Bhoomi Kaveri Mojini Integration

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Land Policy and Administration in Karnataka - Bhoomi-KAVERI-Mojini

Integration
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SOCIAL AND ECONOMIC
CHANGE MONOGRAPHS 42
Land Policy and Administration

in Karnataka
S Manasi
B R Hemalatha
N Sivanna
R G Nadadur
P G Chengappa
Institute for Social and Economic Change

Bangalore
2015
Foreword
Need for a well-defined land rights system has been the debate in several
forums and discussed widely among researchers and policy makers as poor land
management practices have repercussions in terms of conflicts, misuse and ineq-
uitable distribution of resources. The State of Karnataka’s initiative in streamlin-
ing land administration through e-governance services like Bhoomi (computeriza-
tion of land records), KAVERI (registration after verification), Mojini (Measure-
ment of properties) and its integration are noteworthy, since it ensures authentic-
ity of the document and the respective property. ‘Bhoomi Project’ is a land mark
initiative and its impact has been highlighted and noted, all over the world, as one
of the successful e-governance initiatives for improved governance of the land
records. The processes have been further upgraded to integrate Bhoomi, KAVERI,
and Mojini which are seen as promising approaches to address the problems of
land records in India.
The task taken up by ISEC team was to evaluate the initiative by review-
ing user satisfaction with land services and assess the benefits of computeriza-
tion, verification and decentralized online delivery of rural land records and online
integration across various processes. The study also had to assess step wise
impacts of Bhoomi, KAVERI, Mojini and integration between Bhoomi-KAVERI-
Mojini implementation, document feedback on actual implementation. This was
intended to facilitate the setting up of proper mechanisms for improvement.
The monograph has documented the processes of Bhoomi, KAVERI,
Mojini and their integration and findings from the survey highlighting field prob-
lems at the representative study districts. The study also analyses the feedback
obtained from the citizens who availed BKM services in the taluks post BKM
integration. Issues related to constraints in the current monitoring system and
ways to adopt a regular monitoring to assess their status and on-line functioning
are addressed. Policy interventions to overcome the human and physical resource
constraints for effective functioning are recommended.
The team has made appropriate suggestions which are based on field
level observations and discussions with regional level officials. Policy recommen-
dations discuss the interventions required at the administrative, technical, legal,
social, financial and institutional levels. I am sure the study will be quite useful to
the Survey Settlement and Land Records Department in specific and other state
government departments at large. The results and recommendations of this study
will also be beneficial to researchers and students pursuing the theme related to
land governance and land resources management.
I congratulate all the authors and research of this monograph for their
excellent work.
August 2015 M R Narayana

Bangalore Director in Charge, ISEC
CONTENTS
Acronyms and Glossary vii

List of Tables x
List of Figures/Graphs xi
List of Flow Charts xii
Acknowledgements xiii
CHAPTER 1 LAND POLICY AND ADMINISTRATION IN KARNATAKA 1-8

1.1. Introduction 1
1.2. Objectives and Methodology 3
CHAPTER 2 BHOOMI-INITIATIVE, OBJECTIVES 9-16

AND ACHIEVEMENTS
2.1. Bhoomi - from Crops To Kiosk 9
2.1.1. Rights of Property, Tenancy and Crops (RTC) 11
2.1.2. Mutation through Computerized Process 13
2.1.3. Software and Data Flow System- Software 15
and Hardware Related to Bhoomi
2.1.4. Accessibility and Usage of Data and 15
Monitoring System across Levels
CHAPTER 3 KAVERI 17-28

3.1. Registration Process 17
3.1.1. Process of Registration - Pre and 17
Post Integration: A Workflow Analysis
3.2. Benefits 20
3.3. Revenue Generation – A Comparison of Pre and 21
Post Integration
3.4. Computerization Process - Software and Hardware 23
Issues and Data Flow System
3.5. Departmental Monitoring System and Data 26
Accessibility and Usage
3.6. Constraints in Operating the System after Integration 26
and Its Potential Implications
3.6.1 Departmental Constraints 26
3.7. Challenges in Kaveri 27
3.8. New Kaveri Modification Proposals 27
CHAPTER 4 MOJINI 29-37

4.1. From Survey to Digital Maps 29
4.1.1. Objectives and Operational Process in the 30
SSLRD (Mojini)
4.1.2. Specific Steps of Process in Pre-Mutation 31
Sketch, Hudbust Issues, Decree and
Court Order Issues, Resurvey Works,
Other Activities
4.2. Overview of Mojini or Digitized Survey Project 32
in Karnataka
4.3. Features of Mojini In Karnataka 33
4.3.1 Functions of Mojini 35
4.4. Integration of Mojini with Bhoomi 35
4.5. Departmental Monitoring System, Data Accessibility 35
and Usage - Mojini Monitoring Cell
4.6. Mojini Present Challenges and Modification Options 36
CHAPTER 5 BHOOMI-KAVERI-MOJINI INTEGRATION 38-45

5.1. Integration of Bhoomi- Kaveri- Mojini 38
5.1.1. Highlights of BKM Integration Process 39
5.1.2. B-K Integration Process 39
5.1.3. Integration of Bhoomi and Kaveri 41
5.1.4. Bhoomi-Mojini Integration Process 42
5.2. Nemmadi Kendras in BKM Integration 43
5.3. Present Challenges of Integration Process 43
5.4. Benefits of Integration Process 44
5.5. Issues Arising At Different Levels of Operation and 44
Options to Quantify the Extent of Challenges
CHAPTER 6 BHOOMI, KAVERI, MOJINI (BKM) - 46-100

EXPERIENCES
6.1. BKM – Experiences 46
6.2. BHOOMI- A Situation Analysis 46
6.2.1. Positive Impacts on BHOOMI 56
6.2.2. Key Issues 56
6.3. MOJINI – A Situation Analysis 63
6.3.1. Positive Aspects 67
6.3.2. Issues and Constraints – Mojini 71
6.4. KAVERI – A Situation Analysis 74
6.4.1 KAVERI – Positive Impacts 81
6.4.2 Issues and Constraints 81
6.5. BKM Integration – A Situation Analysis 85
6.5.1. Issues 89
6.6. Perceptions of Bank Officials on Linking 97
Banks with BKM
6.7. Perceptions of Legal Fraternity on 98
Linking Courts with BKM
v
CHAPTER 7 POLICY RECOMMENDATIONS 101-118
7.1. BHOOMI 101
7.2. KAVERI 104
7.3. MOJINI 108
7.4. BKM Integration 113
Conclusion 118
NOTES 119-131
REFERENCES 132-133
vi
ACRONYMS AND ABBREVIATIONS
AC : Assistant Commissioner
ADLR : Assistant Director of Land Records
ADR : Alternate dispute resolution
AIGR : Assistant Inspectorate-General of Stamps and Registration
BMC : Bhoomi Monitoring Cell
CAD : Computer-Aided Design (Mapping)
CC : Certified Copies
CLR : Computerization of Land Records
DC : Deputy Commissioner
DDLR : Deputy Director of Land Records
DIG : Deputy Inspector General
EC : Encumbrance Certificate
GIS : Geographic Information System
GOI : Government of India
GP : Gram Panchayat
HQA : Head Quarters’ Assistant
IGSR : Inspector General of Stamps and Registration
IMPS : Integrated Mutation Phodi System
JDLR : Joint Director of Land Records
KSRSAC : The Karnataka State Remote Sensing Application Centre
NEGP : National E-Governance Program
NIC : National Information Centre
NOC : No Objection Certificate
PKI : Public Key Interface
PTCL : Prohibition of Transfer of Certain Land
RDS : Rural Digital Service
RI : Revenue Inspector
ROR : Record-of-Rights
RTC : Record-of-Rights, Tenancy and Crop Inspection
SDC : State Data Centre
SI : Survey of India
SNMP : Simple Network Management Protocol
SOA : Service Oriented Architecture
SSLRD : Survey Settlement and Land Records Department
VA : Village Accountant
vii
GLOSSARY
Akar – Assessment and also taxing
Akarband – Record of the revenue assessment for each
parcel on the village map--
Akarband Extract – Indicates the copy of the total extent and classification
of the property inquisition issued by the Survey
Department
Bagarhukum – Unauthorized cultivation
Benami – Creation of impersonated documents
Bhagidi – Sharecropping
Bhoomi – Land
Carta – Card
Chak – Single compact block produced in land consolidation
Daily Register – Register maintained by the Sub-Registrar related to
details of applications received for registration.
Darkastu – Land Grant
Family tree – List of the family members of present and past
owners of the land and indicates whether they are
living or dead
Grama – Village
Gramathana – Inhabited area of a Village
Hudbust – It is a sketch showing the boundaries fixed on the
land marked by boundary stones
Hissa survey – Survey undertaken to pick up sub-division from the
original village settlement survey records.
Hissa Tippani – It is a survey record issued by the Assistant Director
Book Extract of Land records clearly showing the sketch of the
entire survey number, its total area, extent of kharab
land and net cultivable area along with its bifurcated
portions and the names of owners of each sub-
survey number, the relevant entry in the mutation
registers pertaining to each owner
Hobli – Group or ‘circle’ of villages
Inam – Land given to individual as a gift
Jamabandi – It consist of the record of Land holders and land
revenue as per every khata related to private as well
as Government land
Kammi-Jaasti- – List declared by Shyanybogas about the availability
Ghoshware of land and ownership changes.
Karda copy (Extract – The occupant or the eldest of several joint occupants,
of ownership entry) whose name is entered in the Government records as
holding un-alienated land.
viii
KAVERI – Karnataka Valuation and e-Registration System
Integrated.
Khata – Ledger extract that sets out land details
Khatedars – Group of owners of the land
Khetwar – Index of Land
Manadanda – Measuring tool
Mutation – Change of Record of rights in the land records
Mutation Extract – Copy of the mode of acquisition of the property and
the order stating that the records of rights may be
transferred to the name of the present Owner.
Pakka Book – Survey Computation Book
Panchayat – Rural Local self-government institution
Patta – Documentary evidence of rights in land issued by the
proscribed officer.
Phodi – Subdivision of a land parcel
Prathi – Assessment book prepared during settlement surveys
Project BHOOMI – Online Delivery and Management of Agricultural
Properties
Revenue Inspector – Chief Revenue Officer at the circle (hobli) level.
RTC – Record of Right, Tenancy and Crops.
(Called as PAHANI in Kannada)
Sarkari Pada – Government used to restore the forfeited property.
Shyanbhoga – Person who use to maintain village level RTC in
earlier days
Tahasildar – Chief Revenue Officer at the Taluk level and also
Judicial Magistrate
Taluk – An administrative unit, less than a District (Zilla) and
greater than a village(Grama)
Tippan – Field Book
Village Map – A document that clearly indicates the Map of Villages
in which the property in question is situated
Zilla – District
ix
LIST OF TABLES
Table 1.1: Total Transactions of Tumkur District - September 2011 to 5
December 2011
Table 1.2: Total Transactions of Gulbarga District - September 2011 to 5
December 2011
Table 1.3: Total Transactions of Dakshina Kannada District - 6
September 2011 to December 2011
Table 1.4: Total Transactions of Dharwad District-September 2011 to 7
December 2011
Table 1.5: Category of Land Transactions under BKM and 8
Nemmadi Kendras
Table 3.1: No. of Documents Registered and Total Revenue Generated 22
(in the last 12 yrs)
Table 3.2: Differences between Manual and Computerization Process 23
in KAVERI
Table 3.3: Comparison between Manual and Computerization 24
Table 4.1: Technology Selection for Survey Technique – 36
Manual and Computerization
Table 6.1: Information on Time Taken for the Disposal of Applications 48
Table 6.2: Pendency of BKM Related Applications at Different Levels 49
Table 6.3: Sources of RTC Service and Reasons - (Clients in %) 51
Table 6.4: Assistance Taken by Clients at Bhoomi Kiosks/Nemmadi 52
Kendras (Clients in %)
Table 6.5: Visits made to Bhoomi kiosk/Nemmadi Kendra (Clients in %) 53
Table 6.6: Average Personal Expenditure Incurred for Each Visit to 54
BK/NK (Clients in %)
Table 6.7: Ensuring Transparency and Accountability 55
Table 6.8: Perceptions of Clients Regarding Bhoomi 56
Table 6.9: Types of Problems Associated with Bhoomi Software 58
Table 6.10: Opinion on Infrastructure from Client 59
Table 6.11: Available of PKI Facilities at Nemmadi Kendras 60
Table 6.12: Problems in Availing Services 61
Table 6.13: Problems Encountered at Bhoomi 63
Table 6.14: Type of Services Availed under Mojini 64
Table 6.15: Time Taken to Issuing 11-E Sketches after Filing of 11-B Forms 66
Table 6.16: Sources of Survey Allotment and Time Taken for Completing
the Survey
Table 6.17: Awareness Level and Sources of Collection of necessary 75
Documents for Registration at SRO
Table 6.18: Additional Amount Paid for Assistance at SRO 75
Table 6.19: Time Taken for Registration and Other Services at SROs 76
Table 6.20: Time Taken for Receiving Documents at the SRO Office 78
(Clients in %)
x
Table 6.21: Rating of SRO Services by Clients (Clients in %) 79
Table 6.22: Expenses Incurred on Each Visit Made to the SRO Office 80
Table 6.23: Perceptions of Clients Regarding KAVERI - Positive 80
Table 6.24: Usage of SRO Services 82
Table 6.25: Opinions on KAVERI by Clients – Negative 83
Table 6.26: Technical Problems Faced at SROs during Registration 84
Table 6.27: Awareness Regarding BKM Integration 86
Table 6.28: Rating in Respect of Overall BKM Services 87
Table 6.29: Feedback on BKM Services 88
Table 6.30: Awareness Level and Perceptions as regards FIFO 88
Table 6.31: Reduction in Illegal Gratification-Post BKM Integration- 90
Clients’ Rating
Table 6.32: Applications Received and Average Rate of Disposal- 92
Post- BKM Integration
Table 6.33: Details of Other Types of Land Transactions 93
Table 6.34: Time Taken for Clearing Other Cases Across Taluks 94
Table 6.35: Number of Visits to be Made to Avail the Services 95
Table 6.36: Procedural Issues in Availing of Services 96
Table 6.37: Problems Faced during Transactions 97
LIST OF FIGURES/GRAPHS
Figure 2.1: Bhoomi and Its Stakeholders 11
Figure 2.2.1: Contents of an RTC 12
Figure 2.2.2: Uses of RTC 12
Figure 2.3.1: Types of Mutation 13
Figure 3.1: KAVERI – Bhoomi Integration 20
Figure 3.2: Work Flow Process of Kaveri (Registration Department) 22
Graph 6.1: The Number of Land Transaction Applications Received 47
Graph 6.2: Land Transaction Applications Disposed at the Field Level 48
Graph 6.3: Time Taken for RTC at Bhoomi Kiosk/ Nemmadi Kendra 53
Graph 6.4: Time Taken for Accessing RTC at Bhoomi Kiosks/ 57
Nemmadi Kendras (Clients in %)
Graph 6.5: Status of Applications at Mojini Department (Per month) 64
Graph 6.6: Monthly Average of 11-E Applications Received, Disposed 65
and Pending
Graph 6.7: Number of Visits Made to SRO Office for Completing 77
Registration
xi
LIST OF FLOW CHARTS
Flow Chart 1: Showing Various Processes and Data Flow Attached to 16
Bhoomi Centre
Flow Chart 3.1: Kaveri Registration Process 25
Flow Chart 4.1: Mojini (Land Survey) 34
Flow Chart 5.1: Set-up of BKM Integration 39
Flow Chart 5.2: Model of Data Flow for BKM Integration 40
Flow Chart 5.3: Bhoomi-KAVERI Integration Flow 42
xii
Acknowledgements
This Monograph ‘Land Policy and Administration in Karnataka’ is
the outcome of the research study carried out at ISEC with a financial
grant from the World Bank. The State of Karnataka is known for initiating
e-governance services like Bhoomi, KAVERI, Mojini (BKM) which have
brought in significant transparency and accountability in land related
governance. The monograph aims at analyzing people’s perceptions about
these services through field-based studies and raises several issues that
have implications for strengthening the implementation process and for
initiating new policy measures. In conducting this study, we received a lot
of academic inputs and field level support from the World Bank, officers
and officials of the Departments of Revenue, Survey, Settlement and Land
Records, Registration and Stamps, Government of Karnataka.
At the outset, we place on record our sincere thanks to Prof Klaus
Deininger, Lead Economist, Development Research Group, World Bank,
and Prof R S Deshpande, Former Director, ISEC, not only for initiating this
study but also for their continuous support and encouragement while carrying
out this study. We express our grateful thanks to our present Acting Director,
ISEC, Prof K S James for his support and encouragement. Our special
thanks to Mr Rajeev Chawla, then Special Secretary to Government,
Revenue Department (Bhoomi and Registration of Urban Properties), Mr
Tushar Girinath, Principal Secretary, Revenue Department, Ms Manjula,
former Commissioner and Dr V Ponnuraj, Commisioner, Survey, Settlement
and Land Records Department, Mr. S M Bhavikatti, Deputy Inspector
General, Department of Registration and Stamps. We also received timely
support from Mr Rudresh, Deputy Director, City Survey, Mr K S
Gurumurthy, Tahasildar, Bhoomi Monitoring Cell, Mr Sridhar, Deputy
Director, Project Monitoring Unit and Mr Samarthram, Principal System
Analyst, Bhoomi, NIC, particularly for accessing the secondary data and
related documents, which came as handy for analyzing the macro level
scenario of land administration and we are highly obliged and thankful to
them.
During the field work carried out at the district, taluk and village
level, we received good support and cooperation from the Deputy
Commissioners and Tahasildar, Sub-Registrars, Survey officers and field
level assistance from their staff members. We are grateful to all and thank
them very much. We also thank all the beneficiaries (farmers) of the
programme for their cooperation in providing us the required information.
xiii
We thank Mr B C Byrappa, a retired officer of the Department of
Survey, Settlement and Land Records, our research team Dr M
Padmanabha, Mr B R Rohith, Ms V Padmmavathamma and Ms
Chandrakala for their great enthusiasm and interest and have made
significant contribution to the project. It would have not been possible to
complete the study but for their support and co-operation.
We extend our sincere gratitude and appreciation to two anonymous
reviewers for their critical review and valuable inputs.
We are thankful to Dr Anand Inabanathan, the Editor, ISEC
Monograph Series for all his support during the publication of this monograph.
The financial support from ISEC-SRTT is duly acknowledged.
We thank ISEC’s administration, Prof Manohar Yadav, and
Accounts Officer Smt. Sharada, Smt Jyothi, Ms Niveditha for their support.
We thank Ms Shanthi for her secretarial assistance.
S Manasi
B R Hemalatha
N Sivanna
R G Nadadur
P G Chengappa
xiv
Chapter 1
Land Policy and Administration in Karnataka

1.1. Introduction
The history of ‘land administration’ in India reveals that the ‘tax on
land’ has been playing an important role in meeting expenditure on
governance particularly those related to land and maintenance of land
records. Historically and contemporarily, land has been one of the primary
sources of revenue for the government. Besides, majority of the population
depend on land for their livelihoods. Thus, the State’s wealth is considered
as directly proportional to the tax levied on land. The remittance then is
either a prescribed share of the produce from the land or its cash-equivalent.
When the British took over administration in India, the system of tax
evaluation and method of col-lection got a makeover. In many provinces,
the British started rough measurement of land, and village level records of
lands was slowly developed. It soon became clear to administrators that
collection of tax on land could be standardized and maximized only by
creating and maintaining accurate land records.
Collection of tax on agricultural land like land revenue, however,
faced a slowdown when India got independence. As the country, after
independence, stood as a ‘welfare’ state, terms like land revenue or tax on
land, especially those parts related to agriculture, did not go well with the
people and their representatives. In addition, for the Government, many
sources of taxation other than on land emerged as major sources of revenue.
However, the importance of land revenue and thereby the significance of
land records cannot be diluted irrespective of socio-political compulsions
that underpin governance. In fact, seen in the present context, setting up a
proper system to manage land records has become a challenge for the
administrators.
The ‘value’ of land is becoming more consequential, and there is a
growing need to have better maintained land records from the point of view
of both the Government and the public. For historical reasons, land rights
are not very well-defined in several parts of India. This has given rise to
serious governance issues like conflicts, misuse inequitable distribution of
resources, etc. The need for a well-defined land rights system has been
stressed time and again by researchers and policy makers. Hence, laying
emphasis on improving land record management has been a matter of serious
concern. Land security can be attained with a well-defined land rights system
2 Land Policy and Administration in Karnataka
in place. Currently, the maintenance of land records is in bad shape as hard

copies of maps and sketches are not in usable condition, while in some
parts of the State, the village land ownership records, maps and sketches
are not available. Statutory resurveys have not been conducted during the
last several decades; therefore, there is a mismatch between the records
available and field realities.
Past experiences have shown that, in many cases, gaps in availability
of human and material resources have prevented the Revenue Department
from effectively contributing to good land governance in the matter of
providing services to the public or partnering with the private sector. To
enable it to do so more effectively, it will be vital to assess whether available
resources are adequate to the task at hand, identify priority areas for
expanding and strengthening to better perform existing functions and, in the
context of global best prices, identify ways in which the Revenue
Department can effectively contribute to good land governance.
In fact, for similar reasons, both the Central government and state
governments, in the past few decades, have been looking deeply into the
concepts of revenue collection with increased focus on modernizing land
records management system in their respective jurisdictions. However, the
key task before them is addressing the issues that are cropping up in
modernizing the land records management system. The fact of not ‘bothering’
much about land records maintenance during a few post- independence
decades is costing the country dearly because many of the existing land
record maintenance processes and related integration work need to be re-
looked before venturing into any kind of modernization.
The advent of ‘E-governance’ initiative in respect of land administration
marks a paradigm shift in the practices in land administration system in the
State. This new initiative employs state of the art information technology
(IT) systems for rendering government services and disseminating
information to the public which has made service delivery and the governing
process simpler and transparent. All the services are made available in a
single window to the citizens, facilitating better office and record
management. Among the innovative measures to strengthen the land policy
and administration, ‘Bhoomi Project’ has been a land mark initiative. Its
impact has been very significant and acclaimed all over the world, as one
of the successful e-governance initiatives of government. Interestingly, the
processes have been further upgraded to integrate Bhoomi, KAVERI, and
Mojini, and this is perceived as promising approach to address the problems
of land records in India in a logically coherent way. While the Bhoomi
Land Policy and Administration in Karnataka 3
initiative would produce the RTC on-line to the land owners, Mojini would
measure the land and check for its accuracy and only then will it be
authenticated and registered at Karnataka Valuation and e-Registration
System Integrated (KAVERI). Although all these departments work
independently, the integration would help in reducing discrepancies and
misuse. With integration, there is online access across the departments,
and any discrepancy would be identified online immediately. There are
several long term benefits in terms of providing security to the land and
reducing insecurity among land-owners. It will also aid in reducing conflicts
since there will be no scope for misuse, and would reduce the number of
court cases. Currently, huge amounts are spent in law-courts for resolving
land related conflicts. In brief, there will be accurate agreement between
land records and the physical ownership of the land. Besides, the farmer
would not be wasting time in multiple visits to offices for scrutinizing his
records; rather, his access to land records would be both convenient and
inexpensive. However, in order to ensure that the system is implemented in
conformity with regulations, getting feedback on actual implementation is
essential. This would facilitate the setting up of proper mechanisms for
supervision that are appropriately staffed. Such a system will also be critical
to quantify the extent to which the system delivers benefits and generate
awareness among the general public.
1.2. Objectives and Methodology
To document processes and capture insights on reasons for informality
and related issues; to review user satisfaction with land services and assess
the benefits of computerization, verification and decentralized online delivery
of rural land records and online integration across various processes; and
to assess step wise impacts of Bhoomi, KAVERI, Nemmadi, Mojini, and
integration between Bhoomi-KAVERI-Mojini implementation.
The monograph addresses specific issues such as (i) Documenting
different elements of the system and quantifying achievements based on
existing administrative data and interviews with key informants; (ii) Selecting
locations with different levels of progress in terms of online mutation,
availability of Nemmadi centres, and date of major changes, for exploring
questions/issues identified; (iii) Complementing these with listing of villages
and a household survey to establish a quantitative baseline for documentation
purpose; (iv) Designing a customer satisfaction survey and pilot its
implementation in these locations; and (v) Developing policy
recommendations in the form of regular monitoring reports about Bhoomi

to be produced for the public as well as about the staffing of the unit.
The sources of data are mainly from field visits, secondary sources,
and administrative data received from the Department of Survey, Settlement
and Land Records database. On obtaining administrative data from the
two different Departments and downloading data from the Bhoomi and
Mojini websites, the same was categorized into different types of data
transactions and analyzed. In addition, discussions were held with officials
of all the departments implementing Bhoomi, KAVERI and Mojini. The
computerization of ownership information related to land records has led to
the availability of information in printed format on demand, since 2002. The
integration of Bhoomi, KAVERI and Mojini (BKM) in September, 2011 is a
major step initiated by the Government in the realm of land administration.
The integration of three wings of land administration assumes greater
importance since any kind or type of land transaction is a by-product of the
processes carried out at Bhoomi, KAVERI or Mojini. For instance, for
procuring a bank loan, the RTC, obtained either from a Bhoomi Kiosk or a
Nemmadi Kendra, is a must, as it is a proof of ownership of land property.
Similarly, for registration of land, the landowner needs to have a pre-mutation
sketch, available with the Survey Department and J-slip from KAVERI for
carrying out further mutation changes. Indeed, this new administrative
innovation has the potential to promote efficiency in service delivery without
causing any delays and harassment to the stakeholders involved. In this
backdrop, the field survey was designed to get a feedback from the users
of above services with particular reference to quality, adequacy and
efficiency of services delivered, and problems encountered.
The monograph is organized as follows: Chapter 2 is on Bhoomi, its
initiative, objectives and achievements; Chapter 3 KAVERI, its initiative,
objectives, limitations and proposed New KAVERI; Chapter 4 Mojini’s
objectives and related concerns; Chapter 5 relates to integration of Bhoomi-
KAVERI-Mojini and various levels and challenges thereof; Chapter 6 is
about field experiences, comparing the issues across the three initiatives
including pre and post integration, perceptions of Bank officials and the
Legal fraternity; and Chapter 7 provides specific policy suggestions across
the Bhoomi, KAVERI, Mojini and BKM integration initiatives that are
required for further strengthening of the system.
For conducting field studies, four districts and one taluk from each
district were selected: Tiptur in Tumkur district (Bangalore Division), Gulbarga
in Gulbarga District (Gulbarga Division), Bantwal in Dakshina Kannada
District (Mysore Division) and Navalgunda in Dharwad district (Belgaum
Division). The criteria for selecting these four taluks were based on the
Bhoomi data on land transactions (See Table 1.1, 1.2 & 1.3), from among
those registering the highest transactions between the months of September
and December, 2011.
Table 1.1: Total Transactions in Tumkur District -
Taluks Applications Received
Sep Oct Nov Dec 4 Month
Average
Gubbi 463 426 496 1259 2644
Kunigal 427 253 450 598 1728
Tumkur 529 370 576 852 2327
Tiptur 655 770 868 872 3165
Turuvekere 363 269 448 545 1625
Chiknavakanahalli 458 584 642 554 2238
Korategere 349 346 186 332 1213
Madhugiri 430 336 353 502 1621
Pavagada 197 189 265 358 1009
Sira 305 383 395 608 1691
Source: Data Compiled from the Bhoomi Department
Note: Total transactions include different type of transactions taken place
in Bhoomi Department – J-Slip, Khata change, Hakku-Runa,
Government Order, Land Acquisition, Land Alienation, Court Order,
Court Stay, Cultivator Type, Phodi and RTC Movements.
Table 1.2: Total Transactions of Gulbarga District - September
2011 to December 2011
Average
Aland 543 745 488 539 2315
Afzalpur 801 678 693 513 2685
Gulbarga 1325 651 518 584 3078
Jeevargi 266 565 478 813 2122
Sedam 476 377 478 394 1725
Chittapur 511 333 552 656 2052
Chincholi 617 638 367 520 2142
Kalagi 763 224 595 312 1894
Gulbarga North 115 13 194 117 439

