divisions: 72 Number of Registration offices: 153 Number of Villages: 12,993

Why eRegistration ? Registration Offices had acquired a bad reputation in the eyes of the public due to various reasons including: Inordinate delays in processes Lack of transparency in functioning Discretion-based valuation Under-valuation translating to revenue loss for the government Touch points of citizens with numerous rent-seeking intermediaries Possible frauds and land scandals Loot of Government land, evacuee property, Nazool land, wakf property, Village common lands

The Challenges Reduce Bring in Delays Transparency Objective Valuation MIS, Monitoring Control Record Keeping & Retrieval

Delays are incurred in the hand-offs from one step to the next step Improving What & How? Generic Property Transfer Process Reception/ Logging Verification/ Validation Decision Recording Decision Deed (affidavit) Delays are incurred in the hand-offs from one step to the next step

We Planned Big, Started Small, Scaled Fast TEXT First Stage Computerisation Changing mindset Developing environment for Second Phase First Phase Computerisation DIT, GOI Sponsored 17 Locations in one District PPP Model Improved Software Best practices Launch on 1st April 2005 Second Phase Implementation ( 12 Months) All Districts BOOT Model Central Legislation Uniform Standards Sustainable Business Model State Wide Roll Out ( 2 Years) Completed Current Status In progress

E-Governance Hype Cycle Decision Framework: Understanding how the Hype Cycle refers to different market events and the product life cycle supports the purchase decision-making process. Visibility Surveys and benchmarking Government portals Online not always good We are Here Poor ROI on initial efforts Initial Enterprise E-Government strategies E-government becomes government Security issues Channel management troubles Single dept online services Failures and no ROI drive divestments Reducing channels Performance Metrics Several technology life cycle models attempt to gauge the evolution of a technology. The two most popular are the performance S-curve, which shows the increase in a technology's performance over time, and the adoption curve, which shows market adoption over time. In contrast to other technology life cycle models, the benefit of the Hype Cycle is to concentrate on the early phase of the life of a technology. The Hype Cycle adds another dimension to these models. In addition to charting technology maturity, Hype Cycles also reflect human attitudes to technology. Most technologies conform to the Hype Cycle because the invariant in the equation is people, not the technology. However, irrespective of the relative maturity of technologies, the problem is how to articulate the business case for a project adopting innovative technologies. This requires to understand what are the key components in a technology investment decision in the public sector. Projects involving emerging technologies have a different risk profile, but criteria for prioritization are not different from other projects. Government organizations need to adopt methodologies and frameworks that make investment decisions more rigorous and auditable, while taking into account the different nature of investments. Multi-channel strategies Information-only sites E-Government stagnates Borderless service Integrated Data Management Back-office re-engineering interoperability Enterprise architecture Peak of Inflated Expectations Technology Trigger Trough of Disillusionment Slope of Enlightenment Plateau of Productivity 1994–1999 2000 2001 2002 2003 2004 2005 2010

Property Registration Information System Module PRISM

The Basic Guiding Principles “Small-Steps” and “Phased Approach” adopted Change Management & Process Reengineering given more important than technology Citizen Centric, People friendly Improved turnaround time and quality of services to the citizens Definiteness and certainty of Service through Service Level Agreements Transparency and Accountability is built-in Reduced Monopoly and Discretion Speed and efficiency are the derived factor Technology is simple, robust and reliable Model is Self-Sustainable through Public-Private Partnership The Application is Fraud proof as far as possible Objectivity in decision making i.e. evaluation Completeness of solution with Backward and Forward Linkages

Land Registration Computerisation First Phase of Computerisation Objectives To change peoples mindset and preparing them for Computerisation Initial version of PRISM installed in select Registration offices Computerisation of the manual registration process Online Photo Capturing of Parties & Witness Printing of photographs of concerned parties on the backside of stamp paper First phase completed in October 2004 Implemented by all the District Administrations No external Consultants involved Software and Technical Support by NIC Punjab

First Phase Computerisation Respective District Administrations have implemented the project at 110 out of 153 locations Employing local resources and technical support from NIC District Centres Institutional mechanism in the shape of Punjab land Records Society for accounting and management The main objective of PLRS is: to oversee, monitor the implementation of computerization and digitization of Land Records and related documents in Punjab for the overall benefit of the citizens and to provide Land Records related services through multiple common access infrastructures Sustainability of project through Facilitation Charges from Public deposited with the society.

