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Ministry of Panchayati Raj

ePRI Study Project - Phase IV


Detailed Project Report
for
Panchayati Raj Institutions
in
State of Bihar
By

National Informatics Centre Services Inc.


March, 2010

ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

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

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

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Last but not the least; we take this opportunity to thank all the members of the central team,
consisting of Ms. Anjali Dhingra, Technical Director, NIC, Shri. Adesh Gupta, Senior Systems
Analyst, NIC, Ms. Meghna Shrimali, Principal Consultant, Mr. Anand Dubey, Senior Consultant,
Mr. Ashish Nasa, Senior Consultant, Ms. Barkha Shah, Senior Consultant and Ms. Seela Swain,
Senior Consultant who have admirably rendered their responsibilities with team spirit through out
the execution and management of this huge study project.
The involvement and support of all these senior officials has enabled us to understand the
expectations of the project clearly. This will go a long way in defining the overall success of the
project.
ePRI Study Project Team - Bihar
Mr. Santosh Kumar, SIO
Mr. Ashok Kumar, Principal System Analyst
Mr. Ram Bhagwan Singh DIO, East Champaran
Mr. S.N. Behra DIO, Gaya
Mr. Tarun Kumar Sinha, Sr. System Analyst NIC, Gaya
Mr. Sameer Sharma, Principal Consultant
Mr. Amit Shukla, Principal Consultant
Mr. Rahul Singh, Senior Consultant
Mr. Robin Mathew, Senior Consultant
Mr. Atul Mohan, Junior Consultant
Mr. Harshwardhan Jaju, Junior Consultant

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Table of Contents
SECTION A .......................................................................................................................................................................... 8
1

EXECUTIVE SUMMARY........................................................................................................................................ 8

PROJECT BACKGROUND................................................................................................................................... 11

APPROACH AND METHODOLOGY................................................................................................................. 22

SECTION B ........................................................................................................................................................................ 25
4

ASSUMPTIONS / PRE REQUISITES.................................................................................................................. 25

REQUIREMENTS FOR EPRI APPLICATION DEVELOPMENT ................................................................ 28

REQUIREMENTS FOR ICT AND CONNECTIVITY TECHNOLOGY SOLUTION ................................. 72

CIVIL INFRASTRUCTURE REQUIREMENT.................................................................................................. 81

CAPACITY BUILDING ......................................................................................................................................... 82

CHANGE MANAGEMENT................................................................................................................................. 106

SECTION C ...................................................................................................................................................................... 113


10

IMPLEMENTATION STRATEGY .................................................................................................................... 113

11

PROJECT MANAGEMENT STRUCTURE...................................................................................................... 123

12

FINANCIAL SOLUTION ..................................................................................................................................... 138

SECTION E ...................................................................................................................................................................... 143


13

RECOMMENDATION AND CONCLUSION................................................................................................... 143

14

WAY FORWARD .................................................................................................................................................. 148

SECTION F ...................................................................................................................................................................... 149


I.

ANNEXURE ........................................................................................................................................................... 149

II.

ANNEXURE ........................................................................................................................................................... 157

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

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

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

RFP Phase In this phase the RFP template provided by the MoPR will be customised to
reflect the State-specific requirements. The outcome of this phase would be the selection
of the Service Agency (SA).

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

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

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

To implement this project across the State in time-bound and effective manner the following 3tier project management structure is proposed:
1. Central Level Body Headed by Secretary, MoPR
2. State Level Body Headed by Principal Secretary, PR Department, Bihar
3. District Level Body Headed by CEO, ZP of the respective districts
The State level body would also be supported by a Project Management Unit (PMU) for
monitoring the implementation and operations of the project. Additionally, to ensure robust
monitoring a Block Support Group (BSG), comprising of one resource at each block, is also
envisaged. These resources would monitor the project activities at all PRIs in their assigned
blocks and provide inputs to the PMU for monitoring.
BIHAR -state cost estimates - The total ePRI project cost for the State of Bihar is estimated
at Rs 381.47 cr., which includes costs for ICT (Rs 319.83 cr. approximately), Training (Rs
21.38 cr. approximately), IEC (Rs 1.84 cr. approximately), Project Management Unit (Rs 12.10
cr approximately) at the state level and Block Support Group (Rs.26.31 cr.) at block level. The
ICT cost estimates include:
a) Costs for provision of ICT infrastructure to the PRIs at the State/ZP/Panchayat Samiti/GP
level as well as to the data centre and the Project Management Units.
b) Cost of Application development- This includes cost of development of modules at the
State and customization cost of modules developed at the Centre.
c) Cost for trained manpower to be deployed at all GP, Panchayat Samiti and ZP (Rs. 112.20
cr. Approximately)
Considering the above costs, the average monthly service charges for a ZP would be INR
24,000, PS would be INR 12,000 and for a GP INR 9,400 approximately. However, the actual
payouts would be considerably reduced owing to the local market dynamics realized through
the competitive bidding process.
The suggested implementation strategy and estimated costs provided in this report have been
calculated on certain underlying assumptions, both, common across the states and specific to
the state of BIHAR.
Some major common assumptions include:

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Using NICSI empanelment rates for costing

The implementation will start within one year of the release of this report

The civil infrastructure requirements of the PRIs, if any, will be funded by other sources
such as NREGS, BRGF, RGSY, Finance commission grants etc.

Provision for training to be made with respect to the ePRI application only

Pre-requisites and assumptions specific to Bihar include:

State Service Agency will procure and install the required ICT infrastructure at the state
under the supervision of Bihar state Government.

CSCs will be available at Gram Panchayat (GP) at the time of implementation of ePRI
project.

SWAN is available at District and block level and the Zila Parishad and Panchayat Samiti
will be connected through SWAN. Internet connectivity to GP can be provided through
BSNL broadband.

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

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

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

2.1

Introduction

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

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

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

Out of 8463 Gram Panchayats, CSCs are operational in more than 4000 Gram Panchayats

Ninety percent of CSCs are to be commissioned by end of year 2009

BSWAN has been commissioned till district and block level

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

Biharonline.gov.in portal framework to be used for citizen service delivery

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

Birth certificate

Death certificate

Registration and issuance of job card under NREGS & demand for work under NREGS

Pension related services under IGNOAPS

Student scholarship for SC/ST and OBC

Social justice (Widow & Handicap) pension

Information on schemes, health and immunization camps and wait list of IAY

Information on Panchayat meetings and availability of previous proceedings

Availability of forms for all schemes

Application for inclusion in BPL list

Information & distribution of ration coupons

Kabir Anthishti Yojana

Grievance

Right to Information (RTI) Service

Marriage certificate

In addition to the above 15 existing service, 5 new services have also been identified for reengineering based on stakeholder discussions. The list of new services is as below:

Collection of land dues

Issuance of Land Possession Certificate (LPC)

Issue of caste, income and residence certificate

Application for EPIC

Issuance of copy of Land Record

2.2

Vision and Objective

a. Vision of ePRI Project for To Be Scenario


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

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b. Objectives
The objectives and sub objectives of the project are as mentioned below:
i.

Improve autonomy of PRIs

Facilitate effective monitoring of compliance of PRI Act

Reduce dependency on district administration for skills and resources

Improve participation of PRIs in Scheme Management & Service Delivery

Improve functioning of Gram Sabha, PRIs meetings and PRIs standing


committees
ii. Improve transparency & accountability of PRIs

Easy availability & tracking of PRIs meeting details such as proceedings

Improve availability of scheme details and eligibility criteria of beneficiaries

Improve availability of beneficiary list

Improve Grievance Redressal and RTI application processing


iii. Improve service delivery to Citizen (G2C)

Reduce time, cost and energy required for getting services

Improve trust of citizen on PRI system for service delivery


iv. Improve service delivery to Government entities including PRIs (G2G)

Improve availability of physical & financial progress of schemes & plans

Improve availability of reports on functioning of PRIs


v. Improve convenience to Government employees
Improve availability of accounting, planning and engineering resource
Simplification of internal process by providing the framework, required data &
formats for planning & accounting
Ease in monitoring with the help of MIS reports

2.3

Summary of findings from ISNA Phase


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

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

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

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

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

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

Limited awareness of elected members in PS about their roles and responsibilities,


responsibilities of PRIs, services to be provided to citizens and schemes.

Others
PR Department has limited role in execution of the CSS implemented by PRIs and
does not get any reports from districts except BRGF and 12th Finance commission.

2.4

Departmental officers at districts are pivotal for implementation of their departments


scheme and they report to their respective department only.

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

District Planning Committee, 7 standing committees at Zila Parishad and Panchayat


Samiti level and 6 standing committees at GP level have been constituted but are not
functioning in the visited districts.

Panchayat Samiti does not have financial powers.

Expectations of rural citizen are availability of Government services at their doorstep in


a convenient manner at minimal cost

Summary of Key BPR recommendations

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

Automation of PRI meetings process for monitoring of PRI functioning - Preparation of


annual meeting calendar of PRIs. Submission of details of PRI meetings and standing
committee meetings including agenda, participants and proceeding on Panchayat State
portal

Linking of District Magistrate performance with PRI functioning

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Monthly review of districts by state PRD Secretary

Implementation and monitoring of schemes by standing committee

PRIs should use standard accounting application like PRIA soft for accounting

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

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

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

Provide skilled resources (Planner & Accountant) on contractual basis

Skill up gradation of Panchayat Secretary

Office with basic facilities for PRIs

Development of regular office culture in PRIs offices

G2C service delivery related key recommendations are as follows

Removal of dependency on Gram Sabha for IGNOAPS

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

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

Fund flow process to be automated

Availability of forms of all the services at GP level

Status update of the application on mobile and web

Activity level service level and escalation matrix for compliance

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

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

Specific recommendations for implementing G2C services are as under:

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

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

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

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

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

2.5

Key improvement areas (Beyond ePRI)

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

2.6

Benefits from Proposed Solution

With an exponential growth in available IT solutions, technology has become a tool for growth
and development. ICT as a tool for empowerment of the PRIs has been envisioned to help
improve human capability, integrate marginalized sections of the society and modernize
provision of services. The proposed solution will have benefits the citizens, departments and
the employees alike.
The citizen shall benefit with good governance. These expectations shall be managed by
delivering the following:

Easy accessibility to services

Multiple options of service delivery

Easy availability and access to information on the working of PRIs with special
reference to The Right to Information Act

Any where any time service availability

Delivery of a truly citizen centric governance

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

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

Increase revenues

Widen the spread of revenue streams

Reduce transaction processing cost

Image makeover

Improved record management


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

2.7

Social Cost Benefit Analysis

The use of e-Governance in the government sector not only provides an alternative channel of
communication and public service delivery, but more importantly, it can address the mobility of
government itself and transcend the traditional e-government service delivery model by
bringing personalized, localized and context aware services close to its defined focal citizens.
These technologies can be described as socially profound technologies because they bring
the power and connectivity of computer networks into the gap between humans as they
interact in physical space. These are tools that can help people organize and coordinate their
interactions and exchange. E-Governance projects are one of the most promising ways to
ensure integrated development of the rural areas. The appeal of this approach lies in a
promise to satisfy the complex demands of an e- Governance project with a single coherent
strategy involving PRIs, state stakeholders and communities at multiple scales and zones
while addressing cross- department issues and interactions related to such citizen based
information dissemination projects.
No adverse impact is visualized since this project aims to derive benefits to citizens by raising
their quality of life. There are no directly tangible benefits attributable to this project; however,
PRIs and various line departments shall reap benefits by implementing the integrated eGovernance project in the manner given below:

Integrated, centralized unified database.

Seamless connectivity, both intra-organization and inter-organization.

Integrated software applications for all PRI departments.

Online information about the status of projects and its progress. (will facilitate
monitoring & planning function)

Closer interaction between departments.

Improved information sharing.

Improvement in transaction efficiency.

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Citizen involvement through a unified service delivery.

Multiple Service delivery through single-window concept.

Reduction in work duplication.

Instantaneous MIS report generation capabilities.

Integrated Business Intelligence dashboards for senior management team

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3 Approach and Methodology


3.1

Overall Approach for ePRI Study Project

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

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

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The current phase, namely DPR preparation (Phase IV), is the eventual outcome of the study
which defines the plan for implementation of ePRI MMP in each State/UT. The DPR primarily
defines the ICT requirements across the three tiers of PRIs, the manpower and training
requirements and the roll-out strategy along with the overall program governance and
management structure. The budgetary requirements for this project have also been estimated.
3.2

DPR Approach

In order to arrive at a budget and implementation plan for implementing the recommendations
made in the BPR, the BPR recommendations were translated into requirements. For each
requirement, the associated costs were determined. Subsequently, a program management
structure at the central, state and district level was designed, to supervise and co-ordinate the
rollout over 3 years. An implementation plan was also defined for implementing the
recommendations over 3 years in different phases. The key recommendations made in the
BPR phase involved the following aspects:

Improvements in internal functions of PRIs viz. Planning, Monitoring, Implementation and


Accounting

IT applications for supporting the above internal functions and services

Service delivery mechanism to be followed for the re-engineered processes

ICT infrastructure required to support the above recommendations

Manpower and skills required for implementing the above recommendations

Requisite legal changes needed to implement the Envisaged Scenario

These recommendations were translated into requirements and budgetary estimates as


illustrated in the following figure.
Figure 3.2: Approach and Methodology for DPR
Phase IV DPR
Phase III BPR
BPR Framework
Envisaged (To-Be) Scenario
Service
Delivery

Internal
Functions

Application Architecture
High Level FRS

Application
Modules

Common
Components

Support
Functions

Technology Solution
Deployment
Architecture
Database
Architecture
Security
Architecture

Civil Infrastructure
Requirements

Logical Architecture
Users

ePRI
Application

External
Interfaces

Access
Channels

Civil Infrastructure
Requirements

Program Management
Governance Structure

Implementation Strategy

Change Management

Capacity Building

Project Cost

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The step-wise approach used for determining the requirements is detailed below:
Step 1: Translate automation recommendations into function solution and technical solution.
The technical solution consists of applications to be developed, databases to be deployed
and related content management aspects. The associated budgetary estimates were also
computed.
Step 2: Translate computerization recommendations into ICT requirements This includes
defining the requirements and budget for ICT hardware, networking infrastructure and
infrastructure for deployment in data centre.
Step 3: Translate capacity gaps into manpower requirements and training requirements for
PRI functionaries and elected representatives and the associated budget.
Step 4: Design plan for awareness and communication about ePRI MMP to PRI officials,
elected representatives and rural citizens
Step 5: Define strategy for implementation of ePRI MMP in the States/UTs over 3 years. This
includes a phased implementation plan with specific timelines and deliverables for each
phase.
This enabled defining the total state-wise outlay for implementation of ePRI MMP. The
following sections of the report explore the various aspects mentioned above in greater detail.

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SECTION B
4 Assumptions / Pre requisites
The project has dependency on factors which are not part of the scope of ePRI project. These
factors are critical for implementation of ePRI project and have the potential of defeating the
complete proposed solution. Listed below are common assumptions applicable to all states
covered under the ePRI project:
Common Assumptions
1. Manpower- Almost all the State studies have revealed a gap between the sanctioned and
actual occupied posts. The State DPRs and the National DPR will not budget for the
addressing this gap. The DPRs will only budget for sourcing contract manpower. This would
include data entry operators, technical support personnel and other such contractual staff. For
the contract manpower, 1 person per each for ZP, BP and GP has been budgeted for.
2. Training- Notwithstanding the above, the training budget would include trainings for both
categories, i.e.,:

Training for official staff - To be trained on process / functional areas, PR governance,


Scheme related training, ICT usage and behavioural skills.

Training for contract manpower / ICT staff - To be trained on ICT usage, and scheme
related software etc.

Elected Representatives - To be trained on process / functional areas, PR governance,


Scheme related training, ICT usage and behavioural skills.

3. Application preparation and management

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

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

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

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5. Budgeting- In order to budget for hardware, application preparation and management,


sourcing manpower, and training, the central NICSI empanelment rates will be considered.
These common rates will be used by all state teams to budget for the state requirements for
hardware, applications, manpower and training.
6. Cost Components:

Application Development

All state-specific applications should include multi-lingual support. As per the


guidelines under ePRI EFC Note, all applications developed under ePRI (whether
central or state-specific) should be unicode enabled and should be developed in open
source software.

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

Hosting, Network and ICT

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

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

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

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

Hosting of Databases - For common databases, the database design, development,


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

This DPR includes cost for security audit of applications


i.

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

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ii.

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

7. Project Management- In the state level committees to be formed for ePRI implementation,
there should be representation of line departments. The State committee can be headed by
the Principal Secretary, PR and will comprise of a) representatives from PR dept., b)
representatives from key line departments, c) NIC officials.
Further, for implementation of the proposed DPR for the State of Bihar following assumptions/
pre requisite will have to be given due consideration.
Assumptions:

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

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

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

Project Costing has been done using NICSIs prevailing empanelment rates.

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

Pre-requisites:

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

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

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

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5 Requirements for ePRI Application Development


Based on the findings of the ISNA phase and keeping in view the recommendations proposed in the BPR
phase, presented here are the processes of application submission, application processing and
service delivery (for both G2G and G2C services) as they are envisaged to happen in the ICT-enabled
scenario. In addition, a logical framework consisting of users (citizens/ PRI officials at
village/block/district/state/centre) who will use the access channels and external interfaces to interact
connectivity provided through SWAN/BSNL till the BP level. To back-up and support the online delivery of
services through the application, a large information repository will need to be created and comprehensive
security methods adopted to protect the data and systems. Further the section provides details of the
modules that will form a part of the application architecture divided into five different layers based on
functionality: G2C (for Government-to-Citizen Service delivery), G2G (for Government-to-Government Service

Summary

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

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


(those that impact/are impacted by any G2C/G2G module) and Core Technology layers.
This section will have impact on the total project cost in terms Application Development and Manpower. The
total Application Development cost for the state is Rs. 0.55 crores approximately.

5.1 Envisaged Scenario


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

Application Submission- The citizen can submit the application online and make the
payment for the service by physically visiting the Panchayat office. It will be only after
payment of the fees that the application processing will begin. Alternatively, the citizen may
submit a filled form (along with the processing fees) to the Panchayat Clerk or the CSC
operator, who will then be responsible for submitting the application in the system.
Application Processing- The approvals for issue of various certificates as required will be
automated and the various approving authorities ZP officials/ Block Development Officer/
GP officials will approve/reject the application through the Panchayat State portal. All
external workflows (for approvals/NoCs required for various services from line

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departments) will also be automated with the integration of the ePRI application with the edistrict being implemented in the State.
Application Delivery- The citizen will physically collect the output from the GP office or
the CSC operator, as and when the application status is flagged as Ready for delivery in
the system.
Figure 5.1 Envisaged Scenario: G2C Service Delivery

Following are the key steps to be followed in the overall process


Step 1

Applicant desires a specific service which has been undertaken under e-PRI project

Applicant can obtain information/service request form for initiating a service request either
from PRI office, ePRI application through web interface, nearest CSC, etc.

Applicant makes service request either at the PRI office, nearest CSC or online by logging
on to the State Panchayat portal

Step 2

Applicant obtains service request form from selected front end, fills and submits service
request form along with the required supporting documents

Applicant makes payment for the service at the Panchayat office/ CSC (if any payment is
required)

If applicant want to make an online application, then he registers as an authentic user at ePRI application, opens the service specific module, selects required service and fills online
the application form, attaches the required supporting documents as specified for the

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service after scanning it, makes online payment (if required for the service) through
payment gateway and receives a system generated acknowledgement number for
reference.
Step 3

Front end operator enters login ID & password and (bio-metrics if integrated with the e-PRI
application) to access the e-PRI application (after proper identification & authentication
from user database).

Operator enters the details from the service request form of the applicant in the software

Operator checks the completeness of the supporting documents submitted and enters the
specified details of the supporting document in the e-PRI application

Operator scans all the supporting documents and attaches it with the e-PRI application.

Operator takes a print out of the online service request form from e-PRI applicant and get it
verified and signed from the applicant

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

Operator enters transaction password to successfully submit the service request and
generates a computerized receipt (2 copies) along with the unique acknowledgement
number

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

Step 4

Applicant receives one copy of receipt with unique acknowledgement number and date of
delivery of service for future reference.

Step 5

e-PRI application database registers the application and gives it a unique number through
this the application (front-end can be identified through which posting of service request
has been done)

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

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

Step 6

Process owner is notified and defined workflow in the TO-BE process is followed for
service request processing.

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Process actors would either perform the online verification (if required) through the
digitized database and in absence of digitized records physical verification (if required)
would be undertaken
Step 7

Process owner approves / rejects (states reason) the application by digitally signing it and
submits it back to the e-PRI Application

Step 8

e-PRI application is updated and system triggered SMS is send to the applicant (if mobile
number is provided)

Step 9

Citizen visits the front-end on the specified date for delivery and requests for the document

Operator logs into the e-PRI application through the defined authentication mechanism and
retrieves the digitally signed document, prints it out and stamps it with his seal and close
the service request.

The final printed document will have a unique document ID, service delivery front end ID
from where it is being printed and a website address printed on it so that anybody with
internet access can verify the digitally signed contents.
Figure 5.1: Envisaged Scenario: G2G Service Delivery

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

Planning
Step 1

Citizen would report in their needs to Village PRI institution either to the Village Sarpanch or to
the Panchayat Secretary

The identified needs would be given to respective Standing Committee to come up with a need
addressing intervention

Gram Sabha would discuss, prioritize the intervention upon which the village panchayat would
finalize the Village Annual Plan

Step 2

The Village Annual Plan would be uploaded on the e-PRI application by the village panchayat
officials

Step 3

The village annual plans for all the villages under Block Panchayat would be received by the
concerned Office through the e-PRI application individually as well as an overall consolidation of
the village panchayat plans would happen and overall plan would be generated by the e-PRI
application.
The Block Panchayat would discuss and finalize its own plan for develop the annual plan for
itself. The plan is uploaded on the e-PRI application and consolidated with overall village
panchayat plan to come up with Block Level Annual Plan.

Step 4

The Block Level Annual plans for all the blocks under Zila Panchayat would be received by the
concerned Office through the e-PRI application individually as well as an overall consolidation of

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

Step 5

The Zila Panchayat discusses and approves the overall plan for the district inclusive of block
level as well as village level plan.

The approval of all the line items under the plan village, block as well as zila level is done on
the e-PRI application.

Step 6

The State PR department consolidates the district level for PRIs across the state through the ePRI application.

The State PR departments organize the overall state PRI plan line item wise and direct it to the
concerned line department of the State. This process would be manual process.