Table 1.3: Total Transactions of Dakshina Kannada District -
Average
Mangalore 965 794 1101 1013 969
Bantwal 451 411 383 486 433
Belthangady 250 229 259 322 265
Puttur 275 273 262 290 275
Sullia 82 80 134 165 116
Mudabidre 271 140 395 274 270
Kadaba 49 14 65 69 50
The Primary data were collected from the individual households.
The field study covered departmental issues pertaining to land transactions,
Bhoomi kiosks and Nemmadi Kendras. Besides, other stakeholders like
Banks and Advocates were contacted for eliciting their opinions with regard
to BKM integration. Prior to commencing the survey in the selected four
taluks, a pilot survey was conducted in the taluks of Ramanagar, Hoskote,
Gubbi, and Turuvekere to test the questionnaires/interview schedules and
revised accordingly. Separate questionnaires for different categories of
transactions – like J- slip and categories of land transaction cases – Error
correction, Record of rights, Mutation change, Phodi to elicit information
from the beneficiaries for identifying procedural lacunae and operational
bottlenecks. Focus group discussions were held with all the stakeholders
regarding the performance of BKM, land related issues viz. increase/reduction
in property related disputes, authenticity, access, possible gaps in the
processes, potential advantages and constraints associated with BKM
integration and land transactions. Discussions were also held with the
officials concerned to gain further insights into the constraints and issues.
The study period covers the land transactions (since BKM integration)
from September 2011 onwards. The first set of data obtained from the
department covers the period up to August, 2011 (pre-integration) and the
second from September to March, 2012 (post-integration). The data were
gathered primarily through a household survey, covering 200 households
spread across 20 villages coming under four taluks.
Table 1.4: Total Transactions of Dharwad District-September
2011 to December 2011
Average
Dharwad 1137 1077 1033 989 1059
Navalgunda 1235 665 681 358 735
Hubli 1858 1581 1296 1245 1495
Kalgatigi 484 859 731 759 708
Kundgol 1036 690 640 352 680
Based on the discussions held with the officials - Tahasildar, Deputy
Tahasildar/Shirestedhar, Sub-Registrar, Bhoomi Operator and Village
Accountants of respective taluks - transaction details were collected for
the BKM integration period, i.e. from September 2011 and June 2012. The
villages were selected on the following criteria: (i) Villages with high
transactions of BKM integration cases, and (ii) Transaction cases identified
include those who have gone through a complete property registration
process requiring visits to all the three departments - Bhoomi, KAVERI
and Mojini. Villages were selected on a random basis, against the following
criteria: (i) Three villages located close to the taluk centre and (ii) Two
villages located far away from the centre. Contact details of clients were
obtained from the respective Taluk office and finalized in the presence of
Village Accountants. From among the selected villages, 50 village level
clients were identified at a ratio of 60:40 as detailed: 30 identified BKM
clients (those clients utilizing the services provided under BKM) and 20
clients who had availed other land related services (See Table 1.4 and
Annex - Details)
Table 1.5: Category of Land Transactions under BKM and
Nemmadi Kendras
Bhoomi KAVERI Mojini Nemmadi
Kendra
services
Court order Sale transaction 11-E sketch RTC copy
Khata change Gift deed IMP requests Mutation copy
registration
Pauthi- inheritance Will registration Durasthi survey
Phodi Certified copies Survey of land-
from sub registrar Govt. & private
RTC copy Encumbrance Survey sketch
and change certificate copy applications
Hakku and Runa Correction deed RTC change
applications
Cultivator Partition deed Correction of
type change survey records
Mutation change Release deed
and mutation
extract applications
Requests for Lease deed
mutations of Mortgage deed
transactions
under 79 A/B
exemptions
Error corrections
Chapter 2
BHOOMI
Initiative, Objectives and Achievements
2.1. Bhoomi - from Crops to Kiosk
As mentioned earlier, ‘Bhoomi’ is one of the important E-initiatives
taken up by the Survey, Settlement and Land Records Department. Under
this initiative, computerization of oral and paper records indicating the tenure
conditions under which land or buildings are held or occupied are recorded
at the village level and further validated with reference to taluk level records.
Further, the tenure of lands has a tendency to fragment or change hands
depending on local conditions. These variations and changes are to be
properly recorded and administratively simplified for achieving simplicity in
management. In order to enable divisions of parcels of land, all the relevant
documents including a sketch of the land showing the division are scanned
and validated by the revenue inspector before these are sent to the survey
section for approval before updating the Bhoomi system. The massive
documentation of land records at various stages with necessary software
up-gradations began in 1991 and the Bhoomi system became operational in
2002. The initial steps for computerization of the land records in Karnataka
were taken in 1991, when a pilot system was initiated under the Ministry of
Rural Development’s Computerization of Land Records (CLR) project.
By the end of 1996, projects for the CLR were sanctioned for all the districts
in the State. However, there was no provision to install computers at the
taluk office level where, in fact, the manual records were updated. The
real step towards the realization of Bhoomi and its benefits came when the
then State Government mandated that ‘Bhoomi – Computerization of Land
Records’ will have to be undertaken and finished in all sub-districts by
March 2002. The major objectives to be realized by the Bhoomi project
were (i) Smoothen the process of maintenance of land records (ii) Timely
updating of land records (iii) Tamper-proof records (iv) Easy access to
land records for citizens (v) Generation of a database pertaining to land
revenue, cropping pattern, land use, etc (vi) Making use of the information
for planning and devising development programmes (vii) Providing data
base access to other stakeholders like courts, banks, private organizations
and companies etc.
Since the introduction of Bhoomi, the Revenue Department, which
is implementing the programme, has computerized more than 20 million
rural land records pertaining to over 6.7 million farmers of the State through
setting up Bhoomi Centres (Land record Kiosks) across 177 taluk offices.
The RTC or Pahani is the major document delivered at these kiosks. The
RTC is an important document for any landholder as it acts as a proof of
ownership in obtaining bank loans and for availing various government
facilities. Besides Bhoomi centres, the RTC and related land records are
also delivered through more than 800 tele-centres (popularly known as
Nemmadi Kendras, currently named as Atal Bihari Vajpayee Kendras) set
up through Public Private Partnership (PPP) at the hobli or sub taluk level.
Features of Bhoomi Project – Pre and Post Integration
• A printed copy of the RTC can be obtained online by providing the name
of the owner or survey number at computerized land record kiosk at taluk
offices or at Nemmadi Kendras. The farmers need not wait for the
convenience of the Village Accountants (VAs) for land records.
• A copy of the RTC is provided for a fee of Rs 10 (Reduced from earlier fee
of Rs 15) at the kiosk. If he or she is unable to come to Taluk office, the RTC
can be collected by paying Rs 10 to village accountant or revenue inspector,
who in turn will collect the RTC from the Bhoomi centre and hand it over.
There is no longer a need to pay ‘extra’ money to the VA or middlemen.
• The role of public officials has been reduced as the project has provision
for recording a mutation request online. The user can access the database
and is enabled to follow up.
• The facility is transparent as a second computer screen faces the clients to
enable them to see the transaction being performed.
• The user is empowered under the project as he or she can check the status
of a mutation application on Touch Screen Kiosks installed at Bhoomi
centres. If the revenue inspector or any related officer does not complete
the mutation within 45 days, the users can approach a senior officer person
with their complaint.
• There is no need for the farmers to wait to complete mutation transactions.
Under the new system, such requests are handled on a first-come-first-
serve basis (FIFO). There is little scope for preferential treatment and
discretionary powers of the civil servants.
• Revenue officers or Bhoomi operators cannot escape by committing errors
or misusing the powers because they are accountable for their decisions
and actions through the bio-login system. The facility authenticates every
login through a thumbprint. Further, a digital log is kept of all transactions
in a session.
BHOOMI: Initiative, Objectives and Achievements 11
Figure 2.1: Bhoomi and Its Stakeholders
Source: Chawla, 2004

2.1.1. Rights of Property, Tenancy and Crops (RTC)
The RTC or Pahani is a very important revenue record which is
now mandatorily issued through a computerized process. It contains details
of land such as owners’ details, area, assessment, water rate, soil type,
nature of possession of the land, easement rights, liabilities, tenancy and
crops grown, etc. Pahani contains valuable data related to a piece of land.
It has the following information:
Figure 2.2.1: Contents of an RTC
As explained earlier, an RTC is an intrinsic part of the farmer’s life

and it serves many purposes (Bhoomi website).
Figure 2.2.2: Uses of RTC
Note: As far as the contents go, there is no difference between the manual
and computerized RTCs. However, the computerized RTC is neat
and easily readable and understandable as details are printed in the
respective columns. Further, it cannot be tampered or overwritten
easily. Moreover, after the implementation of Bhoomi, the

Government of Karnataka issued an order saying that in a
computerized taluk, only computer generated RTCs are valid for
all legal purposes and that handwritten RTCs will not be recognized
for any property transaction.
2.1.2. Mutation through Computerized Process
Another important facility for citizens under Bhoomi is to effect the
mutation on the land as per the transactions on request. The changes are
made in the system after the citizen submits the applications and collects
acknowledgement for the same. The landowner can come and see the
status of ‘mutation requested’ by him and status of ‘mutation-in-process’
on his land. Mutation is nothing but a process through which possessor’s
name or specifics like liabilities are changed consequent on some type of
transaction.
The type of transaction may be one of the following*
Figure 2.3.1: Types of Mutation
Source: Bhoomi website

The owners of the land will change because of any one of the above
activities and owner/owners may be approach the Revenue Department
with the required document to effect necessary changes in land records.
Under Bhoomi, citizens can make similar requests at the Bhoomi centre
and collect the acknowledgement. In the same way, when a landowner
takes a loan or repayment is done, the owner can submit the request at the
Bhoomi centre with required documents, and accordingly the liabilities over
the particular land would be updated.
It is obvious that there would be objections or queries by other
interested parties whenever a mutation process is initiated. Even under
Bhoomi, the objection redressal procedure is the same as in the manual
system, but it is more simple and systematized in the present system. It can
be noted here that the objection is a complaint about a transaction done or
under way. If some transaction comes for change of ownership to the
Bhoomi centre, before accepting it, the Department serves a notice to the
interested parties, and with the help of respective VA’s displays it in public
places in the village where land is situated. If anyone feels it is an unlawful
transaction or feels his/her rights on the land are infringed, he/she can raise
objections. He/she has to give a written objection within 30 days from the
date of such notice to the Village Accountant or the Revenue Inspector or
to the Taluk office.
Another change in the RTC that needs regular updating relates to
crop details. This would be updated in the RTC once or twice a year,
depending upon the seasons and changes in cropping pattern of the farmer.
The crop information would be entered by the respective Village Accountant
after inspecting the field. If the farmer or the owner of the land finds wrong
entry of crop information in the RTC, he/she can apply for rectifying the
crop information in the RTC either at the Bhoomi Kiosk or with the Village
Accountant. The same will be rectified after verification by the respective
Village Accountant or the Revenue Inspector.
Further, if the citizen finds any wrong entries in the computerized
RTC or mutation extract, he or she can lodge a complaint at the Bhoomi
centre to get it corrected. All he or she needs to do is to come to the
Bhoomi centre with a copy of the RTC and fill an application called
‘difference application’. The application needs to be submitted to the inward
section at the Tahasildar’s office, which in turn goes to the Record of
Rights (RRT) caseworker and the RRT section forwards the file to the VA
asking him to furnish the exact details. The VA and Revenue Inspector
(RI) give their panchanama or inspection report and return the file to the
Tahasildar’s office. Then the RRT section carries out the rectification and
sends it to the Tahasildar for approval.
Once the Tahasildar approves, the file goes to Assistant
Commissioner for approval and then an order is issued. The same order
goes to the Tahasildar and on to the Bhoomi centre. Once the order is
implemented, the VA and RI give their login, and the corrections are finalized.
The user then can take copies of the corrected version at the Bhoomi
centre or hobli kiosk.
2.1.3. Software and Data Flow System- Software and Hardware
Related to Bhoomi
Since its launch in 2001, Bhoomi has been a learning experience in
land administration. Over the years, the hardware and software components
related to the project have been updated to make it simpler and user friendlyi.
A typical process chart of various transactions under Bhoomi is
given below:
2.1.4. Accessibility and Usage of Data and Monitoring System
across Levels
Besides the direct benefits of Bhoomi, there are several other benefits,
which still need to be quantified. The system, on its own, generates a variety
of reports, which help in designing welfare programmes for the Revenue
Department as well as for other Departments. Some of the reports developed
under Bhoomi are on land ownership by size, type of soil, crops, owner’s
gender, irrigation, horticulture, fisheries and afforestation. Many other
benefits are expected to flow from centralization of the database. The
application has been PKI-enabled so that computer-generated records can
be digitally signed. The data-base is useful to other stakeholders, namely
banks, courts, etc. Authenticated data are available to all stakeholders online
or on registered web portal, and there would be no need for farmers to
collect RTC and carry it physically to the bank or the court. This would
require that banks and similar stakeholders change their business method
for offering crop loans to farmers. This will also help banks to plan in
advance the quantum of loan required. Similarly, data can also be accessed
by the High Court and district and taluk courts for resolving legal disputes
regarding land. Overall, the land administration system through Bhoomi
could also lead to better administration of the Land Reforms Act. Tasks
such as enforcing a ceiling on land holdings, land acquisition and tackling
encroachments can be easily accomplished as Bhoomi makes it possible to
ascertain the genuineness of mutations as it is possible to identify land of all

different types belonging to an individual in a given village. This identification
is based on a mutation number that links all such records. Similar sifting of
the data available through Bhoomi can streamline the reform process and
further improve land administration and related issues.
Flow Chart 1: Various Processes and Data Flow Attached to
Bhoomi Centre
Chapter 3
KAVERI
3.1. Registration Process
The Department of Registration and Stamps is one of the oldest
Government Departments, dating back to 1856. The Department is vested
with various responsibilities such as registering documents, registering firms,
issuing encumbrance certificates and certified copies and registration of
marriages and issuing marriage certificates.
Any property transaction involving two or more parties has to be
registered for legal proof; when registration is done, the document becomes
permanent public record. When a property has to be transferred, as a
prerequisite, the property records are scrutinized to know whether the said
property has been previously encumbered or not. According to the Transfer
of Property Act, the right, title or interest can be acquired only if the deed is
registered and documents processed in the Sub-Registrar’s office. Besides
these, the main functions of the Department are (a) Preservation and
maintenance of records permanently for future use, (b) Ensuring safety of
the records, (c) Generating revenue to the government, (d) Detection of
under valuation of properties, (e) Adjudication of the documents, (f)
Preparation of indexes of the registered marriages/firms/ documents and
(g) Estimation of the market value of immoveable properties. The
Department is supported by a hierarchy of staff who implement the processii
3.1.1. Process of Registration - Pre - and Post - Integration: A
Workflow Analysis
The Department, which was functioning on manual system earlier,
was brought under computerization in 2003 and the process is called
Karnataka Valuations and E-Registration Integrated or ‘KAVERI’. In brief,
KAVERI is an e-model of computerization of land records for speedy
registration and delivery of documents and other services of the department
to the public. The Sub-Registrars’ offices across the State have been
computerized on the principle of public-private participation on a BOT (Build-
Operate-Transfer) basis. The computerization process has undergone three
stages: (1) manual system of registration, (2) computerization of registration
and finally (3) integration of computerization with the Bhoomi database.
3.1.1.1. Manual System of Registration

Since its inception and until 2003, registration process was done
manually, by following a method of data entry and copying of the registered
documents in the registers as the original, after the registration is completed.
In the manual system, the Sub- Registrar enters the details of the application
for registration in ‘Daily Register’. The registry also maintains a thumb
printer register and the details in the registry book. The sub-registry maintains
four sets of registers: (i) Book 1, recording all dealings in immovable property;
(ii) Book 2, recording all dealings that have been refused registration; (iii)
Book 3, recording all wills, codicils and bequests and; (iv) Book 4, recording
powers of attorney and other miscellaneous documents (World Bank, 2004).
Once the details have been entered into the book, the Registrar
stamps the deed with an entry, recording a chronological number/year and
the date of entry. The process and maintenance of records are done in a
meticulous manner to ensure quality and safety in all respects. The system
of book entries as above is continued in the computerized system except
writing the entries manually. Manual System of Registration involved 5
steps: (1) Presentation of documents;iii (2) Receipt generation;iv (3)
Admission of parties;v and (4) Identification of the executants by witnesses
in presence of the Sub-Registrar (5) Registrationvi.
The procedure followed in the manual system of registration of
documents was time consuming, comparatively less efficient, and expensive.
In order to overcome these challenges, the Department has modified the
registration process and introduced Kaveri.
3.1.1.2. Registration through Computerization Process - Kaveri
The KAVERI process was adopted under the Registration Act
1908, and made operational across all the sub registrar’s offices from
December 1, 2003. During the 1st phase of implementation of KAVERI,
202 sub-registrars’ offices across the state were computerized and the first
KAVERI centre was launched in the Rajajinagar SRO in Bangalore district.
The Sub-Registrar’s offices are equipped with internal network connecting
the computers, printers, scanners and CD writers within the office besides
customer kiosks. The main aim of KAVERI was to automate the registration
process fully and speedy delivery of services to the public.
KAVERI 19
3.1.1.3. KAVERI: E- Registration Process

KAVERI is equipped to handle the entire registration process inclusive
of necessary report generation and property valuation. The process followed
in KAVERI registration is similar to the manual system, which is a 5-step
procedure as defined in the Registration Act 1908, covering stamp duty
calculation and document scrutiny as well. Registration through the
computerized process ensures that the process is more reliable and quicker
as it is a client-server application that automates the whole registration
process. It was developed based on the principle of public-private
participation on a BOT (Build-Operate-Transfer) basis. The registered
document, encumbrance certificate on property (EC) and certified copy of
property document (CC) are given on the same day to the client. The
above is achieved by way of the detailed process followed in KAVERI
registrationvii.
3.1.1.4. Process of Issue of Encumbrance Certificate (EC) and
Certified Copies (CC) of Documentsviii
The EC on a property shows the encumbrance and the transaction
details on a particular property, and is issued to the applicant on request and
payment of the prescribed fee. All the lending institutions insist on this
document to take note of the details of transactions in connection with the
property. The CC of documents is issued to the applicants on a prescribed
fee in case of necessity and request.
3.1.1.5. Features of Operation in Registration Process- KAVERI-
Bhoomi Integration
As a follow- up of the KAVERI process, another significant initiative
taken up in 2006 was the integration between KAVERI and Bhoomi. The
computerization of land records in Bhoomi has made the procedure easy
for registration of documents as the details regarding survey number, extent
of the land, name of the seller, ownership pattern, partitions etc., are
captured from Bhoomi and used by KAVERI for registration and checked
on submission of 11-E sketch or pre-mutation sketch by the executants.
Soon after completion of registration, the J-slip containing information on
transfer of agricultural lands is electronically transmitted from KAVERI to
Bhoomi for making necessary changes in Bhoomi data for future use and
mutation changes. (Figure below)
Figure 3.1: KAVERI – Bhoomi Integration
Source: Department of Stamps and Registration, Bangalore

3.2. Benefits
The KAVERI-Bhoomi integration process has brought about
considerable benefits as explained below:
• Reduction in Time: Reduction of delays during the process of
registration.
• Resource Savings: Avoids unnecessary resource wastage of
registration department.
• Error-avoidance: Human Errors are eliminated on calculations and
while preparing the manual J-slips.
• SMS service: The system was in place very recently (September/
November), where in a message of successful registration of the
document is sent to the mobile phones of the parties in Kannada and
English.
• Anywhere registration: It was introduced in Bangalore during July,
2011 on a pilot basis in District Registrar’s office, Gandhinagar. On
• November 5, 2011, the facility was extended across the remaining 33
SROs falling under DROs of Jayanagar, Basavanagudi, Rajajinagar
and Shivajinagar.
KAVERI 21
• Anywhere Issue of encumbrance certificates and certified copies

of the registered documents: This system launched on November 5,
2011 enables public to obtain ECs and certified copies of registered
documents in respect of registrations done 1st April 2004 onwards from
any SRO in Bangalore for property situated in the jurisdiction of any
other SRO of Bangalore. It provides information to purchasers regarding
government land, SC/ST land and properties under litigation at Sub-
Registrar’s offices. The original ownership of property can also be
verified.
• Photo and thumb impression captured in KAVERI reduces the
occurrences of fraud.
• Information on Transactions are immediately updated in Bhoomi
ensuring correct information on the possibility of multiple transactions
on the same property.
3.3. Revenue Generation – A Comparison of Pre and Post
Integration
Generating revenue to the Government is one of the important
functions of this department wherein they charge the beneficiaries for the
various services provided. It is interesting to note that this Department is
the third highest revenue-earning department of the Government of
Karnataka. The total revenue generated over the years through registration
of documents is given in Table 3.1.
As can be seen from Table 3.1, revenue generation has been
consistently increasing over the years, though the increase in number of
registered documents has not increased noticeably. The revenue increased
from ` 1924.18 crores in 2004-05 to ` 3795.26 crores in 2010-11, though
the number of registered documents increased only marginally from 11.99
lakhs to 12.02 lakhs during the same period, proving that this Department
has been a major source of revenue to the Government.
Table 3.1: No. of Documents Registered and Total Revenue

Generated (in the last 12 yrs)
Sl. Year No. of Documents Total Annual
No. registered Revenue Percentage
(in lakhs) ` in crores)
(` Change
1 1999-00 5.90 584.58 2.23
2 2000-01 6.49 666.06 2.544
3 2001-02 7.86 1,030.00 3.934
4 2002-03 8.08 1,268.29 4.844
5 2003-04 9.88 1,498.31 5.723
6 2004-05 11.99 1,924.18 7.350
7 2005-06 10.15 2,385.29 9.111
8 2006-07 14.13 3,431.84 13.108
9 2007-08 11.94 3,630.74 13.868
10 2008-09 10.59 3,148.29 12.025
11 2009-10 13.18 2,817.44 10.762
12 2010-11 12.02 3,795.26 14.497
Source: Department of Stamps and Registration, Bangalore
Figure 3.2: Work Flow Process of Kaveri
(Registration Department)
Source: From Department of Stamps and Registration, Bangalore

KAVERI 23
3.4. Computerization Process - Software and Hardware Issues and

Data Flow System
The KAVERI software covers a wide range of functions earlier
performed manually by the officials - . Document Registration, Valuation,
Reports, Vendor Management System, Utilities, Other Registrations and
Marriage Registration, Web Site, Scan-Archival, Data Transmission.
Some of the important features of KAVERI that have made
registration process quicker are attributed to (i) Automatic calculation of
Market Value/SD/RF, (ii) Capturing Photo/Thumb impressions of parties
through Web Camera/Thumb Scanner, (iii) Storage of Photo/Thumb
impressions /Index data in hard disk, (iv) Automatic Indexing of EC data,
(v) Search of EC entries, (vi) Generation of Encumbrance Certificate, (vii)
Scanning of Registered Document, (vii) Storage of scanned images of
documents in CD’s, (viii) Automatic generation/ transmission of XML J-
form files to SDC and (ix) Generation of VMS bills for scanned pages and
(x) Generation of Reports.
Table 3.2: Differences between Manual and the Computerized
Process in KAVERI
Shortcomings in Advantages of
Manual System Computerization
Time consuming process Speeds up the process
Manual errors in copying Manual errors in copying
documents/EC/CC documents/EC/CC are
completely avoided
Allows discretion Removes discretion
Delay in delivery of services Reduces delay in delivery of services
More than one visit required Reduces number of visits in
for getting services getting services to the minimum level
Preservation, security & retrieval Safe and secured preservation, quick
of records was a challenge access and easy retrieval of records
Prone to manipulation of records Manipulation is almost impossible
Susceptible to revenue leakage Reduces revenue leakage
Source: Department of Stamps and Registration, Bangalore.
Several are the benefits of the speedy process of Kauvery software:
(i) Documents registered and delivered within 30 minutes, (ii) EC/CC issued
on same day, (iii) Elimination of errors in copying the documents, (iv)
Reduction in the time of registration process, (v) Reduction in trips to offices

by the public, (vi) Reduction in storage space, (vii) Easy access and speedy
retrieval of records, (viii) Fool-proof retrieval of land details from Bhoomi
for registration of documents and thereby avoiding fraudulent transactions,
(ix) Electronic transmission of J-forms to Bhoomi – Delay in sending the
manual J-forms is avoided and (x) Use of SMS intimating registration of
documents.
Compared to the manual system, computerized process has been
able to reduce possible manual errors and manipulation and also to prevent
major revenue leakages (See table 3.2). Besides, the long wait by people
for the process of registration to get over is avoided, and the documents are
also delivered on the same day, saving multiple trips made generally to the
SRO.
Table 3.3: Comparison between Manual and Computerization
Service Manual Computerized No. of visits made
system system by the parties
Manual Computerized
system system
Registration of document > 1 day < 30 minutes >1 1
Encumbrance certificate 3 to 10 days Same day >1 1
Certified copy of the 7 days Same day >1 1
document
Marriage registration 1 day < 30 minutes >1 1
Source: Department of Stamps and Registration, Bangalore.
As can be seen from Table 3.3, documents are delivered faster

under computerization compared to manual mode, saving both time and
money (travel expenses) for the general public. For instance, the time
taken for registration of a document has been reduced from 1 day to 30
minutes, on average.
KAVERI 25
Flow Chart 3.1: Kaveri Registration Process

3.5. Departmental Monitoring System and Data Accessibility and

Usage
The KAVERI system does not have a centralized monitoring
mechanism of administrative data except for monitoring of the vendors
services. The details of transactions are available at sub-division level.
However, there is no real time monitoring of the transactions on a day-to-
day basis, like in Bhoomi. It is possible to introduce such a system which
will be of great help to observe the progress and more importantly, enable
the authorities concerned to take corrective action, whenever and wherever
necessary.
3.6. Constraints in Operating the System after Integration and Its
Potential Implications:
Although KAVERI has brought about benefits, it still has some
limitations that can be seen at various levels viz., (1) Constraints faced by
the Department and (2) Constraints faced by the Public.
3.6.1. Departmental Constraints
3.6.1.1. Learning New Skills
The staff members had to learn new skills which took more time
for them to learn the skills since they were used to the manual skills. The
staff members found it difficult to adapt to the changes in roles and
responsibilities with their prevailing mind set. However, this could be
overcome by training the staff suitably. Private agencies were engaged to
take up some of the responsibilities in terms of processes. Therefore, it had
to be made sure that the Department officials also verify the documents
prior to finalization/registration and delivering the documents and certificates.
3.6.1.2. Inadequate Infrastructure
The study revealed several deficiencies that constrained the work
of SRO offices. Most of them were not equipped with the required
infrastructure. For want of required number of computers, the staff could
not function effectively. Most of the SROs did not have or had inadequate
power backup and therefore could not realize the full potential of the new
equipments. Further, several of SROs had severe space constraints.
Therefore, sufficient space and other infrastructure need to be provided to
make them totally functional so as to serve the community efficiently
KAVERI 27
3.6.1.3. Role of Middlemen

While purchasing property, most persons seek the advice of advocates
or Sub-Registrars. In some offices, the clients depend more on middlemen/
deed writers and advocates to get their documents registered. Obviously,
the persons who provide such services have to be remunerated.
3.7. Challenges in Kaveri
Although KAVERI has provided significant changes in the process
of registration, there still are certain limitations that need to be addressed.
The officers of the department have identified certain lacunae in its
functioning and also have recommended introduction of the improved version
of KAVERI. Some of the problems so identified are:
• Decentralized and stand-alone application – The Department is
functioning on its own and is dependent on KSWAN network, rather
than on the internet;
• Old and obsolete technology – Hardware and software have not been
updated;
• Lack of centralized MIS reports – They are yet to have centralized
monitoring mechanism for their functions;
• Lack of queuing mechanism – The systematic handling of registrations
by applying the principle of ‘First in First Out’ is not applicable in all
offices as the computerization is in the process of covering all the SROs;
• Lack of authorization and check in the system – Control softwares are
yet to be perfected;
• Tedious and erroneous data entry process – Due to heavy inflow of
data the transactions are getting slow at the entry level;
• Lack of alternate channel for service delivery – At present they are
not linked to Nemmadi owing to systemic problems and;
• Lack of Accounting and Grievance redressal module – The current
software used in the department is not capable to handle these issues.
3.8. New Kaveri Modification Proposals
New KAVERI is a scheme planned by the Department to overcome
the challenges faced in the current KAVERI, in conformity with the
recommendations of the Core Committee set up to study all aspects of
integration of KAVERI and other systems.
The New KAVERI aims to achieve: -

• Efficient Service Delivery, keeping in focus efficiency in terms of
addressing the following parameters - (a) Cost (b) Access and Access
options (c) Number of visits (d) Time and (e) Risk and chances of
errors in service
• Efficient and Effective Administration, by covering the following
parameters (a) Cost of operation (b) Work-load (c) Process Time (d)
Transparency (e) Data Security (f) Accountability (g) Access to Records
and (h) Ability to Inspect and Control.
• Maximize Revenue, by including parameters of (a) Volume of
Transaction (b) Reduction in deficits (c) Number of New Services.
Chapter 4
MOJINI
4.1. From Survey to Digital Maps*
The Survey Division in SSLRD (Survey Settlement and Land Records
Division) is an important wing of the Revenue Department assigned with
the task of measuring land with reference to the activities arising out of
land grants, land conversion, acquisition, mutation, land reforms, phodi
issues (partition related) hudubust issues (related to boundary disputes),
court commissions and court decrees. In addition to the important function
of preservation of valuable and important documents and sketches pertaining
to land, SSLRD handle other activities like basic survey, revision survey,
resurvey and training of survey staff. Computerization of land details is
another important task assigned to SSLRD. Government takes the advice
of survey department in fixing the land revenue. The land revenue rates
were revised in 1965 and remained the same till 1995. However, the same
rates have been retained, as per Government orders, as fresh survey work
is yet to be taken up. The SSLRD preserves all the documents, some of
which are even 140 years old.
The term ‘Mojini’ means measurement. In Karnataka, the Mojini
process involves electronic measurement system and computerization of
survey sketches. The process of digitization of land records for Bhoomi
was completed in 2002. For a considerable length of time after this, the
citizens depended solely on the Kiosks or Nemmadi centres effecting change
of ownership or confirmation of property details through RTC. During the
period, mutation proceedings often got stalled for want of a mechanism to
reconcile mismatches if any in area details, etc. This necessitated the
digitization of SSLRD records too.
Until 1999, land was measured or surveyed after the completion of
the mutation process and it resulted in a spate of property litigations between
buyers and sellers/interested parties because there used to be a mismatch
between the land available and that sold. The land measured or surveyed
after the mutation process provides opportunities for litigations. The RTC
was the only guidance factor, and it was not based on survey records.
Occasions were many when the actual dimensions of land differed widely
from that shown in the land records.. The transactions were happening on
the basis of Pahani/RTC with ‘Paiki’ or part numbers of original survey
numbers in granted land.
The government amended the Karnataka Land Revenue Act in 1999