Learning from First Phase Validation of Market Value by PRISM depends on type of property selected by users. Assessment of Market Value should consider more parameters on property and needs to be more transparent. Backup, Storage and Retrieval of data needs to be standardized, uniform and regular Manual records continue e.g. Indexes, Cash Summary, Reports to Tehsils & Dist HQ No connection with Land Record database & application Lack of training to the users Need for a Citizen Charter and SLAs

Property Registration Information System Module Facilitates the process of registration at an enhanced speed and efficiency at the Sub Registrar Offices, across the state Built with strong focus on ease of usage, simplicity and sound security & controls A replicable and scalable application suite, the software: covers the registration process for different documents for registration integrates registration, valuation, scan and archives modules generates appropriate reports introduces service level integrators for return of original documents within a specified time frame incorporates reengineered processes introduces enhanced security by inclusion of biometrics introduces enhanced methods by inclusion of digital photograph

PRISM – Screen Shots

PRISM – Screen Shots

PRISM – Screen Shots

Distinguished Features of Software Focused on reducing impersonation in the process, and Reducing errors in data entry and improving the user experience in the SRO. Online Photo Capturing of Parties & Witness along with Sub-Registrar and saving in database Printing of photographs of concerned parties on the backside of stamp paper User interface in local language i.e. Punjab and English On the spot valuation of property On the spot Stamp & Registration Fee Calculations Checklist and search facility Scanning Module Workflow based Application Secured by Bio-metrics ISO Certified Product

Process Re-engineering Initiatives Understand and document the Process to be IT-assisted Substitute IT for existing technology Reap modest effectiveness and efficiency gains Substitution Redesign process, based on inherent needs and/or technology opportunities Change the process with the help Of IT Obtain larger effectiveness and efficiency gains Enhancement Redefine the role of the process within the larger productive system Change the structure & organization of the services, production and potentially, its product strategy Maximize effectiveness and efficiency increases Transformation

Second Phase of PRISM Roll Out of Project in District Sangrur Partial Funding from Department of IT, GoI PricewaterhouseCoopers (PwC) as project consultants NIC Punjab as software partner Based on Public Private Partnership Start functioning from 01.04.2005 Best Value for Money for All Stakeholders was ensured Many Public Private Partnership scenarios were examined based on the efficient allocation of risk between the government and private partner the payment mechanism to encourage the operator the amount of investment made by Government (pilot project)

Second Phase - Project challenges... Manage huge investment requirements different locations Civil construction cost, Hardware/Software Cost, Training requirements, Maintenance cost, Networking cost, Resource requirements etc Low transaction volumes i.e. 60,000 deeds/year Unequal distribution of deeds volume across the SRO i.e. remote SRO with very few Deeds per day Train people - Inadequate skills sets Manage man-power requirement Maintain infrastructure Standards, Uniformity State wide roll out Limited Project Time Frame and Funds !!

We Adopted A UNIQUE Approach! First of its kind to test not only the pilot for e-Governance initiative, but also testing PPP modeling in pilot itself for tremendous learning with holistic view covering wider scope with in short timeframe Set project as a role model for all future state PPP initiatives not only limited to Registration activity but also other e-Governance initiatives of the state Testing PPP modeling options for the State Wide Roll out saving time, expense and resources learning to be used for a Tested implementation model No Government funds involved Facilities management totally outsourced on BOOT Model

Nobody Minds paying for Quality Service To get rid of the Direct and Indirect Costs of Government services, humiliation & Inconvenience Prescribed Government fee/ Transaction cost if any Cost attributed to Delays and uncertainty Cost of direct Corruption Loss of day’s wages Opportunity cost of time wasted Cost of Travel to location of service Cost of stay at the place of service Cost to be incurred on the sifarish (Sarpanch, Namberdar) ROI on private investment in e-Governance is good- recovery through user charges People are prepared to pay for the time bound quality services - even the poor, because it actually costs less

“Make Government Businesslike” NOT Making Government Like Business STRATEGY FOR CITIZEN SERVICES CAPTURE the Private Sector Profit Motives Customer orientation Efficiencies Management Practices Financial Resources HR Talent Entrepreneurship While keeping Govt’s Social Responsibility Public orientation Equality and justice Affordability Accountability Objectivity Transparency Ultimately the Financial Motive is the Single Biggest Success Driver The Underlying Principle Private financing wherever possible Govt. financing where necessary

Unique Features Adopted in the Second Phase Total Integration with Forward and Backward Linkages Integration and Convergence of Deed-Writers’ activities by providing them dedicated terminals for completeness, accuracy & preciseness of deeds Automation of Market Valuation Process using location & address description of the property Forward linkages and Hand-Shake with Land Record software which will directly provide/ take inputs from this application Such Interface with Land Records Database to check details like ownership, encumbrances etc. Provision in software for Revision of Market Value based on rates and proper authentication Generation of Memorandum of Registration Integration with banks for issue of stamp papers

PRISM Seamless Integration Deed Writer Module Core PRISM application Land Records application database Backward Integration With Deed Writer Module Forward Integration With Land Records Software and Database