Step 7

The state line department reviews and approves the overall plan and direct the treasury for fund
allocation and release to the PRIs across the state specific against the concerned line items

The state line department also sends the information about PRI plan approval to state PR
department.

Step 8

The state PR department on receiving the approvals from the respective State line departments
updates the approval on the e-PRI application

The state PR department also for specific line items under PRIs plan which falls under its
purview, reviews and approves it.

The state PR department advises the treasury accordingly and updates the approval on the ePRI application.

Implementation
Step 1

As soon as the Zila Panchayat receives the approval through the e-PRI application, it advises its
internal working committee to initiate the implementation process.

Also, the Zila Panchayat advises the Block Panchayat and Village Panchayat to initiate
implementation planning.

Step 2
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PRIs at all level call the working committee meeting to initiate the implementation process.

For Zila Panchayat / Block Panchayat,


Working Committee develop the implementation plan and involve the Public work
departments for undertaking the plan intervention
Public work department undertakes survey, complete technical feasibility, develop
bills of material and other required documents
Working Committee approves the bill of material and other requirement for Public
Work department to commence work
Public Work Department execute work as per the specification and monitor quality
and other execution parameter and continuously report progress to Working
Committee
Working Committee through appointed committee members regularly monitor
progress
Public Work Departments completes work and report work completion to working
committee which in turn finally evaluates and close the plan intervention.
Fund flow would be released to Public Work Department as per the Terms of
Reference agreed between Working Committee and the Public Work Department.

For Gram Panchayat


Gram Panchayat calls a Gram Sabha and informs the villages on the approved plan.
Gram Panchayat develop the implementation plan and involve the Block
Development Office for technical help and support
Block Development Office supports all the Gram Panchayat through Public Works
Department who undertakes survey, complete technical feasibility, develop bills of
material and other required documents
Gram Panchayat forms Working Committee for specific planned intervention and
approves the bill of material and other requirement for it to commence work with help
and support of Public Work department
Gram Panchayat ensures maximum participation of resident in the physical
intervention and also ensures the labour work is provided to the resident.
Working Committee execute the plan intervention as per the specification and
monitor quality and other execution parameter and continuously report progress to
Gram Panchayat
Working Committee completes work and report work completion to Gram Panchayat
which in turn finally evaluates and close the plan intervention.
Fund flow would be released as per the plan intervention requirement for purchases
and payment against labour work done by the resident.

Monitoring
It is envisaged that continuous monitoring would be carried out the respective PRIs for all the work
being undertaken at their respective levels. Further to this, the PRI institution would also monitor the
work progress of PRI institution falling under it.
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Step 1

PRIs at all level would develop monitoring plan for plan intervention it would define aspects of
monitoring viz. financial, physical, and quality, compliance, etc., frequency of monitoring,
reporting structure, etc.

Step 2

Designated officer would undertake physical visit to monitor progress of plan intervention

Step 3

Designated officer would undertake site visit, discuss with executing officials

Step 4

Designated officer would check record register, stock register, attendance register, etc. to
ensure updation and compliance

Step 5
Designated officer would conduct a debriefing session with executing officer and discuss the
observation and provide feedback for correctives / improvement
Step 6

Designated officer would produce the monitoring report and submit it on the e-PRI application
through authenticated login and password

Step 7

Concerned PRI office / working committee of PRI office would access the monitoring report from
the e-PRI application

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

Concerned PRI office / working committee of PRI office would review the report and take
corrective action

Accounting
Step 1
All PRIs would maintain the standard books of accounts as prescribed under the law. These
mandatory records have to be maintained by all PRI institutions.
Step 2
All PRIs would maintain and update the books of account in real time i.e. all debit and credit
entries would be made on occurrence of the event.

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ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

Step 3

The designated officer of PRI would access the accounting module of e-PRI application and
create the appropriate books of records daily cash book, asset register, ledger, journals, etc.
as per the requirement

Step 4

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

Step 5

All PRIs would undertake quarterly inspection / internal audit of the PRIs and generate a Trail
Balance report

All PRIs would undertake quarterly inspection / internal audit through a qualified resource
present within the institution
For Village PRIs, the Panchayat Secretary would support for internal audit of books
of accounts of the PRIs

The quarterly inspection / internal audit would be done with the records maintained on e-PRI
application

The internal audit report would be generated with the help of e-PRI application and supporting
documents would be checked in physical records accordingly.

Step 6

All PRIs would undertake an independent audit through office of Auditors General Office
representative / designated office by Auditors General Office for yearly audit

All PRIs would generate Income Expense Statement and Balance Sheet as an output to the
annual external audit.

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

The external audit report would be generated with the help of e-PRI application and supporting
documents would be checked in physical records accordingly.

Step 7

All PRIs would, in case of any discrepancies reported would undertake corrective and actions for
audit compliance.

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ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

5.2 Logical Architecture


E-enabled scenario has been formed on the basis of BPR framework for ePRI project explained
under section 6. Users, access channels, modules of ePRI applications, key databases, external
interfaces and security component for proposed solution have been detailed in this section. A high
level E-enabled scenario with key components is as shown in figure below.
Figure 5.2: Logical Architecture of proposed system for PRIs
USERS
Citizen

Gram
Panchayat

SECURITY
COMPONENTS

Block
Panchayat

District
Panchayat

District
Administration

Dept of
Panchayati Raj

ACCESS CHANNELS
CSC

Post office

PRI office

Mobile

Ministry of
Panchayati Raj

EXTERNAL
INTERFACES
State Line
Departments

Authorisation

Internet
Authentication

Web
Browser

BSWAN

Central Line
Ministries

ePRI Application

E-District

State Portal

Policy
G2C
Modules

G2G
Modules

Common
Compone
nts

Support
Function
s

Treasury
Planning
Commission

Guidelines

Information Repositories
Village
Profile

BPL

PRI
Master

G2C
Services

EPIC

Birth/
Death

G2G
Services

Land
Record

The following section of the report details out all the components shown in above schematic
representation of e-enabled scenario.
5.2.1 User Groups
The User groups for the ePRI application are a set of individuals and/or entities who will have
access to the application for the purposes including availing service, information provision & service
delivery and monitoring the functioning of the PRIs. These groups include Citizens and PRIs at the
village/district/state/centre level. The table 4.7 below mentions these user groups and the purpose
for which they will be interacting with the application.
Table 5.1 Various Users with purpose of using ePRI system
Users
Citizen

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

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Users

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

Gram Panchayat

Information on the schemes; Acts, Rules, Government orders related to PRIs;


role and responsibility of the Gram Panchayat, data for planning, preparation
of annual and scheme related plan; financial and accounting management;
detail of gram sabhas and PRIs meetings, standing committees, PRIs
member; processing of G2C service request, etc.

Block Panchayat

Management of Gram Panchayat; Information on the schemes; Acts, Rules,


Government orders related to PRIs; role and responsibility of the Block
Panchayat, data for planning, preparation of annual and scheme related plan;
financial and accounting management; detail of PRIs and PRIs meetings,
standing committees, PRIs member; processing of G2C service request, etc.

District Panchayat

Management of PRIs; Information on the schemes; Acts, Rules, Government


orders related to PRIs; role and responsibility of the District Panchayat, data
for planning, preparation of annual and scheme related plan; financial and
accounting management; detail of PRIs and PRIs meeting, standing
committees, PRIs member; processing of G2C service request, etc.

District Administration

Performance of PRIs, Grievances against PRIs, physical and financial


progress of schemes

Department of
Panchayati Raj

Performance of PRIs, Grievances against PRIs, physical and financial


progress of schemes

Ministry of Panchayati
Raj

Performance of state PR department, Grievances against PRIs, physical and


financial progress of schemes

5.2.2 Access Channels


CSCs and Gram Panchayat can access the channels over internet. Block Panchayat, District
Panchayat, State PR department and Ministry of Panchayati Raj can access the ePRI application
over SWAN. Access channels for G2C and G2G service components are shown in below table with
associated business model.
Table 5.2 Access Channels for G2C component
G2C Component

Activity

Access Channel
CSC

Application
Submission

Panchayat Office
Obtain Form

Post Office
Block Office
Panchayat State portal

Submit service request

CSC
Panchayat Office

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ePRI Study Project (Phase IV)

G2C Component

Detailed Project Report - Bihar

Activity

Access Channel
Panchayat State portal

Service
Processing

Managing PRI
meetings

Service
Processing

Service Delivery

Receipt generation with due date and


responsibility centre

CSC/ Panchayat Office

Verify service request

Panchayat State portal

Submit verification report

Panchayat State portal

Preparation of Agenda

Panchayat State portal

Schedule PRIs meeting and submit


agenda

Panchayat State portal

Circulation of Agenda to respective


members

Panchayat State Office

Meeting of PRIs

Panchayat State Office

Prepare proceedings of PRI meetings

Panchayat State portal

Submit proceeding of PRIs meeting

PRI Office

Circulation of proceedings to
respective members

PRI Office

Approval/ Rejection of application or


work

Panchayat State portal

Obtain Certificate

CSC/ PRI Office

Obtain Card

CSC/ PRI Office

Obtain Information

CSC/ Panchayat State Portal/ PRI


Office

Obtain Pension

CSC/ PRI Office

Obtain License

CSC/ PRI Office

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ePRI Study Project (Phase IV)

G2C Component

Detailed Project Report - Bihar

Activity

Access Channel

Payment of
services charges/
dues

Pay service charges

CSC

Pay dues at PRI office

PRI Office

Status tracking

Status tracking

CSC/Mobile/Panchayat Office/
Panchayat State Portal

MIS report
Regular Meeting of PRIs

CSC/Mobile/Panchayat Office/
Panchayat State Portal

MIS

The service delivery channels for G2G services have been shown in below table.
Table 5.3: Service Delivery Channels for G2G Services
G2G
component

Activity

Prepare macro plan

Planning
Approval of plan

Pre requirements

Access channel

Standardization of the Planning format


of schemes

Panchayat Office

Single source of format (State portal)

Panchayat State
portal

Managing PRIs meetings (Approval of


plan)

Panchayat State
portal
Panchayat State
portal

Prepare detailed plan

Submit fund request

Plans prepared, discussed, approved


and submitted in system

Panchayat State
portal

Receive fund

Electronic fund transfer facility in PRIs

Panchayat State
portal

Funding

Implementation

Implementation of Project
Plan

PRI Office

Monitoring

Monitoring of
implementation

PRI Office

Reporting

Physical & Financial


progress

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Standardization of reporting formats

Panchayat State
Portal

Page 40 of 164

ePRI Study Project (Phase IV)

G2G
component

Activity

Detailed Project Report - Bihar

Pre requirements

Access channel

Utilization Certificate

Standardization of reporting formats

Panchayat State
Portal

Statement of Expenditure

Standardization of reporting formats

Panchayat State
Portal

Physical & Financial


target MIS

Standardization of reporting formats

Panchayat State
Portal

5.2.3 Proposed e-PRI Application


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

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

G2G modules- These modules will facilitate the provision of G2G services and include scheme
management (for implementation of CSS), Citizen data validation and MIS to Line Department
(for monitoring of schemes).
Common components- These are the modules that represent common activities which will aid
the provision of G2C & G2G services. They include modules like verification (for citizen data
validation), status tracking (for provision of information to the citizen and monitoring application
status by the relevant authorities), etc.

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

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ePRI Study Project (Phase IV)

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The detailed functionality of each module is explained under application architecture module.
5.2.4 Information Repository
This section provides a detail of the various databases that will form part of the information
repository and how they will interact with each other. Physical data representation of the ePRI
Database is shown in figure below:
Figure 5.4: Physical Database Architecture

Further this section provides a detail of the type of information, integrated and logically related into
groups that will need to be maintained in the suggested databases. The table 4.10 below lists down
in detail the information needed to be maintained by all the panchayats.
Table 5.4 - Panchayat-wise data to be maintained
S.
No.

Information
Repository

Land
Records

Information

Land ownership details

National Informatics Centre Services Inc.

Creator

Owner

Already
prepared
by the
Directorat
e of Land
Resource
s

Directo
rate of
Land
Resou
rces

User

GPs

Purpose

GPs will have


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

Page 42 of 164

ePRI Study Project (Phase IV)

S.
No.

Information
Repository

Birth and
Death

PRI Master

Detailed Project Report - Bihar

Information

Details of Birth and Death in the


state

Information about the PRI staff


and G2C & G2G service delivery

Children below 18 years of age


(M/F)

Population
Census

Total Population

Creator

Owner

User

Purpose

Birth/Dea
th data is
being
digitized
under the
INFOGR
AM
project

Depart
ment
of
Planni
ng,
Statisti
cs and
Evalua
tion.

GPs

Panchay
at
database
is being
created
under the
DISNIC
project.
Additiona
lly the
G2C &
G2G
service
delivery
details
will need
to be
captured.

Panch
ayats

PRIs
at
village
/distric
t/state
level.

Being
created
under the
DISNIC
project

Survey
of
India

PRIs
and
Line
depart
ments

For citizen data


validation for
various services.

Being

Survey

GPs

For determining

For Birth/Death
registration and
issue of Birth
Certificate.
For issue of Nonavailability of
Birth/Death
certificate.

Citizen
s

GPs/ZPs will be
responsible for
updating the
data.

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

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

Adults between 18 to 60 years


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

Economic

APL/BPL families

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ePRI Study Project (Phase IV)

S.
No.

Information
Repository
Status

Detailed Project Report - Bihar

Information
SC/ST families
Agriculture and Non-agriculture
labourers

Creator

Owner

User

Purpose

captured
under the
DISNIC
project.

of
India

and
Line
Depart
ments

the citizen
eligibility for
various welfare
schemes

Being
captured
under the
DISNIC
project.

Directo
rate of
Educat
ion

PRIs
(Villag
e
Educa
tion
Comm
ittees(
VEC)
at
village
level)

Will form input in


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

Being
captured
under the
DISNIC
project.

Depart
ment
of
Industr
ies

PRIs

Will form input in


preparation of
development
plans

Skilled and unskilled labourers


Number of families dependent on
farming
Masons/carpenters/barbers/toddyt
appers/padeli/cobblers/shoemaker
s/basket
weavers/blacksmiths/goldsmiths/b
hatkars-money
lenders/pujaris/cooks-sweet
makers/milkmen and any other
village artisans
Number of agricultural tenants
Educated and uneducated
persons
Engineers-Doctors-Lawyers
6

Educationa
l Position

Teachers/Professors
Any other person in specialized
field

Employme
nt &
Industry

Employed person
Educated and uneducated youths
Shops and establishments
SSI Units
Major industries
Polluting and non-polluting
industries

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ePRI Study Project (Phase IV)

S.
No.

Information
Repository

Detailed Project Report - Bihar

Information

Creator

Owner

User

Purpose

Being
captured
under the
DISNIC
project

Directo
rate of
Educat
ion
and
Directo
rate of
Sports

Direct
orate
of
Educa
tion,
Direct
orate
of
Sports
, GPs

Will form input


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

Being
captured
under the
DISNIC
project

Public
Works
Depart
ment
(PWD)
and
Directo
rate of
Health
Servic
es

PWD,
Direct
orate
of
Health
servic
es and
GPs

GPs will use for


preparation of
village
development
plans.

Poultry and piggery units


No. of Primary/middle/high
schools/higher secondary schools
No. of colleges
No. of students in each category
No. of drop-outs every year and
reason for drop-out
Adult literacy classes
8

Education
& Sports

No. of existing sports grounds


No. of gymnasiums
Childrens parks/gardens/jogging
parks
No. of balwadis/anganwadis and
pre primary schools
No. of children in
balwadis/anganwadis and preprimary schools
No. of clinics/dispensaries/primary
health centres with name and
addresses of doctors and nurses
attached to each
No. of garbage pits with their
location

Health and
Sanitation

Garbage treatment plant


No. of dustbins provided with
location
Household-wise sanitation facility
data
No. of public toilets constructed

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PWD will use to


monitor
sanitation
facilities in the
GPs.

Health
department will
use to monitor
health services

Page 45 of 164

ePRI Study Project (Phase IV)

S.
No.

Information
Repository

Detailed Project Report - Bihar

Information

Creator

Owner

User

and plan for


welfare
schemes.

with location and names of users

Areas under different crops


Cultivable but kept fallow
Uncultivable waste land

10

Agriculture,
afforestatio
n and land
pattern

Purpose

Being
captured
under the
DISNIC
project

Directo
rate of
Agricul
ture

GPs

Will form input in


preparation of
village
development
plans by the
GPs.

Being
captured
under the
DISNIC
project

PRIs

Will form input in


preparation of
village
development
plans by the
GPs.

Being
captured
under the
DISNIC
project

PRIs

Will form input in


preparation of
village
development
plans by the
GPs.

Areas under pisciculture farming


Areas under forest cover
Areas which could be used for
afforestation
Areas which could be used for
fodder and grazing
Listings of lakes, tanks ponds,
spring and nallahs with the area
occupied by each

11

Natural
Resources

Identification of places for rain


water harvesting/watershed
programmes
No. of irrigation wells
No. of bathing ghats with
identification of places

12

Rural
Electrificati
on and
nonconvention
al energy

No. of houses having electricity


and having no electric connection
Identification of places where
electricity has not reached
No. of electricity poles existing
No. of families using approved
chhullas/solar energy devices
No. of drinking water wells

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ePRI Study Project (Phase IV)

S.
No.

Information
Repository

Detailed Project Report - Bihar

Information

Creator

Owner

User

Purpose

Being
captured
under the
DISNIC
project

Rural
Develo
pment
Agenc
y
(RDA).

RDA,
Direct
orate
of
WCD,
and
PRIs

RDA will use


data to plan for &
monitor welfare
schemes for
handicaps.

No. of families using RWS


Identification of place where RWS
has not reached
No. of handicapped persons
No. of schools for handicapped
persons
Mahila Mandals

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

Self Help Groups

13

14

Social
Welfare
and
Women
and Child

Infrastructu
re

Directo
rate of
Wome
n&
Child
Develo
pment
(WCD)

Names of NGOS
Number of destitute homes
Any other social clubs

Roads-katcha/pukka- in length
Drains/gutters
Foothpaths constructed
Market complexes
Bus stops
Community halls, shops premises
and v.p. offices

Being
captured
under the
DISNIC
project

Village
asset
data
will be
owned
by the
Panch
ayats

GPs will use data


for beneficiary
identification for
welfare schemes
and in
preparation of
development
plans for the
village.
PRIs

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

This data will


form input in
preparation of
village
development
plans also.

Cattle ponds
Crematoriums

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ePRI Study Project (Phase IV)

S.
No.

Information
Repository

Detailed Project Report - Bihar

Information

Creator

Owner

User

Purpose

Gymnasiums, indoor game halls,


etc
Bathing ghats and ghats for other
purposes
Stage for public entertainment
Any other infrastructure created by
the Panchayats

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

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ePRI Study Project (Phase IV)

Detailed Project Report - Bihar


Table5.5: Database Interactions

Databases

Populatio
n Census

Economi
c Status

Educatio
n&
Sports

Health &
Sanitatio
n

NA

Validation
of BPL
list and
citizen
data

Village
sanitation
facilities

Validation
of BPL list
and
citizen
data

NA

Educatio
n status
of
populatio
n and
prospecti
ve
beneficiar
ies for
schemes
of
education
departme
nt
None

Education
status of

Determini
ng the

NA

Population
Census

Economic
Status

Education

National Informatics Centre Services Inc.

PRI
Master

Infrastruct
ure

Agricultu
re &
Land
Resourc
es

Number
of
unemploy
ed people
and
prospecti
ve
beneficiar
ies for
NREGs

Citizen
data
validati
on for
service
deliver
y

None

None

Prospe
ctive
benefic
iaries
for
Social
Welfar
e and
WCD
schem
es

None

None

BPL
unemploy
ed
candidate
s

Citizen
data
validati
on for
service
deliver
y

None

None

None

None

Determin
e

Determ
ine the

For
determinin

None

Prospe
ctive
benefic
iaries
for
Social
Welfar
e and
WCD
schem
es
None

Natural
Resour
ces

Employ
ment &
Industry

Birth/Dea
th over a
period,
citizen
data
validation

None

Determin
e
prospectiv
e
beneficiar
y for PWD
sanitation
facility

None

None

None

Birth &
Death

Social
Welfar
e&
WCD

Land
Records

None

Page 49 of 164

ePRI Study Project (Phase IV)

Databases

& Sports

Health &
Sanitation

Birth &
Death

Detailed Project Report - Bihar

Educatio
n&
Sports

Health &
Sanitatio
n

Populatio
n Census

Economi
c Status

populatio
n and
prospectiv
e
beneficiari
es for
schemes
of
education
departme
nt
Village
sanitation
facilities

economic
status of
prospecti
ve
beneficiar
ies

None

None

NA

None

Birth/Deat
h over a
period,
citizen
data
validation

None

None

None

NA

National Informatics Centre Services Inc.

Birth &
Death

Natural
Resour
ces

Employ
ment &
Industry

PRI
Master

Infrastruct
ure

populatio
n skill
sets

educati
onal
status
of the
populat
ion

g the
existing
and
required
educationa
l facilities

None

None

None

None

None

Citizen
data
validati
on for
service
deliver
y

Determinin
g the
existing
and
required
Sanitation
facilities in
the area
None

Agricultu
re &
Land
Resourc
es

Social
Welfar
e&
WCD

Land
Records

None

None

None

None

Citizen
data
validati
on for
determ
ining
benefic
iary
eligibili
ty for
welfare

None

Page 50 of 164

ePRI Study Project (Phase IV)

Databases

Natural

Populatio
n Census

Economi
c Status

Detailed Project Report - Bihar

Educatio
n&
Sports

Health &
Sanitatio
n

Birth &
Death

Natural
Resour
ces

Employ
ment &
Industry

PRI
Master

Infrastruct
ure

Agricultu
re &
Land
Resourc
es

Social
Welfar
e&
WCD

Land
Records

None

None

None

None

None

NA

None

None

None

None

schem
es
None

Number
of
unemploy
ed people
and
prospectiv
e
beneficiari
es for
NREGs

None

None

None

None

None

NA

None

None

None

None

Citizen
data
validation
for
service
delivery

Determini
ng the
economic
status of
prospecti
ve
beneficiar
ies

None

None

Citizen
data
validation
for
service
delivery

None

Citizen
data
validation
for
employm
ent status
for
benefits
under
NREGs

Citizen
data
validati
on for
employ
ment
status
for
benefit
s under
NREG
s
NA

None

None

Citizen
data
validati
on for
determ
ining
benefic
iary
eligibili
ty for
welfare
schem
es

View of
the land
ownershi
p details
for issue
of Form I
& XIV

None

Resources

Employme
nt and
Industry

PRI Master

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Page 51 of 164

ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

Populatio
n Census

Economi
c Status

Educatio
n&
Sports

Health &
Sanitatio
n

None

None

None

None

For
determini
ng the
existing
and
required
education
al
facilities
None

Determini
ng the
existing
and
required
Sanitation
facilities
in the
area
None

Prospecti
ve
beneficiar
ies for
Social
Welfare
and WCD
schemes

None

None

Social
Welfare &
WCD

Prospecti
ve
beneficiari
es for
Social
Welfare
and WCD
schemes

Land

None

None

None

None

Databases

Infrastruct
ure

Natural
Resour
ces

Employ
ment &
Industry

PRI
Master

Infrastruct
ure

None

None

None

None

NA

None

None

None

None

Determini
ng
prospecti
ve
beneficiar
ies proactively
for
schemes
like
Balika
samridhi
yojana
None

None

None

None

None

Citizen
data
validati
on for
determi
ning
benefic
iary
eligibilit
y for
welfare
schem
es
View of

Determinin
g
requireme
nt of
agricultural
facilities/eq
uipments
None

Birth &
Death

Agriculture
& Land
Resources

National Informatics Centre Services Inc.