(Sec.128, 131), wherein properties had to be measured before transaction,
and the system of licensing surveyors private surveys came into effect.
Initially, the licensed surveyors’ role was to collect the documents from
individuals and give it to the departmental staff for verification after survey
was completed, and after verification the mutation process would start.
This process has increased the dependency on licensed surveyors and
thereby resulting in misuse, corruption and public harassment, as the survey
was made a precondition for registration. In order to overcome this
drawback, the Government initiated another process in 2001, under which
the citizen has to contact the office with valid documents and with specified
fees of ` 403(now ` 600) of which ` 300 was paid to the licensed surveyor
assigned to conduct the survey.
In respect of the cases where sketch preparation and registration
process are completed but not updated in survey records, the Government
decided to issue RTCs after the survey sketch was updated in the system.
The manual system could not achieve this integration of both the departments
due to excess workload and failure to update the system. Therefore, it is
mandatory now that all the property transactions are necessarily to be
validated by the Survey Department or through the Mojini process.
4.1.1. Objectives and Operational Process in the SSLRD (Mojini)
The Government initiated the Mojini system to avoid mismatch
between RTC and survey sketch. In some of the cases, even after sketch
and registration were completed, the details were not updated in survey
records. Therefore, the government decided to insist that RTC be issued
only after the survey sketch is updated, and that before a transaction, mapping
or pre-mutation sketch has to be made, and both buyers and sellers have to
sign it. This was to be made in the Form of 11-E sketch which is a pre-
mutation sketch issued by the Survey Department. As this was being done
manually, it was seldom integrated properly giving rise to mismatches in
mutation and Phodi. Mismatches/mistakes in mutation/phode posed often
vitiated the whole scheme early rectification became unavoidable. It was
to overcome all these issues, that Mojini was brought into existence in 2007
with the specific objective of reconciling the information available in the
revenue records with the status of property in the Survey Department.
Mojini involves electronic measurement and computerization of survey
sketches by sourcing and integrating the relevant information from the
Bhoomi system. Whenever any changes are effected, further updating is
MOJINI 31
doneautomatically after necessary validation by the staff. The mutation

process became fast and reliable and the lacuna of mismatches in mutation
and phodi1 were avoided. Earlier, in the manual system, 11-E, the pre-
mutation sketch was not properly looked into from all angles due to several
reasons.
4.1.2. Specific Steps of Processes in Pre-Mutation Sketch, Hudbust
Issues, Decree and Court Order Issues, Resurvey Works,
Other Activities.
Phodi Issues
The Department handles all the phodi issues pertaining to land
grants, mutation, and land reform files received by the Revenue Department
for measurement. Once these are completed, the surveyors prepare tippans,
pucca statement, and akarband (Akarband Extract is Issued by the Survey
Department, and indicates the total extent, boundaries and classification of
the property in question) papers for land grant cases after corrections are
affected by the Revenue Department, if any, in area details and location
issues. New hissa numbers and hissa tippans (Hissa Tippani Book Extract
is a survey record now issued by the Tahasildar and earlier issued by the
Assistant Director of Land Records) clearly showing the sketch of the
entire survey number, its total area, extent of kharab land and net cultivable
area along with its bifurcated portions and the names of owners of each
sub-survey number, the relevant entry in the mutation registers pertaining
to each owner. Record of rights pucca book, atlas , form-10 and akarband
are prepared in case of mutation issues, and in land conversion, new hissa
numbers will be issued after tallying the mutation area and converted land
details. In the case of land acquisitions, the measurement work is completed
and tippan, pucca, and difference sketch are prepared by comparing both
the sketches of area and the proposal made by the land acquisition officer.
Pre-Mutation Sketch
Pre-mutation sketch is a survey sketch issued by the Survey
Department before starting the mutation process. This is also called as 11e
sketch. Pre-mutation sketch is very important, and prepared with the
following objectives:
• To protect the government lands from encroachments
• To settle boundary disputes between private lands
• To correctly assess land revenue and other taxes for each holding,
1
Subdivision of land parcel
• To enable the ryots to establish their right over their holding in a

court of law, and
• To confirm the land availability before it is sold and to avoid possible
gaps between land sold and what is available.
The Department issues 11e sketch only with a validity period of 60
days, and for any further extension, citizens have to pay `100 extra. Total
validation period of 11e sketch is only for 6 months.
Hudbust Issues
Once an application is received with necessary fees for ‘hudbust’
or re-fixing the boundaries for a survey number and hissa number, the
original Tippan and Hissa Tippan will be obtained and boundaries fixed,
and any unauthorized encroachment will be marked out.
Decree and Court Issues

Hudbust procedures are mostly follow- up o of Court decisions for
land measurement or other actions to be implemented as per court directions.
Resurvey Works
This pertains to resurvey work taken up mainly with the intention of
strengthening the administration. Till date, the resurvey of 33 villages by
using latest equipment ETS (Electronic Total Station) has been completed
in Maddur taluk on pilot project basis (Mojini website-
Bhoomi.karnataka.gov.in/Mojini).
Other Activities
These include training of personnel in the Mysore and Gulbarga
centres, and the City Survey works in the existing 48 towns and also the
proposed expansion of activities to all the towns in the state.
4.2. Overview of Mojini or Digitized Survey Project in Karnataka
Mojini, started as a pilot project in Ramanagara, is now fully
computerized and is functioning in all the taluks. At present, 88% of survey
department work is executed under Mojini and the target is to make it
100% within a year. Mojini identifies the point of wrongdoing in property
measurements in order to arrive at a decision on title in case of dispute by
the AC (Assistant Commissioner) based on facts of the case. Currently 1.5
lakh corrections in RTCs have been done through Mojini. Digitization of
akarband has started by digitizing all the papers contained in ‘Basthi’-
(Village bundle), the bundle of documents for every village. Bhoomi and
MOJINI 33
Mojini are interlinked, i.e., Mojini depends on Bhoomi for pre-mutation sketch
and once mapping is completed, the details are sent to Bhoomi for effecting
mutation and updating survey number. There are about 50 lakh survey
numbers and 1.5 crores sub-numbers in the State. The Department collects
` 600 from citizens for mutation changes and allocates ` 300 out of this
amount to the licensed surveyors. This scheme, working on a self-financing
principle, does not impose any financial burden on the state. Mojini also
captures biometric impressions at each level of operation. Mojini
infrastructure is outsourced to a private agency named Mysore IT Solutions.
Technical (Computer related) and infrastructural issues are solved through
this agency. Mojini system has reduced the number of days taken to issue
survey sketch from 15-20 days to 10 days, on an average. Mojini is not
operational in city survey area though, the departments come under the
same Directorate. Mojini system is currently run through manual operator
with 11-B application form filled with data from Bhoomi, and yet to go
online.
4.3. Features of Mojini in Karnataka
Digitization of Akarband
The approach adopted in this process was to hire a private company
to capture the field survey information in the settlement survey Tippan.
The survey information was used to produce individual parcel maps in CAD
format with the ultimate objective of arranging the parcels to form CAD
village maps derived from the field records.
Remote Sensing
The Karnataka State Remote Sensing Applications Centre
(KSRSAC) is currently scanning all village maps in a roster form that can
be used to produce vector map data. This map is based on the existing
village maps that were prepared manually.
Settlement Surveys with New Technology
The SSLRD completed a pilot settlement survey project in Maddur
taluk of Mandya district involving detailed investigation of rights on the
ground, the placement of boundary stones, the measurement of village
boundaries and corner- stones. It is planned that these surveys be connected
to the national grid (geo referenced) using control-tools provided by the
training institute of the Survey of India, which is based in Hyderabad. The
pilot resurvey involved significant interaction with the community and has
resulted in consolidation of small holdings.
Flow Chart 4.1: Mojini (Land Survey)

MOJINI 35
Microfilming of Records
In 1994, the SSLRD commenced microfilming of the field records
for the settlement surveys in Karnataka. This ongoing activity of digitisation
involves scanning of the original tippan, pakka (computation) book and
the prathi (assessment book).
4.3.1. Functions of Mojini
Functions of Mojini include (i) Digitization of akarband, (ii) RTC
mismatch corrections by resurvey, (iii) Resurvey in case of disputes and
action when matter is in courts, (iv) Outsourcing activity- hardware and
software management, (v) Selection of licensed surveyors, (vi) Phodi issues
and boundary fixation, (vii) Uploading and online operation and accessibility
to Kaveri, (viii) Complaint reddressal system, and (ix) Monitoring mechanism
by integration with Bhoomi data
4.4. Integration of Mojini with Bhoomi
Bhoomi and Mojini are interlinked in many ways; Mojini depends
on Bhoomi data, i.e., RTC for preparation of pre-mutation sketch, and after
the completion of mapping, the survey details are sent back to Bhoomi. Full
integration is possible once the digitization of all survey records is completed
which task is being attended on a priority basis by the Department, with
staff performing certain duties and responsibilities. It was observed during
the field-visits that there are no separate staffs specifically allocated to
handle Mojini work process and general survey work. Apart from licensed
surveyors there are 2 staff members involved in the Mojini work process,
i.e., the 11e caseworker and the survey supervisor. The number of
functionaries needs to be increased for further strengthening the process.
4.5. Departmental Monitoring System, Data Accessibility and
Usage - Mojini Monitoring Cell
Mojini monitoring cell located at Bangalore monitors all the functions
related to Mojini: (i) a It receives the data from all taluks regarding pendency
of 11E applications at each level, and officers at monitoring cell liaise with
the concerned licensed surveyors in regard to delay in work, and in turn
help the public to get the survey done in time (ii) Creates awareness among
the public about project Mojini and its advantages, (iii) Provides suitable
training to the staff (iv) Gives suggestions to the clients regarding their
survey issues and (v) Monitors the working status of Mojini centres across
the state. In situations where a particular surveyor has not completed the
assigned work within given time, the monitoring cell analyses the reasons
for the delay.
Table 4.1: Technology Selection for Survey Technique – Manual
and Computerization
Services Manual Computerization
No. of days to issue Over one month 14 days for normal cases,
the 11-e survey sketch and 30 days with corrections
Staff requirement High Estimated to be lower, but at
present owing to higher error
correction requests the
requirement is temporarily
high.
Fees ` 600 collected by ` 600 collected by the Dept.
the Dept. and ` 300 and ` 300 given to surveyor
given to surveyor for for each survey number.
each survey number
Biometric Impression No biometric Biometrics captured at all the
identification stages of operation
Occurrence of errors More Less, and once for all
corrections are completed.
Preservation of records Paper documents are Scanned documents are safe
fragile and subject to and remain in good condition
deterioration
Verification facility Only through manual Through online with Bhoomi
means SDC.
Source: Department of SSLR, Bangalore
The Computerized process of issuing 11 e sketch is considered to

be more authenticated compared to the manual system as the rate of
departmental error is minimized due to adoption of biometric system at
each stages of operation. Apart from this, as indicated in Table 4.1 the
number of days to issue 11-e sketch is reduced to 14 days. The integrated
system will also be on a self financing mode. Hence, it is expected that the
higher cost incurred initially, though higher, will be recoverable in future.
4.6. Mojini Present Challenges and Modification Options
Mojini implementation is associated with several challenges (i)
Licensed surveyors face problems in case of disputes due to non-cooperation,
encroachment etc., among the clients, (ii) Survey has to be done based on
MOJINI 37
Bhoomi data, which sometimes may not be in order, (iii) Operational

efficiency of hardware is not always assured, (iv) Insufficient staff strength
- initial staff requirement is high for Mojini because of heavy work load,
and (v) Delay in mapping by surveyor due to some field level topographical
problems like bushy lands, presence of rocks/uneven topography etc.
Modification options may be taken up with (i) Resolving disputes in
measurement - Tahasildar can assign government surveyors to resurvey
for reddressal of disputes if any, (ii) Technical issues- these can be sorted
out quickly by appointing technical persons at each taluk level as adjunct to
the outsourcing agency, (iii) Availability of surveyors - increase the of
surveyors to match local needs like increase in frequency of land transaction,
(iv) Data accessibility and security - Back up of Bhoomi data (with Mojini
uploaded data) can be stored at different levels (Ex: Pooling of all taluk
level data at district level along with State level data at State Data Centre
(SDC), (v) Take up general survey of all land holdings. on a priority basis to
rectify all mismatching entries at individual level. Also, compilation of records
of all lands with identity of ownership each can earn the government
additional revenue.
Chapter 5
BHOOMI-KAVERI-MOJINI-INTEGRATION
5.1. Integration of Bhoomi-Kaveri-Mojini
Before establishing the unified model for land records management,
the organizational structure of the land administration system and data flow
among its divisions did suffer from serious infirmities. Therefore, as a first
step towards the unified approach, it was decided to integrate the three
wings of land management namely Revenue (Bhoomi), Registration (Kaveri)
and Survey (Mojini). As computerization of these departments was not
integrated, it was felt that actual benefit of automation is not possible without
a proper integration. There was need to achieve perfection in terms of
procedures, data and citizen affability, which can be brought about only by
coordinated efforts of all three wings. Hence, all three wings are brought
under one platform where data handling is done electronically and services
are made available on line, thereby achieving the goal of creating a ‘Total
Land Management System’.
The BKM integration establishes the data flow system (which has
been computerized) and co-ordinates between three major wings of the
Revenue Department, Bhoomi, (automated delivery of RTC and Mutation
extracts), KAVERI (registration of land parcels) and Mojini (providing
survey sketches to the landowners). The integration of the three wings also
means synchronization and exchange of data between spatial (with Mojini)
and non-spatial records. A decision in this regard was made after taking
note of the fact that land records are fully computerized and accessible
from outside systems, registration process is fully computerized, and finally
the survey department is almost ready with digitized spatial data. The
integration of land records system commenced in September 2010 has been
proceeding in stages, though some hitches were experienced due to
mismatches of data between departments. A typical desirable scenario of
the BKM integration is visualized in the graph below:
Integration of Bhoomi-Kaveri-Mojini 39
Flow Chart 5.1: Set-up of BKM Integration
5.1.1. Highlights of BKM Integration Process

The integration of BKM can be perceived keeping in view the
following interface points among these different departments. While some
of the goals/objectives have already been achieved in the process of BKM
integration, others are underway.
• There is administrative integration of the three wings.
• Pre-mutation sketch (11E) compulsory for registration involving
division of a land parcel.
• Synchronization of textual data and spatial data with the help of
Integrated Mutation Phodi (IMP).
• Electronic data exchange used to take place between Bhoomi and
Kaveri through XML adopting Service Oriented Architecture
(SOA), which has now been converted into online data exchange.
• Efforts are on to integrate Bhoomi and Mojini systems.
• Various services available under the above wings of the revenue
department are also available in the citizen service centres
(Nemmadi Kendra) established at the hobli level, as these centres
are provided with database link of the above wings. However, not
all services by the above wings are available at Nemmadi Kendras.
5.1.2. B-K Integration Process
In order to facilitate BKM integration, the state data centre was
established in order that the exchange of data between different wings of
land administration is made easy to access and secure. The first major
step in BKM integration was the linking of Bhoomi and KAVERI wings,
popularly known as B-K integration. The state data centre is being used for
electronic data interchange between Bhoomi and KAVERI from 2008.
Data Flow System: A typical data flow model of the BKM integration is
shown in Chart 5.2
Flow Chart 5.2: Model of Data Flow for BKM Integration
Using the web services at the state data centre, KAVERI application
sends daily registration statistics to the data centre from its 220 locations.
The data so obtained in XML format (now online) from various KAVERI
locations are then forwarded to Bhoomi locations through the Wide Area
Network (WAN) intranet. The taluk Bhoomi machines are not connected
to the internet for safety purposes and therefore, the state data centre acts
as a router for KAVERI data coming in from various sub-registrar offices.
The Bhoomi and KAVERI programmes have been fully integrated
in many places now. Close integration of Bhoomi and KAVERI systems
achieved by enabling KAVERI applications to access data from the Bhoomi

database during registration process has streamlined the whole process.
Bhoomi will admit some web methods of the KAVERI application to extract
data required for the registration process and also provide data to web
methods to update details of transactions on Bhoomi.
In many States, the registration data from survey offices is
transferred physically in the form of ‘J-slips’ to the taluk offices. Previously,
the J-slips used to be received late and then processed in the manual system
causing further delay. Even after the computerized Bhoomi, the J-slips
used to be received manually and were hardly accounted. As part of the
Bhoomi–KAVERI integration, the KAVERI system sends daily transaction
data from the sub-registrar offices to the state data centre from where it is
routed to the respective taluks. On a first-in-first-out basis, these transactions
are then handled by Bhoomi and the whole process has become both
transparent and fail-safe. Citizens are therefore now very confident that
their transactions in the sub-registrar’s office will definitely result in their
land record being updated automatically.
The first-in-first-out principle adopted in Bhoomi transactions last
year (version 4.5) has led to a situation where the mutations are done on a
seniority basis. There is no way a Tahsildar or any other official can by-
pass a case listed earlier (i.e., first in queue) and favour later cases in the
waiting list. The software integration exercise of the BKM has been a
learning experience for the officers and staff of the State Government.
5.1.3. Integration of Bhoomi and Kaveri
• To begin with the new improved Bhoomi-KAVERI software was
installed in 5 taluks –Tumkur, Malur, Kolar, Bangarpet and KGF
sites on a pilot basis. The same was extended to 25 more taluks in
June 2011 and gradually the other taluks are being covered under
the project.
• The new software facilitates the Sub-Registrar to select Bhoomi
database for registration of sale/partition and other deeds pertaining
to land transactions. Government restrictions still in force against
transfer of land will be indicated through a message.
• When any parcel of land under court stay is attempted for transaction,
an alert message will be flashed to the Sub Registrar. However,
the transaction will be allowed if the Sub- Registrar is not a party in
the above court-stay.
Data Model of B-K Integration

A typical data model for Bhoomi-KAVERI integration is shown below:
Flow Chart 5.3: Bhoomi-KAVERI Integration Flow
Main Objectives of B-K Integration
• To bring synchronization between Bhoomi and KAVERI by reducing

time lag between registration and initiation of mutation process.
• To avoid duplication of data entry work otherwise being done both
at Bhoomi and KAVERI, in order to reduce workload.
• To reduce or remove the data entry mistakes resulting in rejection
of J-slips.
• To reduce rejection of mutations in Bhoomi due to wrong data
entry.
5.1.4. Bhoomi-Mojini Integration Process
In terms of operational steps, Bhoomi and Mojini are interlinked in
many ways. Mojini depends on Bhoomi data, i.e., RTC for preparation of
pre-mutation sketch and after the completion of mapping, the survey details
are sent back to Bhoomi.
As far as the B-M integration is concerned, the survey department
is still in the process of preparing the database regarding various survey
records. In addition, related digitalization processes of old survey maps are
also going on. Therefore, the complete integration of Bhoomi and Mojini
(in BKM) is pending due to non- completion of digitization of old records.
However, the Mojini staff is accessing the database of Bhoomi, while

processing 11e applications and related procedures.
The integration between Mojini and KAVERI is also pending for the
same reasons. However, the KAVERI staff are accessing Mojini data
(whatever available) through Bhoomi and State Data Centre, whenever
required for pre-mutation sketch cases. The integration between Bhoomi-
KAVERI -Mojini, whenever it is fully realized, would go a long way in
weeding out the problems in the land management system.
5.2. Nemmadi Kendras in BKM Integration
Even though the present role of Nemmadi Kendra in the matter of
BKM integration is restricted mainly to Bhoomi services (like RTC and
Mutation), the logical next step is to make it a partner for all kinds of land
record transactions. For example, once integration of Bhoomi-Mojini is
completed, the citizens can apply for 11e sketch or error correction through
Nemmadi centres. Similarly, with Bhoomi-KAVERI integration,
encumbrance certificates etc can be viewed and issued through Nemmadi
Kendras. Even though the Nemmadi Kendra project for decentralised
delivery of citizen services is necessary for better governance, there is
corresponding need for close departmental monitoring of its operations.
5.3. Present Challenges of Integration Process
Integration is yet to take place, in a complete manner, between all
three wings of Revenue Department, namely Bhoomi, KAVERI and Mojini,
in many parts of the State. The challenges faced are:
• Not all transactions are now passing the computerization and
integration band, and manual assistance is still necessary in specific
types of cases. (For example- J-slip entries for mutation change).
• Problems concerning operational framework in implementation-
multiple owners in a survey number asking for 11-E sketch.
• Problems related to technical issues- network, software etc.-
KAVERI
• Ownership of software to vest with the departments- KAVERI
• Absence of a centralised monitoring mechanism of administrative
data in departments
• No monitoring mechanism put in place to check on the process and
progress of integration.
5.4. Benefits of Integration Process

• Facilitates reflection of registration events on record of rights with
minimum time lag.
• Fills the vacuum created by non-availability of vital information
during registration.
• Ensures that seller is the owner of the property or has the legal
right to sell.
• Permits transactions only on the parcel/s slated for such
transactions. .
• Various conditions of land grant, land reforms etc are checked
before registration online so that future litigations are avoided.
5.5. Issues Arising At Different Levels of Operation and Options
to Quantify the Extent of Challenges
Enhancement in Kaveri Application
• KAVERI application stands modified to utilize the web services
offered by BHOOMI.
• Old way of generating XML has been disabled.
• Data transfer from KAVERI to Bhoomi after registration will happen
either in real time or through store and forward technique.
• Windows service in SRO server would utilize web services of SDC
to transfer the index XML and detailed XML after registration.
Enhancements in SDC Set-Up
• Web methods publicized for KAVERI using Bhoomi data to access
hobli and village level data; KAVERI to submit J-slip index data
and to submit j-slip data.
Enhancements in BHOOMI
• Facility to raise application based on J-slip received from SRO has
been disabled in application kiosk module.
• Survey supervisor’s validation stands removed from the workflow
of application kiosk.
• Bhoomi has been enhanced to automatically generate transactions
using detailed XML of J-slip data.
• Decision on Integrated Mutation Process or simple mutation is
automated in Bhoomi software.
• Handling of non-agricultural properties has been simplified.
Present System of Monitoring the Process and the Usage of the

Data - Controls Incorporated in Integration Process
The system has been equipped with built in controls to check and
provide maximum information on a property to authorities while processing
land transactions.
• Information about pyki RTC is provided at the time of registration
and 11E sketch is made mandatory for transactions involving pyki
RTCs.
• Information provided online on all the government restrictions and
their applicability to stop transactions on land parcels like non-
alienation condition for 15 years, prohibition of transfer of certain
land (PTCL) grants, land acquisition etc.
• No transactions allowed if owner category is stated as
‘Government’.
• Transactions based on RTC which are being corrected debarred
automatically.
• Joint-owners are dealt as a whole, and no joint-owner can transact
individually.
• No transaction is allowed if owner- extent is nil.
Alert Messages Provided in the System after Integration
In order to ensure safe land transactions warning messages are
automatically flashed to the authorities on line if there is any court orders/
court- stay on the owner or RTC when transactions are under way.
Ensuring hassle free transfer of any property with title through the registration
system would also require changes in the existing framework of legislation.
Enactment of new laws is a time-consuming process and will involve
numerous processes.. By improving the spatial framework for the land
records, modifying Bhoomi to incorporate spatial data, extending Bhoomi
to include urban and non-agriculture land, introducing Bhoomi into the
registration practice and undertaking institutional reform –actions already
undertaken by government without going for significant legislative changes
– Karnataka is expected to have a significantly improved deeds registration
system and up- to- date land records.
Chapter 6
BHOOMI, KAVERI, MOJINI (BKM)-EXPERIENCES

6.1. BKM – Experiences
Feedback received on the actual implementation of these
programmes was reviewed to understand the impact of these initiatives on
citizens. It is hoped that the insights from the review will help to establish a
proper institutional mechanism for supervising and monitoring, and initiating
corrective actions.
6.2. BHOOMI- A Situation Analysis
The overall system is functioning effectively. The underlying key
factor is the availability of property details with authentication and certainty.
The disposal rate of applications has improved to a considerable extent,
besides being systematised. On the click of a button, it is possible to know
the pendency level of each of the applications and the officers responsible
for processing the same. All applications for land transactions (with supporting
documents) are accepted at the Bhoomi kiosk and, no applications are
received without the relevant papers/documents attached. The officers are
responsible for the decisions they take, and there is no scope for preferential
treatment or misuse of official position, thanks to the safety features
incorporated like obtaining biometric ID proof before entries are made in
the system. The following section is a situation-analysis of Bhoomi by
capturing the views of the department officials and the stakeholders
observations made during the field visits.
Land Related Transaction Applications - Status
The data for post integration period as compared to the period prior
to integration shows a mixed trend with regard to the receipt of land related
applications at Bhoomi. There has been an increase in the average monthly
inflow of applications in respect of Tiptur and Bantwal, while it is a declining
in the case of Gulbarga and Bantwal. The reasons for mixed trends vary
across taluks. The impression gathered in Tiptur indicates that the involvement
of and close supervision by the Tahasildar and Shirastedar in terms of
expediting the disposal of applications has a distinct impact on land
administration. In Bantwal, despite close monitoring, a severe shortage of
hands to cope with the increased monthly receipts of applications was
observed. Bantwal office could have done better if additional hands were
Bhoomi, Kaveri, Mojini Experiences from Four Taluks 47
provided as the transactions were comparatively higher and next only to

that in the district headquarters. In Gulbarga, it is found that the volume of
land transactions depended directly on the commercial activity in and around
the city; during last year it was said to be very high. In Navalgunda, though
the average performance of the department is comparatively good with
regard to the pendency level, there is no specific reason observed for the
decline in receipt of applications, post integration; possibly it has no
commercial activity background.
Graphs 6.1: The Number of Land Transaction Applications
Received
Source: Department of Revenue, Bhoomi Operator, Tiptur, Gulbarga (South)

Taluk, Bantwal and Navalgunda taluks.
Note: In respect of Tiptur and Gulbarga, post BKM integration period
started from September onwards and for Bantwal and Navalgunda
from December, 2011 onwards corresponding to the actual date of
BKM integration.
Disposal of Applications
The data obtained from the department reflected a good trend in
terms of disposal of applications. The disposal of applications related to
land transactions indicates an improved performance trend during post
integration phase for almost all the taluks. This indicates that land
administration system in the state has been responding positively in terms
of showing a notable improvement in service delivery.
Graph 6.2: Land Transaction Applications Disposed at the Field

Level
Source: Department of Revenue, Bhoomi Operator, Tiptur, Gulbarga (South)

Taluk, Bantwal and Navalgunda taluks.
No Undue Delay in the Disposal of Applications
The statutory notice period for the disposal of applications from
the date of receipt is 30 days except in the case of court orders, Pauthi etc.
The data indicates that there is considerable increase in the disposal rate of
applications. On an average, 84% of applications in Tiptur and Gulbarga,
96% in Navalgunda and 63% in Bantwal are cleared between 30- 60 days,
indicating a good trend in the file disposal process (Refer table 6.1).
Table 6.1: Information on Time Taken for the Disposal of
Applications
All Type of 30-60 days 60-90 days 90-120 days More than Total
transaction 120 days
1 2 3 4 5 (2+3+4+5)
Tiptur 358 (84 %) 21 (5 %) 11 (3 %) 36 (8 %) 426 (100%)
Gulbarga 207 (84 %) 27 (11 %) 2 (1 %) 8 (4 %) 244 (100%)
Bantwal 303 (63 %) 141 (29 %) 33 (7 %) 7 (1.5 %) 484 (100%)
Navalgunda 876 (96 %) 37 (4 %) - - 913 (100%)
Source: Department of Revenue, Bhoomi Operator, Tiptur, Gulbarga (South)Taluk,
Bantwal and Navalgunda.
Note: Figures are based on the respective statements as on July, ‘12 for Tiptur,
August,,’12 for Gulbarga, October,’12 for Bantwal and for Navalgunda.
Pendency Level of Applications

The pendency rate of applications is found on an equal footing
across taluks with no significant variations. Regarding disposal of applications
(between July - October 2012) it is seen that there is a pendency of 30% to
40% at Bhoomi operator level in three taluks and 55% in Bantwal apparently
due to a higher receipt of applications; similarly, pendency is 11% to 22% at
Revenue Inspector level, 4% to 21% at Survey Supervisor level and 15%
to 47% at Shirestedar level out of the total applications pending to be
processed. The details are presented in Table 6.2.
Table 6.2: Pendency of BKM Related Applications at Different
Levels
Level Type of applications Number of applications pending
pending in Taluks
Tiptur Gulbarga Bantwal Navalgunda
Operator Acceptance of 107 4 587 78
applications
To register applications 372 354 1042 155
after the approval of
Revenue Inspector
Total 479 358 1629 233
(30%) (26%) (55%) (39%)
Village Digital signatures 438 Nil Nil Nil
Accountants on RTCs
Revenue Acceptance of 2 5 16 -
Inspector and objections
Office of RI To receive mutation 89 51 16 -
application
Acceptance of order 70 75 126 12
details
Approval on IMP files 141 168 292 53
Office RI 43 33 19 -
Total 345 299 469 65
(22%) (22%) (16%) (11%)
Survey Pending at the 23 52 183 10
supervisor Mojini kiosk
IMP files for details 41 234 74 12
Total 64 286 257 22
(4%) (21%) (9%) (4%)
contd...
Shirestedar Error correction 136 100 194 238

applications
Approval of 79A/B 37 89 8 6
applications under
KLR Act
Objection cases 60 188 184 -
Issuing endorsements 3 1 10 39
on cases rejected by
Survey Supervisor
RTC correction cases 2 19 5 -
waiting for AC’s approval
For approval of - - 213 -
transactions
Total 238 397 614 283
(15%) (29%) (21%) (47%)
All Officers Total 1574 1373 2969 603
Source: Data collected from the respective Department
Note: Figures are based on statements as on July’12 for Tiptur, August’12 for
Gulbarga, October, 12 for Bantwal and Navalgunda.
Minimal Delays in Mutation Process

The hurdles faced, if any, by the process are few and far between...
Bhoomi operator processes a complete list of mutation details received
from the Village Accountant on a daily basis. There was no report of having
faced significant problems in the above process from the any of the taluks
even at the Revenue Inspector level where the details are cross checked
before forwarding to Shirasthedar for further processing. In the normal
course, a majority of applications get cleared between 30 and 45 days2.
The process reviewed and is simplified regularly by the Tahasildar and the
Shirastedar. A delay may occur only when mismatches occur in entries
mainly due to akaraband durasthi.
As Compared to the manual process, the clearance of files is faster
and systematic in the new system. Information collected on delays indicates
that it is about 16 % in Tiptur and Gulbarga taluks as compared to 4% in the
case of Navalgunda. However, the delay period is found more in respect of
Bantwal taluk (37.5%) where inadequacy of infrastructural facilities and
processing staff are the main reasons for delay.
2
The statutory notice period for processing application is 30 days.
Utilisation of Bhoomi/Nemmadi Kendra Services