Managing the Change Successful Implementation of e-enabled Services Requirement Drivers Change in Structure of Service Agency Redesign for enabling Modification of Workflow Successful Implementation of e-enabled Services Public Services Methodology/ Procedures New or Redesigned Services with defined Service standards GPR/ AR Redesign of Work Operations Change Management - Citizen and Court Staff Changes in Skills, Attitudes, Expectations, Perceptions

System Architecture in SRO

System Architecture in District

Unique Features Adopted in the Second Phase Built-in Anti fraud features in sale-purchase transactions Digital Photograph of seller, buyer and witnesses in the presence of SRO integrated in the sale deed itself Live on the spot Digital Photograph in secured environment Strong Security features with Multi level access control Biometric security for operators and Authorities Effective monitoring by meaningful and timely MIS reports Discontinuance of manual preparation of statements and registers Automating report compilation at Sub-division, District Head Quarters and State HQ Central record room for easy storage and on-line distributed search and retrieval facilities Scanning of Documents for ease of storage, retrieval and retrieval Extensive and reliable networking

Allocation of Tasks to Private Parties Printing Fee Collection Deed Writer Writing the Deed Photograph Processing, Data Entry Registration Clerk review SR/JSR Review (Query handle, Issue of token number, Data Entry, issuance of reports , registered deed, document) Helpdesk Support Data Entry Staff for entering the Deed Details in system Printing (Receipt, Document printing) Citizen comes to SRO office Helpdesk Document Scanning , Data Entry Periodic Report Generation and Data Backup & Transfer to Head Office Hardware, Software and Network Management Support Facilities Management Services to be handled by BOOT Operator time to time

Our Achievements & Experience Better value for money - the cost of a service delivered is lower than traditional procurement, Better quality services - the quality of service is expected to be better (SLA) Faster project delivery - the linkage between service availability and payment to deliver project objectives within short timeframes; More project delivery - by using private sector finance it is possible to cover all the 17 locations within a defined period of time; Protection against technology obsolescence while minimizing government financial outgo

Benefits to Government & Citizens Greater certainty - the allocation of risk to the private partner provide for greater certainty and predictability w.r.t the cost and quality of SRO services Better regulation - by transferring responsibility, SROs to focus upon service performance rather than management of day-to-day service delivery; Enhanced competitiveness - by competitive tendering, the quality and cost of operations are benchmarked against market standards. Efficiencies in management and improving Citizen Government Interface

e-Governance Prioritization Framework & Status Pursue Executive Information System Punjab Wide Area Network Video Conferencing Treasury & Accounts GIS in PWD B&R, Mandi Board Secretariat LAN & Applications Social Security & Welfare Digitization of Records P Govt Personnel Mgt System E-Procurement Defence Welfare Defer All other applications Permit Dynamic Departmental web Sites E-mail, Office tools Modernization of AG Office PWD, Engg Applications Agri-Information Services Rural Development & Panchayats Target Sukhmani -Integrated Citizen Services SUWIDHA in DC Offices & EFV Excise & Taxation Land Records Punjab Property Registration Transport – Motor Vehicle activities Multi-Service Smart Card Local Govt - Municipal Corporation Labour and Employment ICT Education Staff Training- CIO, DyCIO, Sys Admin Low Criticality High Criticality Low Feasibility High Feasibility

Lessons Learned Political Will & Leadership Adopt an incremental/phased approach Government Process Re-engineering is necessary to get the full benefit IT based Project Institutionalization of e-Governance Project Management Facilitation Charges from Public gives self-sustainability Involve All Stakeholders at every step Ensure you can provide technical and administrative support to the Departments Don’t underestimate internal and external change management Challenges There must be Backward Linkage with existing market and economic factors There must be Forward Linkage with future vision and applications

Way Forward… Fast Completion of the Project at Sangrur Replication of its experience through out the state. Property Market Rates on web to improve transparency Addition of value added service Data Centre for all registered & scanned documents along with photographs Integration of Registration process with Banks Backward & Forward Linkages

? THANK YOU MD,Punjab Infotech, Chandigarh www.doit.gov.in Nirmaljeet Singh Kalsi, IAS, MD,Punjab Infotech, Chandigarh Tel. 0172-604892( Telefax ), 704717 Residence: # 906, Ministerial Complex, Sector 39-A, Chandigarh Tel.:0172- 721288 Director-cum-Secretary, Department of Information Technology, Government of Punjab, E-Mail :- nskalsi@hotmail.com nskalsi@punjabmail.gov.in doit@punjabmail,gov.in md@punjabinfotech.org ? www.doit.gov.in Punjabsewa.gov.in www.punjabinfotech.org Punjab.gov.in