None

Agricultu
re &
Land
Resourc
es

Social
Welfar
e&
WCD

Land
Records

Determini
ng
requirem
ent of
agricultur
al
facilities/e
quipment
s
NA

None

None

None

None

None

NA

None

None

None

NA

Page 52 of 164

ePRI Study Project (Phase IV)

Databases

Populatio
n Census

Economi
c Status

Records

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Detailed Project Report - Bihar

Educatio
n&
Sports

Health &
Sanitatio
n

Birth &
Death

Natural
Resour
ces

Employ
ment &
Industry

PRI
Master

Infrastruct
ure

Agricultu
re &
Land
Resourc
es

Social
Welfar
e&
WCD

Land
Records

the
land
owners
hip
details
for
issue
of
Form I
& XIV

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ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

All of these databases (except the citizen database) are being planned under the DISNIC project of
the government. The project is being proposed to be undertaken on pilot basis in two districts of
Bihar and 1 district of Haryana. It will capture district information related to the following sectors:
Table 5.6- Sectors covered under DISNIC project
S. No.

Sector

Agriculture

Animal Husbandry

Buildings & Works

Civil Supplies

Collegiate Education

District Planning

Employment & Trainings

Fisheries

Ground Water

10

Health

11

Industry

12

Irrigation

13

Labour

14

Panchayat

15

Power

16

Public Instruction

17

Roads & Bridges

18

Rural Development

19

SC/ST Development

20

Environment, Forest & Wildlife

21

Social Welfare

22

Town Planning

23

Transport

24

Water Supply

25

District Treasury

26

Co-operative Societies

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

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

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5.2.5 External Interfaces


This component details out the various users other than primary users. They will use the ePRI
system for primarily for information.
Table 5.4: Interaction of External Interfaces with ePRI Application
External Interface

Information / Data Exchange

Purpose

State line
department

Information

This will include all the line departments of


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

Central line
ministries

Information

This will include all the line ministries of GoI


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

e-District

Information and Data Exchange

e-District is envisaged to implemented in all


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

State Portal

Information

ePRI application can present some key


information about PRIs on state portal and
state portal can have link with Panchayat
State portal.

Treasury

Information and Data Exchange

Financial module of ePRI application will


generate various MIS reports for treasury
and also will require fund release status
from treasury.

Planning
commission

Information

Planning commission can get village profile,


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

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ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

5.2.6 Security Components


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

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

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

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

Guidelines- These will detail out the steps to be taken for implementation of the security policy.
The guidelines are the suggested actions or recommendations to address an area in the
security policy. They are not binding but are considered Best Practices and should be
implemented when ever possible. In addition to the established information security policy,

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ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

explicit set of guidelines should also be prepared. These would include the dos and donts for
the stakeholders using the ePRI system. The guidelines should also be regularly updated in
alignment with the changing information security policies.
5.2.7 Exceptions
In certain parts of the State of Bihar, there may be a situation where the implementation of above
proposed system may not be possible. The reasons for such situation to arise are not in the purview
of this report and outside the scope of ePRI project. This section tries to provide insights into such
exceptions that are specific to the State of Bihar.
Exceptions could result in due to the following reasons:

Security related issues


Geographical challenges
Infrastructure related
Forest/Desert village

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

5.3 Application Architecture and Functionality


Application architecture presented below is detailing of the ePRI application shown in logical
architecture. Each layer has been explored with module level details. Users, Access channels,
Databases, security, data, infrastructure layer and Gateway have been masked. The users, access
channels and databases have been already explained under logical architecture. Security, network
and deployment architecture is discussed under section of this report. This section details out the
functionality of core modules at high level.
ePRI application architecture is based on the BPR framework recommended in this report. It is
divided into five layers:
Government to Citizen (G2C) application layer and Government to Government (G2G)
application layer will consist of all the service modules to the Citizen, CSC, ePRI officer, and
Government users ranging from gram Panchayat to central line ministries.

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

Presentation Layer
Layer
Presentation

State Service
Service Delivery
Delivery Gateway
Gateway (SSDG)/
(SSDG)/ SDC
SDC Gateway
Gateway
State

Internet/ Intranet
Intranet // VPN
VPN
Internet/

Access Channels
Channels
Access

Users
Users

Figure 5.3: Application Architecture


G2C
G2C Application
Application Layer
Layer

G2G
G2G Application
Application Layer
Layer

Scheme
Information

Inclusion in
BPL list

Scholarship

Funding

LPC
Form
Availability

Record of
Rights

Planning

Birth/ Death
Registration

Ration
Coupons

NREGS

Implementation

Certificates
Monitoring
Pension

PRI meeting
information

Collection of
dues

Reporting

RTI

BPR Component Business Application Layer


Application
Submission

Status
tracking

Approval/
rejection

PRIs meeting
Mgmt

Service
delivery

Verification

Planning

Financial
Mgmt

Scheme
Mgmt

Payment

Support functions Business Application Layer


File Mgmt
Asset Mgmt

Audit Mgmt

Account Mgmt

Village profile Mgmt

Workflow

HR Mgmt
Analysis &
Reporting

Core
Core Business
Business Layer
Layer
KM

Transaction Engine

Mail

SMS

Payment Gateway

Security
Security layer
layer
Data
Data layer
layer
Infrastructure
Infrastructure layer
layer

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5.3.1 G2C Application Layer


Functionality of application modules as showcased in application architecture is described in the
table below.
Table 5.5 Functionality of G2C Application Layer Modules
Module

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

PRIs Meeting
Information

Annual Calendar of PRI meetings

Agenda of the Meeting

Schedule of Meeting

Attendees

Minutes of Meetings

Decisions taken/ resolutions

Status of action based on resolution

User Group
GP officials and staff

Responsible
information.

May use the stored data for responding


to RTI applications.

for

uploading

the

Citizens

To get update on PRI activities

This will help meet the disclosure


requirements of the PRIs with respect to
the various governing laws.
This module would have provision to
provide the following services:

Birth
Registration

Birth Registration

Search & Issue Birth Certificate

Print Birth Register

Issue Non-availability Certificate

Birth Correction

Apply for birth registration/ issue of


non-availability certificate

Citizens

To apply for birth registration, issue of


copy of birth certificate and issue of
non-availability certificate

PRIs Officials and Staff

To update data for applications


received through physical submission.

To submit field verification reports.

To issue birth certificates

To generate MIS report on birth


certificates issued for submission to
meet reporting requirements.

CSC operator

This module would have provision to


provide the following services:
Death
Registration

Death Registration

Search & Issue Death Certificate

Print Death Register

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To view and print the Birth Certificate


copy

Citizens

To apply for Death registration, issue of


copy of Death certificate and issue of
non-availability certificate

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ePRI Study Project (Phase IV)

Module

Detailed Project Report - Bihar

Functionality

User Group

Issue Non-availability Certificate

GP Officials and Staff

Death Correction

Apply for death registration/ issue of


non-availability certificate.

To update data for applications


received through physical submission.

To submit field verification reports.

To query the Death database for


issuance/ non-issuance of Nonavailability certificate

To issue Death certificates

To generate MIS reports on Death


certificates issued for submission to
meet reporting requirements.

CSC Operator

Certificates

Grievance
Redressal

The certificates module would be utilized


for issuance of following certificates:

Citizens

To apply for Certificates

Residence Certificate

For payment of processing fees

Income Certificate

Caste Certificate

GP Officials and Staff

Character Certificates

To update data for applications


received through physical submission.

To submit field verification reports.

To issue Certificates

To generate MIS reports on certificates

This module will have provision to:

Citizens

File complaints

Enter details of complaints/grievances


communicated
through
hardcopy
forms.

PRI staff and officials

To file grievances
authorities.

to

relevant

Upload status of action taken/ solution


provided.

To enter details for communications


received in hardcopy.

To escalate
authorities.

To upload action taken reports or


solution provided.

To upload application status.

To monitor application status for timely


provision of redressal.

matters

to

relevant

This module will have provision to:


RTI

To view and print the Death Certificate


copy

Submit

applications

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Citizens
seeking

To file application for information under


RTI

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ePRI Study Project (Phase IV)

Module

Detailed Project Report - Bihar

Functionality

User Group

information under the RTI act.

Enter details for applications received


in hardcopy.
Query the databases to gather relevant
data.

Prepare responses to RTI applications

Print responses.

Collection of processing fees

Print monthly/annual report on RTI


application received & honoured.

Provide job cards to citizens

Information on the NREGS scheme

Work allocation details

Generate muster roll

Provide
schemes

information

To enter details for


received in hardcopy.

To

prepare

applications

response

to

RTI

applications
To print responses

Citizens

Obtain job card

Expedite in receiving wages

PRI staff and officials

This module will have provision to:


Information
on Schemes

This module will have provision to:

NREGS

PRI staff and officials

on

Manage and plan work allocation

Citizens
various

Easy access
schemes

to

information

on

PRI staff and officials

This module will have provision to:


Inclusion/
Exclusion in
BPL List

Accept application for inclusion of


name in BPL list

Maintenance of the BPL list

Citizens

Scholarship
to SC/ST
Students

Approve or reject application

Generate MIS Reports

Tracking of funds

This module will have provision to:


Pension

Approve or reject application

Maintenance of the pensioner list

Generate MIS Reports

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Submit application for inclusion of


name in BPL list

PRI staff and officials

This module will have provision to:

Provide timely information on schemes

Maintain BPL list

Citizens

Apply for student scholarship

PRI staff and officials

To
generate
scholarships

Manage the list of students efficiently

MIS

reports

on

Citizens

Receives pension

PRI staff and officials

Page 61 of 164

ePRI Study Project (Phase IV)

Module

Detailed Project Report - Bihar

Functionality

User Group

Tracking of funds

This module will have provision to:

Availability of
Forms

Provide information on schemes

Provide forms online

Option to download forms

To generate MIS reports on pension


related information

Manage the pensioner list efficiently

Citizens

Views and obtain forms online

Submit forms

PRI staff and officials

This module will have provision to:

Distribution of
Ration
Coupons

Distribute the coupons to beneficiaries


online

Provide information to citizens about


the distribution date

Number of beneficiaries

Track coupons related information

Generate
distribution

on

and

upload

standardised

Citizens

reports

Prepare
forms

coupon

Obtain ration coupons

Obtain
information
disbursement date

on

coupons

PRI staff and officials

Manage and plan coupon distribution


process

Generate
distribution

reports

on

coupon

5.3.2 G2G Application Layer


The table 5.7 below provides a detail of the functionalities of the G2G application layer modules as
defined in the application architecture.
Table 5.6: Functionality of G2G Application Layer Modules
Module

Planning

Functionality

User Group

Planning module should facilitate

Planning Committee Members

departments for preparation of development


and scheme plans. The module should
have following functionality
(i) Mapping of module with village
profile
(ii) Managing the PRIs in functional
domains like education health,
sanitation, house, water, etc.
(iii) Prioritization of need of the PRIs
(iv) Creation and management of
project under functional domains

Panchayat Sewak

Block Development Officer (BDO)

State Departments

Executive Officer PS

Chief Executive Officer ZP

Elected Representative

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Functionality

User Group

(v) Division of the project with


available schemes to implement
the different part.
(vi) Preparation
of
physical
and
financial target for project and
schemes
PRIA soft should be used for the managing
funding through financial and accounting
management. Effective financial and
accounting management would assist the
PRI officials to request for funds with
relevant data and information. Following are
the key functionalities:
(i) Budget Planning and allotment

Committee Members

Panchayat Sewak

Block Development Officer (BDO)

State Departments

Executive Officer PS

Chief Executive Officer ZP

Elected Representative

This covers various activities in the


budget planning such as budget
formulation, allotment, release and
surrender etc.
(ii) Expenditure Tracking

Funding

This covers the activities like Statement


of expenditure HoD wise, District wise,
Scheme wise, Hospital wise, field unit
wise
(iii) Financial Accounting
Budgetary accounting, Accounts
Payable, Account Receivables, Cash
Book Maintenance, Cash book
Reconciliation, Asset accounting,
Accounting policies etc are covered in
this sub module.
(iv) Financial Audit
Total Sanction, Total allotment, Total
surrender, Total expenditure, Reappropriation, Object DDO cross tab,
Object wise allotment, Treasury wise
allotment, Grand object wise allotment
report etc are covered under this submodule.

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Functionality
Reporting module is envisaged to meet all
the monitoring and reporting requirement of
the all the users. The purpose of the
monitoring and reporting element are listed
below

Provide real time information on all


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

Progress tracking of work at defined


levels on given time referential and help
identifying any slack in the same.

Help to develop mid term correction


strategies by brining out deficiency in
any aspect of service delivery

User Group

Panchayat Sewak

Block Development Officer (BDO)

State Departments

Additional Director (Social Security)

Executive Officer PS

Chief Executive Officer ZP

Elected Representative

Generate required report for the


department for physical and financial
reporting requirements
High level functionality of reporting module
are as mentioned below:

Reporting

KPIs in both public and authenticated


user domain

Interactive GUI based tour on


designing the KPIs for educating the
user

Design the KPIs as per the user


requirement using interactive mode

Configure the pre defined KPIs as per


the frequency of generation to defined
set of user

Create favourite list of KPIs by


authenticated user

Add, modify and delete the KPIs in


favourite list

Display the mandatory KPIs


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

Define Annual targets and long term


targets against each KPI

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Functionality

Change in the definition of the KPIs

Graphical view for showing change in


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

User Group

5.3.3 Service Component Application Layer


The table 5.8 below provides a detail of the functionalities of the service components application
layer modules as defined in the application architecture.
Table 5.7: Functionality of Service Component Layer Modules
Module

Planning

Functionality

User Group

Planning Committee Members

Panchayat Sewak

Block Development Officer (BDO)

State Departments

Executive Officer PS

Chief Executive Officer ZP

Elected Representative

PRIA soft should be used for the financial


and accounting management with following
key functionality.
(v) Budget Planning and allotment

Committee Members

Panchayat Sewak

Block Development Officer (BDO)

State Departments

This covers various activities in the

Executive Officer PS

budget planning such as budget


formulation, allotment, release and
surrender etc.

Chief Executive Officer ZP

Elected Representative

Planning module should facilitate


departments for preparation of development
and scheme plans. The module should
have following functionality
(vii) Mapping of module with village
profile
(viii) Managing the PRIs in functional
domains like education health,
sanitation, house, water, etc.
(ix) Prioritization of need of the PRIs
(x) Creation and management of
project under functional domains
(xi) Division of the project with
available schemes to implement
the different part.
(xii) Preparation
of
physical
and
financial target for project and
schemes

Financial
Management

(vi) Expenditure Tracking


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

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Functionality

User Group

Scheme wise, Hospital wise, field unit


wise
(vii) Financial Accounting
Budgetary accounting, Accounts
Payable, Account Receivables, Cash
Book Maintenance, Cash book
Reconciliation, Asset accounting,
Accounting policies etc are covered in
this sub module.
(viii) Financial Audit
Total Sanction, Total allotment, Total
surrender, Total expenditure, Reappropriation, Object DDO cross tab,
Object wise allotment, Treasury wise
allotment, Grand object wise allotment
report etc are covered under this submodule.
ePRI applications should use Plan plus
for CSS and state Governments scheme
management
(i) Program Management

Scheme
Management

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

Committee Members

Panchayat Sewak

Block Development Officer (BDO)

State Departments

Executive Officer PS

Chief Executive Officer ZP

Elected Representative

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

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Functionality

User Group

delivery
(iii) Project Monitoring
This
sub-module
assists
the
department in monitoring of the various
infrastructure development projects
spanning across all the PRIs
Creation of master data of PRIs having
following details

Committee Members
Panchayat Sewak

Members of PRI

Executive Officer PS

Chairperson/ Pramukh/ Mukhiya and


Vice Chairperson/ Vice Pramukh/ Vice
Mukhiya of PRI

Chief Executive Officer ZP

Elected Representative

Panchayat Sewak

Executive Officer PS

Chief Executive Officer ZP

Standing Committees with member


details
Management of PRIs meetings

PRIs Meeting
Management

Approval /
Rejection

Annual calendar of PRIs meetings

Preparation of Agenda
standardization of formats

Scheduling PRIs meetings and


submission of agenda

Circulation of Agenda to respective


members

Meeting of PRIs

Prepare of proceedings of PRI meetings

Submission of proceeding of PRIs


meeting

Circulation of proceedings to respective


members

Online availability of agenda and


proceedings

Approval/ rejection of PRI meeting

This particular module would assist in


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

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5.3.4 Support Function Application Layer


The table 5.9 below provides a detail of the functionalities of the support functions application layer
modules as defined in the application architecture.
Table 5.8: Functionality of Support Functions Application Layer Modules
Module

Functionality
Analysis & Reporting module is envisaged
to meet all the monitoring and reporting
requirement of the all the users. The
purpose of the monitoring and reporting
element are listed below

Provide real time information on all


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

Progress tracking of work at defined


levels on given time referential and help
identifying any slack in the same.

Help to develop mid term correction


strategies by brining out deficiency in
any aspect of service delivery

User Group

Panchayat Sewak

Block Development Officer (BDO)

State Departments

Additional Director (Social Security)

Executive Officer PS

Chief Executive Officer ZP

Elected Representative

Analysis &
Reporting

Generate required report for the


department for physical and financial
reporting requirements
High level functionality of KPIs module are
as mentioned below:

KPIs in both public and authenticated


user domain

Interactive GUI based tour on


designing the KPIs for educating the
user

Design the KPIs as per the user


requirement using interactive mode

Configure the pre defined KPIs as per


the frequency of generation to defined
set of user

Create favourite list of KPIs by


authenticated user

Add, modify and delete the KPIs in


favourite list

Display the mandatory KPIs

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Module

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Functionality

User Group

recommended by the Department of


Panchayati Raj/ Ministry of Panchayati
Raj to all the users of the system in their
favourite list

Define Annual targets and long term


targets against each KPI

Change in the definition of the KPIs

Graphical view for showing change in


the value of KPI on selected time scale
with reference to the target
HR Management comprises of six submodules to address the HR requirements
of the project from both governance and
management perspective

Committee Members

Panchayat Sewak

Executive Officer PS

Chief Executive Officer ZP

(I) Workforce Management

Elected Representative

This sub-module assists the


department in better planning of
recruitment, transfer, promotion and
optimal workforce deployment
(II) Training Management

PRIs HR
Management

This sub-module assists the


department in capturing the training
needs of the employees and planning
training programs to enhance their
skills
(III) Employees
Management

Performance

This sub-module assists the


department in monitoring the
employees performance, using
customized performance indicators, for
achieving the best possible out come
under resource constraints.
(IV) Employee Self Service
This sub-module assists the
department in enhancing employee
convenience by providing direct access
to the services like training enrolment,

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Module

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Functionality

User Group

knowledge management etc


(V) Payroll Management
This sub-module describes the
completely automated Payroll
management system
(VI) Grievance Redressal System
This sub-module details the automated
processes for submission of grievance,
status check, online redressal etc

Village profile
management

Village profile management will have


database of resources of respective PRIs.
PRI will be responsible for updating and
managing this database. The data will have
following broad level heads.
1. Geographical data including
coordinates, boundaries, area,
river, water sources, hills, soil type,
weather, etc
2. Infrastructure detail including,
roads, electricity, telecom,
government building, educational
institute, medical and health
facilities, etc.
3. Demographic profile including
census data of the respective PRIs
The purpose of the village profile
management is to facilitate the decision
maker for effective planning.

Committee Members

Panchayat Sewak

Executive Officer PS

Chief Executive Officer ZP

Elected Representative

5.3.5 Core Technology Layer


The table 5.10 below provides a detail of the functionalities of the core technology layer modules as
defined in the application architecture.
Table 5.9: Functionality of Core Technology Layer Modules
Module

Functionality

SMS Gateway

The SMS gateway will be used for sending


information to the user in the purview of
ePRI Application. A citizen can track the
status of his or her application through
SMS. If the mobile number of the citizen

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User Group

Citizens

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Module

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Functionality

User Group

was registered during the submission of


application form then notification will be
sent in the event of any status change.

Payment
Gateway

Mail

Payment gateway would be used in the


CSC to make payments for availing the
services of the schemes. The most
common set of payments would be for
services such as lagan payment,
application fees, fees for RTI, etc.
For streamlined information flow between
the various line departments and other
offices, email account would be set up. This
would be done through a SMTP mail
server.

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Citizens

CSC Operator

PRI Officials

Citizens

Official of the line departments

PRI officials

Elected representatives

Committee members.

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6 Requirements for ICT and Connectivity Technology Solution


This section assesses the ICT and connectivity requirements for the implementation of the ePRI application and
proposes a deployment architecture with due consideration to factors of scalability, performance,
availability, interoperability, security and manageability. In addition, high level network architecture has
section and four layer security architecture (User, Network, Infrastructure and Application layers) has been
detailed. Keeping in mind all these and the ICT requirements at the client sites at the state/district/block/village,
an indicative bill of materials has been presented.

Summary

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

This section will have impact on the total project cost in terms of cost for provision of ICT infrastructure at the data
centre for hosting the ePRI Application and at all client sites and the manpower provisioned. The total ICT
infrastructure cost for the state is Rs. 207.63 crores approximately.