The rate of utilization of computerised land record kiosks - both Bhoomi
and Nemmadi – at taluk and sub-taluk or hobli levels, are quite high; over
80 to 83% of clients in Gulbarga and Navalgunda are found to have utilised
the improved services available at these kiosks. This has become possible
as these centres are well connected by roads and transportation facilities
and, and also because transactions are swift in terms of accessing services
like Mutation, Khata Change etc. During field visits, we witnessed long
queues at Nemmadi Kendras as compared to Bhoomi Kiosks. Since
Nemmadi Kendras issues different type of certificates (RTC, caste
certificate, income certificate, birth and death certificate and others), the
local people visit these centres frequently refer table 6.3. In fact, many
villagers are found demanding that the government set up more centres so
as to facilitate ready access to these services.
Table 6.3: Sources of RTC Service and Reasons - (Clients in %)
Source of Service Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
Bhoomi Kiosk 18 58.1 24 80 17 56.7 25 83.3
Nemmadi Kendra 13 41.9 6 20 13 43.3 5 16.7
Reasons for Preference
Bhoomi Kiosk*
More authentic 14 45.2 14 46.7 9 30 10 33.3
Guaranteed service 7 22.6 9 29.9 5 16.7 20 66.7
Well connected 14 45.2 21 70 12 40 19 63.3
by Transport
Smooth transaction 7 22.6 16 53.3 12 40 12 39.9
Other 6 19.4 - - - - - -
Nemmadi Kendra*
Less distance to cover 10 32.3 7 23.3 12 40 5 16.6
Less queue 5 16.1 5 16.7 7 23.3 2 6.7
Smooth transaction 3 9.7 - - 6 20 - -
No additional expenses 5 16.1 5 16.7 12 40 4 13.3
Source: Data compiled from primary survey
* Note: Figures do not total up to 100 due to multiple responses
Good Service at Bhoomi Kiosks

The present model of kiosk and method of operation are found
satisfactory in terms of accuracy, transparency, convenience and time and
cost saving. Bhoomi kiosks are functioning well and are very useful to the
public as they provide easy access to documents. However, there exists
further scope for improvement in terms of adding additional services; for
instance, for providing up-to- date details of all transactions taken place
across departments.
It is heartening to note that a majority of clients in all the four taluks
get their work done without any outside assistance. This indicates that the
system is customer- friendly as they do not need any guidance for filling-
up applications or for producing required documents. However, about 36 to
53 % of clients prefer to have some sort of official assistance at the centres
in the form of ‘Information Kiosks’ for knowing the status of their
applications especially those submitted for error corrections(Refer table
6.4). Similarly, service at Nemmadi Kendras was also found to be effective
and good.
Table 6.4: Assistance taken by clients at Bhoomi Kiosks/
Number of clients Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
Assistance taken 3 9.7 2 6.7 11 36.7 10 33.3
Assistance not taken 28 90.3 28 93.3 19 63.3 20 66.7
Requesting for Assistance
Preference(Yes) 16 51.6 16 53.3 18 60 11 36.7
Non Preference(No) 15 48.4 14 46.7 12 40 19 63.3
Minimal Time Taken for Issuing RTC and Mutation Copies
It is interesting to note that the waiting period is minimal at the kiosk
(between 20-30 minutes) for obtaining RTC and mutation copies in Tiptur
and Gulbarga taluks despite some amount of delays due to a slow network.
The survey results show that a majority of the clients spend a maximum of
30 minutes at Bhoomi Kiosks/Nemmadi Kendras in Tiptur and Gulbarga
taluks for accessing RTCs. However, waiting time is found to be over three
hours for some transactions in the taluks of Bantwal and Navalgunda due
to peak hour rush and frequent power cuts. Except Gulbarga (23.3%), 80
to 93% of clients in the other three taluks were found to have made only
one visit to kiosks to collect their certificates. This is a positive sign as it
indicates the degree of swiftness with which the services are made available.
However, it would be useful to increase the number of counters at the
kiosks to further improve the service delivery.
Graph 6.3: Time taken for RTC at Bhoomi Kiosk/ Nemmadi

Kendra
Table 6.5: Visits Made to Bhoomi Kiosk/Nemmadi Kendra

(Clients in %)
Visits Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
One visit 28 90.3 23 76.7 25 83.3 28 93.4
More than once and 3 9.7 7 23.3 5 16.7 2 6.6
up to three visits
Total 31 100 30 100 30 100 30 100
Cost incurred towards obtaining Records
Table 6.5 reveals that the expenditure incurred by the villagers for
visiting either Bhoomi Kiosks or Nemmadi Kendras to collect necessary
certificates depends on the distance factor. For villages connected well
with transport/close proximity to transport, the expenses incurred range
from ` 50 and ` 100 per visit (Refer table 6.6). However, there are instances
wherein the villagers have spent more which might be either due to long
distances between their villages and the centres, or for having made repeated
visits to avoid long queues or failure to access certificates on the days the
client visited earlier.
Table 6.6: Average Personal Expenditure Incurred for Each Visit
to BK/NK (Clients in %)
Amount range Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
No cost incurred 1 3.2 4 13.3 - - 2 6.7
` 50 14 45.2 9 30 17 56.7 11 36.7
` 100 9 29 12 40 13 43.3 9 30
` 200 1 3.2 5 16.7 - - 7 23.3
` 300 2 6.5 - - - - 1 3.3
More than ` 300 4 12.9 - - - - - -
Total 31 100 30 100 30 100 30 100
Source: Data compiled from primary survey.
Error Free Acceptance of Applications at Bhoomi Kiosk
The process ensures error free acceptance of applications due to
three main factors such as custom-made software, double checking by the
Shirestedar concerned and the availability of trained operators. It is
significant to note that mistakes in data entry at Bhoomi kiosks have been
overcome to a large extent. This can be attributed to the sophisticated
software installed which indicates the system of accepting applications
through a checklist before allotting Mutation Registration number on an
application. Besides this, to make the system more effective, the process
allows for verification at the level of Shiresthedar who is responsible for
checking for wrong options made, if any, by the operator. Even oversight
errors are not allowed to creep in as the operators are periodically given
refresher-courses
Initiatives taken to Reduce Errors are Noteworthy
The delay occurs due to mismatches in data entries and the
requirement of akaraband entry. The error correction procedure is carried
out free of cost on written requests. In pursuance of a circular dated June
23, 2012 in this regard, corrections are being carried out at the hobli level
on pre-scheduled dates by holding camps. All data entry error corrections
(only RTC) are done without extra charges. Apart from this, a suo moto
exercise through the system is being followed at Bhoomi to identify the
mismatching entries in the 3rd and 9th column details of individual RTCs
before initiating the correction process. With this ongoing exercise, it is
expected that a good number of data mismatches in Mojini and Bhoomi
departments would get rectified.
Process Ensures Safety with No Scope for Misuse
Prior to BKM integration, there were reported instances of misuse
of information like mutation and deletion of entries without the knowledge
of the property owner, not incorporating the decisions made with respect to
a property in the records etc. Currently, there seems to be no scope for
such misuse of the system as access is strictly through biometric procedure.
. In case of occurrence of such misuse, it can be traced and rectified, and
action initiated against the person making such incorrect entries in the
records.
On The Spot Issuance of Acknowledgement Ensures Transparency
The issuance of an acknowledgement slip at the time of submission
of applications and payment of fees has helped ensuring transparency and
accountability in respect of land administration to considerable extent. For
mutation and RTC copy, the amount paid by the client is mentioned in the
same record. Clients do not pay any extra money over the prescribed
Government fee for accessing services at the Bhoomi kiosks. However,
the clients expressed that the status the status verification of mutation
requests requires more effective handling than as at present.
Acknowledgement numbers provided at the time of submission of
applications for mutation have enabled them to know the status of their
applications. Moreover, if required, further guidance is also provided. SMS
service is also used to inform customers the status of their applications.
Table 6.7: Ensuring Transparency and Accountability
Details Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
Extra amount paid 31 100 30 100 30 100 30 100
other than the
Government fee
Receipt given 31 100 30 100 30 100 30 100
6.2.1. Positive Impacts on BHOOMI

As the data in Table 6.8 confirm, the introduction of Bhoomi has had
a positive impact on clients using its services, who acknowledge that
compared to the erstwhile manual system, services rendered under Bhoomi
are very quick, hassle-free, authentic, client-friendly and easy to access,
whenever needed. The field data reveals that in all four taluks visited, the
clients were satisfied with the services provided under Bhoomi -- 80.1% in
Bantwal, 66.7% in Navalgunda, 55% in Tiptur and 50% in Gulbarga. Similar
were the views found in regard to FIFO (First-in-First-out).
Tables 6.8: Perceptions of Clients Regarding Bhoomi
Perceptions Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
Quick and easy 17 54.9 15 50 24 80.1 20 66.7
delivery of documents
compare to manual
Accessibility is better 12 38.7 22 73.3 24 80.1 25 83.4
Less harassment and 24 77.4 - - 12 39.9
people friendly
FIFO system is better 7 22.6 - - 24 80.1 26 86.7
Property details are 3 9.7 22 73.3 18 60 8 26.7
becoming accurate and
error free and misuse/
Misappropriation
possibilities are lesser
Note: Figures do not total up to 100 due to multiple responses
6.2.2. Key Issues
Time Taken for Issuing New RTCS
It takes considerable time for issuing new RTCs, which in turn, impacts
the pendency level of applications. The field data shows a delay of 2-
3months in Tiptur; to the extent of 42%, 37% in Gulbarga, 46.7% in Bantwal
and 66% in Navalgunda taluks. Disputes such as wrong measurements,
titles, litigation, etc. that arise at the time of mutation lead to undue delays in
processing RTCs. Further, delays are also caused due to mismatches
between the information provided in old RTCs (manually entered) and the
information recorded in Bhoomi data. The work pressure on operators also

results in delays in clearing new RTCs.
Graph 6.4: Time Taken for Accessing RTC at Bhoomi Kiosks/

Pendency and Delays
The main reasons for pendency and delay are over dependence on
external services like maintenance, service, stationery, and network issues.
This is in spite of the fact that the infrastructural facilities provided for the
Bhoomi kiosk and back office are sufficient to handle the work load, as the
feedback from the taluks of Tiptur, Gulbarga and Navalgunda suggest.
However, the position was not satisfactory in Bantwal taluk, as they have
been facing space, power and network problems. Some of the problems
confronted by the staff in carrying out Bhoomi related work are as follows:
Delay in data entry, processing and printing the required documents
due to server and network deficiencies. For example, KSWAN network
(the Wide Area Network of Karnataka State) has not been working
effectively especially in Bantwal and Navalgunda. In rural areas, power
cuts for long durations have often disrupted the work of Bhoomi, etc Adequate
power back-up facilities have been provided in Tiptur, Gulbarga and
Navalgunda but in Bantwal the backup facility is that of lower capacity.
The data entry operators are finding it difficult to enter data as the software
version and keyboards do not match with respect to language used, i.e., the
screen displays the local language (Kannada) while the key boards are in
English. There are several software problems encountered during the process
of processing, and the Bhoomi Operators are forced to consult the Bhoomi
Monitoring Cell frequently to resolve these issues, which also causes delay.
The hardware problems are not attended forthwith by technical consultant
since they are stationed only in the district head quarters concerned. This
was an issue in Tiptur taluk while it was not the case in Gulbarga, Mangalore
and Navalgunda taluks.
The consultants do suggest solutions over phone; however, many a
times, the operator is unable to resolve the problems on telephonic tutoring,
and this causes delays.
Technical Problems
The computer systems provided are not fast enough in processing
the data - this results in service delays. With the slow processing of data,
printing also gets delayed despite using laser printers. Particularly after the
introduction Public Key Interface (PKI), the delay in processing has
increased. Besides, while kiosks are busy, back office systems often hang,
causing further delays. KSWAN network is not functioning effectively in
some taluks.
Bhoomi operators observe that the present Bhoomi software version
does not have in-built data correction mechanism to correct possible entry
mistakes at the operator level. However, the Bhoomi software version 4.7
has this option and wherein the mistakes occurring at the operator level can
be corrected at the Shirasthedar level. To some extent, number of
applications for error correction can be reduced by rectifying such mistakes
at the Shirasthedar level. As the present software, (J-slips) are not equipped
to differentiate between cases of sale and gift, currently all gift cases are
treated as sales. The Registration of converted land is classified as IMP
instead of normal mutation (observed at Bantwal), due to which additional
reclassification of cases has to be done, and to follow up on this, a list has
to be sent to also to the Bhoomi Monitoring Cell for correction, adding
additional work pressure on the operator.
Table 6.9: Types of Problems Associated with Bhoomi Software
Type of problems Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
Network problems 4 12.9 8 66.7 22 73.3 21 70
Bhoomi Data Access 5 16.1 1 3.3 10 33.3 5 16.7
Problems
Infrastructural Facilities
Currently, Bhoomi Kiosks, the point where the customers visit to
collect their RTCs, do not have proper facilities like shelter, seating
arrangements, drinking water and staff to monitor the queues. For instance
46.6% of clients in Gulbarga, 50% in Bantwal and 36.6 % in Navalgunda
pointed out the deficiency in these requirements(refer table 6.9).
Table 6.10: Opinion on Infrastructure from Client
N % N % N % N %
Poor Infrastructural 4 13 14 46.6 15 50 11 36.6
Facilities
Total 31 100 30 100 30 100 30 100
As expressed by the Kiosk operators, they were satisfied with the
infrastructure and other facilities especially in Tiptur and Gulbarga taluks,
but the operators in Bantwal and Navalgunda taluks expressed dissatisfaction
citing the shortage of space provided enough for work and storing land
related records. The computers were found to be of older versions and
taking almost least 5 minutes to process a single application (refer table
6.10).
Constraints in PKI Provision
Village Accountants’ role has remained the same even in post-
integration phase since they are responsible for the verification of all the
transactions besides recommending mutation changes within the stipulated
date. With the PKI facility, their responsibility has increased in terms of
affixing digital signature and clearing of applications. The present
arrangement of having PKI facility at the taluk level is not expedient as
village accountants have to travel to the taluk to affix digital signatures
during certain prescribed hours. The absence of VAs at taluk level has
been worsening the pendency of applications. For instance, as at the end of
first week of July, 2012, there were 438 RTC Certificates pending for digital
signatures. However, PKI is yet to be implemented in Gulbarga, Bantwal
and Navalgunda taluks(see table 6.11).
Table 6.11: Available of PKI Facilities at Nemmadi Kendras

PKI facility Gulbarga Tiptur Bantwal Navalgunda
Mode of Ink signature Digital Ink signature Ink signature
Authentication Signature
Public Guidance Good Good Good Good
Nemmadi Kendra
The experience is no different when it comes to the working of
Nemmadi Kendras. In fact, these Kendras are much sought after by the
customers including school going children for obtaining necessary documents
and certificates. The team was witness to long queues near these centres
and queuing up used to start from early morning especially by the students,
more so at the time of admissions to schools and colleges. As a result, the
work load of the operators normally increases during peak seasons. The
farmers require property documents particularly during sowing season for
applying farm loans, while students require caste and income certificates
for applying for scholarships, and during such occasions, the rush would be
so heavy at these centres that the operators would find it hard to handle the
pressure. In total, 38 services have been found to be handled by just one
operator. Another additional burden placed on the operator, in many centres
is to distribute RDS certificates. All RDS certificates and land related
documents are being issued in one common centre where PKI facility has
been extended. A cumulative effect of all this could be seen in terms of
delay in distributing the necessary documents and certificates at these
Kendras. The feedback from computer operators in these centres is also in
line with the above, i.e. 33% operators in Gulbarga and 13.3 % in Navalgunda
stood by this view and also contended that the delays were mainly due to
lack of supply of blank RTC forms and other stationery items like printing
paper, ink refills.
Nemmadi Kendras face severe technical problems. For instance,
batteries provided at Nemmadi Kendras were found to be very old and
hence unable to provide backup even for half-an- hour particularly during
power cuts. Usually, the power cuts last for over two to three hours a day
(during summer) and often occurs twice a day if not thrice. Incidentally, the
demand or necessity for land related documents is very high during cultivating
season, wherein the farmers would like to go in for crop loans and/or other
related favours. Computers in these centres also appeared to be not updated
technically and because of this, they were very slow to support the present
software, resulting in delay in the processing of applications. Besides these,

the printers provided are old and printouts taken were smudgy resulting in
and wastage of ink and paper besides avoidable delay.
With respect to connectivity, network problems were common. Poor
network connectivity used to result in delayed access to the document as
also difficulty viewing the opened document for want of clarity. Owing to
slow operation of the servers especially in the morning hours, the operators
used to print certificate/documents during closing hours. This used to put
extra burden on the operators. Even the printed documents would be illegible
and beyond comprehension. Often, the documents missed out on information
in the documents and repeated prints had to be taken, which led to wastage.
Apart from these, basic infrastructure facilities were missing at
the Nemmadi Kendras like waiting lounge, drinking water, and toilet facilities
etc., putting the customers in utter discomfort. The operators also worked
under poor working conditions with no proper maintenance etc. More
importantly, there was inadequate supply of stationery items, frequent
problems with printers and computers, resulting in delay in extending the
services. As Nemmadi Kendras are based on public private partnership,
discussions with operators employed revealed of indifference on the part
of the hired agencies. The documents issued at Nemmadi Kendras are
confidential, however, due to lack of counters/locker facilities there was
scope for misappropriation.
Preference to Taluk Office over Nemmadi Kendras
Delays were common in updating of data as the RTCs created in
Bhoomi or Taluk offices are not immediately updated due to which survey
numbers needed by the clients would not be available with Nemmadi
Kendras (see table 6.12). Hence, many of the clients prefer to get their
RTCs at the taluk office.
Table 6.12: Problems in Availing Services
Details Gulbarga Tiptur Bantwal Navalgunda
Delay in updating data   – 
Lack of details in old RTC    
BHOOMI KIOSKS - Shortage of Counters and Increased Work

Load
The Department officials were of the view that the shortage of
counters was also causing delays at Bhoomi kiosks in receiving applications
and guiding the citizens. There are practical constraints in posting other
staff for this purpose as there is only one person to operate each counter.
As a result the operating personnel get overburdened with increasing
workload and are compelled to work beyond office hours. Also, customers
(73% in Navalgunda, 35.5% in Tiptur and 20% in Bantwal) reported as
having faced delays in getting their work done..
A Bhoomi Kiosk with a single counter to serve the entire taluk as is
the case now is resulting in increased workload. Currently, team of three to
five operators takes the responsibility of handling the different tasks involved:
one operator receives the applications, and is called the front office operator;
another operator enters the details of the clients, and a third operator issues
different types of documents or records to the clients and is called as the
Land Operator . However, it problems in work-sharing problems among
team members were quite visible.
In general, of the five operators in a taluk office, three work in the
Bhoomi centre, and the remaining two are deputed to other offices of the
department. This method overburdens the existing operators in the Bhoomi
Kiosks force them to work overtime every day to complete the office work.
Understandably, heavy work-load has taken a toll on their morale and also
led to errors and delays creeping in. The operators opined that overcrowding
of the clients made it difficult for them to function effectively and without
errors and delays.
Problems Encountered
The clients across taluks expressed some apprehensions on the
negative aspects of Bhoomi. As many as 36% clients in Tiptur and, 73.35
% in Navalgunda wanted an increase in the number of kiosks, as they were
found to be insufficient. Further, 46.6% clients in Gulbarga, 50% in Bantwal
and 36.6% in Navalgunda pointed to the poor infrastructural facilities available
at the kiosks. While 33% clients in Gulbarga complained that there were
delays occurring frequently in the updation, causing undue delays in getting
their documents from the Nemmadi Kendras. Further, 20% of the clients
drew attention to the delays happening in the process of issuing notices
after the submission of applications, while 17% mentioned about the
occurrence of errors at the time of computerization of Bhoomi data (see
table 6.13).
Table 6.13: Problems Encountered at Bhoomi

N % N % N % N %
Delay in issuing old RTC 2 6.5 - - - - - -
Delay in updating of - - 10 33.3 - - 4 13.3
RTC data from Bhoomi
Delay in Notice - - 6 20 3 10 9 30
generation
Divergences in data - - 5 16.6 - - - -
from the Manual to
computerized system
Note: Figures do not add up to 100 due to multiple responses
6.3. MOJINI – A Situation Analysis

The important functions carried out under Mojini relate to conducting
and maintaining of property related survey data, determining the boundaries
of individual properties, and issuance of property sketches on request. Lately,
after making pre-mutation sketches were made mandatory for the
registration of any agricultural property, preparation of survey sketches of
the property to be registered either for sale or transfer, has become a major
Mojini activity, i.e. issuing of 11-E sketches. However, digitization and
computerization of Mojini data is under process while a complete integration
is yet to happen with respect to Bhoomi and KAVERI. Accordingly, a
complete BKM integration is under progress.
The Survey Department is responsible for issuing 11-E pre-mutation
sketch which is required only when part of the property is to be transacted,
not needed in respect of a complete survey and hissa number, conversion
of land and mortgage. As observed during the field survey, the practice of
conversion has been more numerous in Bantwal taluk, i.e. out of 30 samples
9 have undertaken conversion from agriculture to non- agriculture. Apart
from this, the department is also responsible for all property survey related
works.
Status of Applications Received and Disposed at Mojini Department
Receipt of Applications
All applications for 11-E sketches, arising due to alienation, court
decisions, sale, partitions etc., are now received at the kiosk after a scrutiny
of details as furnished by the applicants and supported by Bhoomi records,
along with the prescribed fee. All other requests for survey services like
haddubast (boundary fixing) and Tatkal are accepted at the department
and processed manually.
Graph 6.5: Status of Applications at Mojini Department
(Per month)

Table 6.14: Type of Services Availed under Mojini
Type of service Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
Pre-mutation 11-e sketch 23 74.2 19 63.4 21 70 25 83.3
IMP (Integrated - - 7 23.3
Mutation Phodi)
Resurvey of land 1 3.2 2 6.7 - - 1 3.3
RTC mismatch correction - - - - - - - -
through survey
For confirmation of 7 22.6 9 30 - - 4 13.3
land part
Alienation of - - - - 9 30 - -
agricultural land
Note: Figures do not add up to 100 due to multiple responses
Type of Services Availed Under Mojini

As can be noted from Table 18, in all the four taluks visited, requests
for pre-mutation sketches stand out as an important service availed by the
villagers, accounting for 83.3% for Navalgunda, 74.2% in Tiptur, 70% for
Bantwal and 63.4% for Gulbarga (See table 6.14). The remaining requests
mainly relate to availing confirmation certificates and IMPs.
Time Taken For Processing Pre-Mutation Sketch Applications
11-E Applications are processed by the licensed surveyors and
verified by the 11-E case workers (Government surveyors) and Survey
Supervisors before issuing 11-E sketches. The applications seeking
Government Survey numbers are processed by the Government surveyors
only. The stipulated time for processing 11-E sketch requests is restricted
to a maximum of 30 days. However in case of corrections, the time frame
required for processing the applications is extended up to 40 days. Only in
respect of complicated cases, where field data is at variance with records,
it requires more time to rectify the problems. The monthly average rate of
applications actually received and disposed off are indicated in Graph 6.6.
Graph 6.6: Monthly Average of 11-E Applications Received,
Disposed and Pending
Source: Data compiled from Survey Department, 2012

As shown in the Graph 6.6, pendency status is a matter for concern
as the problem has persisted even after integration. The data indicates that
the monthly receipt and disposal rate of applications is satisfactory in Tiptur
compared to Gulbarga; however, when the overall pendency level is
considered, Gulbarga exhibits a better rate of disposal. On the whole, the
pendency level as a percentage of average monthly receipt of applications
is found highest in Gulbarga and lowest in Navalgunda.
Time Taken For Issuing 11-E Sketches Varies Across Taluks

While the notice-period for issuing 11e sketches is limited to 45 days,
about 58 % of people could get their 11-E sketches within 1-2 months in
Tiptur, indicating fair service delivery mainly due to the availability of
sufficient number of licensed surveyors and well established infrastructure
facilities. In contrast, in Gulbarga and Navalgunda, 47 % of the applicants
were found to have waited up to 3 months and another 20 -23% for over 3
months, indicating a delay in the delivery of service, and the resultant
escalation of the pendency level. The main reasons for the delay are the
non availability of government and licensed surveyors in adequate numbers,
inadequate physical resources and infrastructure facilities.
A prominent feature of Mojini in Bantwal is that the lands converted
to non agricultural purposes are exempted from 11E sketches normally
required for registration. About 30 % of the clients interviewed have made
use of this provision.
Table 6.15: Time Taken to Issuing 11-E Sketches after
Filing of 11-B Forms
Time Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
11e Sketch not availed - - - - 9 30 - -
Less than 01 month 9 30 5 16.7 2 6.7 1 3.3
1-2 months 18 58.1 4 13.3 7 23.3 9 30
2-3 months 2 6.5 14 46.7 9 30 14 46.7
More than 3 months 2 6.4 7 23.3 3 10 6 20
Total 30 100 30 100 30 100 30 100
Time Taken For Providing Private and Government Survey
Numbers
There exist some constraints regarding the survey work. The notice
period for providing 11-e sketches to the eligible applicants is limited to one
month in the case of private survey numbers; however, for resolving errors
or disputes, only Government surveyors are needed. With respect to
providing government survey numbers, the time taken is more as the
procedures involved are elaborate and have to be attended by the
Government surveyors only, with the approval of Shirestedar. Due to such
procedural issues and non-availability of survey staff, occasionally the
process gets delayed.
6.3.1. Positive Aspects

Problem-free Uploading of 11-E Sketches
Uploading of 11-e sketches is taken up at Mojini after the completion
of the process of scanning of survey sketches. Constraints faced in this
regard are:
Tackling challenges of Survey Sketches of Properties with More
Than Two Blocks.
The process involved in issuing 11-e sketch to properties with more
than two blocks is the same as for the measurement done for an entire
survey number (property) with 11-e sketch issued to the person, provided
all the interested parties agree to, and there is no dispute. All blocks are
measured and sketches issued, if payment is made with respect to all the
properties. However, if there are problems in getting the NOC from all the
interested persons in respect of a particular property, then a specific approval
of DC (Deputy Commissioner) is needed to process case further.
In Gulbarga, Tiptur and Navalgunda, such work is taken up after
receiving orders from the Deputy Commissioner (DC) and detailed reports
are submitted to DC in accordance with the circulars issued. The problems
exist with regard to therecord details in case of both the private and
Government lands. However, in Bantwal, the land area of each survey
number is large in comparison to other taluks. The number of property
owners is also so large that bringing them together to comply with the
requirements can pose a real challenge. In this regard, the bifurcation and
preparation of 11 E sketches is an unfinished task in respect to Government
lands. However, there seem to be no such problems in issuing 11-E sketches
in respect of private survey numbers.
Survey – Work Quality of Licensed Surveyors Is Good
Currently, close supervision and verification of work by the licensed
surveyors is necessary to make the survey process completely error free
and avoid problems of extra costs and tedious procedures of rectifying the
errors. It is interesting to note that no such incidents have been reported in
Tiptur, Bantwal and Navalgunda, while in Gulbarga, punitive actions were
recommended for errors detected.
Currently, on a random basis, 10% of the cases are checked by the
Survey Supervisor/Case worker, 5% by the Deputy Director of Land
Records (DDLR), and 2% by the Tahasildar. Ninety percent of the cases
handled by the licensed surveyors were found to be satisfactory, while
10% of them needed corrections. In respect of Bantwal and Navalgunda,

no complaints were reported against licensed surveyors with regard to the
survey works.
An application form received at the kiosk for 11-e sketch is in turn
referred to a licensed surveyor. Information regarding survey allotment is
intimated to the applicant either through a call from the surveyor/ other
department officials/notice. About 74% clients in Tiptur, 90% in Gulbarga,
53.3% in Bantwal and 80% in Navalgunda were found to have received
the calls from the surveyor to convey information on survey allotment,
which can be taken a positive sign of efficiency. Also, receipt of advance
payments were intimated through SMS. However 23% in Tiptur and 20%
in Gulbarga, 16.7% each in Bantwal and Navalgunda were found to have
been informed through a notice. This shows that prior intimation given to a
client regarding the survey work to be carried out in his/her property is
fairly adequate in terms of helping him avoid wastage of time, money and
unnecessary visits to the concerned office.
A majority of the surveyors were found to have visited the land
within five days of prior intimation, either through calls or notices in all the
four taluks. Such timely visits accounted for 38% in Tiptur, 63% in Gulbarga,
26.7% in Bantwal and 33.3% in Navalgunda. Visits that took more than 15
days were reported from Tiptur (6.5%),Gulbarga (3.3%) and Navalgunda
(6.7%) respectively. In Bantwal however, in 20% of cases the surveyor’s
visit took place after 15 days of prior notice, apparently as number of
applications received with respect to land transaction was high and the
number of licensed surveyors was less than adequate. As regards Gulbarga
and Navalgunda 96.7% and 100% of the clients reported that the surveyor
had completed the survey work on the same day. In Tiptur 22.6% of the
survey cases took up to five days to complete which was attributed to
difficulty in locating fixing points, mismatch of survey data with the available
records, etc. In Bantwal 10% of the cases took over 15 days for completion
of the survey (see table 6.16), mainly because of the difficult terrain and
the presence of rocks and water bodies within the area, and also because
of litigations between the owners and other parties.
Table 6.16: Sources of Survey Allotment and Time Taken for

Completing the Survey
Information Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
Information on Allotment of surveyor *
Call from the surveyor 23 74.2 27 90 16 53.3 24 80
Call from the 5 16.1 1 3.3 - - 1 3.3
Department staff
Other means (Notice) 7 22.6 6 20 5 16.7 5 16.7
Time taken to visit the land
Same day of receiving 5 16.1 4 13.3 7 23.3 2 6.7
the information
Less than 5 days 12 38.1 19 63.3 8 26.7 10 33.3
Within 10days 7 22.6 5 16.7 - - 7 23.3
Within 15 days 5 16.1 1 3.3 - - 9 30
More than 15 days 2 6.5 1 3.3 6 20 2 6.7
Time taken to complete the survey
Same day 20 64.5 29 96.7 16 53.3 30 100
Less than 5 days 7 22.6 - - 2 6.7 - -
Within 10days 3 9.6 - - - - - -
Within 15 days - - 1 3.3 - -
More than 15 days 1 3.2 - - 3 10
Note: In Bantwal, the lands converted to non-agricultural purposes are exempted
from 11esketches for registration. 30 percent of all cases covered happened
to be conversion cases.
Figures do not add up 100 due to multiple responses
Tatkal System- Positive in Reducing Pendency in Respect of Phodi

Cases
Phodi cases are handled manually and hence, time-consuming. As
phodi cases are based mainly on the old records and field situation, it takes
over a month for each of these cases to be processed. With the introduction
of pre-mutation and tatkal system, requests for phodi applications have
come down considerably across all the taluks under study. In fact, the
requests for tatkal phodi also have decreased in view of the 11-e sketches
provision. This can also be attributed to the success of the pre-mutation
sketch concept.
A Fair Level of Awareness Regarding the Purpose of Pre-Mutation

Sketch
People, by and large, were well aware of the purpose of 11-e
sketche i.e. its essentiality for any transaction of property involving part
transfer. While submitting applications, they are also asked for details and
proof of the intention behind such requests. Further, the validity of 11-e
sketch is only two months, which is extended up to six months for an
additional fee. In view of this limitation of validity and the cost involved,
non- serious applicants are deterred from applying, but brokers who deal
with the sale of properties continue to apply.
The increase in the work load related to 11-e sketches applications
does not seem to have affected the other functions of the staff concerned.
In the Survey Department, the tasks related to 11-e related work handled
by an exclusive case worker who is aided licensed surveyors, while other
functions like haddubast, tatkal phodi and IMP are handled by a separate
set of case workers. Any increase in the workload of 11-e section will not
normally affect the other survey related functions of the Department.
Simple and Effective Procedures Prove Successful
The 11-e applications received by the Mojini Operator are referred
to 11-e case worker to decide whether they are fit for further processing.
Cases are categorized as fit if the data match with the existing record, and
the survey work is initiated by allotting the work to the licensed surveyor by
the Survey Supervisor. Within following 15 days, reports are generated,
verified and corrections made if any, for uploading The cases classified as
unfit in terms of data data-mismatch are sent to the concerned sections
(DD/ RRT) for rectification. For other survey services, applications are
received separately by the Department with prescribed fees and processed
manually. This process has been implemented effectively at Gulbarga,
Bantwal and Navalgunda but not in Tiptur. But in reality, akarband durasti
(an exercise to match the surveyed area with the total area available in
respect of a particular survey number) is found to have been taken up
during the mutation process in Tiptur. As regards Gulbarga, the process-
delays were more due to disputes that arose during the mutation process
than due to akaraband details. The entire process statutorily requires the
Department to issue notices to all those considered interested in the said
property.
The 11-e sketches issued by the Department are final and in
agreement with akarband details. Delays, if any, in mutation would be due
to disputes arising subsequent to J-slip generation. The procedure of issuing
notices and the statutory notice period are limited to 30 days at each stage
of processing. (There were 145 IMP cases pending in Gulbarga as against
the average monthly receipt of 100 cases.) Durasti work is to be done by
the Government surveyors only and they too experience a shortage of staff.
In Tiptur, about 100 cases are received every month with an average
pendency of 41 cases.
6.3.2. Issues and Constraints – Mojini
Mis-match of Records Causes Delay
The process entails comparing all the records obtained from Bhoomi
with the survey records for accuracy of measurement, and determination
of the extent of property once the 11-e applications are received. In case of
a mismatch, the required rectification is initiated. Such mismatch cases
account for 20% of total applications received in Tiptur, 10% in Bantwal
and in Navalgunda and 30% in Gulbarga. The reasons for the high rate of
mismatch in Gulbarga are mismatches in entries that occur due to delays in
completing hissa survey entries, time-lag in updating Bhoomi data base,
and data entry errors that occur in computerisation of Bhoomi records.
There are several requests for correction of errors in records, RTC
corrections, etc. Applications with information mismatch are sorted out and
handled separately at the application stage itself. The mismatch is attributed
to records not being updated in the concerned departments especially in
regard to sections 3 and 9 entries of RTC involving the extent of land and
components.
Delay in Digitisation of Survey Records
Currently, though digitisation of survey record data has been in
progress in all the selected taluks, the level of accomplishment is not uniform
the across taluks. In Tiptur, the process has been totally completed in 35 out
of the total 231 villages, while in Gulbarga, it has been completed up to
2005, with hissa survey up to 1965-66; in Navalgunda it is still in the initial
stage while in Bantwal, 50 % of the work over. The slow progress of the
digitisation process is attributed mainly due to decay/ illegibility of records,
and the extent of decay in records is estimated at 25% in Tiptur
Damaged Original Survey Sketches and Poor Quality Papers
Old records were found damaged with no back up available. It is
said that over a period of time, there was a consensus or compromise with
regard to quality of the paper which has affected the life of sketch records
and the availability of land data, making it difficult for digitization. In Bantwal,
50 % of the digitisation process is over out of which about 20% of the

records were considered to be of poor quality. In Gulbarga, the digitisation
process is complete with 20% being considered as missing records. In
Tiptur and Navalgunda, the digitisation process is under way using the
records that are in good condition.
Monitoring Process Inadequate For Effective Functioning
At present, 11-E case workers and the Survey supervisor regularly
supervise the work of the surveyors with regard to the time taken and
quality of work. Apart from this, sketches are checked and if necessary,
corrections are effected before going in for scanning;g because once
sketches are scanned they cannot be called back for corrections. The
position is checked daily and a pendency report generated and reviewed
through the Survey Supervisor’s log in.
On observation of the pendency list and the cases contained, it
becomes evident that they are not classified according to the nature of
problems or reasons for pendency. The Monitoring system views the reasons
for pendency and the factors contributing to delays in the disposal of
applications as lacunae in the process. For example, the number of queries
(delayed due to disputes) raised by citizens, the surveyors or others, or
such other issues beyond the control of the department are not segregated
for a realistic analysis.
Role of Middlemen and Issue of Speed Money Reduced but
Continue
Middlemen play a major role in the processing of documents and
delivering the required services to the general public. The introduction of
ID system for potential applicants has reduced their role considerably. But
still, it is observed that 50% of the applications are processed by the
middlemen. The problem of illegal gratification is attributable mainly to the
entry of middlemen. The role of middlemen is found prominent in Bantwal
and Gulbarga and to a certain extent in Navalgunda and Tiptur.
Usage of 11e Sketch Is Not Clear as Registration Is Not Recorded
Primarily, pre-mutation sketches facilitate hassle-free registration
process and swift mutation changes. Currently, it is being used for the
determination of property extent, registration requirements and finally for
confirmation of land rights, post the registration process. This is one of the
reasons for an increase in the demand for 11-e sketches. Statistics indicate
that the number of average receipt of 11-e applications range from 150 -
270 per month which is not commensurate with the number of registrations
taking place.
Insufficient Staff
• As the Mojini process requires biometrics at each level of operation,
existing staff contingent is generally inadequate for handling the
increased work load The number of case workers and survey
supervisors provided for each taluk is not sufficient to handle all
the work related to Mojini. The increased workload consequent on
integration (due to phodi) has affected the other survey activities
- (Durasthi of Akarband).
• Inadequate surveyors -there is shortage of Government surveyors
across taluks of Gulbarga and Tiptur. However, shortage of private
surveyors was also observed in Gulbarga and Navalgunda.
In normal times, each surveyor is allotted 3-5 cases with a
maximum of 5, at any point of time. In Gulbarga, each surveyor is allotted
the highest number of cases as the number of cases received is often more
than 270 a month. During the field visits, it was observed that the survey
department has shortage of staff both at Tiptur and Gulbarga as against the
provision. Besides, the present remuneration is not attractive as most of it
is spent on travelling and incidentals. During the study, 23% of the
respondents in Tiptur, 53% in Gulbarga, 76.6% in Bantwal and 90% in
Navalgunda expressed their serious reservation about the inadequate number
of the surveyors in harness. This is a serious constraint for the department,
which has given rise to certain other problems, like prolongation cases,
delay in survey work and demand for illegal gratification to get the work
done on priority. Training in computer is yet to be given to the concerned
staff members. This is also adding to the inefficiency of the staff and results
in delays. In some cases, the mismatch between the sketch and the original
RTC is pointed by the licensed surveyors and not the departmental staff.
Technical Problems
Processing of 11 e sketches gets delayed due to bad working condition
of hardware, network problems, internet problems etc. As the Mojini process
involves use of different logins, in case of server problem the application
gets struck at certain levels of operation and delays the disposal of 11e
sketches. Further, power backup wherever available now is far below the
required out for computer work, and in several cases, backups are yet to be
provided. Therefore, power failure, which is recurrent in some of these
taluks results in disruption of both network and computer hardware, which

in turn delays work.
Infrastructural Issues
Currently, the Department is deficient in the required infrastructure
facilities like accessories and equipments viz. printer, cartridge, chairs &
tables and lockers for safekeeping of records. Further, the latest equipments
required to conduct surveys and up-gradation as well as advanced hard-
ware are not provided. Owing to this, the standard of service is not up to
the mark. As the kiosk work is outsourced and same facility is being used
by the 11-E case worker. The non introduction of new technology and lack
of training in new methods have made them complacent in attending to
their work, affecting the quality of service.
6.4. KAVERI – A Situation Analysis
The performance of KAVERI integration across the study taluks
was not up to the desired level. Thus, there are several issues of concern
that need to be addressed for effective functioning of the integration process.
Prior to integration, the process in the SRO office could not ensure
authenticity. However, the situation, during post-integration, was found to
be positive. With integration, the mortgage details are reflected in the RTC
concerned with immediate effect, which precludes any fraudulent practices
occurring in between the time of mortgage and noting the liability in records,
because now documents are made available within the shortest possible
time. However, in regard to the time taken for these procedures prior to
and after integration, there is not much of a difference excepting the time
taken for Bhoomi clearance.
Awareness Level
The registration process is carried out only on production of the of
required documents; 90% of the clients in Gulbarga, 86.7 % in Navalgunda,
41.9% in Tiptur and 60% in Bantwal were aware of the procedures and the
documents required for registration. Further, about 83% of the clients in
Gulbarga and 66.7% in Navalgunda were themselves able to prepare and
arrange necessary papers/documents related to land dealings, while in Tiptur
(61.3%) and Bantwal (63.3%) taluks, the clients depended on middlemen/
lawyers/Document writersas shown in Table 6.17 .
Table 6.17: Awareness Level and Sources of Collection of

Necessary Documents for Registration at SRO
Information Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
Awareness of the documents
Aware of the same 18 58.1 27 90 12 40 26 86.7
Not aware 13 41.9 3 10 18 60 4 13.3
Total 31 100 30 100 30 100 30 100
Nature of Documents Collection
By own 12 38.7 25 83.3 4 13.3 20 66.7
Middlemen 19 61.3 5 16.7 19 63.3 10 33.3
Others - - - - 7 23.3
Total 31 100 30 100 30 100 30 100
Table 6.18: Additional Amount Paid for Assistance at SRO

Assistance/ Tiptur Gulbarga Bantwal Navalgunda
guidance at SRO N % N % N % N %
Provided 27 87.1 26 86.7 28 93.3 22 73.3
Source of Assistance
By Self 1 3.2 3 10 2 6.7 5 16.7
SRO Official 3 9.7 2 6.7 1 3.3 - -
Document Writer/ 26 83.8 15 50 7 23.3 21 70
Middlemen
Lawyer - - 2 6.7 20 66.7 - -
Others 1 3.2 8 26.7 - - 4 13.3
Total 31 100 30 100 30 100 30 100
Payment of Additional Fee
No. of Clients paid 22 71 23 76.7 27 90 23 76.7
No. of Clients not Paid 9 29.0 7 23.3 3 10 7 23.3
Total 31 100 30 100 30 100 30 100
Additional Amount (Rupees)
Within 1000 ` 11 35.5 12 40 3 10 10 33.3
` 2000 – 3000 4 12.9 6 20 3 10 11 36.7
` 4000 – 5000 2 6.5 3 10 6 20 2 6.7
` 6000 – 7000 2 6.5 1 3.3 - - - -
` 8000 – 9000 - - - - 7 23.3 - -
` 10000 and above 3 9.7 1 3.3 8 26.7 - -
Total 22 71 23 76.7 27 90 23 76.7
About 70 to 90% of the clients reported as having paid an extra

amount over and above the stamp charges and registration fee at SROs for
getting assistance, and the extra amount paid ranged from `1000 to 10000,
or often more per transaction. The reported assistance was taken mainly
due to lack of knowledge regarding procedures involved in registration.
Time Taken For Obtaining Documents
Table 6.19: Time Taken for Registration and Other Services at
SROs
Service Manual Computerization Remarks
(before integration)
Registration of One day to several 15-30 minutes. No difference
Document days depending Depending on under the manual
on the work load. the connectivity. system in reg. to
time taken for
registration except
for issuing of the
registered document.
Encumbrance It used to be done 1-3 days If the query needs to
Certificate in handwriting depending on the be attended
and would take period of query. manually for older
more than a day. From July, 2003 records, it takes
onwards the around 3 days.
computerised
information is
available in half
an hour.
Certified Used to be copied 5 minutes or Depends on the
Copies from the original maximum one day. period of the
by hand and would document and
take a week’s time. availability of
network.
Functional Manual system No issues Saving on time and
efficiency was slower post excepting the efficiency level has
in the delivery the registration KSWAN network. gone up in the new
of services process. system.
That the Computerized registration system is better than manual

process becomes quite evident when we observe that a majority of the
clients in Tiptur, Gulbarga, Bantwal and Navalgunda managed to complete
the registration process with just one visit. Further, the registration of
documents takes less time as compared to obtaining encumbrance certificate
(EC). In Tiptur, 26% of the clients reported as having spent 30 minutes
while in Gulbarga 40% as spent one hour or more for obtaining registered
documents. However, in Bantwal 53.3% and in Navalgunda 46.7% of the
clients waited for the whole day to get their documents which was due to
network, server and power problems(see table 6.19). Despite such a delay,
they were satisfied with the present system as compared to the earlier one.
The delivery of EC takes more than a day across all the taluks, whereas,
issuing of ECs is always dependent on the number of years of digitized data
which is under process.
Graph 6.7: Number of Visits Made to SRO Office for Completing
Registration

Table 6.20: Time Taken for Receiving Documents at the SRO

Office (Clients in %)
Time taken Registered Encumbrance Certified
Document Certificate Copy
F % F % F %
Tiptur
Within 30 minutes 8 25.8 - - - -
1 hour 5 16.1 8 25.8 - -
1hour and above 5 16.1 - - 1 3.2
In a single day 7 22.6 8 25.8 - -
More than a day 6 19.4 7 22.6 - -
Gulbarga
Within 30 minutes 3 10 4 13.3 - -
1 hour 6 20 - - - -
1hour and above 12 40 - - - -
In a single day 7 23.3 - - 2 6.7
More than a day 2 6.7 16 53.3 - -
Bantwal
Within 30 minutes 2 6.7 - - - -
1 hour - - - - - -
1hour and above 5 16.7 2 6.7 - -
In a single day 16 53.3 - - - -
More than a day 7 23.3 11 36.7 10 33.3
Navalgunda
Within 30 minutes - - - - 1 3.3
1 hour 5 16.7 2 6.7 - -
1hour and above 9 30 8 26.7 2 6.7
In a single day 14 46.7 4 13.3 1 3.3
More than a day 2 6.7 14 46.7 - -
Total 30 100 30 100 30 100
Rating of SRO Services
As regards the quality of services provided and efficacy of the overall
procedure 35.5% in Tiptur and 37% of the clients in Navalgunda were not
satisfied with the services provided, while it was comparatively better in
Gulbarga (56.7%) and in Bantwal (46%) (see table 6.21). It was observed
that lawyers played a prominent role in Gulbarga and Bantwal during the
registration process, while in Tiptur and Navalgunda, middlemen played a
prominent role. The difference in rating of services by the clients may be
attributed to this difference in handling the registration process.
Table 6.21: Rating of SRO Services by Clients (Clients in %)
Details Very Good Good Average Poor
F P F P F P F P
Tiptur
Transparency of - - 15 48.4 14 45.2 2 6.5
the Procedure
Approach of Sub registrar - - 15 48.4 8 25.8 8 25.8
Approach of Staff - - 21 67.7 6 19.4 4 12.9
Over all Procedure - - 11 35.5 18 58.1 2 6.5
Gulbarga
Transparency of - - 12 40 13 43.3 5 16.7
the Procedure
Approach of Sub registrar - - 16 53.3 10 33.3 4 13.3
Approach of Staff 1 3.3 18 60 8 26.7 3 10
Over all Procedure - - 17 56.7 10 33.3 3 10
Bantwal
Transparency of - - 14 46.7 16 53.3 - -
the Procedure
Approach of Sub registrar - - 14 46.7 16 53.3 - -
Approach of Staff - - 16 53.3 14 46.7 - -
Over all Procedure - - 14 46.7 16 53.3 - -
Navalgunda
Transparency of 4 13.3 9 30 16 53.3 1 3.3
the Procedure
Approach of Sub registrar - - 15 50 14 46.7 1 3.3
Approach of Staff 1 3.3 12 40 14 46.7 3 10
Over all Procedure - - 11 36.7 18 60 1 3.3
Average Personal Cost for the Visit to SRO

As can be seen from Table 25, 32.3% in Tiptur, 36.7% in Navalgunda,
43.3 % in Gulbarga and 43.3% in Bantwal have spent more than ` 500 per
visit to the SRO office. The second highest amount spent was ` 200 in
Tiptur (see table 6.22), and third highest was ` 100 paid in Gulbarga (see
table 6.22). The expenses include money spent on food expenses and other
items while travelling.
Table 6.22: Expenses Incurred on Each Visit Made to the SRO
Office
Cost of each visit Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
` 50 2 6.5 1 3.3 3 10 - -
` 100 7 22.6 - - 3 10 1 3.3
` 200 7 22.6 3 10 4 13.3 4 13.3
` 300 1 3.2 5 16.7 3 10 8 26.7
` 400 4 12.9 8 26.7 4 13.3 6 20
More than ` 500 10 32.3 13 43.3 13 43.3 11 36.7
Total 31 100 30 100 30 100 30 100
Table 6.23: Perceptions of Clients Regarding KAVERI - Positive
N % N % N % N %
Same day Delivery 16 51.6 25 83.4 23 76.6 14 46.6
of Documents
Error rate is reduced 1 3.2 - - 3 10 - -
Photo and scanning 2 6.5 6 20 12 39.9 8 26.7
facility are very good
as compared to the
earlier system
People friendly system - - 3 10 6 20 2 6.6
Authentication 5 16.1 - - 8 26.7 - -
system is good
Preservation of 4 13 16 53.3 10 33.3 4 13.3
Documents and getting
copies of the documents
are easier
EC s are issued faster 4 13 5 16.7 18 60 12 39.9
as compared to
Manual system
6.4.1. KAVERI – Positive Impacts

In respect of KAVERI, 52% of clients in Tiptur, 83% in Gulbarga
and 76.6% in Bantwal appreciated the quick (on the given day) delivery of
documents and also getting copies of documents and ECs compared to the
earlier manual system; also it was found easier by 13% of the total clients
in Tiptur, 60% in Bantwal, 39.9% in Navalgunda and 53% in Gulbarga.
Similarly, about 20% of clients in Gulbarga, 39.9% in Bantwal and 26.7%
of the clients in Navalgunda rated the system of photo- scanning of
documents as satisfactory (see table 6.23).
6.4.2. Issues and Constraints
Increase in Work Load as Current System Is Not Fool-Proof
Work load has increased as computerization has to be supported
with adequate support systems of back up. Hence, computerization has not
reduced manual work; instead it has increased. The current practice is
that, after the registration process is completed, the documents are photo-
copied to safeguard the documents from against infestation by moths, etc.
due to lack of back up support during the power cuts. This has led to extra
manual work.
Lack of Modern Technology
In the absence of advanced technological inputs,, the Department
has been facing problems in completing the registration process in private
attendance cases. Even though the Department has fixed ` 500 fee for
attending private attendance cases, they are not provided with required
advanced equipments to make the services satisfactory and comfortable.
The computer systems used presently are old and obsolete which makes it
difficult to meet the increasing demands of service. The server breaks
down too often due to network failure. Whenever, there is any problem in
accessing data it would be intimated through Email or phone to BMC. For
instance, the existing Kiosk at Gulbarga has been converted as an additional
counter for registration due to shortage of computers. Besides, the work
space provided is not adequate and of poor quality in Tiptur, while it is
comparatively better in Gulbarga. This has impacted work efficiency and
service delivery in these SROs.
Performance of Outsourced Agencies
Outsourcing of departmental tasks was done in the initial years of
computerization in SROs. There seemed to have been a consensus regarding
the outsourcing process. The preference now is on having regular staff to

ensure quality of service delivery. Currently, SROs are facing problems
due to non-cooperation, data errors, and non-accountability, and causing
extra burden on the Department. Recruitment of staff is seen as essential
to ensure quality in service and also generate additional revenue in the
SRO. Currently, remuneration for outsourcing is through collection of fees
for scanning (present charges are ` 0.30 per ...... of which 1.5 paisa goes
to the Department). Also, the computers and printers provided by the
agencies are not advanced enough to provide quality service and the CMS
operators seldom provide the services as per the requirement of the
Department. The checklist is made available to the Data Entry operator
only, and the SRO has no access to it currently. Unless the checklist is
made available to the SRO he will not be able to detect errors in data entry.
In brief, the SROs across the various taluks asserted that, as long as data
entry work is outsourced to a private agency, they will have no control over
errors made by the operators.
Table 6.24: Usage of SRO Services
Services Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
Received SMS for 4 12.9 No 15 50 3 10
SRO service
Can understand the - - - - 12 40 2 6.7
contents of SMS
Satisfied with the services 25 80.6 26 86.7 12 40 21 70
made available at SRO
Faced the problem of 1 3.2 - - 2 6.7 - -
errors in registration of
documents at SRO
Total 31 100 30 100 30 100 30 100
Availability of Kiosk at SRO and Usage of SRO Services

While, 80% of clients in Tiptur and 86 % in Gulbarga were satisfied
with the services provided at SRO, 40% in Bantwal, and 70% Navalgunda
were found to be dissatisfied. There are no information kiosks in Tiptur and
Bantwal, while the kiosk in Gulbarga stands converted into a registration
counter due to a shortage of computers and increasing demand, and the
kiosk in Navalgunda has become non-functional.
Although, the details of registration process are displayed for public

view, the SRs still play the role of guiding the clients. This is causing an
additional burden and also disturbs the functioning of SROs. In this context,
the installation of kiosks is expected to reduce the burden on SROs. Intimation
through SMS is found less effective as only 13%, 50% and 10% of the
clients have reported as having SMS regarding registration of their property
in Tiptur, Bantwal and Navalgunda, whereas, no one was found informed
through SMS in Gulbarga.
Mismatches between Manual Documents and Bhoomi Data Base
— cause for Inconvenience and Delays
Currently, mismatch of information results in errors several creeping
in, resulting in inconvenience and delays to the public. As of now, the
integration process is not complete in Gulbarga as the clearance from Bhoomi
data base for issuing survey numbers and hissa numbers has not been
received. Besides, the lack of linkage to 11-E sketch clearance also adds to
the problem. However, it is now learnt that the required software has been
installed partially. But this problem is not applicable to Tiptur, Bantwal and
Navalgunda as they are integrated completely.
Lack of Proper Infrastructure
The Department officials opined that poor infrastructure has been
another issue of concern. Inadequate space to handle registration during
rush hours is a matter of concern. As marriage registration and issuance of
EC and CC are handled in a combined unit, it does not allow giving undivided
attention to document registration and related tasks A large number of
customers in Bantwal (50%) and Navalgunda (73.3%) were found dis-
satisfied with the infrastructure facility presently available at these centres
(see table 6.25), particularly the run-down buildings, insufficient space to
sit/stand, and lack of basic facilities.
Table 6.25: Opinions on KAVERI by Clients – Negative
N % N % N % N %
Infrastructure problems 4 13 - - 15 50 22 73.3
Lack of Information Kiosks

Currently, in Tiptur, Gulbarga and Bantwal there are no information
kiosks whereas in the Navalgunda taluk the existing kiosk is non-functional.
Although, the details of the registration process are displayed for public
convenience, the SROs are still found playing a role in guiding the clients.
This is causing additional burden and also disrupting the functioning of SROs.
Installation of information kiosks in these SROs will go a long way in reducing
the burden of guiding clients in registration process.
Network Problems
There are some technical problems in networking which has been
affecting the service delivery. After the integration of SRO with Bhoomi
State Data Centre in January 2012, certain problems have been observed
like the slow connectivity which causes delays in the registration process.
There were instances when the system remained non-functional for 4-5
hours at a stretch and no transactions could be done.
Table 6.26: Technical Problems Faced at SROs During
Registration
Type of problems Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
Network problems 4 12.9 8 66.7 22 73.3 21 70
Bhoomi Data access 5 16.1 1 3.3 10 33.3 5 16.7
problems
Insufficient Document - - - - 2 6.7 2 6.7
according to
Sub registrar
Power problems 1 3.2 3 10 1 3.3 21 70
Others 3 9.7 - - - -
Old systems and 2 6.5 8 26.6 23 76.6 22 73.3
server problems
Total 31 100 30 100 30 100 30 100
Source: Data compiled from Primary Survey
According to our field observations, KSWAN network often used to
fail in Tiptur, Gulbarga, Bantwal and Navalgunda and cause delays/stoppage
of work in the absence of any alternative mechanism to transact business.
In Gulbarga and Bantwal, the registrations were interrupted for almost 30
times within a span of 8 months (January – August 12) as a result of which

the clients had to often wait for more than to more than 24 hours for their
work to be completed. Office staff and customers alike are forced to bear
with this situation. . KESWAN network failure disruption of work is
significantly high in Gulbarga (66.7%), Bantwal (73.3%) and Navalgunda
(70%) taluks compared to Tiptur. Data access was also an issue at Tiptur
(16.1%) and Bantwal (33.3%) but this was not significant in Gulbarga.
Power problems were an issue at Navalgunda (70%) but not significantly
so in Tiptur as shown in the table 6.26.
Software Problems
Delay in Accessing Bhoomi Data
Software problems combined with network issues is causing
inordinate delays in accessing Bhoomi data base. Delays in obtaining
clearance from Bhoomi are either due to overload or capacity problems
involved in data processing in Bhoomi State Data Centre.
Lack of Online Acknowledgement from Bhoomi Department
Another issue is that J-slips are not being properly received at
Bhoomi even though SROs get online acknowledgement for sending J-
slips. J-slips are now forwarded directly to the taluk Bhoomi centre instead
of SDCs. In addition to this, hard copies are also sent within a day. However,
the problem persists due to a technical mismatch in the generation J-slip at
KAVERI end, and their receipt at Bhoomi data centres. There is no provision
for generating J-slips again for any transaction without a specific approval
from the authorities concerned. In respect of Gulbarga, 50% of the J-slips
were reported as missing at Bhoomi. Similar is the situation in Bantwal and
Navalgunda.
6.5. BKM Integration – A Situation Analysis
Although the integration of all the three departments dealing with
property related transactions was initiated in September 2011 in the State,
due to operational constraints, the integration process is lagging behind
especially at the SROs. In Tiptur, the SRO has been enabled to access
Bhoomi data base since January, 2012, while this exercise is still not complete
in Gulbarga especially with regard to accessing pre-mutation sketch details
on line. Even the generation of J-slip online is not fully operational as Bhoomi
still depends on the hard copies of the same before initiating further action
in the mutation process.
The integration of services under BKM is a good step as all

departmental work is done online. Once work details of different departments
are integrated online, it becomes easier to get the related information quickly
and easily, as the cross checking/verification work can also be done online.
This is seen as ensuring accuracy in data and documents of clients besides
helping both the operators and clients save on time.
Awareness Regarding BKM Integration
The awareness level regarding the concept of BKM integration varies
across the selected taluks, for instance, 26% in Tiptur and 37% each in
Gulbarga and Navalgunda were aware of it against 60% in Bantwal (refer
table 6.27). Clients acknowledged the positive effects and convenience of
the computerized system, and rated high the authenticity of property records
with biometric identification as in Tiptur and Bantwal but to a lesser extent
in Gulbarga.
Table 6.27: Awareness Regarding BKM Integration
N % N % N % N %
Aware of recent 8 25.8 11 36.7 18 60 11 36.7
BKM integration
Post integration 7 22.6 9 30 16 53.3 10 33.3
transactions faster
Reduced visits 6 19.4 10 33.3 16 53.3 10 33.3
BKM integration - 28 90.3 27 90 28 93.3 27 90
reduced property disputes
Integration aided in 5 16.1 11 36.7 18 60 10 33.3
accuracy and safety
of records
Overall Rating of BKM Services Post Integration
Bhoomi has been getting a ‘good’ rating from clients due to its timely
delivery of both old and new RTCs, information on the status of files across
all the selected taluks - 71%, 90%, 70% and 66.7%, whereas. rating for
KAVERI has been relatively low in two the two taluks of Tumkur and
Bantwal (42 and 50% respectively). In contrast, Bhoomi service was rated
‘good’ in Gulbarga by 83% and 76.7 % in Navalgunda, whereas the rating
of Mojini was relatively low in Navalgunda (66.7) compared to Tiptur,
Gulbarga and Bantwal due to poor infrastructure, non availability of

computers and delays in service. BKM Integration was also rated good, in
view of fewer visits, faster and systematic functioning of online access it
affords to clients across all the four taluks, the rating being 16.1% in Tiptur,
26.7% in Gulbarga, 33.3% each in Bantwal and Navalgunda as shown
table 6.28.
Table 6.28: Rating in Respect of Overall BKM Services
Rating Bhoomi KAVERI Mojini BKM
integration
F % F % F % F %
Tiptur
Very good 4 13 - - 1 3.2 - -
Good 22 71.0 13 41.9 15 48.4 5 16.1
Average 5 16.1 14 45.2 8 25.8 3 9.7
Poor - - 4 12.9 7 22.5 - -
Gulbarga
Very good 2 6.7 - - - - - -
Good 27 90 25 83.3 20 66.7 8 26.7
Average 1 3.3 3 10 9 30 3 10
Poor - - 2 6.7 1 3.3 - -
Bantwal
Very good 4 13.3 2 6.7 2 6.7 4 13.3
Good 21 70 15 50 13 43.3 10 33.3
Average 3 10 11 36.7 6 20 4 13.3
Poor 2 6.7 2 6.7 - -
Navalgunda
Very good 5 16.7 - - - - 1 3.3
Good 20 66.7 23 76.7 7 23.3 10 33.3
Average 5 16.7 6 20 20 66.7 - -
Poor - - 1 3.3 2 6.7 - -
Total 31 100 30 100 30 100 30 100
Note: In Bantwal, the lands converted to non-agricultural purposes are
exempted from 11esketches for registration. 30 percent of the total
cases covered happen to be conversion cases
Customers’ Feedback on BKM Services