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

6.1 Deployment Architecture


The deployment architecture to be adopted for ePRI online system was finalized after deliberating
upon the following key design considerations:
a. Scalability
State of Bihar has a high density of population (approximately 900 per sq. Kms.) and would result in
fairly large number of transactions for service delivery. In additions, as a result of growing
awareness and demands of the citizens, there is clear indication that there would be further
increase in the number of transactions. With such large volume of transactions wherein each
transaction payload can average up to 250 Kb (including the attachments) coupled with this kind of
growth in data, the system architecture has to be very scalable in order to continue offering services
at their desired service levels.
The ePRI System should be scalable enough to accommodate the following:
Table 6.1: Administrative Units
Administrative Units

Number

Zila Panchayat

535

Panchayat Samiti

6053

Gram Panchayat

2, 34, 030

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Administrative Units
Number of elected representatives at all three tiers

Detailed Project Report - Bihar

Number
31 lakhs

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

Availability

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

Interoperability

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

Security

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

Manageability

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

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Design Implications
I.
II.
III.
IV.
V.
VI.
VII.
VIII.

Requires high performing, scalable and secure data centre infrastructure


Requires reliable connectivity from all locations to the SDC
Allows an easier and faster state level search for identification and verification
Ease of Software and Systems Management (version control, upgrades, distribution)
Efficient IT and Non IT Resource Utilization
Easier and more effective Operations & Maintenance
High bandwidth requirements to ensure desired performance
Sufficient redundancies to be built for every critical component/ utility

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Figure 6.1: Deployment Architecture

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6.2 Network Architecture


The diagram below indicates network deployment architecture for hosting the ePRI system on
a centralized architecture.
Figure 6.2: Network Architecture

Provisions for Scalability, performance and availability


a.

Scalability

The networking devises including routers and switches shall be procured with sufficient
number of ports for addressing the required bandwidth. Preferably, the router/ switch should
have adequate number of free slots for additional ports to cope with the increased future
demands.
There should be provision to provide horizontal scalability in such a manner that a new server
can be added or removed dynamically, as and when required in future, without disturbing the
normal functioning of the system.

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To address anticipated future growth in transactions, vertical scalability in servers in terms of


additional processors and RAM will have to be provided.
b. Performance
Since performance is the prime requirement of the proposed ePRI system, the designed must
be adaptive with respect to capacity planning. There should be continuous monitoring of
resource utilization vis--vis the service loads in order to expose the need for corrective
actions. The corrective actions could be in terms of increasing bandwidth, increasing server
capacity, etc. when the utilization crosses a defined threshold.
c. Availability
The network level redundancy shall be accounted for and can be achieved through various
measures being taken. Measures taken could be leased lines from two different service
providers, alternate routing paths facilitated at ISP backbone (MPLS), redundant network
devises etc.
Efficient configuration of load balancers and redundancy with respect to servers hosting all the
critical components of architecture including web, application, database, and DNS would
ensure high availability.

6.3 Security Architecture


The following figure depicts the recommended security architecture for the ePRI Online
System.
Figure 6.3: Security Architecture

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

Restricted areas of the application shall only be accessible over WAN

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Network level security

Network traffic shall be encrypted using SSL

Secure connectivity shall be provided between the CFC/ ULB and the SDC

Infrastructure level security

Application infrastructure shall be hosted in a DMZ

External users would only be able to access the public web server which would be
configured to render only those application pages that can be accessed publicly

Firewalls and IPS shall be installed to detect/prevent unauthorized activities

Application level security

Role based access shall be provided based upon user category

User credentials shall be stored in an encrypted format

User credentials for external and internal users shall be stored in separate repositories

Server to-server communication shall be encrypted

Confidential data shall be encrypted before it is stored in the database

Comprehensive logging & audit trail of sessions and transactions shall be done

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

6.4 Bills of Material


The bill of material for the ICT specification was prepared and discussed with the SIO and
DIOs for the State of Bihar. The key inputs provided were duly incorporated in preparation of
BoM sheet. Table 6.2 provides the details of ICT specification for the State of Bihar.
Table 6.2: BoM for ICT specification
Sr.
A
I
1
a
b
c

Component
State Level ICT Cost

Number

Data Centre Costs


Hardware
Web Server
Application Server
Database Server

II

State Site IT Infrastructure Costs

1
a
i

Hardware
Network Printer
State ePRI Project Management Unit

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Number
2
2
2

Number
1

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Sr.
b
i
c
i
B
I

Detailed Project Report - Bihar

Component
Finger Print Scanner
Panchayati Raj Department
Digital Signature
Panchayati Raj Department

Number
4
4

District Level ICT Cost

Site IT Infrastructure Costs


Number Per
Site

Hardware

a
i
ii
iii
iv

PC / Thin Client
District PRI department
Zilla Parishad
Block PRI
Village PRI

b
i

Network Printer
Zilla Parishad

c
i
ii
iii
iv

UPS
District PRI department
Zilla Parishad
Block PRI
Village PRI

d
i
ii

Laser printer
Block PRI
Village PRI

1
1

e
i
ii
iii

Finger Print Scanner


Zilla Parishad
Block PRI
Village PRI

2
2
2

f
i
ii
iii

Digital Signature
Zilla Parishad
Block PRI
Village PRI

2
2
2

f
i
ii

Document Scanner
Block PRI
Village PRI

1
1

Networking cost

a
b

LAN Switch
Hub

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2
13
5
3

2
13
5
3

Number of
Total Sites
607
8463

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7 Civil Infrastructure Requirement


This section presents the civil infrastructure requirements of the PRIs which will forms the basis of efficient

This section will have no impact on the total project cost as the civil infrastructure to the PRIs will be
provided under the Rajiv Sewa Kendra Yojana (an official gazette for implementation of the same across
India has been passed and funds will be sanctioned in due course). Hence no budgeting has been done for
provision of any civil infrastructure to the PRIs under the ePRI project; However indicative requirements of

Summary

service delivery and impact the successful implementation of this project.

the Civil Infrastructure have been assessed.

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

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

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8 Capacity Building
This section provides an assessment of the manpower skill-sets and training requirements of the PRIs
based on the findings of the ISNA phase vis-a vis the skills/ manpower required in the envisaged scenario. A
capacity building and training strategy has been suggested with a detailed list of the types of trainings to
building has been presented. Though both IT and non-IT related training have been proposed, but only training
for the ePRI application has been budgeted for.
This section will have impact on the cost in terms of cost for training the PRI officials / members and the cost of

Summary

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

providing ICT trained manpower. The cost of training is Rs. 21.38 crores and the cost for providing ICT
trained manpower is 112.2 crores approximately.

PRIs in Bihar lack both in knowledge and number of resources to perform their duty. PRIs are
expected to do accounting of more than 30 schemes. However, during the study it was
observed that in Gaya district that there is only one accountant in ZP whereas Panchayat
Samiti and Gram Panchayats do not have any accountant. The situation is similar for planning
and implementation related activities and hence the need for capacity building becomes more
apparent.
The section explains the approach for capacity building of PRIs. The skills required for
planning, accounting, management, ICT and engineering are vital to implement the
recommended solution. The approach is focused on bridging the gap in the skills rather than
the gap in the resources. Also, it is essential to understand that skill requirement of activities
like planning and engineering is periodic.
Skill gap can be bridged by taking following approach.
Develop the required skill by training
Recruit the required skill
Outsource the required skill
As already mentioned, PRIs are inadequately staffed in Bihar. Government should take some
strategic measures to fill up the vacant positions starting from the lower level. An independent
and dedicated Executive Officer for each PRI is must for efficient and effective functioning of
PRIs. However, this will be a strategic decision and may take more than a year to implement.
Developing a required skill always seems to be easiest of all options. However, this has its
own challenges in government domain. The skill development should be implemented with the
help of change management strategy to make the implementation more successful. Pursuing

the approach where skill is outsourced, the objective is achieved more rapidly and

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results in an easy means to fill up the gap. An approach for capacity building for ePRIs
with key functional areas is as shown in figure below.
Figure 8.1: Approach for enhancing the capacities of PRIs

The approach takes into account two key parameters that would be essential as well as
constructive for successful capacity building and its continuous sustainability. One is
identifying the requirements and other being the improvement in capabilities of the
stakeholders. Requirements for skill building are generally grouped as continuous skill
requirement, where these skills are put in practice almost on a daily basis, and periodic skill
requirements where these skills are utilised only on needs basis.
Continuous skill requirement would include skills such as management, accounting, computer
skill, etc whereas periodic skills encompasses skill set pertaining to planning activities,
engineering works to be taken, etc. Continuous skill requirement could be developed through
capacity building and training programs. Planning, costing, and engineering skills are required
at beginning of the project. Planning skill is must for preparation of annual action plan and
work plan. Engineering skills are required for estimation of the work and defining the standards
and architecture of the project. Periodic skill requirement could be met by outsourcing with
some basic training program for executive and public representatives.
Capacity building for ePRI project would be achieved primarily through three channels:

Outsourcing

Training Programs

Appointments

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

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Training programs would ensure that the existing as well as new resources are at all times up
to date with the requirements of their work to be carried out.
Increased capabilities of the resources would result in increased knowledge in their respective
domains. Also, for the entire setup to be capable of successfully executing their tasks without
any bottlenecks, would require increase in the manpower resources to deliver services to
citizens more efficiently.

8.1

Stakeholder Analysis and Benefit Realization

Stake holder identification is important to understand the interventions which would need to be
planned for the stakeholders such as citizens, PRI officials, elected representatives and
officials from the line departments.
Benefits realisation from the change can be done by comparison between the As-Is and the
To-Be processes. These benefits will then be mapped to the respective stakeholders to get
their buy-in. Table below provides the stakeholder analysis and benefit realisation details.
Table 8.1: Stakeholder analysis and benefit realisation
Stakeholders

Present Gaps
in Manpower

Present Gaps in
skills

Benefits

Low

High

Training and skill up


gradation is required.
Need to create more
awareness

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

Low

High

Training and skill up


gradation is required.
Need to create more
awareness

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

Low

High

Training and skill up


gradation is required.
Need to create more
awareness

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

High

High

Training and skill up

Enable to

gradation is required.

perform duties

Public
representative of
Zila Parishad

Public
representative of
Panchayat Samiti

Public
representative of
Gram Panchayat

General Standing
Committee of Zila

Key
recommendations

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Stakeholders

Present Gaps
in Manpower

Detailed Project Report - Bihar

Present Gaps in
skills

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

Training and skill up

Enable to

gradation is required.
Need to create more
awareness pertaining
to the responsibilities
of the committees.

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

High

Training and skill up


gradation is required.
Need to create more
awareness pertaining
to the responsibilities
of the committees.

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

High

Training and skill up


gradation is required.
Need to create more
awareness pertaining
to the responsibilities
of the committees.

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

High

Finance, Account
& Planning
Committee of Zila
Parishad,
Panchayat Samiti

High
Production
Committee at all
three tiers of
PRIs

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

Social Justice
Committee at all
three tiers of
PRIs

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

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Benefits

Need to create more


awareness pertaining
to the responsibilities
of the committees.

Parishad,
Panchayat Samiti

High

Key
recommendations

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Stakeholders

Present Gaps
in Manpower

Detailed Project Report - Bihar

Present Gaps in
skills

Key
recommendations

Benefits
and monitoring
Anganwadi
centres.

High
Education
Committee at all
three tiers of
PRIs

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

High

Training and skill up


gradation is required.
Need to create more
awareness pertaining
to the responsibilities
of the committees.

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

High

Training and skill up

Enable to

gradation is required.
Need to create more
awareness pertaining
to the responsibilities
of the committees.

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

Training and skill up


gradation pertaining
to basic computer
skills and ePRI
Application.

Enable to
perform duties
better with
regards to
administrative
and schemes

been formed
but has not
met in the last
three years

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

Public Works
Committee at all
three tiers of
PRIs

Training and skill up


gradation is required.
Need to create more
awareness pertaining
to the responsibilities
of the committees.

In very few
districts the
committee has

High
Public Health,
Family Welfare &
Rural Sanitation
Committee three
tiers of PRIs

High

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

High
Engineering staff
of PRIs

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Stakeholders

Present Gaps
in Manpower

Detailed Project Report - Bihar

Present Gaps in
skills

Key
recommendations

Benefits
related work.

High

High

Training and skill up


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

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

High

High

Training and skill up


gradation pertaining
to basic computer
skills and ePRI
Application.

Enable to
perform duties
better.

Accounting staff
of PRIs

Operational staff
of PRIs

8.2

Capacity Building and Training Strategy

Capacity building is important to build a receptive attitude and align the employees to use the
new system and provide right service to the citizens. The requirement of capability building is
essential for all the levels.
It is recommended to create Change Management Teams at state as well as district levels
who would be responsible for providing ongoing support to the PRI officials and members in
using the ePRI applications, in particular and computers, in general. Additionally,
implementation of ePRI Project would ensue multiple changes which various stakeholders
would stumble upon. These change management teams would address these changes and
assist in successful capacity building to implement change. Regular feedback would be taken
for all aspect of capacity building and trainings. If any modification or course correction is
required then that must also be included. The high level framework for Capacity Building and
Training is given below:
Figure 8.2: Capacity Building and Training Framework

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Some of the capacity building measures are:


Identify the training needs and potential trainers to deliver the training
Devise training plan consisting of key training areas for different stakeholders at the
three levels. The state and district teams to prepare training curriculum to address the
training needs.
Prepare training schedules
Define metric to evaluate training effectiveness such as % of employees trained,
increase in awareness of employees, exit test scores of the training.
8.2.1 Manpower
The skill gap can be bridged by three ways as shown in approach for capacity building in
Figure 8.1: Approach for enhancing the capacities of PRIs. Develop the required skill by
training, recruit the required skill, and outsource the required skill are various options to fill up
the manpower gap. Planner and engineer requirements are periodic and can be filled by
outsourcing. The manpower gaps at all three tiers are shown below.
Table 8.2 Manpower gap at three tiers of PRIs
Senior clerk
Capabilities (Manpower)
Clerk

Zila Parishad

Panchayat Samiti

Gram Panchayat

Present

Present

Present

Desired

Desired

Desired

Administrative Officer
to each PRI
Document and file
Manager
Planner
Engineer
Accountant
Computer operator

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Legend:
Green - Resources at PRIs are found to be adequate for performing their roles and responsibilities.
Yellow - Resources at PRIs are found to be average and needs continues capacity building and training
for better performance of the personnel.
Red - Resources at PRIs are found to be non adequate. Recruitment or outsourcing option can be
explored for bridging the gap. This may create bottleneck in implementation of the desired system.

Administrative officer for each PRIs should be independent. PRIs should also have computer
operator and file and document manager to meet the functional requirements of the ePRI
project. PRIs have less than sanctioned but sufficient clerk and senior clerk for discharging the
regular office work with the help of automated system. The pool of planner and engineer can
be formed on outsourcing or permanent basis to meet the periodic requirement of PRIs.
8.2.1.1 Filling up vacancies and additional post
As already discussed, number of resources available with PRIs in Bihar is much less than the
required. Also, the resources available lack the requisite knowledge to perform their duties
efficiently. PRIs are expected to do accounting of more than 30 schemes. However, during the
study it was observed that in Gaya district that there is only one accountant in ZP whereas
Panchayat Samiti and Gram Panchayats do not have any accountant.
For planning related activities, there are no resources available at Panchayat Samiti and Gram
Panchayats. ZP has a resources allocated for planning but it is a shared resource and not a
dedicated one. This further contributes to impediment in the planning activities. Activities
pertaining to implementation also suffer the same fate. At ZP there are clerks present but no
resources available at Panchayat Samiti and Gram Panchayats. In Gaya District alone, there
are more than 40% positions that are vacant, clearly highlighting the resource shortage. With
regards to the monitoring activities, there are resources available but there is no execution
since the stakeholders do not perceive any value in performing such activities.

Table 8.3 Posts to be created in PRIs


Sr.
No.

Designation of Posts

In the GP

In ZP

Total

No. of Posts

No. of Posts

No. of
Posts

Dy. Chief Executive Officer ( Upgradation)

Superintendent (Up-gradation)

189

191

Accountant(Deputation from
Directorate of Accounts)

189

189

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In the GP

In ZP

Total

No. of Posts

No. of Posts

No. of
Posts

L.D.C. (Data Operator) (Up-gradation)

189

193

Executive Engineer (Deputation from


PWD)

Assistant Engineer (Deputation from


PWD)

Technical Assistant (Deputation from


PWD)

11

13

Junior Engineer (Deputation from


PWD)

25

30

Sr.
No.

Designation of Posts

8.2.2 Training Strategy


Change Management and Training has emerged as the most critical factor for successful
implementation of e-Governance Projects. It is imperative to impart sufficient training to end
user to make the transition acceptable at the operational level. Training is most important
component for managing the change and getting buy in from the users of the system.
8.2.2.1 Training requirements
Training is a crucial component of the Change Management Plan, especially where processes
have changed or new skills are required. It is of paramount importance that employees be fully
prepared before they are expected to perform new duties. An overview of the training delivery
methods is given below. Details on advantages and disadvantages of each of these methods
are enumerated in Annexure b.
Training Delivery Methods
1. In-house training
In this model, all trainings will be planned and delivered by the PR department itself with the
help of its own functionaries, facilities and resources. In order to conduct in-house trainings,
the department would need the requisite training infrastructure such as facilities, AV
equipment, IT equipment, besides skilled training faculty. Various channels that can be used
for providing In-house trainings such as Workshops, Group discussions, Audio visual
sessions, Web based learning sessions etc.
2. Training from state level / regional level training agencies
The alternative to in-house training is leveraging the established state-level agencies (such as
SIRDs along with their regional centres if any) to develop, plan and deliver the desired
trainings. These are usually the government owned training institutes that specialize in
conducting trainings for government employees and can customize trainings to the specific

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needs of a group of people. They have established training infrastructure including facilities,
IT/AV equipment besides trained faculty. These institutes usually employ faculty who have had
some association with government departments so that they can explain the subject to the
trainees with relevant examples and insights. In addition to classroom sessions, various
innovative techniques such as plays/ skits/ audio visuals/ study tours etc can be used as these
modes are cost effective for a larger group as compared to small batches.
3. Training from external agencies on contract
Trainings can also be provided through contractual relationships with external agencies that
specialize in training design, planning and execution. These agencies specialize in various
subjects and have professionally qualified faculty to deliver customized trainings.
4. Hybrid model
In many cases, it might be more appropriate to utilize a combination of the training models
(inhouse, SIRD, external agencies) described above based on various criteria such as nature
of training, available subject matter expertise, batch size etc.
A Hybrid model is best suited for such a project where the target audience varies widely in
terms of expertise, training requirements, etc. Hence it is suggested that the target audience
be divided into groups based on some identified similarities in terms of training requirements
and accordingly different models can be used to meet the needs of the group. Employees and
elected representatives of PRIs can be grouped under following groups for imparting the
training on the basis of their envisaged role and responsibilities.

Elected / Public representative of Zila Panchayat

Elected/ Public representative of Gram Panchayat

General Standing Committee of Zilla Panchayat

District Water Sanitation Mission (Director PR is a member)

District Planning Committee

Inter-departmental Steering Child Development & Protection Committee.

Watershed Association

Vigilance Committee

District Level Vigilance and Monitoring Committee

Ward Developmental Committee

Supervisory Committees at GP level

Vigilance Committees at GP Level

Village Education Committees

Village Water Sanitation Committees

Executive officer of PRIs

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Engineering staff of PRIs

Accounting staff of PRIs

Operational staff of PRIs

Detailed Project Report - Bihar

The various training required for PRIs are listed below.