In Tiptur and Gulbarga, 84 to 87% of the clients report that the
service is faster as compared to the earlier system in terms of reduced time
and cost. Besides, the present system enables them to verify property related
details easily, and people in Gulbarga, Navalgunda and Bantwal feel that
their documents are safe with the new system. People in Tiptur feel it is
people-friendly also, due to better access.
Table 6.29: Feedback on BKM Services
Services Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
Faster Delivery of 26 83.9 26 86.7 11 36.6 12 39.9
Documents
Reduced Time 11 35.5 18 60 22 73.4 16 53.3
Reduce Cost 12 38.7 18 60 19 63.3 19 63.3
Easy verification of Data 15 48.4 7 23.3 - - 5 16.7
Accuracy of Data 14 45.1 12 39.9 2 6.7 12 39.9
Easy availability of Data 10 32.3 4 13.3 4 13.3 5 16.7
Safety of Document - - 11 40 9 30 17 56.6
Table 6.30: Awareness Level and Perceptions as Regards FIFO

N % N % N % N %
Awareness of 19 61.3 20 66.7 25 83.3 28 93.3
FIFO system
Facing problems in 4 12.9 3 10 6 20 4 13.3
availing land related
services in BKM due
to FIFO system
FIFO system is 7 22.6 - - 24 80.1 26 86.7
better-Bhoomi
FIFO is good-KAVERI 6 19.4 - - 15 50 17 56.6
FIFO system is - - 2 6.7 18 60 12 39.9
good- Mojini
First In First Out (FIFO)

FIFO is working well for both the department and applicants. At the
field level, it has prevented all chances of misuses. This has proved to be
advantageous to the officers in administration also. However, provision for
manual intervention in specific contexts and cases for dealing with them
separately with proper scrutiny at higher levels would make it more
successful. Clients are fairly well aware of FIFO system and have no
complaints with regard to the operational aspects of the same though about
10% of clients in Gulbarga, 20% in Navalgunda, 13% in Tiptur and
Navalgunda expressed that they did face problems in availing the services
refer table 6.30.
6.5.1. Issues
Need for Improvements in the Integration Process of Bhoomi and
Mojini Data
It is generally opined by the department officials that the process
needs refinement and that it will be completed only with full integration of
Bhoomi and Mojini. At present, applications for 11-e sketches are received,
monitored and uploaded by the Survey Department for use at KAVERI
and Bhoomi. The accuracy of 11-e sketches is known only at the mutation
stage and post- registration. Therefore, there is a need for ensuring accuracy,
compliance of procedural aspects and process of akarband durasthi before
issuing 11E sketches.
Lack of Coordination between Bhoomi and Kaveri
Bhoomi Kiosk operators are of opinion that the lack of co-ordination
between Bhoomi and KAVERI constrain their effective functioning. For
instance, J-slips are downloaded but manual documents are not sent along
with the originals documents. This leads to confusion while handling the
auto generated documents, and this problem was observed in Navalgunda
Taluk.
Data access Problem during Registration of Documents
Currently, constraint in accessing information at KAVERI from
Bhoomi is a major hurdle resulting in delays and inconvenience, especially
in respect of Tiptur and Bantwal, whereas in Gulbarga, though the digitisation
process is complete but Bhoomi records are yet to be updated in view of
the fact that hissa survey details date back to 1965-66.
Table 6.31: Reduction in Illegal Gratification-Post BKM

integration- Clients’ rating
Bhoomi KAVERI Mojini Extent of
Reduction
F P F P F P
Tiptur
Less than 25% 2 6.5 16 51.6 1 3.2
Between 26-50% 9 29 4 12.9 11 35.5
Between 51-75% 8 25.8 - - 8 25.8
Between 76-100% 1 3.2 - - - -
No reduction/ 11 35.5 11 35.5 11 35.5
corruption has increased
Gulbarga
Less than 25% 1 3.3 9 30 7 23.3
Between 26-50% 13 43.3 3 10 11 36.7
Between 51-75% 8 26.6 - - 4 13.3
Between 76-100% 2 6.6 1 3.3 - -
No reduction/ 6 20 17 56.7 8 26.7
Bantwal
Less than 25% 8 26.6 8 26.6 6 20
Between 26-50% 5 16.6 2 6.6 2 6.6
Between 51-75% 6 20 2 6.6 2 6.6
Between 76-100% - - - - - -
No reduction/ 11 36.6 18 60 20 66.6
Navalgunda
Less than 25% 2 6.6 10 33.3 4 13.3
Between 26-50% 14 46.6 2 6.6 12 40
Between 51-75% 5 16.6 1 3.3 - -
Between 76-100% - - - - - -
No reduction/ 9 30 17 56.6 14 46.6
Illegal Gratification Remains an Issue

In Tiptur and Gulbarga, people opined that there was a substantial
reduction in corrupt practices in Bhoomi. However 36% of clients in Tiptur
and Bantwal and 20% in Gulbarga expressed that neither was there an
increase nor decrease in corrupt practices in different wings of the
departments, while 50% reported ( as seen in table 6.31)that corruption has
now declined in Navalgunda. Generally the clients opine that without paying
money, no work can be processed in the Revenue Department.
In respect of KAVERI 52% of the clients in Tiptur are of the
opinion that the reduction in the rate of speed money is marginal, while
56.7% each in Gulbarga and Navalgunda and 60% in Bantwal expressed
their anguish that it has not reduced; at SRO office, they say, each and
every work is carried out only after an illegal payments has been made.
Compared to Bhoomi, the corruption rate was reported high in respect of
KAVERI during the survey.
As regards Mojini, 35.5 % of the clients in Tiptur and 36.7% in
Gulbarga have reported that there has been a substantial reduction in
corruption. However, in 66.7% of clients in Bantwal and 46.6% in
Navalgunda opined that there is no reduction in the corruption rate in view
of the fact that the licensed surveyor demands additional money for issuing
notice and conducting survey.
Categories of Land Transaction Cases
The current section discusses the experiences of two categories of
customers i.e. ‘land transaction cases’, and ‘exclusive of sale cases’.
Transaction cases such as Error Correction, Record of Rights, Pauthi cases
(waris), Mutation, Phodi, Hakku and Runa and Gift deed’ are all considered
under the category ‘Other Cases’.ix
In respect of all the above mentioned land transaction cases,
Bhoomi kiosk is the receiving point expect for error correction. In each of
these taluks, 20 other types of cases were identified and interviewed on a
random sampling basis. On the basis of annual transactions (within the
village/Hoblis) the cases were identified through the Bhoomi Department
and interviewed using a checklist across the four taluks.
The major types of land related transactions include Hakku mathu
Runa (Mortgage), Phodi (divisions in property) and J-slips (mutation process
related to registration of documents) across all the taluks. The post-
integration statistics for the disposal of applications in respect of these
important types of land transactions differ across the taluks. The average
rate of disposal vis-à-vis applications received by types of applications, by

districts, is as follows: Bantwal - Khata change (97.45%) and J-slips
(92.63%), and Gulbarga Hakku mathu Runa (146.96%). The lowest
average disposal rate: Khatha change (49.06%) and J-slips (41.36%) both
in Navalgunda. As regards Hakku mathu Runa all the taluks are doing
equally well at 96%, though Gulbarga is doing extremely well ( Refer table
6.32).
Table 6.32: Applications Received and Average Rate of Disposal-
Post- BKM Integration
Category of % of Applications received Applications disposed as
Applications/ as against the total percentage of applications
Taluks received
Tiptur Gul- Bantwal Naval- Tiptur Gul- Bantwal Naval-
barga gunda barga gunda
Khata Change 12.70 9.70 10.69 27.00 83.5 65.62 97.4 49.0
J-slip 9.91 20.65 30.66 27.59 90.0 76.0 92.6 41.3
Phodi 8.72 19.33 7.97 5.98 99.7 102.0 98.9 98.2
Hakku and Runa 57.41 34.26 40.83 34.90 96.1 146.96 96.1 96.5
Pahani transfer/ 0.2 0.37 0.07 0.05 50.0 60.29 100 100
Partition requests
Others like court 11.06 15.69 9.78 4.48 98.8 103.4 94.1 96
orders and stays,
alienation, acquisition,
cultivator type
changes etc.
Total* 100 100 100 100 94.4 104.1 93.2 68.64
Source: Bhoomi Operator, Department of Revenue, Tiptur, Gulbarga (South) Taluk,
Bantwal and Navalgunda.
Note: Calculations are based on the number applications received and disposed since
BKM integration, while calculations are carried out overall from April, 2011 for
Bantwal.
This section is focused on enumerating the experience of the

customers – both positive and negative - in availing of services from the
departments concerned. The discussions held with the officials largely
covered the following aspects:
(i) Time taken to complete the service;
(ii) The quality of service ;
(iii) Problems encountered etc.
The following is the summary of information collected and collated
across the taluks to assess the performance of the respective departments
coming under BKM integration since September, 2011.The list of cases

covered under different categories are given below.
Category of Land Transaction Cases
Time taken for getting the transaction completed
As can be observed from Table 6.35, the average time taken for
delivery of each of the services was up to three months or more in all the
three taluks, except in Bantwal. For error corrections, it is invariably more
than three months, but in the case of Navalgunda most of the cases are
found cleared within three months, mainly because of additional efforts put
in by the Tahasildar in terms of correcting the minor errors like spell checks,
extent correction, etc., and passing on the same to Assistant Commissioner
for final review and signature. This has helped to minimize the pendency
rate and processing time beside enabling the Tahshildhar get Second Rank
in performance in the entire State (as per Oct 2012 transaction Data). With
regard to Phodi issues, the disposal rate is found to be faster in Gulbarga
and Navalgunda in terms of completing all the transactions (cases), within
a month. Further, the gift deed and Hakku mathu Runa cases are also
cleared within three months.
Table 6.33: Details of Other Types of Land Transactions
Type of Cases Tiptur Gulbarga Bantwal Navalgunda
Error Correction 7 5 6 2
Khata Change 4 5 5 4
Pauthi(Waris) Case 2 4 3 -
Mutation 5 3 3 4
Phodi 2 3 3 4
Hakku and Runa - - - 3
Gift deed - - - 3
Total 20 20 20 20
Table 6.34: Time Taken for Clearing Other Cases Across Taluks
Tiptur (in %) Gulbarga (in %)
Type of Within Within More than Within Within More than
Transaction one three three one three three
month months months month months months
Error correction - 29 71 - - 100
Record of Rights - 100 - - 100 -
Inheritance/Pauthi 50 50 - 75 25
Mutation - 20 80 - 100 -
Phodi - 50 50 100 - -
Bantwal (in %) Navalgunda (in %)
Error correction - 50 50 - 100 -
Record of Rights 20 60 20 50 50 -
Inheritance/Pauthi 66 33 - - - -
Mutation 33 66 - 25 75 -
Phodi - 66 33 - 100 -
Hakku and Runa - - - - 100 -
Gift Deed - - - 100
The quality of service

Number of visits made to the concerned office
Table 6.35 lists the number of visits made by the clients for availing
the ‘other’ services. It is revealed that the delay for ‘error corrections’ in
Tiptur has been mainly because of an increase in the number of visits made
by clients to the departments as compared to Gulbarga, Bantwal and
Navalgunda. The number of visits made by the clients to the respective
departments was minimal in the above 3 talukas, i.e. 2 personal visits in
Gulbarga, Bantwal and Navalgunda and 3 visits in Tiptur. Similarly, even in
respect of issue inheritance, Mutation, Phodi Record of Rights, etc. the
disposal rate of cases is found was faster in Gulbarga, Bantwal and
Navalgunda; in Tiptur due to involvement of middle men the process gets
delayed.
Table 6.35: Number of Visits to be Made to Avail the Services

Tiptur (in %) Gulbarga (in %)
Type of No One-two More than No One-two More than
Transaction visit visits three visits visit visits three visits
Error correction 14 - 86 - 40 60
Record of Rights - - 75 - 80 20
Inheritance/Pauthi - - 100 75 25
Mutation - 20 80 - 67 33
Phodi - 50 50 67 33 -
Error correction - 50 50 - 50 50
Record of Rights - 60 40 - 100 -
Inheritance/Pauthi - 100 - - - -
Mutation - 66 33 - 75 25
Phodi - 100 - - 50 50
Hakku and Runa - - - - 100 -
Gift Deed - - - - 100 -
Note: Refer annexure for time period taken for the above transactions
Procedures Cumbersome
In Tiptur, Gulbarga and Bantwal taluks, a majority of clients reported
that the procedures involved in getting these land related services are
cumbersome, and also takes a long time to complete. In contrast, clients in
Navalguda reported that due to a new approach adopted by the Tahsildar
and Assistant Commissioner the process has now become less cumbersome.
The Tahsildar concerned is found to have taken a special interest in error-
cases in terms of clearing it at his level itself and thereby making it easier
for the Assistant Commissioner to issue orders without any delay.
With respect to additional expenses incurred, the clients in Gulbarga
are found to have spent more in connection with error correction cases,
than in Tiptur, Bantwal and Navalgunda, while in respect of other cases like
Khata change, inheritance and mutation, the amount incurred was more in
Tiptur than in Gulbarga, Bantwal and Navalgunda. Clients in Tiptur, Gulbarga,
Bantwal and Navalgunda do not seem to have any serious complaints
regarding the cooperation levels of departmental officials, except in the
case of the survey officials. However, in general, the clients do feel that
the overall guidance is poor and it needs further improvement.
Problems Encountered
As per the survey, the clients, across all the four taluks, are of the
opinion that there is no proper guidance regarding the procedures and
methods to be followed regarding the error correction process which makes
them run around the Department for filing petitions for error-corretion.
Excepting Navalgunda, the clients in other three taluks are not satisfied
with the delivery of documents, co-operation and incurrence of additional
expenses. Tiptur and Bantwal clients are not satisfied with delivery of
services like Record of Rights (Khatha change), and Mutation unlike in
Gulbarga and Navalgunda (See table 6.36). However, with respect to Phodi,
Bantwal and Navalgunda taluks were found facing delays in receiving
documents, mainly due to a shortage of licensed surveyors and increased
number of requests.
Table 6.36: Procedural Issues in Availing of Services*
Type of Tiptur (in %) Gulbarga (in %)
transaction Cumber- Additional Lack of Cumber Additional Lack of
some and expenses proper some and expenses proper
Time involved depart- Time involved depart-
taking mental taking mental
process coopera- process coopera-
tion tion
Error correction 72 57 29 80 100 60
Record of Rights 75 25 - 40 - 20
Inheritances/Pauthi 50 50 - 25 25 -
Mutation 80 40 20 33 33 33
Phodi 50 - 50 - - -
Error correction 66 66 16.66 - 50 25
Record of Rights 40 60 - 25 75 25
Inheritances/Pauthi 33.33 66.66 - - - -
Mutation - 33.33 - 25 50 -
Phodi 66.66 33.33 66.66 75 75 25
Hakku and Runa - - - - - -
Gift Deed - - - - 33.33 -
In the case of Hakku mathu Runa, Navalgunda taluk has been

facing problems with respect to processing requests mainly because of
technical problems like slow software downloading and improper co-
ordination between the departments concerned regarding data (Bhoomi,
SRO office, Banks) as seen in table 6.37.
Table 6.37: Problems Faced During Transactions

Type of Tiptur (in %) Gulbarga (in %)
transaction No Delay in Running No Delay in Running
proper issuing around proper issuing around
guidance docu- the guidance docu- the
and too ments depart- and too ments depart-
many ments many ments
visits visits
Error correction 86 57 43 80 80 60
Record of Rights 75 75 - 20 40 20
Inheritances/Pauthi - - - - - -
Mutation 80 80 80 - 33 -
Phodi - 50 - - - -
Error correction 66.66 50 83.33 50 - 50
Record of Rights 20 60 40 25 25 25
Inheritances/Pauthi - - 33.33 - - -
Mutation 66.66 33.33 - 50 25 75
Phodi 33.33 66.66 66.66 75 50 50
Hakku and Runa - - - - - 33.33
Gift Deed - - - - - 33.33
6.6. Perceptions of Bank Officials on Linking Banks with BKM

Our study looked at the possibilities of interlinking BKM with the
Banks in availing loans and benefiting mutually from it. The perceptions of
officials of various Banks across the taluk under study are captured by this
study. . To provide a background, the procedure of the Banks in providing
loans is described, followed by the opinions of Bank officials. The current
practice is to provide loans on the basis of documents submitted by property
owners. The ‘title of the property’ is an important criterion for sanctioning
loans across all the four taluks, particularly for loans through registered
mortgage. Bankers are particular about both the property titles and the
departmental certification while lending. The amount of loan provided is
based on the activity and the valuation of property.
Banks provide loans for promoting agricultural activities which, is
one of their important financial portfolios. Farmers get bank loans for buying
tractors, while gold loans are for other purposes and given to both farming
and non-farming communities. Generally loans provided are of three types:

short, medium and long term. There are specific documents to be submitted
to Banks prior to availing of loans viz, EC, RTC, Patta book, family details,
mutation copy, survey sketch, boundary details, land revenue paid receipt,
title deeds, no due certificate etc. The process begins with the Revenue
Department issuing various documents followed by registration at the SRO
office and noting the mutation. In brief, the Revenue Department is closely
linked to the borrower and the Bank.
The Bankers, at present, follow a system of verification of records
through legal opinion, physical inspection and personal enquiry. They also
use on-line facility of RTC verification through information available with
Bhoomi website which helps them identify the liabilities, if any, related to
property and title holders. So far, Banks have not come across cases related
to property title frauds. However, Bankers observe that Non Performing
Assets (NPA) levels are high in respect of agricultural loans, perhaps not
because of property title problems but extraneous factors like the insistence
on advancing loans to ineligible persons, defaulters, etc., and other pressures
and compulsions.
The BKM integration is seen as a welcome initiative and is
considered highly useful by the Bankers. Currently, the linkage is operational
in Tiptur, Gulbarga, Bantwal and Navalgunda. However, in Navalgunda,
due to technical issues raised by bankers, it has not been made fully
operational. Information available to Bankers on the linkage between bankers
and Bhoomi include (a) Owner’s name, survey number and extent of property
under RTC; (b) Status of other liabilities of the selected property owner.
The installation of Bhoomi linkage system has helped Bankers prevent
multiple borrowing by the people. During the loan sanctioning, property is
mortgaged which helps the banker prevent multiple borrowing against the
same land. Currently, the Department has a proposal to promote instant
mutation on pledge to help carry out and release transactions. This also
enables bankers to view the mutation status of a property before releasing
a loan.
6.7. Perceptions of Legal Fraternity on Linking Courts with BKM
Having noted the role of Bank officials, we proceeded to look at
the opinion of the legal fraternity regarding BKM linkages with courts. This
section of the report reflects perceptions of the legal fraternity as vocalized
by the advocates of Tiptur, Gulbarga, Bantwal and Navalgunda Taluks.
Their views and suggestions regarding property related litigations and the
impact of computerisation and integration of land administration system

have been captured.
The most common litigations that occur in the rural areas with respect
to property related include:
(i) Account of family disputes regarding shares in property
(ii) Illegal constructions
(iii) Transfer of properties of restricted categories
(iv) Unauthorized occupation of property belonging to Government/
private individuals and
(v) Transfer or mortgage of properties.
Litigation cases related to property frauds are rare. As opined by
the legal fraternity, the occurrence of property related frauds is relatively
low at the village level, mainly because of the well knit social structure and
a mutual knowledge of properties and history of owners. But with the
increasing number of transactions taking place in the villages located close
to towns (owing to urbanization) it is very important that the property related
information is made available online both to the citizens and advocates so
as to enable them to furnish the required legal opinion quickly. It is also
opined that the accuracy level and availability of land data are important as
the personal knowledge of such properties located at nearby towns is
relatively less. Further, the availability of error- free land data automatically
leads to a reduction in frivolous litigations.
Legal experts observe that relevant measures are needed for
reducing fraudulent practices in future. To ensure titles of individual
properties, the Department should be in a position to provide necessary
information immediately on request, or make it available on line to the legal
people, the absence of which is a major shortcoming of the present system,
say the legal experts; this facility will enable the legal experts to provide a
clear legal opinion on any property related deal. Thus, by ensuring
transparency in the system, property related frauds can be effectively
tackled. Although, the legal fraternity is quite aware of the procedures,
possible advantages and disadvantages as in the case of Bantwal taluk
where citizens normally engage lawyers as consultants in land related
transaction cases; in other taluks, awareness level of the legal fraternity
regarding BKM integration is minimal.
A major problem associated land records is the data mismatches
between the Survey and Bhoomi records, and field level data. Ultimately, if
such issues are not settled by the Revenue Department by way of ensuring
proper and accurate data, it will possibly lead to disputes and the resultant
litigations. At present, there are problems like delays in getting papers and
information on land details especially from the Survey Department, as the
same is yet to be computerised. Getting necessary papers from the Bhoomi
and Survey Department is considered as the most difficult part while going
in for registration. Documents/records like 11-E Sketch from Survey/ Mojini
are very important for registration at KAVERI.
According to the legal experts, although there are delays taking
place in Mojini and unnecessary objections especially where ‘Phodi’
procedure is yet to be regularized, the extent has come down including that
of speed money involved in getting things done early after the computerisation
of Bhoomi and integration of BKM.
On the positive side, the system is almost tamperproof now as it
provides for every access to be automatically recorded in order not to
allow access that does not follow due process, thereby eliminating
unauthorized access/tampering of information, etc. Hence, over a period of
time, the system is expected to achieve a high accuracy level. The functioning
of the legal system will benefit from the online facility for accessing
information on the progress made of requests for documents at Bhoomi,
apart from RTC information. Further, it will be convenient to the legal
fraternity and courts in terms of bringing the judicial decisions regarding
land transactions through networking of both the departments. This will
also be helpful to the revenue authorities and bankers to understand the
liability level in RTCs along with restrictions, if any, imposed by the courts
on a particular property.
Online entry system between the court and the revenue department
can be ideal as this will enable all the concerned to understand the
encumbrances regarding a particular land, and to identify properties with
legal impediments, if any, before striking a deal. It is stated that approximately,
ten percent of the civil petitions pertain to property matters and any data
linking measure will have positive effect on the system.
At present, though they are making use of the computerised facility
and find it convenient to find RTC details on line, this facility will be more
useful if it is made error proof, especially with respect to survey data. The
legal fraternity observes that it would be good to involve them so that they
provide some relevant suggestions for the reformation of land administration.
Chapter 7
POLICY RECOMMENDATIONS
Bhoomi, Kaveri and Mojini and BKM integration is one of the
most crucial initiatives taken up by the Government of Karnataka. Almost
all the initiatives have several positive implications which are well received
by the beneficiaries. However, some more improvements need to be made
at various levels in order to further strengthen the processes and ensure the
expected outcome. Although these schemes were initiated at different points
of time, their integration took place only recently. The problems in Bhoomi
are lesser than Kaveri and Mojini now, after the programme got
institutionalised gradually. Each of the initiatives did encounter its own
challenges since problems if any can be identified only at the field, and are
contextual, particularly since this arena of streamlining land records
management had stood neglected for several decades. It is interesting that
the personnel have been tackling the issues wherever possible. At times,
they do face problems that are quite peculiar and conflicting, which are
addressed separately. The various positive implications can be seen at all
levels of Bhoomi, Kaveri and Mojini, which has been discussed in detail in
the previous sections. Overall, the satisfaction levels of the people have
been good. For instance, 84 to 87% of the clients in Tiptur and Gulbarga
have reported that the service is faster as compared to the earlier system
and involves reduced time and cost. Besides, the present system enables
them to verify property related details easily, and people in Gulbarga,
Navalgunda and Bantwal feel that their documents are safe with the new
system. In Tiptur, people also feel it is people-friendly and easy to access.
Throughout the study, readers will find discussions on the benefits derived
by the public from the innovative steps initiated under BKM in land records
management. However, based on the field level insights and interactions,
we offer some specific policy suggestions for making the system more
effective and user friendly in attaining its stated objectives.
7.1. BHOOMI
Decentralized E- Governance Process
Currently, citizens have to travel either to Nemmadi Kendra at hobli
level or to Bhoomi kiosk at the taluk office to obtain the RTC/other
documents, resulting in additional expenses in terms of time and money.
Therefore, the entire system could be simplified, bringing the village
accountants online. They should be provided with the required computer
support to issue documents like RTC/mutation copy and affix digital

signatures needed under PKI system. This will result in the reduction of
work load on Bhoomi operators as also queuing at the taluk head quarters,
as is the case now.
Requirement of Enquiry Counter
Separate enquiry counter/ information counters should be provided.
At present, the Bhoomi kiosks and back office together have five operators,
with one counter for receipt of applications and another for delivery of the
completed records. The absence of a separate enquiry counter/ information
counter is felt as citizens do not appreciate waiting in queues merely to
enquire about the status of their applications. In fact, they normally depend
on the back office staff for the same, and disturb the functioning of those
staff. Hence, it would be advantageous to have one additional counter for
enquiries and information wherever the waiting period at the application
counter is high. This will be good, from the point of view of convenience to
people and also the back office staff, who can then work un-disturbed.
Enquiry sections with touch screen facility could be installed besides creating
awareness to use kiosks among the public once the touch screen facility is
installed.
Additional Facilities like Proper Counters at Nemmadi Kendras3
At present the Nemmadi Kendras are operated through outsourced
agencies, and there is no uniform system of attending to people’s requests.
Overcrowding and jumping queues are common, often leading to arguments.
Therefore, a system of window-counters should be provided at Nemmadi
Kendras to safeguard confidential documents from public glare. It will also
help in the systematic processing of work and attending to people’s enquiries
without disruption. Any changes in the Nemmadi Kendra system - even if
they are continued as private enterprises – should be under the supervision
of an officer at Hobli level to enable affixing of digital signatures on
documents as required under PKI procedures. .
3
During the discussion with the Tahasildars at Tiptur and Gulbarga we were
informed that government is taking action for bringing Nemmadi Kendras under
the control of Deputy Commissioner by appointing a deputy tahasildar for
monitoring the same. In all probability, Nemmadi Kendras will be made similar to
the existing Bhoomi kiosk at the taluk centre, and a Deputy Tahasildar posted to
approve all the transactions in order to provide better service to people. This
measure is expected tosave time and money . Decentralization of service delivery
and provision of user-friendly electronic devises are also expected to be realized
through this effort.
Policy Recommendations 103
Proper Management of Staff

Staff allocated to the Bhoomi Kiosk should not be sent on deputation
to other departments, and skilled staff should be appointed and further training
should be provided to staff to ensure quality of service. Village Accountants
should not work as Bhoomi operators and vice versa. It is observed that out
of the five operators allocated for Bhoomi tasks, some are being deputed to
attend to other tasks, at regular intervals. This issue needs to be regulated
as it causes delay in the process of Bhoomi transactions and also affects
the quality of service.
Need for Improvement in Error Correction Procedures
A separate cell in dealing with the error correction issues at Bhoomi
would help in providing quick and efficient service. Further, delegation of
powers pertaining to error correction to other officers may be advisable
instead of requiring all proposals to be submitted to the Assistant
Commissioner, as at present.
Technical - Need for Additional Hardware
As expressed by the Operators, currently the Bhoomi team seldom
gets sufficient institutional support. During interactions with the VAs and
Bhoomi Operators it was observed that now, computer systems are not
made available exclusively to the VAs and RIs for updating the files under
processing and that they have to wait till computers to become free in the
back office for starting work. This problem needs to be attended as the
data fed by the village level officers is important to avoid delay in processing
the applications.
Social - Need for guidance counters
Currently, transactions are attended through middlemen or lawyers
in all the offices. This is ascribed primarily to the absence of guidance
available in the counters with regard to the procedures to be followed in
each of the transaction. Giving guidance is not possible through the existing
application counters as large number of people would be waiting for
acceptance of applications in Bhoomi kiosks. This aspect of arranging
separate counters for guidance of the citizens needs to be given greater
attention in order that the role of middlemen in carrying out the transactions
is reduced.
Measurement of Government Survey Numbers
Currently, measurement of government-granted lands with more than

one block needs the consent of all the block holders of a survey number.
Further, specific approval of the authority is also needed for taking up
measurement each block. This provision creates unnecessary social tension
when one of the owners of survey numbers in government-granted property
desires to carry out a transaction either for his entire block or a portion of it
and there is no voluntary consent available from all claimants due to possible
disputes on issues like easement rights or boundaries. This aspect of social
problem needs to be addressed without prejudice and strictly based on the
official records available in the office instead of waiting for the consent of
all claimants or for demand to measure the entire survey number. Further,
if pre-mutation procedures on survey numbers with multiple blocks are
thus simplified, issues of conversion of the portion of the agricultural lands
being sold without 11-e sketch and by circumventing the requirements of
pre-mutation process can be avoided as observed in Bantwal.
Focus on Citizen Comforts Needed
Currently, most Centers are devoid of Waiting Lounge/seating
arrangements for the convenience of clients. Further, special facilities like
ramps are not provided in most of the centers to enable the old and the
physically challenged access the counters. Besides, drinking water and
toilet facilities are also not provided. This needs to be attended to both at
Bhoomi and Nemmadi Kendras.
7.2. KAVERI
Strengthening Awareness and Communication Initiatives
Currently, installation of information kiosks is under way at the
centers but several constraints could impede their functioning. It would be
useful to eliminate such constraints and strengthen their functioning further.
Besides this, it would be useful to have graphical representation and displays
regarding each step to be followed for the benefit of those who cannot read
in addition to designating a person to guide the people during registration
process, etc. Popularizing step-by step registration procedures through media
could also be an important initiative.
Development of a User Manual
A user-manual would be an important addition to the initiative taken
towards BKM integration. The manual should be user-friendly with graphical
representations and simple for easy understanding. Even in case of changes
that may be made in the future in the light of making improvements, changes
could be incorporated into the processes.
Recruitment and Training of Staff
The shortage of efficient staff is one of the major constraints. The
shortage of staff in SROs has seen discussion at various levels. It is important
that the personnel in adequate numbers are recruited to ensure timely
execution of mandated tasks. Staff recruitment should be based on demand
in terms of work load. Currently, staff recruitment is based on demand-
supply principle in KAVERI departments across taluks of Karnataka. For
instance, transferring and shifting of the existing data entry operators
depending on the work load could also be an option that can be considered
though after a thorough study. Besides, for the staff to work efficiently, it is
important that they are trained adequately.
Streamlining the Middlemen as Consultants/ Office Staff
The role played by middlemen during the registration process is
well known. Given their significance, it would be useful to work out the
possibilities of enrolling them as consultants/office staff under license from
the SRO for assisting needy clients. This provision could be provided with
an additional charge to the citizens. This would help avoid deceitful practices
and act as an additional service for those who cannot spare the time to
comprehend the intricate details of the registration process. .
Completing Digitization Process on Priority
Currently, the digitization process is on with respect to Encumbrance
Certificate, and records for about 15 years, have already been digitized. .
This process should be given priority and the remaining digitization completed
at the earliest for speedy delivery of documents.
Need for Providing Laptops for SROS
Providing laptops to SROs will make their job easier, as for instance,
taking photograph and thumb impression in the required format, can be
done easily with laptops. Again, in case of private attendance for persons
who are unable to attend registration due to their personal problems e.g.
hospitalization, old age, etc., the laptop will facilitate SRO’s work.
Technical Aspects
Adequate Technical Backup Needed
In a net-enabled set up, computers are crucial requirements for
effective functioning of the system. Non-availability of adequate number
of computers and other related accessories could make the system
dysfunctional and aggravate related problems like delays and pendency in
registrations. Hence, in order to make the computer system more workable
provision of adequate number of computers and associated hardware/
software need to be made expeditiously.
Minor Modifications in the Software Can Speed Up the Process
The suggestions of SRS should be considered while designing the
Software, because they know best the requirements of the systems in the
field. There are several points where initiatives can be taken in improving
the software for speeding up the process. Some of these are described
below:
• After registration is complete, the document headings are now filled
manually by the clerical staff, which could also be computerized.
• There are problems when Data Entry Operators make mistakes while
entering the details into the computers. Currently, these mistakes can
be rectified only when the Engineer makes an intervention. So, the
software should be made user-friendly to the data entry operator by
creating a separate login- id and password to correct mistakes that
comes to his notice.
• It would also be useful to have monthly and annual statements generated
automatically, as required by the Sub -Registrar.
• The software currently in use has no provision to consider the transfer
of rights among brothers; also, the software does not recognize the
right to sell undivided rights of a person in a particular property, though
the same is valid and legal under Transfer of Property Act currently in
force.
• There are release deed issues: the software can recognize only the
first name (in joint mortgages) for release from liability; names of all
the other right holders do not get release from liability.
• Presently there is no separate listing or category in J-slip generation for
gift deeds as it is also treated as ‘sale’ only. This needs segregation
again at Bhoomi, causing delay. Hence, a provision should be made in
the Bhoomi software to have separate classification by type of
registration.
Requirement of Monitoring Cell

A monitoring cell similar to Mojini and Bhoomi can also be established
for KAVERI. Establishing a separate monitoring cell would aid in monitoring
the whole districts registration processes at a single point. This would also
help in identifying problems at the specific SRO level, so that further
corrective steps can be initiated.
Establishing an Alternative Network
Currently, KSWAN network is supporting the functioning of the
KAVERI system. However, it has several shortcomings that obstruct the
functioning of the KAVERI process. In this context, it would be useful to
have an alternative or additional supportive network with innovative network
technology.
Need For Effective Maintenance of KIOSKS
Kiosks are not in working condition in several SROs.. So, in order to
keep Kiosks in operating condition, kiosk maintenance should be done
departmentally or outsourced to efficient agencies on monthly maintenance
contract, and monitored departmentally. It would be useful if Kiosks are
manned by trained personnel to guide users and to ensure that the system
functions effectively, particularly in rural areas.
Infrastructure Aspects
Provision of adequate infrastructure facilities
Work places should be equipped with minimum basic facilities in
order to improve work efficiency. While proper building space should be
provided to the Department Staff, shelters and clean waiting lounges need
to be provided for the public. Similarly, separate counters should be arranged
for Marriage Registration, EC and CC to reduce burden on general
registration system.
Hiring of Data Entry Operators
Government should appoint regular Data Entry Operators instead
of outsourcing. This will make the registration system more efficient in
delivering error-free documents to the public. Besides, recruitment of data
entry operators needs to be done, taking into account the volume of daily
transactions in the Sub- Registrar’s office. Each taluk should be surveyed
based on the workload, and staff should be relocated keeping in mind the
workload, both existing and future.
Final Checklist Clearance Should be at SRO Level

SRO and staff should be provided with supervisor logins to streamline
authentication. However, the key login password should be provided only
to SROs. The display showing the final checklist of documents should always
be made available with SRO, and until the SRO gives the clearance after
verifying the checklist, the documents should not be registered. This will
prevent the occurrence of mistakes.
7.3. MOJINI
Administrative process
Digitization process needs to be completed
In order to have a long lasting solution to the present quandary of
mismatches and confusion in the different wings of the Revenue
Department, it is essential to complete the ongoing process of digitization of
all survey records at the earliest. Likewise, there is need to initiate action to
reconstruct all the missing and damaged records on a priority basis, especially
from the point of view of achieving reduction in disputes. Both the processes
need priority treatment by the government in order to establish data
authenticity in land records.
Having Own Systems for Processing Applications
At present, the department is relying on outsourced systems to
process and upload the 11-e applications to Bhoomi data base. All other
applications, i.e. for tatkal phody, haddubast and other survey department
details, are processed manually. If the Department gets its own computer
systems, these applications can also be processed more efficiently along
with pre-mutation 11-e requests to improve accountability and efficiency.
Apart from this, these systems can also be used by the surveyors to upload
their sketches directly for online verification and to monitor their progress
periodically.
Need for a better procedure for generation and issue of notice.
Law requires that notice be served on all the RTC holders and also
other interested persons on the surveyed property. However, this process
is more misused at present than serving its purpose. The entire process
needs monitoring and an authentication system. A fool-proof system of
serving notice to all the interested parties needs to be introduced in order to
ensure that the notices reach the concerned either by insisting on certification
of the fact by the Vas, or by having proper paper notification at the cost of
applicants apart from the mandatory public notification in GP office. Further,

the process should ensure that the applicants provide proper address and
contact numbers to the department and not through middleman. Rules should
be modified to accept 11e requests only if proper addresses of all the parties
involved are given.
Delivery of 11-E Sketches and Control of Middlemen
Most of the applicants complained that the current surveying process
involving complicated procedures make them depend on middlemen to get
11e sketch and also incur avoidable expenses. So awareness needs to be
created among the public regarding the benefits of visiting the Mojini
department directly to get 11e sketch. With the introduction of the new
system, once the application is accepted for processing with records that
need no rectification whatsoever, acknowledgement indicating the date of
delivery of the service in question is issued instantly. In some cases, clients
themselves are found forcing surveyors to complete the survey process
faster by giving extra money. Such kind of actions by applicants can be
prevented by mentioning the date of completion and delivery of 11-e
sketches in advance.
Correction Procedure Simplified for 11-E Sketches
The 11-e sketches once approved and uploaded cannot be corrected
for any minor errors, and has to be applied again for reissue after payment
of fees irrespective of the reason for errors, either from the department
side or the applicant. Also, special login should be created for corrections
of wrong 11e sketches at the supervisor level itself instead of passing it to
the higher authority, as is presently done, to prevent delays in the survey
process. Even the fees to be paid may have to be fixed on a lower side if
the error is on the part of the department
Need for Settlement Survey
No resurvey has taken place since the year 1930. Due to this, the
hissa details on all properties and the topographical features subsequently
introduced to the land do not reflect in the recorded. This has resulted in
increased litigations. The ultimate solution for all these issues is to take a
general resurvey of land. Though a resurvey is time consuming and involves
huge investment, it is worth the effort in view of its potential benefits.
Resurvey has to be done regularly once in 30 years to avoid litigations.
Department should initiate action to check unregistered transactions on
property and digitize all old maps.
Tracking of Consumption of 11-E Sketches by the Registration

Process
At present, the department does not have any system to track this
information in all the three departments. The necessity of this information
arises out of the need to know the purpose of 11-e, that is, whether it is
used only for pre-mutation purpose, which is the intended use. Therefore,
to keeping track of the 11-e sketches issued and utilized by registration
purpose can be easily done by linking the registration number of Mojini
department to that of J-slip and MR numbers. Informal discussions with
the officers suggest that there is a sizeable number of 11e-requests from
individuals which are not intended for immediate sale of the properties.
Proper monitoring system should be made at each taluk to the percentage
of 11e sketches used for immediate sale and those used for other purposes
like confirmation of actual land area or for fixing the boundary lines by
fencing etc. Such an exercise will limit issue of 11-E sketches to those who
need it for immediate sale/mutation etc. of properties. Therefore, preference
is to be given to the clients who need 11e sketch for immediate sale of
properties.
Shortage of Staff
The strength of Government Staff (11 e caseworker and Supervisor)
has to be increased depending on the number of transactions per month at
each taluk. Currently, the availability of licensed surveyors is not directly
proportional to the demand for 11-e sketches in a taluk. There is need to
match demand with supply by increasing/decreasing the staff strength in
each district depending on the frequency of transactions.
Monitoring the Mojini Process
Monitoring of the completion of 11e sketch requests with respect
to number blocks being surveyed, is essential from the point of view of the
fulfillment of such requests. In taluks like Bantwal, the requests for 11-e
sketches from granted lands with more than one block are on increase.
Such cases need the approval of DC for issue of 11-e in respect of one
case if all the other block owners are not consenting. These cases get
delayed for want of approval, and are kept pending. Some of the cases
circumvent this problem by converting the plot for non agricultural use
without proper 11-e sketch. This trend needs to be monitored closely as
transactions without 11-e sketch will have long term impact on the survey
process, particularly if bifurcation of land is allowed without valid sketch
from the department.
Licensed surveyors pointed out that time taken for completion of 11e
sketches increases with increase in number of blocks required to be made,
and that it is therefore necessary to fix timelines for completing 11e sketch
based on the number of blocks to be made. Average time taken for
completion of 11e sketch for land with multiple blocks needs be revised
upward as it involves lengthy processes like serving notice on all parties,
taking signature from concerned parties etc. There is need to review the
whole question of survey of multiple blocks in granted lands and the issue
of 11-e sketch to one of the owners, as the present law often results in
denying 11-E to the needy owner when there is disagreement among other
owner/s. In case of disputes, approval for the survey of such cases is to be
accorded than denying the issue of 11-e against such requests in the interest
of justice.
Information on wrong 11e sketches issued, their percentage and
number of licensed surveyors punished for issuing wrong sketches and
action taken by the survey supervisor in this regard needs to be placed on
record by properly monitoring the same. At present, no records are
maintained by the department on these aspects except rectifying the errors
committed by them.
Social Issues
Need to increase the number of licensed surveyors and their
remuneration
The number of surveyors has to be increased based on local issues,
i.e. frequency of land transactions. The fee for 11-e sketch is currently
fixed at Rs.600/ for each application. Out of this amount, Rs.300/ is paid to
the Licensed Surveyor for completing the survey work within the time
period allotted. As revealed by our field visits, the work involved in the
process consists of issuing notices to all the concerned or interested parties,
fixing the date of survey and visiting the location with an assistant and
submit the report to the 11-e case worker. Visits to locations which are
often distant involve bus fare for self and assistant apart from the expenditure
on issuing of notices. In such cases remuneration given by the department
would be insufficient to complete the procedures related to 11e sketch. So,
government needs to make timely revisal of remuneration to avoid further
burdening the applicants as the departmental guidelines now insist on the
applicants meeting such expenses.
More Support for Surveyors

There have been instances of licensed surveyors having to face
problems in the field during their survey work. It is essential that proper
security is given to the licensed surveyor in case of disputes raised while
surveying.
More Power to be Given to Survey Supervisors
It is necessary to give powers to the Survey Supervisor to
recommend punitive action on licensed surveyors who commit errors.
Delegation of such powers is necessary to maintain quality as only through
finality in measurements and accurate 11-E sketches that disputes and
mismatches in records can be eliminated.
Awareness Creation
Currently, most applicants find the procedures involved obtaining
11 E sketches needs beyond their comprehension. Such applicants are forced
to engage middlemen and incur extra expenditure. There are also instances
of clients forcing surveyors to complete the survey process on a faster
pace by giving extra money. Therefore, it is necessary to create awareness
among clients about the procedures involved in property registration, etc.
through departmental initiatives like having display boards with detailed
information at concerned offices and by designating staff to impart
information to the clients where necessary. Further, middlemen should be
discouraged if not banned from exploiting the less informed clients.
Continuous Training Facilities
Regular training should be given to the operators and licensed
surveyors to make error free 11e sketches. An online checklist has to be
introduced for cross verification of the 11-e data with that of Bhoomi data
so that future complications at the registration stage can be avoided. For
instance, in a observed in Bantwal during our field visit, the 11-e sketch
details were found differing from RTC details, and so the registration had
to be deferred.
Technical Aspects
Standardizing survey procedures necessary
As revealed by this study, the procedural steps followed in
registration, etc. are not uniform across departments in some respects. It is
important that there is a standardization of procedures which needs
interventions at various levels, as is described below:
• The present method of issuing 11-e sketch without formal approval by

Tahasildar is flawed. Effecting mutation prior to issuing 11-E and and
registration will normally be advantageous than doing so after
registration and receiving possible objections in terms of accuracy. Also,
the procedure of 11-e sketch needs clarification and certainty on the
extent and measurements in terms of acre/guntas/cents.
• At present, land conversion provision in registration is being misused in
Dakshina Kannada district by circumventing the requirement of pre-
mutation sketch. The insistence of 11-e sketches for such cases can be
made mandatory in the interest of having proper records, as the
conversion sketch is based only on approximations and not on a
surveyor’s sketch issued by the VAs.
Providing Upgraded Survey Equipments
The survey personnel need to be trained in the use of modern
measuring equipments instead of chain-measurement, as accuracy of chain
measurement is constrained by the presence of obstacles like bushes, wells,
hills, rocks etc., in the field or uneven topography. Technological solutions
should be developed to overcome these issues.
7.4. BKM Integration
The integration of BKM is indeed a laudable initiative. However,
changes have to be brought about keeping in view the local requirements.
In Karnataka four different systems of land administration were in vogue
before common LR Act was made applicable. Still, local systems are in
practice which needs fine tuning at the local level. If it is implemented by
involving all the stake holders and understanding the implications of the
land transaction systems it would be useful to all stake holders.
Need to Strengthen Integration Process
After integration, the work efficiency has improved, but more
coordination is needed for completing the integration process. The updating
of survey records data in Bhoomi on completion of digitization, and full
KBM integration are the only solution for the existing problems in the land
records system.
Some suggestions in respect of the process of integration are made
in the following paragraphs:
• At present, based on the online soft copy J-slips, the system at Bhoomi
generates 21-A notices. However, it will be dispatched to VAs only
after the physical form is received. But the problem of non-receipt of J
slips in hard copy can be sorted out through suitable measures either by
allowing the SRO to send another copy direct or allowing Bhoomi to
finalise the mutation process based on soft copy details.
• The procedure pertaining to 79 A/B of KLR Act is to be made similar
to that of pre-mutation, so that post registration mutation complications
can be avoided. At present, registrations are done on the basis of
declarations by the registering parties, and the mutation process gets
delayed if the declarations are found incorrect during verification by
the RI at Bhoomi.
• Training needs to be imparted to the concerned staff members in case
of inclusion of new versions or changes of software across BKM.
• Currently the Department is not maintaining any system for tracking
11e sketch information either in Mojini, Kaveri or in Bhoomi. It could
be done easily by linking the registration number of Mojini department
to that of J-slip and MR numbers allotted for mutation change purposes.
Thus, with regard to verifying details of consumption of 11-E sketches
in registration, it can be easily achieved if the 11-e registration numbers
are integrated in the Bhoomi database along with mutation register
data.
• The baffling complexities of land records will come to an end if it is
made mandatory to have all entries in mutation to be effected only
after the registration process or system of changes made possible through
a universal biometric ID method, may be Aadhar card.
• The required information on land matters should be made available
speedily and without divergence from the with actual field situation, as
this will help citizens to submit the same to courts and settle the litigations
early. In this regard, there is need to introduce strict monitoring at the
level of individual cases and weed out errors to see that the processing
time does not exceed 60 days. It will also help to arrest the delay
presently occurring in the settlement of applications at different levels
of revenue department. Lack of strict monitoring allows errors to creep
in and in such cases, the concerned Assistant Commissioner is now
required under law take decisions on the matter.
• Taluk Panchayat, Gram Panchayat and Municipal Bodies should be
integrated with the registration department for easy availability of
required data by SROs. If the market price and actual value of all
Khata and conversion orders are available to the SRO, the right amounts
of fees can be levied, at the time of registration of properties.
• At present, Bhoomi data is available in the servers maintained at Bhoomi
taluk centres as well as the central server. The Mojini data is uploaded
to the Bhoomi system after pre-mutation sketches are prepared and

approved at the Survey department as and when people request for the
same. This data is accessed for the KAVERI transaction at SROs and
the registration data is again uploaded on line through J-slips by SROs.
Thus, the Bhoomi data base is getting updated continuously as and
when transactions are carried out by each of the three departments
during the land transaction process. Therefore, instant access to Bhoomi
data base is important in the process to render quality service. During
the visits to the SROs and discussion with the Sub- Registrars, it was
informed that lot of time goes waste in accessing information and getting
pre-mutation clearance from Bhoomi data base. Difficulty in getting
access to information is further aggravated by network issues, and
much of the registration time is lost, causing revenue loss in SROs.
This issue needs to be analysed with reference to the present server
capacity to handle the increased data load as well as finding an
alternative source of network in case of KSWAN failure..
• SMS Facility needs to be popularized across BKM services.
There are certain issues with regard to the integration of BKM
with the requirements of other stakeholders. These are as follows:
• Presentation of documents should be done through a single window
system. At present requests are submitted at different counters of
Bhoomi and Mojini. It would do well if all the applications for land
related transactions are accepted at a single counter with Bhoomi acting
as the link department.
• The banks are in the process of establishing links with Bhoomi and
online data will soon be made available to them for verification. Similarly
an Online facility between Bhoomi data base and the court should be
extended. The linkage between Bhoomi data base and the banks has to
be improved as the same has not been completed in all the taluks. In
pursuance of this objective, during a State Level Bankers Committee
meeting, the following suggestions were made on behalf of Government:
- Support for use of Bhoomi database for creation of charge and
clearance;
- RTC of the owner in question is exposed to the banker with owners’
extent and liabilities if any;
- Progress of mutation on land to be notified to the banker;
- User friendly software to be used for creation of charge and release
of mortgage;
- Provision for easy process for payment of mutation fee on a monthly

basis;
- Mutation Status - facilities to verify instantaneously;
• Making available of the required information on land matters should
be speeded. Information so provided should in total agreement with the
field situation so that it can be submitted to courts for early settlement
of litigations.
• In this regard, there is need to introduce strict monitoring at the level of
individual cases and weed out errors to see that the processing time
does not exceed 60 days. It will also help to arrest the delay presently
occurring in the settlement of applications at different levels of revenue
department. matter.
Suggestions on Monitoring to Improve Implementation of BKM
It is observed that there are some issues in the field, which are
hampering the proper implementation of Bhoomi, Kaveri and Mojini. Perhaps,
these issues would come to light and solutions could be found, if a good
monitoring mechanism is put in place. Even now, a number of reports are
being obtained from the field offices at the higher echelons of the Revenue
Department. Many of the reports give details of the work that is being
carried out by the offices in the field. The reports do not have a system of
identifying what problems are faced by those offices and what steps could
be taken to improve their functioning. There is need for collecting reports
on the kinds of problems that impede the proper functioning of the
programmes. It is in this context that certain suggestions are made in the
following paragraphs.
a) Details of follow up services and feedback given to the customers
- In the integrated BKM system, people visit the offices for submitting
the initial application for services and also for the follow up and to
know the status of their applications. It is therefore useful to know the
number of visits clients make to these offices for the above purposes
by some monitoring mechanism at the kiosk level. Apart from knowing
the time taken to complete people’s work, it is also relevant to know
whether people are being informed of the progress of the application
after the minimum period of time prescribed for its disposal.
b) Notice issuing process by the licensed surveyors and its
fulfilment level - According to procedures of mutation changes or
issuing of pre-mutation sketches, notices are to be sent and
acknowledged by all the interested parties of the property transacted.
At present, the surveyors are mandated to monitor the notice generation
process and the status of its acknowledgement. Currently, there are no

systematic records maintained for identification of such interested parties,
notice generation, time given, acknowledgements received, proof of
public notice, objections received and certification of the authenticity
of all these procedures. There has to be a procedure for monitoring the
activities of surveyors in this regard, to avoid any possible malpractices.
c) SMS policy and details of its progress and usage - SMS are to be
sent to each of the applicants and those who avail the BKM services to
maintain the genuineness of a transaction. As revealed by the study
people are not intimated through SMS or are not aware of the provision
for receiving intimation through SMSs. This makes it possible have
fraudulent transactions without the knowledge of the property owner.
To avoid this, a mechanism to check the generation and delivery of
SMSs needs to be introduced in the system.
d) Staff availability and the work turned out in different departments
- After the BKM integration, the work pertaining to land transactions is
not done by a single functionary, but a joint work by all the respective
officers. A strict monitoring and record of the time taken by each officer
to attend or to complete the work is necessary to assess the work load
and the quality of work turned out. The pendency must be monitored
by the higher officers periodically, and they must also focus on the
entire set of processes and officers involved in a transaction.
e ) Registrations completed without having 11-E sketch by Kaveri
- Pre- mutation concept has been introduced to curtail possible frauds
and to improve the correctness of property records. There are instances
where the registrations are pushed through citing certain exemptions
available for the same. This could be used as a means of circumventing
the set procedures by unscrupulous people. Number and frequency of
registrations in a period need to be monitored in order to see that such
spurious exemptions are not used to push through registrations. On
many occasions spurious exemptions are also found used to circumvent
the requirement of pre-mutation sketch.
f) Land Valuation and revisions at Kaveri - At present, properties are
registered based on the guidance value of properties as prescribed by
the authorities or as assessed by SRO whichever is higher. This can
lead to disputes, discretionary decisions and undervaluation. It is
necessary to have a monitoring mechanism for verification. This will
enable the superior officers to set right things at SRO, by probing, for
instance, as to how several cases are registered at above guidance
value price.
g) J-slip generation, completion of mutation process and the issue

of non receipt of the same at Bhoomi through online process -
After the registration of documents, the department generates J-slip
online and in addition sends a hard copy to the taluk office. It is observed
that there is a problem of mismatch between registrations details and
J-slips generated and received by the Bhoomi department. Such
mismatches can lead to serious disputes and ultimately harm people
and cause inordinate delay in mutation process. The mismatch between
soft copy and hard copy of J-slips needs to be monitored to identify the
source of the issue rather than leaving people to fend for themselves as
at present. There are cases pending for years due to such disputes
between the departments. Such cases need to be attended to and
disposed off on priority. All subsequent cases must be disposed off
within the time-limit that has been prescribed, under the relevant rules.
Conclusion
The foregoing description of processes of Bhoomi-Kaveri-Mojini,
regarded as ‘three pillars’ of Karnataka Land Revenue administration,
reveals the intricacies involved in policy formulation and policy
implementation for each of the mechanisms. All the three are in a way
landmark initiatives of the Government of Karnataka aimed at providing
computer-borne governance and thereby making the overall land
administration in the State people- friendly. Bhoomi, Kaveri and Mojini are
three programmes that have caught the imagination of a sizable section of
the rural population. The people who know about these programmes, and
are keen that they should derive the maximum benefit from them. Hence,
the expectations from the field departments are very high. In the midst of
these heightened expectations, there is disappointment as the citizens are
able to see for themselves the endless problems that the departmental
personnel are facing, and, also that they are not in a position to deliver the
expected results even after making sincere efforts to do so. It is up to the
authorities in the upper echelons of Government to take stock of the situation
and resolve the various problems in the field. Only then will BKM really
deliver the complete benefits to the citizens. If this is done, and there is
every reason for optimism on this score, in the next few years, BKM will
certainly revolutionize the land records management setup in rural
Karnataka.
NOTES
i
The Software
The Bhoomi -V software application was written in Visual Basic with Microsoft
SQL Server 7.0 as the back end. In 2005-06, an exclusive wide area network
(WAN) for the Bhoomi application using a dedicated V-SAT based network was
set up. All the taluk offices are now connected through this network and Bhoomi
data centralized to the State Data Centre which was created by the e-Governance
Department of the Government. The data, in a batch mode, gets replicated 4–5
times a day in Bangalore. The data base server at the state level is SQL 2000
(Chawla, 2004). The taluk databases have been migrated from SQL 7.0 to SQL
2000.
The Bhoomi application running at the taluk server is now being written in net
2.0.The new versions of software have also helped the system to integrate with
other related departments and services. Main features of the added details
regarding the evolution of software versions under Bhoomi are as below (Revenue
Department, 2011)i
The Hardware
As part of the hardware modifications under Bhoomi, as many as 177 computer
servers at taluk centers were replaced by new servers, over a period of time. The
new servers are fully remote-controlled through scripts. In fact, such a facility is
one of its kinds in the country that scripts are run and servers controlled as
against browser-based controls of remote servers which is the normal practice
in industry.
In addition, the old UPSs were also replaced as part of modernization with the
new Simple Network Management Protocol (SNMP) and online-enabled UPS.
These systems are fully script-controlled and managed. The level of automation
is advanced, even if the servers and UPS at the taluk centre are switched off for
the day, an application running at the data centre has the facility to switch on the
same server and UPS for taking data back-ups. The idea behind the facility is to
save power because many such centers at taluk levels face severe power problems.
With this advanced technology, the system servers need not be kept-on through
the night and the application can switch on the server when necessary.
In a way, the State data centre is also being used for pushing patches, running
scripts and remotely controlling the 177 Bhoomi sites. The remote sites are also
analyzed by the e-governance department from the State Data Centre by logging
on to the servers and computers there. In addition, all the 177 servers are in a
single-window domain with biometric confirmation. Adding of new users in the
177 taluks is controlled centrally. In addition to the windows domain directory at
the central database, the bio-metric information is also available in the secondary
domain controllers at the taluk level. This would help the system in realizing
faster authentication of the operators.
As part of Bhoomi, the adaptation of technology has also entered agricultural

fields to assist the ground level staff of the Revenue Department to make data
collections and updating more accurate. One such example is the introduction of
hand-held devices deployed with the Village Accountants a few years ago, for
crop updating in the villages. Part of the programme, the inbuilt modem of the
simputers, was used to transfer the data to the state data centre, using the
telephone lines in the villages. The data then used to be passed on to the
concerned taluk. The data centre with its huge centralized gearshifts and
competence has made many qualitative changes in the way mechanisms in
Bhoomi work. The project involves vast data and the expenditure on data entry
operations has been considerable. The department statistics show that for all
districts combined across the State, the department has to spend ` 80 million for
this exercise alone. Moreover, with respect to providing hardware, and
construction of computer rooms and kiosks, the cost per taluk exceeded ` 0.64
million. As a whole, the total expenditure on the project was ` 185 million. The
above-mentioned cost excludes the cost of software development, where more
than 100 individuals worked for months together, with the help of the National
Informatics Centre.
ii
Currently the total strength of the staff is 1,643 [4 Deputy Inspector General
(DIG), 3 Assistant Inspector General of Registration (AIGR), 242 Sub-Registrars
and 34 District Registrars] are working under supervision of Inspector General
of Registration and Commissioner of Stamps (IGR). He also monitors the working
of the district registrar in Bangalore city. Each DIG supervises different aspects
of the department, like administration, vigilance, enforcement and intelligence.
The DIG Administration supervises the work of two Assistant Inspector General
of Registration (AIGR Administration and AIGR Comp), Law officer, Head Quarter
Assistant, Manager, Account Superintendent and Staff. The DIG (Intelligence)
supervises the work of AIGR (Audit) and is responsible for auditing activities of
the department.
iii
(1) Presentation of documents – Additional enclosures required for document
registration are RTC, Form 60 and 61, PAN, Form No.1, Form No.10, Declaration,
Affidavit and NOC.
Scrutiny of document by sub registrar for mandatory legal requirements and
checks for the following details:
• Date of Stamp – The date of Stamp paper purchased or date of franking or
date of certificate or embossing.
• Date of Execution – This is the date of signing of executants.
• Sub-Registrar further categorizes the nature of document based on the
Stamp Act and the Registration Act.
• Consideration Amount – This is the price paid or agreed to be paid for the
property mentioned in the document.
Notes 121
• Market Value – This is the estimation done by the Guidance value of Market
Value Committee or consideration shown in document, whichever is higher.
• If parties do not agree to Government’s guidance value, they can go on
appeal to District Registrar. In such cases the Sub-Registrar will refer to the
District Registrar for determination of market value under section 45 A of
the Karnataka Stamp Act, 1957.
• Sub-Registrar checks for appropriate support documents and verifies validity
and correctness.
• Sub-Registrar checks whether the person presenting the document (the
person who presents the document in front of the Sub Registrar for
registration) is the right person for presentation of the document. If presenting
person is power-of-attorney-holder, then appropriate proof of the same will
be verified; if the person has exemption under Section 88 of The Registration
Act, the Sub-Registrar will not insist on passport-size photograph. Otherwise,
passport-size photograph is mandatory.
• Sub-Registrar will verify whether all executants are present and decide
immediately after scrutiny whether the document can be registered or not.
• Sub-Registrar will record presentation procedure by affixing stamp number
1(presentation stamp) mentioning the date and time of presentation.
Calculation of market value, stamp duty and registration fee of the immovable
properties
• Stamp duty and registration fee are calculated on consideration or guideline
market value, whichever is higher.
• Stamp duty is the total amount of stamp duty to be paid.
• When the calculated stamp duty is more than the amount of duty paid, the
Sub-Registrar is entitled to demand payment of the difference and accept it
in the form of challan/DD/Pay order. In case the required amount is not paid,
the Sub-Registrar will have the right to impound the document and send it
to the District Registrar under Section 33 of the Karnataka Stamp Act.
• Preparation of valuation sheet and endorsement.
iv
Receipt generation
• Issue of receipt on payment of appropriate fees/making entry in the A-
register.
• Various fees charged are mentioned in schedule of ‘Table of Registration
Fees’ of the Karnataka Registration Act, Rules 1965.
• When all the fees are paid by the party the Sub-Registrar affixes stamp
number 2 (fee stamp)
• The details of fee, mutation fee and stamp duty etc, will be entered in the
daily register of fee.
v
Identification of the executants by witnesses in presence of the Sub-Registrar
• In identification process the Sub-Registrar will call the witnesses for
identification of executants
• Two witnesses are required for each executant or the same 2 witnesses can
be witnesses for all the executants.
• Sub-Registrar collects the details of the witness such as name, address, and
profession etc., before taking signature.
• If the Sub-Registrar is satisfied with all the above points, finally he takes the
signature of the witness .This procedure is called as Identification.
• After completion of identification procedure, Sub-Registrar affixes Stamp
number 4 (Identification Stamp).
• The Sub-Registrar will keep the document pending if sufficient numbers of
witnesses are not present and specifies the reason as identification is not
completed.
vi
Registration
Recording registration and endorsements on the document
• Sub Registrar will register the document by assigning final document number
and makes a note of the same in appropriate book or,
• Sub Registrar keeps a document pending and assigns pending serial number
to the document (Format as PXXXXX/<year>) and concerned receipt would
contain the pending serial number.
Copying the contents of the document in the registers
• He will order registration and record date, page number, volume number
with document number <serial number from book> and put round seal also
called as Stamp number 5.
• The registered document is then copied and the duplicate copy of the same
is kept with the office.
• The original will be compared with the contents copy of the document and
the errors in copying recorded.
• Preparation of Index I and II for the purpose of EC
1. Index I – Nominal index
2. Index II – Descriptive index(For wills separate index is prepared as
Index III)
• Return of the original document with proper acknowledgement to the client.
vii
Steps followed in Registration Process
• Client visits the sub-registrar’s office with his valid documents and presents
the documents to the sub-registrar
• Sub-registrar manually scrutinizes and verifies the documents
• Estimation of Market Value of the property is done through property
valuation based on the market value as per the guidelines of the department
online
• Sub-registrar passes on the documents to the data entry operator
• Checklist is followed by Data entry operator:
- Type of property –Sale deed/ Gift deed
- Property details – property number and boundary details
Notes 123
- Property valuation through internet