Preparation of annual action with focus on decentralized planning and convergence of
scheme

Plan Plus Application

Accounting standard and PRIA soft application

Scheme management and monitoring

Domain training to respective standing committees

General Standing Committee of Zilla Panchayat


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

Basic computer training

ePRI application training

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

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Table 8.3: Training Needs Analysis (a)

Traini
ngs

Finance,

Public

General

Representativ
e

Standing
Committee*

ZP

PS

GP

ZP

PS

GP

Accounting &
Planning
Committee*

Social Justice
Committee

ZP

ZP

PS

GP

PS

GP

Education
Committee

Public Health,
Family Welfare
& Rural
Sanitation
Committee

Production
Committee

ZP

PS

GP

ZP

PS

GP

ZP

PS

GP

Core Functional Skills


Prepar
ation
of
Annua

l
Action
Plan
Financ
ial
Manag
ement
Accou
nting
standa
rd and
PRIA
soft
applic
ation
Sche
me
manag
ement
and
monito
ring
Domai
n
trainin
g to
respec
tive
standi
ng
commi
ttees

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

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Technology Related
Basic
computer
training

ePRI
Application
training

Basic
training on
using
Internet
and emails

PlanPlus
Application

Soft Skills
Conducting
effective
PRI
meetings

Managerial
Skills

Problem
Solving
techniques

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Table 8.4: Training Needs Analysis (b)


CEO ZP
EO PS

Engineering Staff

Accounting staff

Operational Staff

ZP

ZP

Panchayat
Secretary GP
Trainings

ZP

PS

GP

PS

GP

PS

GP

ZP

PS

GP

Core Functional Skills


Preparation of
Annual Action
Plan

Financial
Management

Accounting
standard and
PRIA soft
application

Scheme
management
and monitoring
Domain training
to respective
standing
committees

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Technology Related
Basic computer
training

PlanPlus
Application

ePRI
application
training

Basic training
on using
Internet and
emails

Soft Skills
Conducting
effective PRI
meetings

Managerial
Skills

Problem
Solving
techniques

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Table 8.5: Training details


Training

Target
Audience

Aim

Delivery mode

Preparation of
Annual Action Plan

Instructor led
Present skill set
CEO ZP
classroom based
at ZP and PS
EO PS
Distance learning
level is found to
Panchayat
Training Material
be not adequate.
Secretary
At GP level it is
GP
average. A large
Public
scale capacity
Representative
building and
s at all three
training is
tiers
required to take
General
this up to the
Standing
desired level.
Committees at
To remove
all three tiers
bottleneck in
Finance,
implementation of
Accounting &
the desired
Planning
system
Committee at
all three tiers

PlanPlus
Application

CEO ZP
EO PS
Panchayat
Secretary
GP
Public
Representative
s at all three
tiers
Finance,
Accounting &
Planning
Committee at
all three tiers
Social Justice
Committee at
all three tiers

Instructor led
Educate
classroom based
stakeholders to
Web based training
start using
Distance learning
PlanPlus
Training Material
Increase usage
of PlanPlus
At ZP,
PlanPlus
used only in
its basic form
At Ps and
GP PlanPlus
is not used
at all

Accounting

Start using

Accounting
standard and PRIA
soft application

staff at all
three tiers

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PRIA soft
application for
financial and
accounting
management

Instructor led
classroom based
Web based training
Distance learning
Training Material

Suggested
Modules
Data Analysis
Knowledge
about
committees and
role of PR
Officials
Drafting govt.
documents
such as notices
and circulars
Budget
preparation
Office
Administration

Training on
PlanPlus
Application
(Beginner,
normal and
expert level)
Understanding
various
functionalities
of PlanPlus

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

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Training

Target
Audience

Detailed Project Report - Bihar

Aim

Delivery mode

Understanding
various
functionalities
of PRIA Soft

Utilising PRIA
soft for
functionalities
such as
Budget
Planning
and
allotment
Expenditure
Tracking
Financial
Audit

Scheme
management and
monitoring

CEO ZP
EO PS
Panchayat
Secretary
GP
Finance,
Accounting &
Planning
Committee at
all three tiers
Social Justice
Committee at
all three tiers
Education
Committee at
all three tiers
Public Health,
Family Welfare
& Rural
Sanitation
Committee at
all three tiers
Production
Committee at
all three tiers

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Employ
features
offered by
PlanPlus for
scheme
management
Effective
management
and monitoring
of various
state, central
and external
agency aided
schemes
Schemes are
planned,
implemented
and monitored
more efficiently
Create
awareness
about the
benefits of the
schemes and
services
Streamline
interactions
between
various line
departments

Suggested
Modules

Instructor led
classroom based
Distance learning
Training Material

Training on
inter
department
coordination
Brainstorming
techniques
Refresher
course on
decentralized
planning

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ePRI Study Project (Phase IV)

Target
Audience

Training

Detailed Project Report - Bihar

Aim

Delivery mode

Suggested
Modules

Reduce
bottlenecks in
delivering
service
CEO ZP
EO PS
Panchayat
Secretary
GP
Finance,
Accounting &
Planning

Domain training to
respective standing

committees

Basic computer
training

Committee at
all three tiers
Social Justice
Committee at
all three tiers
Education
Committee at
all three tiers
Public Health,
Family Welfare
& Rural
Sanitation
Committee at
all three tiers
Production
Committee at
all three tiers

Instructor led
Providing
classroom based
domain
expertise to the Distance learning
Training Material
stakeholders in
their respective
domains
Improve
efficiency

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

Create
awareness
about the
benefits of the
schemes
Streamline
interactions
between
various line
departments
Reduce
bottlenecks in
delivering
service

Training on
planning
Training on
accounting
Training on
Bihar
Panchayati Raj
Act

CEO ZP
EO PS
Panchayat
Secretary
GP
Public
Representative
s at all three

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

tiers
Finance,
Accounting &
Planning
Committee at

Improve eGovernance
readiness for
the state of
Bihar

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Instructor led
classroom based
Web based training
Distance learning
Training Material

Using desktop
computer
system
Using basic
software such
as Microsoft
Excel, Microsoft
Word, Internet
explorer

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ePRI Study Project (Phase IV)

Training

ePRI application
training

Target
Audience

Detailed Project Report - Bihar

Aim

all three tiers


Social Justice
Committee at
all three tiers
Education
Committee at
all three tiers
Public Health,
Family Welfare
& Rural
Sanitation
Committee at
all three tiers
Production
Committee at
all three tiers
Accounting
staff at all
three tiers
Engineering
staff at all
three tiers
Operational
staff at all
three tiers

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

CEO ZP
EO PS
Panchayat
Secretary
GP
Public
Representative
s at all three
tiers
Finance,
Accounting &
Planning
Committee at
all three tiers
Social Justice
Committee at
all three tiers

Inform
stakeholders
about the
services and
functionality of
ePRI
Application
Create
awareness
among the
stakeholders
Address
concerns and
resistance
Contribute to
the overall
success of

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Delivery mode

Instructor led
classroom based
Web based training
Distance learning
Training Material

Suggested
Modules

Training on
ePRI
Application
(Beginner,
normal and
expert level)
Understanding
various
modules and
functionalities
of PlanPlus

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ePRI Study Project (Phase IV)

Training

Basic training on
using Internet and
emails

Target
Audience

Detailed Project Report - Bihar

Aim

Delivery mode

Education
Committee at
all three tiers
Public Health,
Family Welfare
& Rural
Sanitation
Committee at
all three tiers
Production
Committee at
all three tiers
Accounting
staff at all
three tiers
Engineering
staff at all
three tiers
Operational
staff at all
three tiers

ePRI Project
and other
NeGP
initiatives
Improve eGovernance
readiness for
the state of
Bihar
Get buy in from
all the
stakeholders

CEO ZP
EO PS
Panchayat
Secretary
GP
Public
Representative
s at all three
tiers
Finance,
Accounting &
Planning
Committee at
all three tiers
Social Justice
Committee at
all three tiers
Education
Committee at
all three tiers
Public Health,

Instructor led
Create
classroom based
awareness
Web based training
among all
stakeholders to Distance learning
Training Material
make them
more
comfortable
with technology
Able to use
email as a
reliable form of
communication
Address any
resistance and
fear that might
of the
stakeholders

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Suggested
Modules

Using Internet
Using emails

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Target
Audience

Training

Detailed Project Report - Bihar

Aim

Delivery mode

Suggested
Modules

Family Welfare
& Rural
Sanitation
Committee at
all three tiers
Production
Committee at
all three tiers
Accounting
staff at all
three tiers
Engineering
staff at all
three tiers
Operational
staff at all
three tiers

8.2.2.2 Training Facilities


As evident from the above training needs, the Government has to undertake massive training
programme for the PRI. BIPARD, the nodal agency of the government of Bihar for training and
capacity building, needs to be well equipped and come up with sound mechanism for training
more than 24,000 PRI functionaries and associated administrative staff on at least 9 subject
matters as suggested above. BIPARD, Department of Panchayati Raj and Government of
Bihar may consider developing a PPP model for the same. PPP model including specialized
agencies and NGO need a well defined roadmap for undertaking this mammoth and
momentous task.
The government may establish a standing committee for continuous training of the three tiers
of Panchayati Raj Institutions as both functionaries and administrative staff would change after
a given period.
Currently the BRGF cell in the Department of Panchayati Raj is responsible for the Computer
training. The cell is having close association with NIC and has engaged NIC for all computer
related trainings. It is reported that the State Government provides training through District
Panchayat Raj Officers. Efforts are being made to strengthen the Panchayati Raj Training
Institutes especially located at divisional head quarters. Financial grant of Rs. 100 lakh have
been provided to these institutes for strengthening of their facilities under BRGF. BIPARD
provides training for empowering the elected members about their role and responsibility.
NGOs are also providing training through their own initiatives for about two days. Two NGOs,
namely, CENCORED and THP (The Hunger Project) are conducting functional literacy

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

8.2.3

Training effectiveness and support

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

Formal and informal feedback

Post training survey

Competency assessments by seniors

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

8.3

Bill of Material

Owing to the mammoth structure of the PRIs, it may not be possible, to impart training to every
PRI member. Therefore by the virtue of past experiences, cascading mode of training has
been recommended. Accordingly, the Bill of material detailing the number of participants to be
trained at each level of PRI is given below.
The total numbers of participants that are required to be trained have been distributed on an
year-wise basis.
Table 8.7 Manpower to be Trained
Level-wise No. of PRI Officials & Members to be Trained
Level
ZP
BP(BDO office)
GP

Officials

Members

6
3
1

2
1
1

Zila and Janpad Panchayat: 75% of total participants would be department officials and 25%
of the total participants would be elected members

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

Accordingly, the number of PRI officials and members to be provided ePRI Application training
will be as detailed in the tables below:
Table 8.8 PRI Officials to be Trained
Level

PRI Officials To
Be Trained
(Number)

Participants To Be Trained (Number)


Year 1

Year 2

Year 3

ZP

228

72

72

84

BP(office of BDO)

1593

531

531

531

GP

8463

2821

2821

2821

Table 8.9 PRI Members to be Trained

Level

PRI Members To
Be Trained
(Number)

Year 1

Year 2

Year 3

ZP

76

24

24

28

BP(office of BDO)

531

177

177

177

GP

8463

2821

2821

2821

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9 Change Management
This section provides a suggestive change management plan with the underlying objective of getting
communication and awareness creation plan for various stakeholders has also been chalked out. The
activities mentioned herewith are critical for the success of this project.
This section will have impact on the cost in terms of cost for communication and creation of

Summary

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

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

9.1 Change Management Plan


The objective of this stage is to develop an action plan to achieve the change management
goals. The change management strategy and the change management implementation plan
would be an integrated plan of communication, training and other change interventions to
assist PRIs in effectively transforming itself to the new way of doing work.
The underlying objective of the change management activities will be to engage the
stakeholders so that they become part of the solution and embrace the change more readily.
Rather than addressing resistance later, the intent will be to obtain early involvement of
stakeholders who have a stake in the success of the entire process and to foster continuing
participation.
The activities under change management should not be seen as a one time activity but should
be monitored and reviewed continuously. The change management encompasses all activities
aimed at helping stakeholders to successfully accept and adapt to the new technology and
new ways of working. Overview of change management framework is given figure below.
Figure 9.1: Change Management Framework

The Change Management Framework broadly covers three main areas:

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Change Management Plan

Change Architecture

Implementation, Planning & Monitoring

Change Management Plan comprises of the activities that would assist in defining the change
interventions required for the ePRI project. The extent, pace and style of change to be
followed needs to be customised in accordance with the prevalent state of affairs. The policy
framework for organisational transitions is also part of the Change Management Plan.
Transition activities for the individuals are also defined here. It also includes the training and
communication strategy.
Post implementation of this project would lead to modifications or changes in the current
organisation structure which would necessitate its designing closely supported with the
definition of new roles and profiles. Additionally, formation of change teams and detailed roles
& responsibility definition forms the premise of Change Architecture.
Change Management Framework also includes a feedback loop to monitor and take feedback
from all stakeholders. It is important to defined milestones which can be tracked on periodic
basis and if any course correction is required it can be incorporated without delays.
9.1.1

Mapping the entire critical stakeholder community

The following table gives the mapping of the stakeholder with respect to various parameters
such as impact, influence, support, involvement, etc.
Table 9.1: Stakeholder Mapping
Stakeholder

Impact
Rating

Influence
Rating

Support
Rating

Involvement
Rating

Communication
till date

Channel

High

Medium

Medium

Medium

Formal & informal


both

In Gram
Sabha

High

High

High

High

Formal

PRI
Meetings

PR
Department

High

High

High

High

Formal

PRI
Meetings

Line
Departments

Medium

Medium

Medium

Medium

Formal

Standing
Committees

High

High

High

High

Formal

PRI
Meetings

Engineering
Staff

High

High

Medium

High

Formal & informal


both

PRI
Meetings

Accounting

High

High

Medium

High

Formal & informal


both

PRI
Meetings

High

High

Medium

High

Formal & informal


both

PRI
Meetings

Citizen
PRI

Staff
Operational
Staff

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9.1.2

Detailed Project Report - Bihar

Awareness and Communication Plan

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

Awareness Generation Strategy


The following channels shall be used as mediums for communicating with the employees and
citizens and creating awareness about the new system and processes:
(i)
(ii)
(iii)
(iv)
(v)
(vi)
(vii)

Orientation workshops
Scheduled activities for change management exercise
Road Shows/ Skits
Duggi
Posters
SMS
Through NGOs

Official Communication Strategy


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

Release of supporting
management program

Departmental

Orders

for

implementation

of

change

Use of other channels of communication


(i) Informal channel of communication peer groups, forums and employee unions.
(ii) Use of grapevine channel of communication handled by change agents and
champions.
Citizen Communication Strategy
(i) Use of gram sabhas
(ii) Information about the Panchayat State portal with details of service offerings
(iii) Effective use of ASHA for conducting awareness camps at grass-root level
(iv) At village level word of mouth is an efficient mode of spreading information and can be
accounted as one of the channel
(v) Duggi
(vi) Through NGOs
The following table gives the communication plans for citizens, PRIs and other government
officials.

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

Audien
ce

PR
depart
ment

Line
Depart
ment

ZP

BP

Mode
of
Deliver
y

Location
/ Venue

Launch
communicatio
n

Responsibili
ty

After 3
months

After 6
months

After
1 year

Worksh
op,
seminar
s,
email,
notice/
circular
s

PR
Departm
ent office

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

Secretary,
PR

Status update/
Need support

Status
update/
Action
required

Status
update
/
feedba
ck
sessio
n

Worksh
op,
seminar
s,
email,
notice/
circular
s

Office
location
of the
line
departme
nt

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

Secretary for
the
department

Status update/
Need support

Status
update/
Action
required

Status
update
/
feedba
ck
sessio
n

Worksh
op,
seminar
s,
email,
notice/
circular
s

PRI
Office

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

Chairperson,
Deputy
Chairperson

Status update/
Need support

Status
update/
Action
required

Status
update
/
feedba
ck
sessio
n

Worksh
op,

PRI
Office

Start of the
implementation

Pramukh,
Up-Pramukh

Status update/
Need support

Status
update/

Status
update

Action
required

/
feedba
ck
sessio
n

email,
notice/
circular
s

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

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Page 109 of 164

ePRI Study Project (Phase IV)

Audien
ce

Mode
of
Deliver
y

Location
/ Venue

Detailed Project Report - Bihar

Launch
communicatio
n

Responsibili
ty

After 3
months

After 6
months

After
1 year

Mukhiya, UpMukhiya

Status update/
Need support

Status
update/
Action
required

Status
update
/
feedba
ck
sessio

that require a
communication.
Need basis

GP

Worksh
op,
email,
notice/
circular
s

PRI
Office

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

changes/
developments
that require a
communication.
Need basis

Citizen

Notice/
circular
s, SMS,
Public
Announ
cement
(Duggi)

Nearest
PRI
Office

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

Respective
Public
Representati
ve

Status update/
Need support

Status
update/
Action
required

Status
update
/
feedba
ck
sessio
n

Citizen
Table 9.3: Communication Plan for Citizens
Vehicle of
Communication/
Medium of
communication

Gram Sabha,
Public
Announcement
(Duggi)

Key Message

Purpose of
Message

Launch of the
project, information

Make them
aware of existing

Elected
representatives

Identify them
before hand and

on schemes, health
camps and ration
coupons
distribution.
Citizens role and
responsibilities for

and new
services.
Inform about
ration coupon
distribution
schedule, health

not happy with the


present govt in the
state

take them into


confidence before
such mass
communication

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Sensitivities

Mitigation
Strategy

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ePRI Study Project (Phase IV)

Vehicle of
Communication/
Medium of
communication

Key Message

devolution of
powers to PRIs

Detailed Project Report - Bihar

Purpose of
Message

Sensitivities

Mitigation
Strategy

camps, student
scholarship
distribution.
Information
specific to
citizens needs
should also be
addressed.

PRIs
Table 9.4: Communication Plan for PRIs
Vehicle of
Communication/
Medium of
communication

PRI Meetings,
seminars,
workshops,
trainings,
notices, emails
and circulars

Purpose of
Message

Sensitivities

Mitigation
Strategy

Role and
responsibilities of
elected public
representatives

Make them
aware of the job
responsibilities
and day to day

It may lead to
conflicts between
various
committees of the

Identify and
anticipate conflicts
that may arise.
Plan for their

and other PRI


members such as
members of the
standing
committees.

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

PRIs and the line


departments.
Resistance from
the PRI officials
due to new
system being
introduced. Lack
of resources in the
early phase might
lead to chaos.

resolution in
advance.
Showcase the
benefits of the
change to counter
the resistance
from the
stakeholders.

Key Message

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ePRI Study Project (Phase IV)

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Government Departments/ Offices


Table 9.5: Communication Plan for Government Dept. / Offices
Vehicle of
Communication/
Medium of
communication

Key Message

Role and
responsibilities of
government
officials. Support to
be provided to the
PRIs to fulfil their
duties more
efficiently.
Seminars,
workshops,
Trainings,
Notices, emails
and circulars

Purpose of
Message

Sensitivities

Make them
aware of the job
responsibilities
and day to day
activities to carry
out. Creating
awareness on
Bihar Panchayati
Raj Act 2006
and other
government
orders.
Inform
stakeholders on

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

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

the changes that


will take place
pertaining to
ePRI. The
changes include
the new
processes, civil
and ICT
infrastructure

Other Stakeholders
Table 9.6 Communication Plan for other stakeholders
Vehicle of
Communication/
Medium of
communication

Guidelines

Key Message

Role, concessions,
grievance
methodology

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Purpose of
Message

Make them
aware

Sensitivities

Suppressing
information
fearing dilution of
importance

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

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SECTION C
10 Implementation Strategy
This section provides a detailed plan for implementation of the ePRI application in the state, listing down all
implementation of the project is spread over a period of 36 months. All the activities are classified under:
Preparatory Phase, RFP Phase, Deployment Phase, Operations & Maintenance Phase; and
timelines defined for each of these activities with due care to inter-dependency of activities.

Summary

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

This section does not result into any cost component.

Value for money in a private project may be in the form of Returns on Investment (RoI) but in a
Government project, which is largely citizen oriented, it depends on the service delivery; and
to that end the performance monitoring is important to provide incentives for improvement and
to ensure that service delivery is in accordance with the output specifications envisaged.
In accordance with this view, a Service Procurement Model has been recommended for
implementation of eGovernance in Panchayats. This would entail engaging a Service Agency
(SA), which would provision the ICT hardware, including the augmentation of servers at the
Data Centre, and connectivity at all the sites. The SA would also provide computer trained
manpower for operational support to Panchayats. Additionally, services of a Capacity Building
Agency (CBA) would be required for training the PRI officials and members on the usage of
the software applications. The payments will be made to the SA on a monthly basis and would
be tied down to the quality of service provided by them. Depending upon the market dynamics
and capacities of the interested agencies the services of SA and CBA may be sourced from a
single agency.
The project implementation could be classified into the following broad level activities:

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

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

Supply, installation, configuration and commissioning of horizontal connectivity to Zila


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

Customization of ePRI software application; design and development of state specific


module; testing and implementation of state ePRI software application

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

Sustenance period

Training

Project management

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The tasks associated with these activities are briefly described in the following table:
Table 10.1 Project Implementation Activities and Tasks
S.
No.

Activities
Supply,

installation,
configuration and
commissioning of
state
central
server
side
hardware
Supply,
installation,
configuration and
commissioning of
PRD and PRIs
level hardware

Customization of
the
ePRI
software
application;

Tasks
This activity involves:
a.

The supply of all necessary application servers


and related software by the Service Agency/
System Integrator (SI).

b.

Commissioning of the hardware at the Bihar State


NIC data centre to host the ePRI application

This activity involves supply and successful


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

Service Agency implements the ePRI application


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

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

Preparation of Software Requirement


Specification (SRS) design,
ii.
Preparation
of
Software
Design
Document (SDD),
iii.
Design,
iv.
Developing,
v.
Testing,
vi.
Deploying,
vii.
Pilot implementation
viii.
State wide roll out of the state ePRI
software application.
Implementation also has to integrate legacy
applications like PlanPlus, PRIA soft, Panchayat portal
with the ePRI system.

Data Entry/ Data


migration,
validation
and
porting of legacy

Service Agency has to digitize/migrate the data as


specified by the department. Primary validation would
be the responsibility of the Service Agency where as
final validation could be done either by third party or the

data

department.

Responsibility
Centre
SA

SA

SA

i.

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SA
/
Line
Department

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ePRI Study Project (Phase IV)

S.
No.
5

Activities

Detailed Project Report - Bihar

Tasks

Sustenance

Service Agency would provide all support to department


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

Training

Training for ePRI Application would be provided to the


PRI officials / members etc. for successfully operating,
managing the ePRI system.

Project
management

On overall ePRI project would be managed by the PMU


structure as detailed in subsequent section for the
successful implementation of system in compliance with
the timelines

Responsibility
Centre
SA

Capacity
Building
Agency
PMU

10.1.2 Project Implementation strategy


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

Bid Process management - Appointment of Service Agency for implementation of ePRI


system, who will perform following activities:
-

Supply, installation, configuration, commissioning and acceptance test of state central


server and site (Including PRD and PRIs) software and hardware for the ePRI
system.

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


hardware

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


locations.

Design, development, testing, configuration, implementation and acceptance test of


software applications.

Creation of PRI master data and digitization of recommended databases

Sustenance period operation

Implementation of Change Management and Training Plan

Project Management, Monitoring ,and Evaluation

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

Complexities of multiple types of PRIs across the state

Technology challenges

Low level of IT maturity and adaptability of technologies across users

High level of interdependencies between various entities etc.

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

All stakeholders can be engaged

The objective for the Programme / project can be fully understood

The internal project and Programme management capabilities could be built

Specialist expertise and knowledge can be shared

Required high level interventions and support can be garnered

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

Provide clear focus on the objective

Identify and structure the inter-relationships between project and the departments
implementing from PRIs.

Ensure clear and decisive action plans are in place for implementation of the proposed
project

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ePRI Study Project (Phase IV)

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Provide confidence that improvements can be achieved through the Programme


implementation and that the change is sustainable

The SPMU and PMU will function under the guidance of the SPMC and DPC respectively; and
will be directly responsible and accountable for project implementation, day-to-day
management and coordination, and for meeting the administrative requirements pertaining to
ePRI project in Bihar. The PMU will provide information and thrust to adoption of good
practice, and guide and support the various entities involved on all aspects of project
implementation. The personnel included in the PMUs will be sourced from within and outside
the government.
The structures described above aim to develop management structures that will manage the
project efficiently and effectively, in economic and business terms. Although the formal
structures do not attempt to include all possible stakeholders, the SPMC, DMPC, SPMU and
the PMU will be responsible for consulting with stakeholders when necessary, for taking their
views fully into account during project implementation, and for involving them wherever
required.
10.1.2 Key Considerations for Implementation
Bihar has negligible penetration of IT in PRIs. The project has ambitious goal of streamlining
and automating both internal functioning of the PRIs and service delivery from PRIs to citizen.
Bihar has various challenges in terms of civil infrastructure, resources and security at majority
of the Gram Panchayat. The key consideration for phasing are given below

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

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

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

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

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

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ePRI Study Project (Phase IV)

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Table 10.1: Key Parameters and their impact


Impact on Implementation
High

Medium

Low

Security at PRIs,

Vacant position at

Poor availability

specifically at Naxal
effected regions

PRIs

Lack of planning

Importance of the parameters

Civil Infrastructure at
High

of electricity at
GPs

and accounting
skills

PRIs, specifically at
Gram Panchayat

Institutionalization of
To Be Processes

Compliance of PR Act
2006

Formation of PMU
Medium

ICT connectivity
at PRIs

Formation of SPMU
None

None

Low

Civil
Infrastructure
at PRIs,
specifically at
Gram
Panchayat

Security at PRIs, civil Infrastructure at PRIs and institutionalization of To Be Processes has


highest dependency for implementation of the project and at the same time these all are out of
the scope of ePRI project. Compliance of PR Act 2006 can be undertaken by the state PRD.
10.1.2 Project Phasing
The project may be divided into five phases on the basis of key consideration mentioned in
above section. This an indicative phasing approach, however it will have to be validated by the
state before undertaking the implementation. The key activities at each phase are shown in
the table below.
Table 10.2: Key activities - Phase Wise
S.No.