• Stamp duty is calculated and Stamp Duty/ Registration fee collected.
• Document correction – If all the documents are correct, the system will
accept the application and generate the internal number.
• Submitting the documents to Sub-Registrar
• Sub-Registrar can accept, with draw, refuse or keep it pending.
• If it is accepted for registration, the operator will generate the receipt for the
payment made for related documents(this also includes all other extra fee)
• Data entry operator captures the photo and thumb impression of the client.
• Examination of parties and identification of witnesses (Minimum 2 numbers)
is done by the data entry operator.
• Data entry operator generates the summary report, which has to be signed
by Sub-Registrar and clients.
• Tri-letter Registration number is generated by the system at this stage
which is a unique number all over Karnataka.
• Operator takes the printout of endorsement on the back of registration
document.
• Endorsement includes payment details, parties (seller and buyer), witnesses,
certificates, CD details
• Certificate- 10 A has to be attached with registration document for having
paid the stamp duty
• Operator submits all the documents to Sub-Registrar for signature and seal.
• Scanning of the documents is done by the operator
• Once the registration process is completed J –Slip will be automatically
generated and transferred to Bhoomi database centre.
• Delivery of document in original
viii
Process of Issue of EC and CC
• Calculation of search / copying fees
• Issue of receipt / Making entry in the A-register / Encumbrance Certificate
(EC) and Certified Copies (CC) registers
• Manual search in the index registers for EC/CC
• Recording of findings of the search and preparation of the encumbrance
certificate
• Copying the contents of the document from the registers
• Comparing the contents of the copy of the document with the recordings in
the register
• Return of EC/CC under proper acknowledgement
• Preparation and transmission of J-forms to the Tahasildar in case of
agricultural land transactions
Annexure
Table 6: Districts, Taluks and Villages Selected
District Taluk Hobli Village
Tumkur Tiptur Kasaba Goragondanahalli
Honavalli Honavalli
Halkurke
Kibbanahalli Rajathadripura
Nonavinakere Albur
Gulbarga Gulbarga Gulbarga Kesaratgi
Hagaragi
Aurad (B) Srinivasa Saradagi
Kalaganur
Farahatabad Itagi and Firozabad
Mangalore Bantwal Kasba Amtadi
Navuru
Panemangalore Narikombu
Manchi
Pudu
Dharwad Navalgund Annigeri Alagawadi
Annigeri
Shalawadi
Morab Yamanur
Belawatgi
Source: Primary Data from the Bhoomi Department 2012.
Notes 125
Table 1: Revenue Department Field-level Functionaries

Position Roles and Responsibilities
Regional • Exercises powers of superintendence and controls all
Commissioner officers subordinate to him within the region.
• Exercises the powers and discharges the duties conferred
and imposed on him by or under the land Act 1964 or any
other law for the time being in force.
• Exercises powers and discharges duties as the State
Government may confer or impose in this behalf for the
purpose of carrying out the provisions of the Land Revenue
Act 1964 or any other law for the time being in force.
Deputy • In his district, he may exercise all the powers and discharge
Commissioner all the duties conferred and imposed on him under this Act
or under any law for the time being in force and on an
Assistant Commissioner.
• In all matters not specially provided for by law, he shall act
according to the instructions of the State Government.
Special Deputy • The state Government may appoint Special District
Commissioner Commissioner by notification in any purpose it is expedient,
and the appointment will be for such purpose and specific
period in such notifications (KAR. ACT 12 - 468)
• He shall exercise such powers and perform such duties as
are exercised or performed by the Deputy Commissioner in
the district or a part of the district under the land Act 1964,
or any other law for the time being in force, as the State
Government may direct.
• He shall be subordinate to the Regional Commissioner and
Deputy Commissioner of the district if he is appointed under
sub-section.
Assistant • He and other officers in the Revenue administration of the
Commissioner districts work as a subordinates to Regional commissioner/
Deputy Commissioner.
• In charge of Revenue subdivision(two or more taluks) in
matters of revenue administration
Tahasildars • Chief Officer who takes after the in charge of land revenue
administration of the Taluk.
• Subordinate of AC, in case of no AC, then to DC of the
districts as per the Land Revenue Act 1964.
• As per the land revenue act, the powers and duties expressly
imposed or conferred upon him or any other law for the time
being in force or as may be imposed by or delegated to him
by the Deputy Commissioner under the general or special
orders of the State Government.
contd...
Special Tahsildars • In case of any purpose expedient for any taluk, the state
government appoints him by notification for such purpose
and period.
• The duties and powers are performed as tahasildar of taluk.
• He works as subordinate of the Tahasildars for the taluk
unless the state government may, by order, specify in this
behalf.
Revenue Inspector • He will be appointed for a circle by the Deputy Commissioner
as subjected to the general orders of the Regional officer or
the state government.
• He acts as the executive assistant of the Tahsildhar
• He supervises the work of the village accountant under his
circle. i.e. 10 - 20 village accountants
• Furnishes reports and information as and when called for
by the Tahsildhar.
• The work entrusted by the superior officer.
Village Accountant • Updation of records.
• Maintains the Mutation Registers and forms in the
prescribed formats.
• Revenue collection and remittance of amounts to taluk
• Treasury on before 25th of each month.
• Conduct crop- cutting experiments in the villages.etc.
Source: Department of Bhoomi
Table 10: Existing and Proposed Department Strength of Registration Office

Staff pattern Existing Staffs Proposed Staffs
Addl.IGR - -
DIG 4 -
AIGR 4 -
Joint IGR - -
District Registrar/Law officer 34 -
HQA/Programme Manager 32 -
Sr.SRO/Asst Programme Manager 119 -
Revenue Inspector Posts - -
Assistant Engineer 6 -
Account Superintendent 5 -
Sub-Registrar 170 -
FDA 232 300
SDA 501 106
Other Clerical Staff 544 -
Total 1651 2057
Source: Department of Stamp and Registration, Bangalore
Notes 127
Annexure 1: General Information

(Figures are in % to the total number of sample)
N % N % N % N %
Gender
Male 29 93.5 28 93.3 22 73.3 27 90
Female 2 6.5 2 6.7 8 26.7 3 10
Caste
SC 1 3.2 5 16.7 - - 3 10
ST 1 3.2 1 3.3 - - - -
OBC 10 32.3 10 33.3 8 26.7 10 33.3
Others 19 61.3 14 46.7 22 73.3 17 56.7
Educational Qualification
Illiterate 5 16.1 3 10 5 16.7 1 3.3
Primary 5 16.1 4 13.3 11 36.7 7 23.3
High School 1 3.2 7 23.3 1 3.3 - -
SSLC 8 25.8 - - 3 10 9 30
PUC/Diploma 5 16.1 7 23.3 4 13.3 7 23.3
Degree and above 7 22.6 9 30 6 20 6 20
Main occupation
Farming 22 71 22 73.3 15 50 25 83.3
Agricultural labour 3 9.7 2 6.7 3 10 3 10
Non-Agricultural labour 1 3.2 1 3.3 7 23.3 - -
Business 1 3.2 3 10 2 6.7 - -
Artisan 1 3.2 - - - - - -
Government Service 1 3.2 1 3.3 1 3.3 - -
Private Service 3 9.7 1 3.3 2 6.7 2 6.7
Annexure 2: Land Ownership Information

Particulars Tiptur Gulbarga Bantwal Navalgunda
N % N % N % N %
Total area owned (in acres)
Marginal 14 45.2 7 23.3 20 66.7 5 16.7
(Less than 2.5 acres)
Small (2.5 to 5 acres), 5 16.1 1 3.3 7 23.3 2 6.7
Medium (5 to 10 acres), 7 22.6 7 23.3 1 3.3 5 16.7
Large (More than 10 acres) 5 16.1 15 50 2 6.7 18 60
Type of land (in acres)
Thari 6 19.4 6 20 14 46.7 11 36.7
Kushki 16 51.6 24 80 14 46.7 19 63.3
Bhagayat 9 29 - - 2 6.7 - -
Type of ownership
Single 28 90.3 28 93.3 27 90 28 93.3
Joint 3 9.7 2 6.7 3 10 2 6.7
Table 4: Staffing Pattern of Mojini

Staff pattern Duties and Responsibilities
Operator - To receive the11-b application after initial verification of
name, list of RTC holders and survey number.
- To forward the same to the 11E case worker.
11e caseworker Initial verification and akarbandh entry and forwards the
same to Survey Supervisor
- Collection of the completed applications from licensed
surveyors and verification of the same after the survey
work is completed.
- If it is found correct he approves the application and
sends it to supervisor for scrutiny. Once approved it goes
to operator for scanning and printing
- If it is found incorrect, returns the same to surveyors
Survey Supervisor - Initial verification and approval of applications received
from 11-e case worker
- If data entry by 11E Case worker is found correct, approval
is given, otherwise returns the same for re-entry of data
- Issue of applications to surveyors for measurement(11E
for Licensed Surveyors, and Alienation and Court orders
for Government Surveyors)
- Re-preparation / Correction of Survey documents
contd...
Notes 129
Shirasthedhar Role and functions:

- R.R Shirestedar (RTC corrections related to Revenue
land): If there is difference in area details of RTC and
akarbandh R.R. Shiresthedar sends application for
correction approval to the Assistant Commissioner
- L.N.D Shirestedar (RTC corrections related to Government
land): Government land survey number applications
issued to government surveyors with Form 1 to 5 details
and afterwards sent to DDLR for approval
- L.R.F Shirestedar: He issues applications to government
surveyors along with Form10 with court and land tribunal
orders
DDLR Supervision of pendency reports at each taluk level and
transferring the correction files to concerned authorities’-
preparation / Correction of Survey documents
Verification All disputed and variations in survey measurements after
survey work are handled by Government surveyor along
with verification of all applications received from licensed
surveyors and sent for scanning.
Dy. Commissioner Approvals related to single block in government survey
(DC) number by DC.Review of pendency and processing of
application at taluk level.
Asst. Commissioner RTC related corrections are done under the Assistant
(AC) Commissioner’s orders.Review of pendency and processing
of application at taluk level.
Administration The major activities include creation of logins, report
generation, bank transactions etc. It is under state control.
Reporter Review of pendency at each level.
Agency This login is related to hardware issues and operator
supporting system (Mysore IT Solutions).
Source: SSLRD, Bangalore
Annexure 7: Time Period for Category of Other Land Transaction Cases

ix
a) Error Correction: The occurrence of error took place during transformation
of data from manual to computer process/ wrong entries of name and extent
by data entry operator etc, No fixed Government fee and time period for
Bhoomi related correction i.e. Time period is dependent on the Nature/Type
of Mistake, Number of petitions filed etc. The client has to file petition with
submit supporting documents required for make necessary changes in the
document to Assistant commissioner in case of minor correction/major
correction like large variation in the extent, irrigated/non irrigated and crops
grown etc.
b) Record of Rights: The client will apply for Khata change in Bhoomi Kiosk
for building of record of rights in case any person acquiring rights by
succession , survivorship, inheritances, partition, purchase, gift/will deed
by paying government fee `..............There is fixed no time period.
c) Pauthi Cases (Waris/Virastha): In case of property owners death the rights
of ownership gets transferred on specific request by inheritors on
submission documents to Bhoomi kiosk. No fixed time period and fee from
the Government.
d) Mutation: In Mutation the change of ownership rights are specifically
entered in Mutation Register about past to present transaction. It gives a
clear pitcher through which owner got the mode of ownership i.e. either
through gift deed, partition and inheritance.
e) Phodi: Submission of application in Mojini Kiosk for surveying the parcel
of land by paying ` 600 government fee in case of pre-mutation sketch of
single hissa/survey number. The Tatkal phodi is applied by paying `
500(Prescribed Government fee) in case multiple owner for getting separate
hissa number after receiving mutation from Bhoomi Kiosk.
f) Hakku and Runa: Noting of charges and liability on a property after
registration, the changes are incorporated in the RTC by Bhoomi
Department.
g) Gift Deed/Dhana patra: The change of Record of Rights for the land
obtained from father to Daughter/charitable institutions after registration
of Gift deed.
ANEXURES
Checking of Service Delivery Quality
1. Bhoomi
a. Transaction type disposal rate of applications – quarterly report on 10%
of the cases received selected on random basis, on time taken as against
the prescribed time schedule for disposal, rate of disposal- system
generated report.
b. Quarterly report on 10% of the cases selected on random basis with
regard to Time taken for disposal at different level of officials- system
generated report.
c. Quarterly report on 10% of cases selected on random basis, with regard
to the pre-mutation sketches issued, performance of licensed surveyors
and mismatches found at the time of mutation – system generated report.
d. Quarterly Analysis report of pendency cases- 10% of cases selected on a
random basis, with regard to reasons- internal or external factors- system
generated report.
e. J-slip generation by SRO and reports of mismatch in Bhoomi between
soft and hard copies- system generated report.
Notes 131
2. Mojini
a. Quarterly Analysis report – 10% sample of applications received, allotted
to licensed surveyors, govt. surveyors, time taken to process, correctness
of the sketches by the licensed surveyors and completion rate in a month,
by both category of surveyors.- system generated report.
b. Quarterly Analysis report – 10% sample of applications received- level of
mismatch of data and referred to rectification- system generated report.
c. Quarterly Analysis report – 10% sample of applications received -
Completion of sketches and time taken for uploading of the same after
scanning- system generated report.
d. Sample checking on 10% of cases - Report on notices issued and
compliance of its serving- system generated report.
e. Reports on sending of SMS vis-à-vis number of applications- system
generated report.
Documents registered/ Completed SMS sent after completion
applications made
3. Kaveri
a. Quarterly Analysis report (daily averages)– 10% sample of documents
received for registration- tokens issued and registration completed-
generated report.
b. Quarterly Analysis report – 10% sample of documents received for
registration and rate of mismatch of records with that of Bhoomi data –
11-e or RTC details- System generated report.
c. Reports on sending of SMS vis-à-vis number of registrations- system
generated report.
d. Reports on registrations without 11-e sketches of agricultural property-
10% cases for checking of any violation- system generated report.
e. Reports on land valuation- guidance value, market value- cases where
discretion used in arriving at the value of land over and above the guidance
value- system generated report.
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www.Business dictionary.com
ABOUT THE AUTHORS
Dr Manasi S is currently working as Associate Professor at the Centre for Research
in Urban Affairs, Institute for Social and Economic Change, Bangalore, India. She
has long time research experience in natural resource management, livelihoods,
pollution abatement with specific focus on water, sanitation and waste management.
Her other research interests are ecology, environmental governance and climate
change and has relevant applied, managerial and practical experience in Karnataka,
Southern India. She has worked in collaborative research studies and authored
several articles in journals and edited books.
Ms B R Hemalatha is Senior Research Associate at Centre for Research in Urban
Affairs, Bangalore. Her areas of research are focused on sanitation in cities and in
peri-urban contexts, urban land governance, agriculture, livelihoods, waste
management and financing climate change. She has a masters degree in Management
with specialization in Finance. She has actively engaged in research projects in
University of Agricultural Sciences. She has published articles in journals and
books.
Dr N Sivanna PhD in Development Studies is currently working as Adjunct Professor
and Head, Centre for Political Institutions, Governance and Development at the
Institute for Social and Economic Change, Bangalore. He is a development
practitioner, researcher, consultant and trainer with special interest in
decentralization and its process. In a career, spanning more than 24 years, he has
working experience of conducting independent research in areas of political and
administrative decentralization, guiding PhD students, handling projects of World
Bank, Ford Foundation, IDPAD and Governments of India and Karnataka,
conducting training programs to functionaries of local government institutions
like Panchyati Raj Institutions, urban local bodies and as resource person to
government and NGOs. He has served as member on several government bodies,
social and educational institutions. He has a long standing experience and expertise
to carry out research and evaluation studies in the area of rural and urban
governance and development. He has authored 3 books, 5 monographs, 9 working
papers and more than 40 research articles published in various research journals.
Dr R G Nadadur served in government, as an officer of the Indian Administrative
Service for over three decades. He holds Masters Degrees in Economics from the
University of Madras, and University of Notre Dame, USA and a Doctorate in
Economics from the University of Mysore. He has rich knowledge and experience
in various sectors. Since his retirement from government, Dr. Nadadur has served
as Adjunct Professor and Visiting Professor at Institute for Social and Economic
Change and Chief Operating Officer of Sri Sri Ravishankar Vidya Mandir Trust, Art
of Living. Dr. Nadadur is now serving on the Boards of some NGOs working in
fields - sustainable development, education, agriculture, environment, health, skill
development, capacity building, and leadership development.
Dr P G Chengappa is one of the leading Agricultural Economists of the county. He
served as Vice Chancellor of University of Agricultural Sciences, Bangalore,
currently working as National Professor of the Indian Council of Agricultural
Research at the Institute for Social and Economic Change, Bangalore. He was
member of the working group on Agricultural Marketing of Planning Commission
of India for preparing the 12th Five Year Plan document. He worked as a consultant
in International Food Policy Research Institute, International Plant Genetics
Resource Institute, Rome, International Rice Research Institute, Manila, DSE
Germany and visiting scholar, Universities of Reading and Wales. He was president
(Elect), Indian Society of Agricultural Economics 2012 and currently President,
Agricultural Economics Review Association, New Delhi.
MONOGRAPH SERIES
1. Volume and Composition of Budgetary Subsidies in Karnataka –
MONOGRAPH SERIES M Govinda Rao (Ed)
2. Coarse Cereals in a Drought-Prone Region: A Study in Karnataka –
Number 42 October 2015 R S Deshpande and V M Rao
ISBN 81-7791-141-4 3. Prevalence of Iron Deficiency Anaemia and Malnutrition in India –
Dr M Ramakrishna Reddy
4. Micro-Finance, Poverty Alleviation and Empowerment of Women: A Study of
Series Editor: Anand Inbanathan Two NGOs from Andhra Pradesh and Karnataka – D Rajasekhar
5. Fertility Transition in Karnataka – T V Sekher and K N M Raju
© 2015, Copyright Reserved 6. Development Policies, Priorities and Sustainability Perspectives in
The Institute for Social and Economic Change India – Shashanka Bhide and Jeena T Srinivasan
Bangalore 7. Moon in the Mirror: Farmers and Minimum Support Prices in
Karnataka – R S Deshpande and T Raveendra Naik
8. Dimensions of Social Development: Status, Challenges and
Prospects – G K Karanth (Ed)
The Institute for Social and Economic Change (ISEC) is engaged in
9. At Loggerheads or Towards Sustainability? Changing Rural Livelihood Systems
interdisciplinary research in analytical and applied areas of social and Natural Resource Management – G K Karanth and V Ramaswamy
sciences, encompassing diverse aspects of change and development. 10. Role of NGOs in Promoting Non-Formal Environmental Education:
A Case Study – K Yeshodhara
ISEC works with central, state and local governments as well as
11. Public Health and Punchayati Raj Institutions in Karnataka –
international agencies by undertaking systematic studies of resource T V Sekher, Shashanka Bhide, MD Nazrul Islam and Monica Das Gupta
potential, identifying factors influencing growth and examining 12. Panchayats and Watershed Development: An Assessment of Institutional
Capacity – N Sivanna, M Gopinath Reddy, with the Assistance of M Srinivasa Reddy
measures for reducing poverty. The thrust areas of research include
13. Government Spending on Selected Public Health Services in India: Central,
state and local economic policies, issues relating to sociological and State and the Local Governments – S Puttaswamaiah and Shashanka Bhide
demographic transition, environmental issues and fiscal, 14. Against Gravity?: RIDF and the Challenges to Balanced Development
of Infrastructure – Meenakshi Rajeev
administrative and political decentralization and governance. It
15. Trends and Patterns of Migration: Interface with Education – A Case
pursues fruitful contacts with other institutions and scholars devoted of the North-Eastern Region – U A Shimray and M D Ushadevi
to social science research through collaborative research 16. Has the SHG-Bank Linkage Helped the Poor Gain Access to Capital?:
A Comparative Study between Karnataka and Gujarat – Veerashekharappa,
programmes, seminars, etc. H S Shylendra and Samapti Guha
17. Vanishing Lakes: A Study of Bangalore City – P Thippaiah
The Social and Economic Change Monograph Series provides an 18. Regulating Competition – S L Rao
opportunity for ISEC faculty, visting fellows and PhD scholars to 19. Decentralised Planning in Karnataka: Realities and Prospects –
M Devendra Babu
disseminate their ideas and research work. Monographs in the series
20. Reaching the Unreached (A Case Study of Dairy Farming among the
present empirical analyses and generally deal with wider issues of BCs in Karnataka) – Manohar S Yadav
public policy at a sectoral, regional or national level. 21. Dynamics of Population change in Karnataka: An Overview – C M Lakshmana
22. Mirage of Social Mobility: The Case of Safai Karmacharis in
Karnataka – K G Gayathri Devi
23. Decentralised Governance and Service Delivery: Affordability of Drinking
Publication of this Monograph has been made possible through the Water Supply by Gram Panchayats in Karnataka – D Rajasekhar and R Manjula
generous support of Sir Ratan Tata Deferred Endowment Fund. 24. Incidence of Poverty among Social Groups in Rural India: Who are the Poorest
and Why? - R R Biradar
25. History of Monetary Policy in India since Independence – Ashima Goyal
(Please see overleaf)
MONOGRAPH SERIES SOCIAL AND ECONOMIC
26. Inequality, Rents and the Long-run Transformation
of India – Michael Walton CHANGE MONOGRAPHS
27. Public Expenditure and Strategies for Sustainable
Management of Enviroment and Forest Ecosystems
in Karnataka – Sunil Nautiyal, M S Umesh Babu and
B P Nayak
28. Has Revival Package Improved Functioning of
Short-term Cooperative Credit Societies? - A Case
Study of Madhya Pradesh - Veerashekharappa,
Meenakshi Rajeev and Manojit Battacharjee
29. Politics of Exclusion: The Case of Panchayats in
South India - Anand Inbanathan and N Sivanna
42
SOCIAL AND ECONOMIC CHANGE MONOGRAPHS - 42

30. Population Growth, Natural Resource Degradation
and Environmental Pollution in India -
C M Lakshmana
31. Urban Governance and Organisational Restructuring:
Land Policy and
The Case of Bruhat Bangalore Mahanagara Palike
(BBMP) - N Sivanna Administration in Karnataka
32. Managing India’s Forests: Village Communities,
Panchayati Raj Institutions and the State -
P J Dilip Kumar
33. Evaluation of Western Ghats Development Programmes
(WGDP) and Policy Recommendations: A Case Study
from Karnataka - Sunil Nautiyal, S Manasi and
M S Umesh Babu
34. Government Subsidies in Karnataka - K Gayithri (Ed)
35. Green Business for Greening Karnataka: A Study of Coir
Industry - Krishna Raj
S Manasi
36. Conservation through Culture in Urban Ecosystems: A B R Hemalatha
Case Study from Bangalore, India - K V Raju, S Manasi,
Sunil Nautiyal and K P Rashmi N Sivanna
37. Study on the Production and Profitability of Pulses and
Beans in India - A Case Study of Karnataka - R G Nadadur
Sunil Nautiyal, S Manasi, M S Umesh Babu and K S Rao
38. Financial Inclusion to Livelihood: Entangled to Gain -
P G Chengappa
Veerashekharappa and B P Vani
39. E-waste Management in Urban Cities: A Situation
Analysis of Bangalore - S Manasi, N Latha and Bibhu Prasad
Nayak
40. Financial Inclusion through SHGs: Understanding
Quality and Sustainability of SHGs in Karnataka State -
Meenakshi Rajeev, B P Vani and Veerashekharappa
41. Ethnobotany and Medicinal Plants Conservation through
Scientific and Technological Interventions - A Case Study
from BRTTR, Karnataka - Sunil Nautiyal, N P Varsha,
Sravani Mannam and C Rajasekaran
Published by: INSTITUTE FOR SOCIAL AND
The Registrar
Institute for Social and Economic Change ISBN 81-7791-141-4 ECONOMIC CHANGE
Dr VKRV Rao Road, Nagarabhavi P.O., Bangalore
Bangalore - 560 072 October 2015 2015
Phone: 23215468, 23215519, 23215592
E-mail: admn@isec.ac.in ` 165
Web: http://www.isec.ac.in www.isec.ac.in
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Land Policy and Administration in Karnataka - Bhoomi-KAVERI-Mojini

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SOCIAL AND ECONOMIC CHANGE MONOGRAPHS - 42

Land Policy and Administration

Institute for Social and Economic Change

August 2015 M R Narayana

Acronyms and Glossary vii

CHAPTER 1 LAND POLICY AND ADMINISTRATION IN KARNATAKA 1-8

CHAPTER 2 BHOOMI-INITIATIVE, OBJECTIVES 9-16

CHAPTER 3 KAVERI 17-28

CHAPTER 4 MOJINI 29-37

CHAPTER 5 BHOOMI-KAVERI-MOJINI INTEGRATION 38-45

CHAPTER 6 BHOOMI, KAVERI, MOJINI (BKM) - 46-100

Land Policy and Administration in Karnataka

in place. Currently, the maintenance of land records is in bad shape as hard

recommendations in the form of regular monitoring reports about Bhoomi

Source: Data Compiled from the Bhoomi Department

Figure 2.1: Bhoomi and Its Stakeholders

Source: Chawla, 2004

Figure 2.2.1: Contents of an RTC

As explained earlier, an RTC is an intrinsic part of the farmer’s life

easily. Moreover, after the implementation of Bhoomi, the

Source: Bhoomi website

ascertain the genuineness of mutations as it is possible to identify land of all

3.1.1.1. Manual System of Registration

3.1.1.3. KAVERI: E- Registration Process

Figure 3.1: KAVERI – Bhoomi Integration

Source: Department of Stamps and Registration, Bangalore

• Anywhere Issue of encumbrance certificates and certified copies

Table 3.1: No. of Documents Registered and Total Revenue

Source: From Department of Stamps and Registration, Bangalore

3.4. Computerization Process - Software and Hardware Issues and

Reduction in the time of registration process, (v) Reduction in trips to offices

As can be seen from Table 3.3, documents are delivered faster

Flow Chart 3.1: Kaveri Registration Process

3.5. Departmental Monitoring System and Data Accessibility and

3.6.1.3. Role of Middlemen

The New KAVERI aims to achieve: -

The government amended the Karnataka Land Revenue Act in 1999

doneautomatically after necessary validation by the staff. The mutation

• To enable the ryots to establish their right over their holding in a

Decree and Court Issues

Flow Chart 4.1: Mojini (Land Survey)

The Computerized process of issuing 11 e sketch is considered to

Bhoomi data, which sometimes may not be in order, (iii) Operational

Flow Chart 5.1: Set-up of BKM Integration

5.1.1. Highlights of BKM Integration Process

achieved by enabling KAVERI applications to access data from the Bhoomi

Data Model of B-K Integration

Main Objectives of B-K Integration

• To bring synchronization between Bhoomi and KAVERI by reducing

However, the Mojini staff is accessing the database of Bhoomi, while

5.4. Benefits of Integration Process

Present System of Monitoring the Process and the Usage of the

BHOOMI, KAVERI, MOJINI (BKM)-EXPERIENCES

provided as the transactions were comparatively higher and next only to

Source: Department of Revenue, Bhoomi Operator, Tiptur, Gulbarga (South)

Graph 6.2: Land Transaction Applications Disposed at the Field