Phase 1

Phase 2

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Phase 3

Phase 4

Phase 5

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ePRI Study Project (Phase IV)

S.No.

Detailed Project Report - Bihar

Phase 1

Phase 2

Phase 3

Phase 4

Phase 5

Establishing ePRI
Project
Governance
Structure

Installation and
commissioning
of
ICT
infrastructure at
server site

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

Installation and
commissioning of
ICT infrastructure
at
Village
Panchayats

Operations
and
Maintenance
of
ICT
infrastructure
and
ePRI
Application
Software

Selection
of
Implementation
and
Capacity

Installation and
commissioning
of
ICT

Imparting
training to all
district and block

Imparting training
to
all
Village
Panchayat level

Reinforceme
nt trainings

Building Agency

infrastructure at
PRD and in two
pilot districts

level users

users

Institutionalization
of
BPR
recommendations

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

Go Live in all
Zila Panchayats
and Panchayat
Samiti

Go Live in all
Village
Panchayats

Establishing
Legal Framework
for
implementation of
ePRI

Data digitization,
Migration
and
Mapping

Visioning
workshop
involving all the
stakeholders

Customization of
Panchayat State
portal and Go
Live in Pilot

Phases of the project will be overlapped with each other. However, parallel execution of the
two complete phases is not possible. Phase 1 predecessor is phase 2 and phase 1 and 2 are
predecessor two all other phases. Phase 1 and Phase 2 will establish the required program
governance and legal and ICT infrastructure for rolling out the ePRI across the state.
Irrespective of the phasing approach finalized the implementation of the ePRI project in the
state of Bihar can be completed as per the following project plan.

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9.2 Project Plan with Timeline


The detailed project plan with responsibility centre is shown in below table.

1
2
3
4
5
6
7
8
9
B

1
2
3
4
5
6

Preparatory Phase
Formation of CPMC by MoPR in consultation with CLMs and NIC
Visioning workshop for CPMC by MoPR
Directing the 34 state governments to form SPMC comprising of SLD and NIC
representatives
State-level visioning workshops in 34 states (also involving CEO ZPs)
Formation of CPMU to assist the CPMC
Selection from empanelled agencies for formation of 34 SPMUs
Formation of 34 SPMUs to assist the SPMC
Directing the 579 Districts to form DPMC (headed by CEO, ZP) comprising of SLD and
NIC representatives
District-level visioning workshops in 579 districts
RFP Phase
Preparation, Approval & Release of Model RFP including SLA at central level
State-wise prioritization of services to be rolled out and issue of necessary GOs
Data gathering by 34 SPMUs for finalization of BOM based on inputs by DP/BP/GP
Customization of Model RFP at 34 states and approval by SPMC
Release of RFP, Pre-bid, corrigendum & proposal submission by Service Agency
Techno-commercial evaluation, selection of service agency, negotiations & contract
signing

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14 to 48

13

12

11

10

Tasks

S.No

Timelines (Months)

ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

7
8
C
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18

District-level kick-off meetings in 579 districts with vendor


Finalization of implementation plan with vendor
Deployment phase
ICT Hardware
Site survey for the user level hardware and Network installation
Preliminary inspection of hardware and network components
Network and hardware Installation and commissioning at data centre
Network & hardware Installation & commissioning at PRD
Network & hardware Installation & commissioning at DPRO and ZP
Network & hardware Installation & commissioning at BP
Network & hardware Installation & commissioning at GP
Acceptance tests for the network and hardware by Panchayat Secretary, EO-BP,
CEO-ZP
Onsite inspection
Data Entry
Mapping of Data, data entry and validation
ePRI application development
Preparation of SRS, Design documents and test plans
Software development / customization / integration
Installation and Configuration of software
User Acceptance Testing for state-specific applications
Manpower and Training
Deployment of manpower at locations
Preparation of state-specific training plan and approval
Imparting training as per training plan
Training Completion report, feedback and sign offs

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14 to 48

13

12

11

10

Tasks

S.No

Timelines (Months)

ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

D
E
1
2

Operations and Maintenance


Ongoing project management
Sustenance Effort
Project Evaluation

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13

12

11

10

Tasks

S.No

Timelines (Months)

ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

11 Project Management Structure


This section provides details of the project management structure that needs to be constituted to implement
the ePRI project in the state. The details of the various committees to be formed at the Centre/ State/
District level, their composition and the roles & responsibilities are detailed out in this section. The State
Project Management Committee (SPMC) and the State Project Management Unit (SPMU) at the State and
the District Project Management Committee (DPMC) at the district will be responsible for implementation of
Project Management Committee (CPMC) & Central Project Management Unit (CPMU) at the central level.
Additionally, a Block Support Group (BSG) will be required at every block to provide inputs to the SPMC and
SPMU for effective monitoring. Also detailed here is the monitoring and evaluation framework with a
suggestive list of monitoring meetings that should be conducted and the reports expected monthly / quarterly

Summary

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

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


This section has impact on the project cost in terms of the PMU costs for the state and the districts for the
three years. The total ePRI State PMU cost for three years is Rs. 12.10 crores and the cost of BSG is 26.
crores approximately..

11.1

Governance Structure

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

Clarity in Roles and Responsibilities

Adequately robust and flexible Implementation Structure

Reach and participation till grass root level

PRIs function at the village, intermediate (block) and district level. There are approximately
2,34,030 Gram Panchayats at the village level, 6053 Janpad Panchayats at the block level
and 535 Zilla Panchayats at the district level. There are more than 31 lakhs elected
representatives at all three tiers.
Given the enormity and complexity of the project, the implementation of the same requires a
robust and still flexible project governance and management structure. The objective of project
management is ensuring the implementation of the project as per the defined requirements,
timelines, deliverables and budget. The project monitoring teams will be responsible for
managing the overall project execution by the selected Service agency(ies) and ensuring that
key objectives of the project are met and issues are highlighted in a timely manner.
It is proposed to have well defined governance structure at Centre i.e. the Program Review
Board with representatives from MoPR and each State. Further, it is proposed that Project
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Management Unit (PMU) to be designed and set up at two critical levels of project
implementation namely at the centre MoPR and at the state State PR.
It is imperative to have participation from all the key stakeholders viz MoPR, NIC, DIT and key
Central Line Ministries at the Central level. The project implementation will be led by the
Centre and States have to be key participants in this endeavour. Unlike other MMPs, ePRI
MMP program governance structure will have participation till the grass root level i.e. the Gram
Panchayats, which can be made possible by involving the Districts and blocks in the
implementation process. Hence a three tier structure is proposed for program governance of
ePRI MMP implementation:

Central Level Body Headed by Program Review Board (PRB)

State Level Body Headed by State Programme Management Committee

District Level Body District Programme Management Committee

Sections below detail out the structure, roles and responsibilities of each of the above
mentioned level of program management structure proposed.
11.2

Project Management & Governance Structure at Centre

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

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

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


Board to advise the government and monitor the progress of the over all
programme. The board will have representation from all states and NIC
under the coverage of e-PRI MMP. This will be chaired by Secretary,
MoPR, GoI and convened by the Mission director / JS, e-PRI.
b. Sub-Committees - As part of the PRB, it is proposed to setup the following subcommittees to manage the respective areas. These committees will have
representation from a few states:
i. Technical and Standards Specification Committee This will also
include members of technical institutions. Its responsibilities will
include:

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Provide & finalize technical specifications, keeping in


mind the cost and sustainability issues, so that the same
could be adopted in proposed software

It will also include domain experts and members of


academia (NIRB, IIPA etc.) engaged in study and
research on matters relating Panchayati Raj and local
governance. Its responsibilities will include:
o Ensure adoption of the prevailing suitable
standards
o Develop domain specific standards if any
ii. Domain Advisory Committee - Its responsibilities will include provide
domain expertise in the following areas:

PlanPlus

ActionSoft

National Panchayat Directory (NPD)

PRIAsoft

ServicePlus

Profiler

Taxation

National Panchayt Portal (NPP)

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


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

Officials from NIC and MoPR

Contract / Consulting staff

Support staff

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

Project Leader - 1, NIC

Project Manager 1 PC

Technology Consultant - 1 (SC)

Capacity Building Consultant - 1 (SC)

Bid Process Expert 1 (PC)

State Project Coordinators 9 (1 each for minimum 4-5 States)

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Figure 11.2: CPMU Structure

The CPMUs primary responsibilities will include:


The broad responsibilities include timely completion of the project, Quality of deliverables, SLA
Monitoring mechanism, Risk Assessment Framework, Monitoring and Evaluation mechanism
and the Methodology and framework for reporting. The detailed responsibilities of the Central
PMU would include, but not be limited to, the following:

Execute the guidelines finalized by the PRB

Execute the decisions finalized/approved by MoPR

Analyze proposals on ePRI received from states.

Manage coordination between the sub-committees and the PRB

Provide support to the sub-committees and the PRB.

Oversee day-to-day functioning and

Manage overall coordination and liaisoning with states

Preparation of Project Plan with detailed activities and timelines in consultation with
Service Agency (ies)

Validation of Design formats prepared by Service Agency (ies) for data exchange between
centre and state, to meet the MIS requirements of MoPR

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


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

Ensuring Strategic control of the project with Centre

Working on the regular inputs provided by the State PMUs

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

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

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

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

Coordination and Liasoning by State Project Coordinator with various State PMUs.

Resolve the issues raised by the SPMU on the implementation issues like SLA,
technology, standards and domain issues etc.

Setting Guidelines for SPMU to Review / monitor the progress implementations by the the
State agency

Assist to approve release of funds to the states for the project and their utilization.

Guiding and assisting the SPMU on maintaining quality and on time delivery / closure of
milestones of the Project by State Service Agencies.

Design parameters, metrics and methodology for collecting actual hardware and other
supporting infrastructure requirement at the 3 tiers of PRIs for the states.

Designing the MIS reporting & monitoring frameworks for the project

Issue identification, tracking, escalation and resolution management between Centre,


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

Coordination with different stakeholders and


understanding of issues between stakeholders

Tracking timelines vis--vis the project plan and taking necessary action in case of

agencies

and

ensuring

common

slippages in coordination with SPMUs

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

Monitor implementation of training plan in coordination with SPMUs

Vetting of reports and deliverables of the State IA through respective SPMUs

Supporting the MoPR in selection of an agency for conducting 3rd party Audits of the ePRI
MMP, as required under the RFP.

Maintenance of central repositories / tools for best practices, knowledge sharing

Validate the Exit plan for the various Service agency (ies)

Develop detailed Exit plan for the CPMU at the end of contract period

Capacity Building and Knowledge transfer to the MoPR as per the Exit plan

11.3

Programme Management and Governance Structure at State

The State Governance structure would have two layers as shown in figure below. An Apex
State Programme Management Committee (SPMC) for guidance and direction headed by the
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Chief Secretary PR of the state and the second level consisting of State Programme
Management Unit (SPMU).
Figure 11.3: Programme Governance Structure at State Level

Constitution of the Governance entities at State Level


State Programme Management Committee:

Chief Secretary

Principal Secretary (In charge of the PR Department)

Representative of Finance Department

HODs of identified SLDs Department

State IT Secretary

NIC Representative

Internal domain specialist (full-time)

Representative of State DIT

Representative from NIC (SIO / SIO coordinator)

Representatives from 3-4 District Programme Management Committees on Rotation basis

Technical & Change Management Experts - Internal / Hired from industry and reputed
institutions

Any other person deemed fit by the Secretary

Role of State Programme Management Committee at the State level:

Overall guidance

Decisions on Policy matters

Approval of all deliverables by various agencies/groups

Financial Powers as per delegation

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Selection of Service agency / ies at the State

Monitoring and quality audit of activities performed by service agency at the State

Review of FRS at State level

Monitor implementation of BPR and Change management

Exercise Strategic Control

Ensure certification from Certifying agency on application developed before full State level
roll-out

Ongoing support and guidance to SPMU

Structure of State PMU for Implementation of ePRI MMP

Project Manager- 1 (PC)

Technology Consultant- 1 (SC)

Capacity Building Consultant- 1 (SC)

Bid Process Expert - 1 (PC Part time)

Zonal Coordinators (1 SC and 1 JC, each, for a zone of 5 districts)


Figure 2.4 :SPMU Structure

Role of State PMU


The broad responsibilities include timely completion of the project, Quality of deliverables, SLA
Monitoring mechanism, Risk Assessment Framework, Monitoring and Evaluation mechanism
and the Methodology and Framework for reporting. The detailed responsibilities of the State
PMU would include, but not be limited to, the following:

Design parameters, metrics and methodology for determining the actual requirements
before project commencement

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Designing the MIS reporting & monitoring frameworks for the project

Assist the SPMC in selection of service agency / ies at the State


o
o

Customizing the Model RFP


Bid Process Management for the State PR for selection of State Service
Agency
Pre-bid conference
Techno commercial evaluation
Negotiation and contract finalization

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

Review of FRS

Assist the SPMC in identifying areas of customization needed in the core applications.
Monitor the customization of core applications by SIA.

Validate the IT security/Business Continuity Plan developed by IA and monitor its


implementation

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


of deliverables by close coordination with State Implementation Agencies

Tracking timelines vis--vis the project plan and taking necessary action in case of
slippages

Assist the SPMC in prioritizing the legal changes required for implementing the
reengineered processes.

Validate Training Plan developed by Service Agency

Monitor implementation of process changes. Assist SPMC in issue of GOs for


institutionalizing the changes

Monitor the imparting of training till GP level by SIA.

Vetting of all progress reports and deliverables of the SIA

Providing the required inputs to the Central PMU on regular basis

Serve as secretariat for SPMC for the Project

Ensure certification from Certifying agency on application developed before full State
level roll-out

Impact assessment after project go live with respect to evaluation parameters gathered
during the baseline survey

Defining detailed Exit plan for the PMU at the end of contract period
o Ensuring knowledge transfer to the SPMC as per the Exit plan

The Zonal Coordinators will have overall responsibility for the implementation of the project
in districts and is accountable to SPMC and Project Manager, SPMU. The responsibilities of
the Zonal Coordinators will be:

Implementation of direction received from SPMC and Project Manager, SPMU

Project implementation in the respective district

Providing directions and guidance to Block Support Group and PRIs

Liasoning and Coordinating with the relevant officers at district level

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Enabling full knowledge and systematic application guidance to the implementation


agency team in the initial stages and the testing and approval of the deliverables at the
intermediate stage and finally the monitoring and analysis of reports for their respective
districts as well as centrally for the entire state, to assist the SPMU and SPMC.

Orienting the stakeholders on the structure and methodologies of project implementation


and usage by conducting periodic workshops to discuss progress on the project and to
identify and solve emerging problems

Enabling effective transfer of knowledge and lessons learnt to the people involved in the
project

Address concerns / enquiries / complaints referred to the SPMU by stakeholders for their
respective districts under the Zone

Implementing procedures developed by SPMU to regularly monitor the performance of the


project, and preparing regular monitoring reports based upon information submitted by the
Block Support Group and the various service agencies

Guiding Block Support Group to prepare progress reports on a regular basis and collating
the same at SPMU level for their respective districts

Coordination with the other Zonal Coordinators to ensure effective knowledge transfer/
adherence to common guidelines and adoption of best practices across all the districts

Enabling regular monitoring through visits by block support groups to various PRIs under
the blocks and escalating concerns if any.

Enabling effective adherence of of SLAs by Service Agencies by setting common


standards / reports to and guiding block support groups to monitor the same for their
respective PRIs under the block.

Monitoring Training Plan and adherence to the same by coordinating and liasoning with
the various stakeholders and service agency

Enabling adherence to the Exit plan by the service agency with help from block support
group at the end of the Contract.

A District Programme Management Committee (DPMC) will be constituted at each District


level headed by the Chairman ZP of the district, for guidance and direction to the the Block
Development Officers of the respective blocks who will work in close coordination with the
Block support group for monitoring the implementation of the project in the Gram Panchayats
under the respective blocks.

Figure 11.5: Programme Governance Structure at District Level

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DPMC will have responsibility of district wide successful implementation of the project. The
structure of DPMC is shown below with the help of following organization chart.
Figure 11.6: DPMC structure

DPMC will be headed by Chief Executive Officer, ZP. DPMC should have District Officials of
line departments who are implementing their schemes through PRIs; DIO, NIC for technical
support; 3-4 BDOs on rotation basis; representative from 3-4 GPs on rotation and if required,
locally recognized activist working for improvement of PRIs system in the district.
The DPMC has the responsibility for overall implementation of policy directives of SPMC,
guidance and coordination for all project activities related to ePRI. The DPMC will play a key
role in implementation of project and the systemic reform that the project will initiate. The
DPMC will monitor the district wide ePRI project implementation at district level by
coordinating with the BDOs and the Block Support Group.
DPMC will have following role and responsibilities.
Implementing the direction received from SPMC
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Guiding the work of the BDO and Block Support Group


Reviewing implementation progress periodically
Considering recommendations put forward by BDOs
The DPMC is proposed to meet at least monthly although ad-hoc meetings may be convened
by the Chairperson based on needs. Block Support Group at all the blocks will have the
responsibility of providing the necessary support to the BDO, DIO and assisting the Zonal
Coordinators of various districts at the SPMU level.
The responsibilities of the Block support group will be:
Implementation of direction received from Zonal coordinators at SPMU
Project implementation in the respective PRIs under the block
Liasoning and Coordinating with the relevant officers at block level
Assisting the Zonal Coordinators to collect the actual requirement of hardware for the
PRIs at Block and below level.
Liasoning and Coordinating with Service Agency contact person at Block level and
below.
Regular Monitoring and reporting on the actual status of implementation, hardware
deployment, training etc.
Enabling adherence to timelines and project plan by effective coordination
Surprise visits to various PRIs under the block to check the actual implementation status
and validate the status reported by the Service agency.
11.4

Monitoring and Evaluation

The Monitoring and evaluation mechanism is indispensable for successful implementation of


such a large scale project. A standard approach is required to minimize the risk and deviation
of the project from timeline and scope. Three tier structures have been proposed for
monitoring the project as explained under above section. The various reports along with
frequency and content is shown below.
Table 11.1 Details of State Level Review Meeting
Sr.

Details

Monthly
Meeting

Quarterly
Meeting

Progress

Progress

Review

Review

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Monitoring Aspects

Participants

Deviation from Project Plan

SPMU

Key issues in implementation of


Project plan

District specific challenges

Strategic
SMPC

Strategic decision from SPMC

Review of Monthly
meeting of SPMU

decision

required

by

progress

SPMC
SPMU

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Sr.

Detailed Project Report - Bihar

Details

Monitoring Aspects

Half Yearly Progress Review


Meeting

Participants

Financial and physical progress of


the project

Support and
from CPMU

Key challenges for implementation


of the project

Revision of project plan if required

Changes in SPMU structure/ staff

guidance

required
SPMC
SPMU

and

SPMC and SPMU should also conduct the field visit to assess the project progress and gaps
in implementation. State level filed monitoring components are shown below.
Table 11.2 State Level Field Monitoring
Sr.
A

Details

Coverage

Aspects To Be
Covered

Activities

State Committee
Surprise Inspections

SPMU

Monthly
Field
Monitoring Plan

A PRI

1 CP
4 VP

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Resources
provided to PRIs

Compliance
report
from ePRI portal

Functioning
PRIs

of

Grievance from ePRI


portal

PRI
elected
member
satisfaction

PRI home page at PRI


portal

Citizen satisfaction

Interviews
interactions

and

Inspection
documents

of

On spot verification of
all the aspects and
filling up these details
in portal in detailed
format developed by
CPMU

Installation/
functioning of ICT
hardware

Installation/
functioning
networking/
connectivity

of

Installation/
functioning of ePRI
application

Implementation of
CMT

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The various reports from SPMU to CPMU will be required for enabling regular monitoring by
CPMU of the project. The trigger will be generated to CPMU if SPMU has not submitted the
report on time. The CPMU is responsible for reminding the SPMU for submission of report on
time and presenting the multiple default case to CPMC.
Table 11.3 Proposed Periodic Reports
Sr.
1

Name Of The Report


Monthly Physical Progress Report

Monthly Financial Progress Report

Half Yearly Progress Report


Financial & Physical

Quarterly
report

Hardware

Installation

Quarterly CBT report

Quarterly Networking report

Monthly application development


report

Monthly implementing
performance report

agency

Information Content

Schemes and service implemented from PRIs

Installation/ functioning of ICT hardware

Installation/ functioning of networking/ connectivity

Installation/ functioning of ePRI application

Implementation of CMT

Ratio of Utilization reports from ePRI system and


manual submission

Total number of SoR from ePRI system

Fund utilization status of schemes and ePRI project

Regularity of physical and financial reports from


district

Quality of data available in reports

Deficiency in reporting

Issues in functioning of ICT hardware

Issues in functioning of networking/ connectivity

Issues in ePRI application

Number of people trained in a quarter

Type of the training and batch size

Utilization of fund and future requirement

Estimated number of people to be trained

Specific training requirements from SPMU

Connectivity mapping with required and existing

Approximate uptime of the network

Issues in functioning of networking/ connectivity

Average uptime of the ePRI application

Extent of usage of ePRI application

Bugs/ improvement areas in ePRI application

Additional requirement in ePRI application

Compliance of SLAs related to ICT hardware,


networking, ePRI application and CMT.

All the reports will be posted using web forms available under MIS and KPIs module of the
ePRI application. The Block reports will be sent through BDOs and DPMCs after their review
and then collated at Zonal Coordinator level at SPMU level. Zonal Coordinator will be
responsible for collation of block reports sending it to Project Manager, SPMU. However, if
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there is administrative dependency and the delay is because of non responsiveness of the
person out of the control of Zonal Coordinator or Block Support group; the Zonal Coordinator,
Block support group and the BDO should be highlight such case to DPMC and same should
be reflected in the MIS reports.
The same set of the collated report will also be required from SPMU to CPMU with status of
their respective States.

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SECTION D

12 Financial Solution
This section provides an estimation of the total project costs as well as head-wise & year-wise cost break-ups.
Support Group (BSG), Project Management Unit (PMU at the State and Central Level) and Information,
Education and Communication (IEC).
The total Project Cost for the state of Bihar is INR 381.47 crores out of which 55% will be incurred in

Summary

The Costs are divided into 6 heads: ICT (Hardware, Software and Network), Manpower, Training, Block

ICT provisioning, 29% on Manpower, 6% on Training, 7% on BSG, 3% on PMU and the remaining 0% on
IEC.

The ePRI project implementation in the state of Bihar is estimated to cost about INR 381.47
crores including the cost of provisioning the ICT infrastructure, capacity building, state level
project management units, block support group and IEC cost. The major assumptions on
which this financial solution is based are listed in the Annexure c.
Over all Head Wise Break up

Implementing e-PRI project in Bihar would incur a total cost of Rs. 381.47 cr. This includes
costs related to ICT (Rs. 207.63 cr), deputing IT trained manpower at each level of PRI (Rs.
112.20 cr), training of officials and PRI members (Rs. 21.38 cr), providing block support group
(Rs. 26.31 cr), establishment of State Program Management unit (Rs. 12.10 cr) and finally
towards Information Education and Communication - IEC ( Rs. 1.84 cr). The table and graph
below presents a brief snapshot of head-wise break up of total cost that shall be incurred in
implementing e-PRI project in Bihar.

HeadWiseCost(inCrores)

Headwise Estimated Cost (is Rs Cr)


No

Head

12.10,3% 1.84,0%

Cost

ICT

207.63

Manpower

112.20

Training

21.38

BSG

26.31

Program Management Unit

12.10

IEC

26.31,7%

ICT

21.38,6%

Manpower
Training
BSG

207.63,55%

ProgramManagement
Unit
IEC

112.20,29%

1.84
Total

381.47

Further sub-sections show a component-wise break-up of the costs.

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Year Wise Break up


The total cost of the project has been distributed in four years basis the implementation plan
provided in section 10. The table below presents the overview of the year wise breakup of the
total cost that shall be incurred during implementation of e-PRI project.

YearlytotalCost(InCr.)

Yearly Cost (in Cr.)


No

Year

Cost

Year 1

37.43

Year 2

122.50

Year 3

127.34

Year 4

94.20

Total

381.47

Year4,
94.20,25%

Year1,
37.43,10%

Year2,
122.50,
32%

Year1

Year2

Year3

Year4

Year3,
127.34,
33%

It can be inferred from the table above that nearly 10% of the cost is estimated to be incurred
in the first year. 32% and 33% shall be incurred during year 2 and year 3 respectively. Finally
the rest 25% of the total cost would be incurred during year 4.
Yearly Head wise breakup
Broadly the cost estimates have been categorized under State ICT cost, Payout to Service
Agency (PRIs ICT & Manpower), Training related cost, cost related to BSG, Program
Management Unit and IEC.
The following table depicts the yearly cost estimates against each of the cost heads:
Estimated ePRI Project Implementing Cost Break Up (is Rs Cr)
No
1
2
3
4
4
5

Items
State ICT Cost
Payout (PRIs ICT + Manpower)
Training
BSG
Program Management Unit
IEC
Total ePRI Project Cost

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Year 1
1.72
24.73
3.56
1.91
3.66
1.84
37.43

Year 2
0.72
102.37
7.13
8.26
4.02
0.00
122.50

Year 3
0.77
106.09
7.13
8.92
4.42
0.00
127.34

Year 4
0.84
82.58
3.56
7.22
0.00
0.00
94.20

Total
4.05
315.78
21.38
26.31
12.10
1.84
381.47

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ePRI Study Project (Phase IV)

Year 1
Year 1 would be stone setting year for the project.
Project will be kicked off with constitution of
various committees and State Program
Management Unit. It can be inferred from the
graph that 65% of the total cost incurred during
Year 1 shall be towards deployment of ICT & IT
trained manpower at each tier of PRIs in terms of
payout to the PRIs. The first 5 months as per the

Detailed Project Report - Bihar

Year1Headwisecost(InCrores)
StateICTCost

1.84,5%
3.66,10%

1.72,5%

Payout(PRIsICT+
Manpower)
Training

1.91,5%

BSG

3.56,10%
24.73,65%

Program
ManagementUnit
IEC

suggested implementation, the RFP will be


floated to select the Service Agency and the deployment of the IT Hardware and IT manpower
will begin from the 6th month of Year 1. Thus deployment of hardware and manpower at all
PRIs will be incremental over later 7 months of the year 1 and hence the payout will be
incremental in year 1 as well, which will depend upon the number of sites deployed in that
manner. The lump sum IEC cost is provisioned in Year 1 only and may be utilized by state
across across 3 years to generate awareness amongst the citizens and PRIs.

Year 2, Year 3 and Year 4


As per the implementation plan, the
Year2Headwisecost(InCrores)
deployment of IT Hardware and IT trained
StateICTCost
4.02,3%
manpower will happen incrementally in 7
0.00,0%
8.26,7%
Payout(PRIsICT+
months of the 1st year itself. Year 2 and 3
0.72,1%
Manpower)
7.13,6%
will see full fledged operation and
Training
maintenance support of ePRI system at all
BSG
PRIs, thus the payout to service agency
Program
ManagementUnit
for hardware and manpower will be larger
102.37,
IEC
83%
as compared to year 1. As the provision
for IT manpower is made for 3 years or 36
months for each PRI site, hence in year 4 the IT manpower support will end incrementally at
PRIs after first 6 months of full support. The cost incurred during these years would be heavily
constituted of IT skilled manpower deployed at each tier of PRIs, who will be responsible for
rendering the services as per the SLA defined. As seen in the graphs for year 2, 3 and 4, the
ICT and IT manpower payout is the larger cost head. PMU will also continue to provide its
services for the duration of 36 months (3 years) during the ePRI project implementation.
Training cost is budgeted for 36 months staring 6th month of year 1 till year 4. Capex for
setting up training infrastructure is included in year 1 itself.

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Year3Headwisecost(InCrores)

7.13,6%

StateICTCost

StateICTCost

4.42,3%
8.92,7%

Year4Headwisecost(InCrores)

0.00,0%
0.77,1%

Payout(PRIsICT+
Manpower)
Training

Payout(PRIsICT+
Manpower)
Training

82.58,87%

3.56,4% BSG

BSG

106.09,
83%

Program
ManagementUnit

7.22,8%
0.00,0%

IEC

0.00,0%

Program
ManagementUnit
IEC

0.84,1%

Monthly Payouts to Service Agency


The roll out of ePRI in BIHAR is proposed to be based on a a Service Procurement Model
(SPM), where a Service Agency(ies) (SA) will be selected through a competitive bidding
process by the States. The States may decide to engage multiple SA, region-wise or districtwise depending on local suitability
Once the contract with the SA is finalized a detailed implementation plan will be prepared by
the SA in consultation with the SPMC. The roll-out, in BIHAR, is expected to take 7 months
time during which the SA will deploy computers at all GPs / BPs/ ZPs in the State and also
provide trained manpower for providing services to the GPs/ BPs/ ZPs. Once the services start
at any GP / BP/ZP the SA will be provided a monthly payout for a period of 3 years as per the
following table:

ZP
BP
GP

Year 1(Rs.)
23512.39
11636.17
8906.00

Year 2(Rs.)
23974.29
11938.07
9223.90

Year 3(Rs.)
24473.15
12264.12
9567.24

Year 4(Rs.)
25011.91
12616.26
9938.04

The above monthly payouts have been calculated by assimilation of monthly cost incurred to
SA on following components:

CAPEX: This includes the cost of ICT infrastructure commissioned at each tier of PRIs

OPEX: This includes the cost of maintenance of ICT infrastructure

IT Trained Manpower: This includes the cost of IT trained manpower deployed by SA for
providing services to ZP/BP/GP
The table below detailed out the monthly cost estimation considered for the calculation of
payouts.

CAPEX (Monthly)

ZP
BP
GP

Year 1(Rs.)
17738.63
7862.41
4932.24

National Informatics Centre Services Inc.

Year 2(Rs.)
17738.63
7862.41
4932.24

Year 3(Rs.)
17738.63
7862.41
4932.24

Year 4(Rs.)
17738.63
7862.41
4932.24

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OPEX (Monthly)

ZP
BP
GP

Year 1(Rs.)
773.76
773.76
973.76

Year 2(Rs.)
835.66
835.66
1051.66

Year 3(Rs.)
902.51
902.51
1135.79

Year 4(Rs.)
974.71
974.71
1226.66

Manpower

ZP
BP
GP

5000
3000
3000

5400
3240
3240

5832
3499.2
3499.2

6298.56
3779.136
3779.136

Total Monthly
Payout

ZP
BP
GP

23512.39
11636.17
8906.00

23974.29
11938.07
9223.90

24473.15
12264.12
9567.24

25011.91
12616.26
9938.04

Annual Payouts

ZP
BP
GP

2680412.68
18536418.41
226114512.26
24.73

10932277.46
76069384.89
936742772.37
102.37

11159754.31
78146993.04
971610273.56
106.09

8554071.99
60293107.38
756950381.13
82.58

Total Payout (In


Crores)

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SECTION E
13 Recommendation and Conclusion
Decentralised governance and devolution of powers, an indigenous concept of local self
governance, is the most effective way to address the needs and interests of the citizens of
India in rural regions. With over two lack Gram Panchayats, having an efficient setup for such
governance becomes all the more pertinent. Through the ePRI Project, rural villagers would
participate directly in the planning processes and engage in various schemes being
implemented by the Government to ensure that their interests are being effectively served and
their money properly spent.
Long term success of this project has dependencies on more than one factor, failure or poor
performance of any one of them would have a significant impact.
Some of the key factors include:

Continuous driving effort at both centre and state level

Constant performance monitoring of all the schemes at all levels

Incessantly identifying gaps and loopholes along with their resolution

Leveraging advancements in technology at time of their inception

High level of flexibility and agility in adapting to changing eSolutions, for example mGovernance

Development of skill set among all stakeholders to be perceived as a long term objective

The key recommendations are listed below.

Line ministries of central Government should ask Department of Panchayati Raj of the
states with copy to respective department for implementing the scheme through PRIs.
PRD should call for joint meeting with department for doing the activity mapping for
implementing the scheme including the role of respective line departments district level
officials. The PRD should forward these directions to Executive Officers of the PRIs in the
state for implementing the scheme through PRIs and to respective district level officer for
assisting the PRIs in implementation of the scheme by providing domain expertise.

Automation of PRI meetings process for monitoring of PRI functioning

Preparation of annual meeting calendar of PRIs

Submission of details of PRI meetings and standing committee meetings including agenda,
participants and proceeding on Panchayat State portal

Linking of District Magistrate performance with PRI functioning

Monthly review of districts by state PRD Secretary

Planning process should be done as recommended in this report under section 6.1.1. Key
attributes of the recommended planning approach are given below.

Bottom up planning

Development centric planning

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Convergence of scheme

Creation of pool of planning resources

Time bound implementation and priority to the work undertaken by PRIs

Use of PlanPlus

Awareness program for building trust on planning

Implementation and monitoring of schemes by standing committee

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

Transfer of funds to respective PRIs account for all schemes for which Panchayat is
responsible for planning and implementation

Social audit and surprise inspection

PRIs should standard accounting application like PRIA soft for accounting

Component based BPR framework recommended in this report should be used for G2C
and G2G service delivery

Interim status update to improve transparency and accountability

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

Independent and dedicated Chief Executive Officer, Executive Officer and Panchayat
Secretary to Zila Parishad, Panchayat Samiti and Gram Panchayat respectively

A Panchayat secretary to each Panchayat

Skill up gradation of Panchayat Secretary

Office with basic facilities for PRIs

Development of regular office culture in PRIs offices

Provide skilled resources (Planner & Accountant) on contractual basis

Use of already available Panchayat State portal for integrating all PRIs applications

G2C service delivery related key recommendations are as follows

Removal of dependency on PRI for IGNOAPS

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

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

Availability of forms of all the services at Gram Panchayat level

Status update of the application on mobile and web

Activity level service level and escalation matrix for compliance

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

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

Key Recommendation for implementing G2C services are show below with explanation.
Process

Availability and submission of standardized forms online would have impact on all project
objectives. There would be high level of transparency since all rejections will have reasons
which are available to all. The decision making will also be improved by timely and instant
availability of applications, which will also enable better planning by all stakeholders. These
plans would reflect the needs of the citizens hence improve the service delivery. The

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employees will not have to spend time in consolidating lists manually resulting in higher
efficiency.

Approved system generated fund demand goes directly to Additional Director (SS). As per
the availability of the funds, Additional Director (SS) would transfer the funds to the BWO
who in turn would transfer these funds to the account of the pensioner. This will improve
the delivery time of the service to the citizens and at same time expedite the decision
making process and improvements in the internal process.

It is recommended that all applications requesting information should go through the online
Panchayat State portal and all decision making activities are tracked through the
automated workflow. Automation of process will lead to reduction in the number of primary
actors and secondary actors thereby reducing time taken for the process. Government
employees would have information / list available to them electronically

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

The current process of on the spot redressal is not a structured way of addressing
grievances and therefore it is recommended that new process of handling grievances
through the online Panchayat State portal should be promoted.

Introduction of PRI offices / CSCs would offer a convenient channel to start using RTI
service. The proposed To Be process needs to be completely aligned with the Right to
Information Act 2005. Public Information Officer cannot refuse to accept any application

In order to reduce the turnaround time for issuance of Pensions under IGNOAPS, cases
should not be discussed and approved by Gram Sabha and Gram Panchayat. IGNOAPS
guidelines do not require this process. Cases are discussed to remove the name of
beneficiaries who are not BPL on the basis of their current economic status. These cases
are very rare but delay the complete process by months

Availability of information online and through other channels would lead to high level of
transparency on subjects discussed, issues resolved, key decision taken in the past PRI
meetings. The date of upcoming PRI meetings would be readily available. This would also
improve the service delivery to citizens.

It is recommended that the online Panchayat State portal should be used by the BDO to
map the distribution of the ration coupons with the APL and BPL families in the block. The
order of distribution of ration coupons should be visible to all to remove any scope of
discrepancy.

To establish transparency in the distribution of funds, handling of exceptional case, certain


provisions have been recommended. Even if the name is not in the BPL list, the Mukhiya
has the authority to issue funds treating it as an exceptional case. Availability and
submission of forms online would have impact on all project objectives.

The supporting documents mostly include reference to BPL List, Death registration number
/ Death Certification, biometric of the applicant and digital photo of the applicant. Since

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BPL List is digitized along with the death registration number, all these attachments can be
made electronically and executed through an automated workflow

In order to reduce the turnaround time for issuance of Pensions, cases should not be
discussed and approved by Gram Sabha and Gram Panchayat. Widow Pension and
pension for physically challenged guidelines do not require this process

Establishment of a permanent office can allow the applicants to collect the EPIC when they
are ready. Early notification for those who needs to apply for EPIC.

It is recommended that the entire process of issuance of the certificate be followed


electronically. However, provisions have be made for the BDO that if the BDO is not
satisfied with the electronic information then manual set of activities can be followed.
Though this should not be encouraged and long term goal for successful implementation of
this process includes that all manual activities are kept at minimum level and avoided.

It is recommended that any payment received from the land holder should be made at the
PRI Office / CSC. This would lead to remarkable improvement in transparency and
accountability of lagan collection process Introduction of the electronic medium would
greatly improve the execution of the process and resulting in overall positive impact on all
the project objectives

The power situation in rural India is characterized by low and inconsistent power
supply. In a scenario where it is envisaged that all Panchayats would be computerized,
it becomes imperative to give due diligence to sources of power. While the mandate of
ePRI project does not include provision of power, some alternatives and associated
costs have been evaluated and are mentioned in Annexure d.
People

Setting up of PRI Offices/ CSCs will result in much needed transparency and accountability
especially at the entry point for availing the service. This will in turn lead to higher level of
satisfaction among citizens. PRI Offices/ CSCs would become the intrinsic part of the
process and result in the overall process improvement.

Setting up of the Education Committee (EC) in accordance with the guidelines defined in
the PRI Act 2006 of the State of Bihar will result in huge impact on all project objectives.
Composition of the members of the EC as per the PRI Act will lead to high level of
transparency and accountability. The decision making activities would be thorough and
quality of the service delivered to the stakeholders would rise significantly. Members of the
EC as defined by the PRI Act would ensure that the process of delivering the service
becomes more effective at the ground level. Also, the ownership on the government
employees would reduce as EC would be playing more active role in the process.

If birth or death registration request is coming after 21 days then the Panchayat Secretary
also includes statement of five witness and collects the affidavit from applicant

In situations where the grievances can be addressed in writing or verbally to the PRI
representatives, that process can still be followed. The PRI representative then asks the
respective officer to register the grievances.

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On an ongoing basis, Gram Sabha and PRIs in successive meetings may object to
distribution of certain kind of pensions provided to individuals. The name of the beneficiary
will be removed and further pension will not be released. Thus eliminating the need for
holding a Gram Sabha specifically for IGNOAPS

Technology

MIS based reporting can significantly improve the timely availability of data to the
stakeholders. This will have an impact on all the project objectives. The Transparency &
Accountability will enhance as the data will be instantly available to all government bodies
from PRIs to Central Government. The decision making will also be improved by timely
and instant availability of data, which will also enable better planning by government.
These plans would reflect the needs of the citizens hence improve the service delivery.
The employees will not have to spend time in consolidating multiple reports obviating the
compilation errors as well as spare them enough time to focus on other important tasks

Online availability of information would lead to high level of transparency since all
information would be available in advance. Decision making will improve due to timely
availability of information pertaining to the schemes. This will also improve the service
delivery to the citizens

Electronic medium and automated workflow would impact all parameters of the project
objectives

Real time tracking of the amount being sanctioned prevents the looping process in the
system. Automation of the activity and real time access can improve transparency and
reduce time lags. Decision making is also improved to a great extent

The compilation and regular updating of the lists can be automated.

Finally, introducing ICT can make governance reform easier. As use of ICT has spread rapidly
throughout Asian societies, centralized and bureaucratic government organizations face new
demands and competitive pressures from citizens and the business community. In general, egovernment projects increase the perception among citizens and businesses that the
government is modernizing and moving forward.

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14 Way Forward
This ePRI Study project, which is a precursor to the ePRI MMP, was initiated with a
comprehensive study to assess the current information and services needs of citizens, PRI
and other stakeholders. This study lead to the identification of the information and services
needs of various stakeholders, scope for re-engineering various functions and services carried
out by PRIs, formulation of detailed roadmap for the transformation of Panchayati Raj system
from existing state to e-PRI in Bihar.
The key activities in the DPR phase included: estimating ICT requirements, defining strategy
for roll-out, defining project management structure, defining monitoring and evaluation
structure, defining communication plan, defining change management strategy.
This phase focused on defining these components along with the associated outlays. The
implementation plan, detailing out the activities to be undertaken for project implementation is
charted out and the financial model for executing the ePRI MMP in Bihar is also defined. This
phase has resulted in head-wise cost break up of the ePRI MMP in the State, which will be
further aggregated with similar cost break up from a similar study being conducted parallelly in
other states to arrive at a nation-wide cost for executing the ePRI MMP across the country.
As a next step, the aggregated National Detailed Project Report along with the Expenditure
Finance Committee (EFC) note will be submitted by Ministry of Panchayati Raj to the Cabinet
for approval.

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SECTION F
I. Annexure
a. Glossary
Acronym

Full Form

BDO

Block Development Office/Officer

BOM

Bills of Material

BP

Block Panchayat

BPR

Business Process Re-engineering

Capex

Capital Expenditure

CBT

Capacity Building and Training

CEO

Chief Executive Officer

CSC

Citizen Service Centre

CSS

Centrally Sponsored Scheme

DPR

Detailed Project Report

DRDA

District Rural Development Agency

GP

Gram Panchayat

G2C

Government to Citizen

G2G

Government to Government

ICT

Information, Communication and Technology

I&S

Information & Service

Opex

Operational Expenditure

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b. Training Delivery Methods


1.

In-house training

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

Thorough understanding of PRI scenario - Training will be delivered by senior PRI


functionaries themselves who have a good understanding of the PR scenario in the state,
core PRI functions, rules and regulations, and the context in which trainees are expected
to implement their new skills and knowledge

Relevant content and delivery - Trainers will be well aware of the existing skill levels of
the trainees and hence will be able to design and deliver the training in an appropriate and
relevant manner

Availability of dedicated resources - Training resources will be dedicatedly available for


PRI employees, and hence the entire target audience may be covered relatively quickly

Flexibility in planning and scheduling - Conducting trainings in house may be more


convenient as training plans can be designed taking into account the staffs schedule
without disrupting their regular activities

Good post-training support - Post-training support will be better as faculty members may
be easily approachable since they work in the same department, and thus issues raised
while implementing the skills learned could be easily resolved.

Disadvantages

Lack of qualified training faculty Non availability of qualified training faculty is one of
the biggest challenges in providing in-house trainings. The staff available with PRIs have
limited skills sets and are also not dedicatedly available for conducting trainings

Inadequate infrastructure Currently PRIs have limited infrastructure available with them
to conduct trainings internally. Dedicated facilities such as Computers, Projectors,
TV/VCDs are either not available or require maintenance to be used for imparting
trainings. Besides, at some places civil infrastructure such as availability of rooms, power /
electricity etc also poses issues for conducting trainings. New infrastructure and equipment
will require significant expenditure

Lack of training expertise, tools and methodologies The PR department would need
to invest time and resources in developing training expertise in both technical and
behavioural aspects besides a professional and disciplined approach to training

Inertia and resistance to change - There may be departmental inertia and resistance to
change as a result of which skill development through internal training may only be
incremental rather than transformational

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2. Training from state level / regional level training agencies


The alternative to in-house training is leveraging the established state-level agencies (such as
SIRDs along with their regional centres if any) to develop, plan and deliver the desired
trainings. These are usually the government owned training institutes that specialize in
conducting trainings for government employees and can customize trainings to the specific
needs of a group of people. They have established training infrastructure including facilities,
IT/AV equipment besides trained faculty. These institutes usually employ faculty who have had
some association with government departments so that they can explain the subject to the
trainees with relevant examples and insights. In addition to classroom sessions, various
innovative techniques such as plays/ skits/ audio visuals/ study tours etc can be used as these
modes are cost effective for a larger group as compared to small batches.
Advantages

Trained and experienced manpower Training agencies in the state have professional,
specialist trainers available with them to develop and impart trainings. These trainers are
experienced and knowledgeable not only about the subject areas but also about the
functional aspects of training including tools and methodologies.

Adequate infrastructure Training institutes have well equipped and adequately planned
infrastructure such as class rooms, acoustically planned rooms for audio visual trainings,
availability of TVs, VCDs, Projector and Computers etc. to support the different sets of
training needs.

Better understanding of concepts and processes These training agencies employ


trainers who have a background in public services, such as retired officers, experienced
elected members, NGOs and similar specialized groups. This helps them have a better
and broader understanding of the existing process as they have widespread experience in
training different groups and can thus cross-pollinate best practices as well as learning
takeaways

Conducive learning environment - Special attention is paid to developing supporting


material (manuals, guides etc) for assisting trainees during and after the training.
Moreover, trainees may be more comfortable in asking questions and clarifying doubts
freely at these institutions compared to in-house trainings which are conducted by their
direct superiors.

Disadvantages

Lack of dedicated resources The facilities, faculty and other resources will not be
dedicatedly available for e-PRI trainings. The existing infrastructure may not be able to
cater to the entire training needs (in terms of training subjects, batch size etc). This may
result in delays in training the entire target audience.

Inadequate domain expertise - These institutes may lack domain knowledge or subject
matter expertise in some of the proposed training areas.

Issues in phasing and scheduling Since these institutes cater to several training
subjects and trainee groups, planning and scheduling ePRI training sessions could pose a

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challenge. Training calendar followed by these institutes is generally fixed and sometimes
does not give adequate importance to the regular activities of individual departments/
offices. Therefore, regular work-related activities of trainees will tend to get disrupted given
the scheduling constraints. In addition, travel and accommodation costs may increase
substantially if trainees need to travel to regional/central training centers.

Limited post training support After the trainings, trainees sometimes find it difficult to
manage and operate the same applications on a different system available in their
department, and may need on-the-job guidance and support. SIRDs may not be able to
meet this requirement.

Skill diversity among trainee groups It is observed that there exist significant
differences at the executive staff level across the districts, mandals, and grams in terms of
existing skills and knowledge. SIRDs generally train groups comprising trainees from
different districts. While this may encourage sharing of best practices, it may also hinder
training progress given the skill maturity and knowledge of certain participants relative to
others.

3. Training from external agencies on contract


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

Trained manpower and proven tools and methodologies Manpower available with
the external agencies specializes in various fields, and thus can provide high quality
trainings through well researched case studies and training material developed over a
period of time. They follow a structured professional approach to content development,
training design and execution.

Adequate infrastructure Many external agencies have well established training facilities
including class rooms, AV and IT equipment etc.

Access to best practices Most of these agencies have widespread training experience
across public and private enterprises as well as government departments, and thus may
be able to leverage their knowledge of best practices, tools and techniques to deliver a
superior training experience

High degree of customization These agencies may be able to provide customized


training solutions which may be able to better meet PRI requirements related to scheduling
and batch sizes, target skill level, training content etc
Disadvantages

High training costs Trainings conducted by external agencies often prove to be


expensive due to the following factors:
High cost of the trainers / faculty providing the trainings;
Charges for the infrastructure facilities used;
Travel cost of the trainees; and

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Other miscellaneous costs Accommodation, refreshments, training material


etc.

Limited PR-related domain knowledge While these agencies may have expertise in
functional areas such as IT skills and soft skills, they lack thorough understanding of the
context in which PRIs operate and their core functions. In order to ensure that their
trainings are relevant to PRI employees, they will need to invest time and resources in
developing the appropriate content and delivery mechanisms.

Limited post training support After the trainings, trainees sometimes find it difficult to
manage and operate the same applications on a different system available in their
department, and may need on-the-job guidance and support. These external agencies may
not be able to meet this requirement.

4. Hybrid model
In many cases, it might be more appropriate to utilize a combination of the training models
(inhouse, SIRD, external agencies) described above based on various criteria such as nature
of training, available subject matter expertise, batch size etc. Based on the requirement and
the level of experience / expertise, different models can be used to meet the needs of the
group.

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c. Assumptions for Costing


S No.

Assumption / Standards used in respective areas

A
A.1
A.2

ICT Infrastructure
Cumulative Security Audit cost for all state modules (INR)
All the PCs being provisioned will be provided with Internet
connectivity
The PCs at GP level have been estimated at the NICSI
empanelled rates and internet connectivity charges have been
estimated @ 200 per month per GP. However, the PCs with
internet connectivity may also be procured from the vendors under
agreement with BSNL under USO fund Subsidy.
States have been divided into two categories.
Large States - 10,000 system users and above is large state and
Small States - below 10,000 system users is small state

A.3

A.4

A.5

No of users are as per the no of PC proposed e.g. if there is 1 PC


proposed at GP then no of users at GP = 1* total no of GPs

A.6

Internet connectivity charges have been budgeted for only GPs as


the ZPs and BPs are assumed to be connected through a
Government Network like SWAN, NICNET etc. If provision for
extension of SWAN upto GP level exists, then the horizontal
connectivity for that must be costed for and the internet
connectivity charges at the GP level can be removed.
Open Source solutions are being proposed for all system software.
Hence, there will be no CAPEX; only annual support cost will be
budgeted for.
Maintenance cost of hardware is included in the Warranty support
of 3 years.
Not budgeting has been done for AMC of existing ICT
infrastructure

B
B.1

Training

C
C.1
C.2

D
D.1

D.2
D.3

Value (If
applicable)
200000

At the ZP level 5 officials viz. ZP CEO, Chairman, 1 Accounting


Staff, 1 PWD Engineer and 1 Clerk have been considered for ePRI
training. At the GP level Panchayat Secretary, Sarpanch and 1
Clerk have been considered for ePRI training.
Contractual Manpower
One Contractual resource at each PRI level is provisioned through
ePRI
Man Month Rate of Contractual Resource with Basic IT skill set at
GP Level : INR Per Month
BP Level : INR Per Month
ZP Level : INR Per Month
The Manpower is being provisioned for a period of 3 years
irrespective of the project implementation plan. This is from the
perspective of providing the handholding support to the PRIs.

1 at each PRI
level
3000
3000
5000

PMU
Civil Infrastructure (Rent, Electricity, support infrastructure etc) for
PMU is not provisioned through ePRI and the state PR department
is expected to provision for the same. That Implies No CAPEX cost
for PMU is provisioned through ePRI.
Computing devices (Laptops etc) for External Consultants in PMU
will be provisioned by Empanelled agency themselves and not
through ePRI
OPE is have been provisioned @ 15% of the PMU Cost

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S No.

Assumption / Standards used in respective areas

D.4
D.5

Other Administrative Expenses are considered as 1% PMU Cost


1 Document Scanner, 1 Network Printer is provisioned at each
State PMU and District PMU
10% increase in the PMU External Consultant rates every year
The PMU cost is being budgeted for a period of 3 years
irrespective of the project implementation plan as it is the
handholding supporting being provided ti the State.

D.6
D.7

E
E.1

F
F.1

F.2
F.3
F.4

Value (If
applicable)

Data Digitization
Details of digitization of files may be included as well in case the
information is available with the state team (Digitization of Records
is mandatory)
Application Software
As a standard each module can be developed by 2 S/w developers
in 3 months timeframe which implies development effort of 6 man
months per module. This would include the entire developemnt
activity pertaining to the module including development of Admin
modules for database management.
Effort of integration of modules developed at State with central
modules will be included in the development effort of 6 months as
above
Customization Effort for central modules at state level is 1 resource
for 3 months
Customization Effort of 3 months for central modules at state level
will also include effort for integration of state specific modules with
Central modules

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d. Power Options
Since most of the Gram Panchayats across the country face acute power shortage, it is
important that adequate power backup is provisioned to ensure smooth operations at the
Gram Panchayat. The following three alternatives can be explored depending upon the need
and feasibility.

Inverter

A typical 1200VA inverter can operate 1 fan, 1 tube light and 1 PC

Considering the need for 8 hours backup, two inverter batteries would be required for
the above load

Cost Rs. 25,000 approximately per GP

Operational Expenses Battery water

This option is most suitable in situations where power supply is available for 8-10 hours every
day as the inverter battery would need power supply for charging

GenSet

A typical 1200VA genset can operate 1 fan, 1 tube light and 1 PC

Cost Rs. 30,000 approximately per GP

Operational Expenses Rs. 12 15 per hour.

This option is feasible in most situations, except in far flung areas where availability of fuel is
limited.

Solar Photo Voltaic Cells

Off the grid lighting concept based on solar photovoltaic technology is also an
upcoming alternative. While the upfront investment is significantly higher than the other
alternatives, the operational expenses are negligible. It has been tested in the state of
Rajasthan has across all 9168 GPs.

Cost - Rs 3.10 lakhs per GP. This includes 5 years maintenance.

Operational Expenses Battery water

In Rajasthan, this option has been implemented in a Service Procurement Model, whereby the
service providing agency shall be paid, based on the number of hours for which electricity is
provided. This eliminates the drawback of high upfront investment. Hence, this delivers the
maximum value for money.

National Informatics Centre Services Inc.

Page 156 of 164

ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

II. Annexure
a. ICT Infrastructure Cost
Base Data for Bill of Material and Costing
Inflation Rate
Total Number of Districts PRI Departments in State
Total Number of Zila Parishad in State
Total Number of Block Panchayat in State
Total Number of Village Panchayat in State
Maintenance cost for ePRI Application
Sr.
A
I
1
a
b
c

Component
State Level ICT Cost

8%
38
38
531
8463
22%

Unit Cost

Number

Total

Unit Cost
366025
366025
1768000

Number
2
2
2

Total
732050
732050
3536000
5,000,100

Data Centre Costs


Hardware
Web Server
Application Server
Database Server
Sub-Total
Total Server Side ICT Infrastructure
Cost

II

State Site IT Infrastructure Costs

Application Software

a
b

Application Development Cost


Security Audit Cost
Sub-Total

Hardware

a
i

PC / Thin Client
Panchayati Raj Department

Network Printer

i
ii
c
i

Panchayati Raj Department


State ePRI Project Management Unit
UPS (600VA)
Panchayati Raj Department

Laser printer

Panchayati Raj Department

Finger Print Scanner

Panchayati Raj Department

Digital Signature

Panchayati Raj Department

Document Scanner

National Informatics Centre Services Inc.

5,000,100

Cost
5288700
200000
5488700
Unit Cost

Number

Total

31243

40000
40000

0
1

0
40000

7000

14400

20000

80000

555

2220

Page 157 of 164

ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

Panchayati Raj Department

ii

State ePRI Project Management Unit


Sub-Total

3
a
b
c
d

Networking cost

6000
6000

0
0

Unit Cost

Number of
Sites

Connectivity with SWAN (Horizontal


Connectivity)
Office LAN (CAT6) at office with 20 user
Office LAN (CAT6) at office with 10 user
LAN Switch
Sub-Total

0
0
122220

0
0
0
0
0

40000
25000
30000

Total State Site IT Infrastructure Cost


Total CAPEX at State Level

c
d
e
f

Heads
Post implementation
support for ePRI
application
Support cost for OS,
Database &
Application Servers
software
Hosting Charges for
Servers (Large States)
SAN (Large State)
Tape Backup (Large
State)
Miscellaneous (5% of
CAPEX)
Total

Total

5610920
10611020
OPEX
Year 1

Year 2

Year 3

Year 4

1163514

1256595.12

1357122.73

1465692.548

2010000

2170800

2344464

2532021.12

2375250

2565270

2770491.6

2992130.928

509600
50000

509600

550368

594397.44

641949.2352

50000

54000

58320

530551

530551

572995.08

618834.6864

Annual Cost
1163514
2010000

2375250

62985.6
668341.4613

6638915

Total OPEX at State Level


B
I
2

District Level ICT Cost

Site IT Infrastructure Costs


Hardware

Unit Cost

Number Per Site

Total

a
i
ii
iii
iv
v

PC / Thin Client
District PRI department
Zilla Parishad
Block PRI
Village PRI
ePRI Center of Excellence

31243
31243
31243
31243
31243

2
13
5
3
0

2374468
15434042
82950165
793228527
0

b
i
ii
iii
iv

Network Printer
District PRI department
Zilla Parishad
Block PRI
Village PRI

40000
40000
40000
40000

0
1
0
0

0
1520000
0
0

National Informatics Centre Services Inc.

Page 158 of 164

ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

v
Vi

ePRI Center of Excellence


ePRI District PMU

40000
40000

0
0

0
0

c
i
ii
iii
iv
v

UPS
District PRI department
Zilla Parishad
Block PRI
Village PRI
ePRI Center of Excellence

7000
7000
7000
7000
7000

2
13
5
3
0

532000
3458000
18585000
177723000
0

d
i
ii
iii
iv

Laser printer
District PRI department
Zilla Parishad
Block PRI
Village PRI

14400
14400
14400
14400

0
0
1
1

0
0
7646400
121867200

e
i
ii
iii
iv

Finger Print Scanner


District PRI department
Zilla Parishad
Block PRI
Village PRI

20000
20000
20000
20000

0
2
2
2

0
1520000
21240000
338520000

f
i
ii
iii
iv
v

Digital Signature
District PRI department
Zilla Parishad
Block PRI
Village PRI
ePRI Center of Excellence

555
555
555
555
555

0
2
2
2
0

0
42180
589410
9393930
0

f
i
ii
iii
iv
v
vi

Document Scanner
District PRI department
Zilla Parishad
Block PRI
Village PRI
ePRI Center of Excellence
ePRI District PMU
Sub-Total

6000
6000
6000
6000
6000
6000

0
0
1
1
0
0

0
0
3186000
50778000
0
0
1650588322

Networking cost
Connectivity with SWAN
(Horizontal Connectivity)
Office LAN (CAT6) at office with 20 user
Office LAN (CAT6) at office with 10 user
LAN Switch
Hub
Sub-Total

Cost per site

Number of Total Sites

a
b
c
d
e

4
a
i

0
40000
25000
30000
1000

607
8463

0
0
18210000
8463000
26673000

Data Digitization
Data Entry
Data Entry of Registers
Sub-Total

National Informatics Centre Services Inc.

0
Page 159 of 164

ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

Total for all District Site ICT CAPEX


Infrastructure Cost

a
b

Heads
Internet Connectivity Charges at GP
= ( No. of computers at GP X 200 per
month X 12)
Miscellaneous (5% of CAPEX)
Total

1,677,261,322
OPEX
Annual Cost

Year 1

Year 2

20311200

20311200

21936096

23690983.68

83863066.1

83863066.1

90572111.39

97817880.3
104174266.1

Total OPEX for District sites

Year 3

338191337.5

PAYOUT
CALCULATIONS
Sites (Number)
GP
BP
ZP

8463
531
38

Total

9032

Number of Manpower at each ZP


Number of Manpower at each BP
Number of Manpower at each GP
Deployment
7
Mths

Manpower Per
Site
1
1
1

Monthly Cost
5000
3000
3000

CAPEX
(Monthly)

ZP
BP
GP

Yr1
17738.63
7862.41
4932.24

Yr2
17738.63
7862.41
4932.24

Yr3
17738.63
7862.41
4932.24

Yr4
17738.63
7862.41
4932.24

OPEX (Monthly)

ZP
BP
GP

773.76
773.76
973.76

835.66
835.66
1051.66

902.51
902.51
1135.79

974.71
974.71
1226.66

Manpower

ZP
BP
GP

5000
3000
3000

5400
3240
3240

5832
3499.2
3499.2

6298.56
3779.136
3779.136

Subtotal
(MP)

8.15

35.21

38.03

30.81

ZP

23512.39

23974.29

24473.15

25011.91

BP
GP

11636.17
8906.00

11938.07
9223.90

12264.12
9567.24

12616.26
9938.04

ZP
BP
GP

2680412.68
18536418.41
226114512.26
247331343.36

10932277.46
76069384.89
936742772.37
1023744434.72

11159754.31
78146993.04
971610273.56
1060917020.91

8554071.99
60293107.38
756950381.13
825797560.50

Total Monthly
Payout

Annual Payouts
Total Payout

National Informatics Centre Services Inc.

Page 160 of 164

ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

b. Program Management unit Cost


Type

Rate
200200
145200
115500
5000

Principal Consultant
Senior Consultant
Junior Consultant
Support Staff

Manpower Cost

State

ePRI PMU Durations (Months)


Inflation Rate
Total Number of Districts in
State

36
8%
38

Permanent (100%
Availability)

No. of
Resources

Project Manager, Pr. Consultant


CM and CB expert Sr.
consultant
Technology Expert Sr.
consultant
Project Co-ordinator, Sr.
Consultant
Project Co-ordinator, Jr.
Consultant
Support staffs

2402400

2642640

2906904

1742400

1916640

2108304

1742400

1916640

2108304

13939200

15333120

16866432

8
2

11088000
120000

12196800
132000

13416480
145200

Total Cost for Permanent Resources

Temporary (20%
Availability)

No. of
Resources

Bid Process Expert, Pr.


Consultant

Total Cost for Temporary Resources

State level ePRI PMU cost

District

Permanent (100%
Availability)

No. of
Resources

Year 1

31034400
Year 1

No. of
Resources

NGO resource person, Pr.


0
Consultant
Total Cost for Temporary Resources

District level ePRI PMU cost for three


years

Total State ePRI PMU Manpower Cost (In


Rs.)
National Informatics Centre Services Inc.

34137840
37551624
Man-Month Cost
Year 2
Year 3

480480

528528

581380.8

480480

528528

581380.8

31514880

34666368

38133004.8

Man-Month Cost
Year 2
Year 3

Year 1

Project Co-ordinator, Jr.


0
Consultant
Total Cost for Permanent Resources

Temporary (20%
Availability)

Man-Month Cost
Year 2
Year 3

0
0

0
0

0
0

Man-Month Cost
Year 2
Year 3

Year 1
0
0

0
0

0
0

31514880

34666368

38133004.8

Page 161 of 164

ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

Operational Cost
Total Number of Districts in
State

District

State

Heads
OPEs
Other Administrative expenses @ 1%

Total State Level Operational Cost for


PMU
Heads

38

Year 1

Year 3

5199955.2
346663.68

5719950.72
381330.048

5042380.8

5546618.88

6101280.768

Year 1

OPEs
Other Administrative Expenses @ 1%

Total District Level Operational Cost


for PMU

Total State ePRI PMU Operational Cost

Year 2

4727232
315148.8

Year 2

Year 3

0
0

0
0

0
0

5042380.8

5546618.88 6101280.768

c. Training cost
TRAINING COST PER
PARTICIPANT
Batch Size
Cost Components
(A)Room (Per Batch)
State
District
Block
Average Cost Per Training Day Per Partcipant

25
Unit Cost

Per Participant Cost

2500
1500
1000

100
60
40
67

(B) Transportation (Per Participant Per Training Day - Round Trip)


State
District
Block
Average Cost Per Training Day Per Partcipant
( C) Transportation (Faculty Per Batch)
State
District
Block
Average Cost Per Training Day Per Partcipant
(D) Faculty (Per Batch)
State
District
Block
Average Cost Per Training Day Per Partcipant

1000
500
300

1000
500
300
600

0
300
500

0
12
20
11

700
500
500

28
20
20
23

300
200

300
200
250

(E) Boarding & Lodging (Per Participant)


State
District
Average Cost Per Training Day Per Partcipant
(F) Boarding & Lodging (Per Faculty)
State
National Informatics Centre Services Inc.

300

12
Page 162 of 164

ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

District
Average Cost Per Training Day Per Partcipant

200

8
10

100

100

(G) Stationery (Per Participant Per Training Day)

(H) Rewards / Certificate (Per Participant Per Training Day)


50

50
1111

Average Cost Per Training Day Per Partcipant


12
6
8%

No. of Training days for Officials


No. of Training days for Members
Inflation

Year 1
1111

Average training cost per day per participant


Level-wise No. of PRI officials & Members to be Trained
Level
Officials
ZP
6
BP
3
GP
1

Level
ZP
BP
GP

Year 2
1200

Members
2
1
1

Implementation Phasing (No. of PRIs)


Year 1
Year 2
Year 3
12
12
14
177
177
177
2821
2821
2821

Cost for Training


PRI Officials
PRI
Participants To Be Trained
Officials
(Number)
Level
To Be
Trained
(Number)
Year 1
Year 2
Year 3
ZP
228
72
72
84
BP
1593
531
531
531
GP
8463
2821
2821
2821
Year-wise Total Cost
Total Cost of Training PRI Officials

Year 3
1296

Total
38
531
8463

Cost (In Crores)


Year 1
959904
7079292
37609572
45648768

Year 2
1036800
7646400
40622400
49305600
148391040

Year 3
1306368
8258112
43872192
53436672

3303072
22983804
122104164

Cost for Training PRI


Members

Level

PRI Members To Be
Trained (Number)

Participants To Be
Trained (Number)
Year 1

ZP
BP
GP

76
531
8463

Year-wise Total Cost


Total Cost of Training PRI Officials

24
177
2821

Year
2
24
177
2821

Year
3
28
177
2821

Cost (In Crores)


Year 1
159984
1179882
18804786
20144652

Year 2
172800
1274400
20311200
21758400
65433228

Year 3
217728
1376352
21936096
23530176

TOTAL

213824268

Half Yearly

35637378

National Informatics Centre Services Inc.

550512
3830634
61052082

Page 163 of 164

ePRI Study Project (Phase IV)

Detailed Project Report - Bihar

d. Information Education and Communication


Number of GPs
GP

8463

IEC for the country


Number of GPs in Country
Per GP IEC cost
Number of GPs in UP
IEC cost for UP

500000000
229645
2177.273618
8463
18426266.63

e. Application Software cost


Blended Man-month Cost for Development
Man-month cost for customisation
Development Effort per module (manmonth)
Customisation Effort for modules developed centrally
(manmonth)
Total Number of Modules to be developed at State
Total Number of Modules to be customised at State
Development Cost
Customisation Cost
Total Software Application Cost
Module
Details
S. No.
1
2
3
4
5
6
7
8
9
10
11

Module Name
Planning
Financial Management
Scheme Management
PRIs Meeting Management
PRIs HR Management
Village profile management
Government to Citizen service delivery
Management Information System (MIS) and Key
Performance Indicators (KPIs)
Development of workflow
Integration with database
Integration with line department software

34700
6
3
4
7
4560000
728700
5288700

D - Development, C - Customisation
Category
C
C
C
C
C
C
D
C
D
D
D

f. Block Support Group Cost


Deployment
Months

Sites (Number)
BP
531
Per Month

Total BSG

Yr1
12000

Yr2

Yr1

Yr2

19116000.00

National Informatics Centre Services Inc.

12960

82581120.00

Yr3
13996.8
Yr3
89187609.6
0

Yr4
15116.544
Yr4
72241963.78

Page 164 of 164