chapter vi e-governance and decentralised planning...

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CHAPTER VI

E-GOVERNANCE AND DECENTRALISED PLANNING:

EFFICIENCY AND TRANSPARENCY DIMENSIONS

The decentralised planning process has been initiated in the State with a new

vigour since the implementation of 73rd

and 74th

Constitutional Amendments with the

objective of formulating, planning, implementing and monitoring of schemes and

programmes for the welfare of common masses with their active participation and

cooperation. Number of services rendered through Panchayats after the decentralised

planning has increased many fold (Oommen, 2008). The responsibilities of Panchayats

have increased as the Panchayats are entrusted to formulate projects, conducting social

auditing etc in a time bound manner. In addition to that, the second-generation problems

of decentralised planning have recently cropped up and one of the main problems

confronting LSGs is the effective delivery of various services to citizens. The

technologies through with which these programmes are implemented greatly affect the

outcome in a multi-faceted way (Santhakumar, 2010). The outcome of decentralised

planning cannot be materialised by physical form alone but also by way of non-material

targets such as improvements in efficiency, transparency, enhancement of responsibility

among people, administrative accountability, improvement of social and gender equity

etc. The technological change in governance particularly in the form of E-governance

greatly affects the outcome of the efforts of decentralised planning at the local level. In

the present chapter, an attempt is made for evaluating the impact of E-governance

initiatives in achieving the targets of decentralised planning at customers or people’s

perspective.

As empirical evaluation, only efficiency and transparency dimensions of

decentralised planning are included in this chapter. The content of the chapter is sub

divided into three, which consists of profile of the population collected from sample

Panchayats, the impact of E-governance on the efficiency aspect of decentralised

planning and finally the impact of E-governance on transparency dimension of

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decentralised planning. The impact of E-governance initiatives on the above mentioned

dimensions are evaluated based on the perceptive of people.

6.1 Profile of Sample Population

This section deals with the profile of samples collected from the selected

Panchayats. Awareness regarding the profile of the sample is imperative for a better

understanding of the impact of E-governance on decentralized planning. Gender status,

education level, age, family background etc influence a great extent the level of benefits

received from E-governance initiatives.

Table:-6.1.1 Sex and Caste Profile of Sample Population

Factors Classification Name of Panchayat

Total Karakulam Vellanad Perumkadavila

Sex

Male 56(74.7) 49(65.3) 43(57.3) 148(65.8)

Female 19(25.3) 26(34.7) 32(42.7) 77(34.2)

Total 75(100) 75(100) 75(100) 225(100)

Caste

Forward 26(34.7) 35(46.7) 37(49.3) 98(43.6)

Backward 35(46.7) 27(36.0) 29(38.7) 91(40.4)

SC/ST 14(18.6) 13(17.3) 9(12.0) 36(16.0)

Source: Tabulated from the survey result, 2011

Note: The figures shown in the parentheses are the corresponding percentage.

Total number of samples collected from the three Panchayats is 225, of which

65.8% are males and 34.2% are females. From each Panchayat, seventy five samples

were collected. As the consumers who avail services from the Panchayat are largely

males, the proportion of males is higher than females in the sample. The Table:-6.1.1

shows that out of total sample, 43.6 percent belong in the forward caste, 40.4 per cent in

backward castes and the remaining sample population ie, 16 per cent belongs in SC/ST

communities. Within these Panchayats, the proportional representation of communities

varies. In both Vellanad and Perumkadavila Panchayats, this sample proportion is same

as the overall population. However, the proportion of backward community is higher than

forward community in Karakulam Panchayat. Adequate representation of SC/ST samples

was given while collecting samples.

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Table:-6.1.2 Nature and Type of Occupations of Sample Population

Occupation Classification Name of Panchayat


Nature of

Occupation

Formal 21(28.0) 18(24.0) 22(29.4) 61(27.1)

Informal 28(37.3) 40(53.4) 28(37.3) 96(42.7)

Unemployed 26(34.7) 17(22.6) 25(33.3) 68(30.2)

Total 75(100) 75(100) 75(100) 225(100)

Type of

Occupation

Owner -

cultivator 05(06.7) 07(09.3) 03(04.0) 15(06.7)

Agriculture-

labour 02(02.7) 11(14.7) 02(02.7) 15(06.7)

Household-

Industry- worker 08(10.7) 08(10.7) 02(02.7) 18(08.0)

Govt. employee 09(12.0) 12(16.0) 09(12.0) 30(13.3)

Self employed 16(21.3) 13(17.3) 19(25.3) 48(21.3)

Student 06(08.0) 04(05.3) 07(09.3) 17(07.6)

Household 16(21.3) 08(10.7) 14(18.7) 38(16.9)

Pensioner 07(09.3) 09(12.0) 03(04.0) 19(08.4)

Others 06(08.0) 03(04.0) 16(21.3) 25(11.1)

Total 75(100) 75(100) 75(100) 225(100)



Of the total samples, 27.1% employed in formal occupations, 42.7 % of samples

are employed in informal occupations and the remaining 30.2% are unemployed people.

The occupation structure of sample population shows that the majority of respondents are

self employed persons followed by households, Govt. employees and others. There have

been differences in the distribution of occupation categories between Panchayats.

Compared to other Panchayats, the category of “others” which include politicians and

workers in NGOs, constitute a major share in Perumkadavila Panchayat.

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Table: - 6.1.3 Educational Level and Age Structure of Sample Population



The education status of sample population as given in the Table:-6.1.3 reveals that

around 65% of sample persons have primary and secondary education, 25% are

degree/diploma holders and 7% have Post graduation and above qualification. Number of

illiterate persons is relatively insignificant. As shown in the Table, the age structure of the

sample population is classified into four quartiles. The age profile indicates that majority

belong to the middle age group of 36-45 years.

Table:-6.1.4 Income and Land Holding Status of Sample Population

Factors

Income(Rs)

Name of Panchayat Total

Karakulam Vellanad Perumkadavila

Incomes (RS)

Up to 1500 21(34.5) 13(22.4) 12(26.1) 46(27.9)

1501-3000 18(29.5) 09(15.5) 12(26.1) 39(23.6)

3001-6000 11(18.0) 19(32.8) 11(23.9) 41(24.9)

Above 6000 11(18.0) 17(29.3) 11(23.9) 39(23.6)

Total 61(100) 58(100) 46(100) 165(100)

Land Holding

Size

Up to 6 cents 22(33.8) 07(10.3) 18(34.6) 47(25.4)

7-10 cents 20(30.8) 13(19.1) 14(26.9) 47(25.4)

11-22 cents 15(23.1) 22(32,4) 09(17.3) 46(24.9)

Factors Classification Name of Panchayat


Education

Primary 36(48.1) 34(45.4) 27(36.0) 92(40.9)

Secondary 13(17.3) 23(30.7) 19(25.3) 55(24.4)

Degree or Diploma 19(25.3) 14(18.7) 24(32.0) 57(25.4)

PG and above 07(09.3) 04(05.3) 05(06.7) 16(07.1)

Total 75(100) 75(100) 75(100) 225(100)

Age

Up to 35 years 18(24.0) 21(28.0) 21(28.0) 60(26.7)

36-45 27(36.0) 24(32.0) 22(29.3) 73(32.4)

46-50 15(20.0) 12(16.0) 17(22.7) 44(19.6)

Above 50 15(20.0) 18(24.0) 15(20.0) 48(21.3)

Total 75(100) 75(100) 75(100) 225(100)

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Above 22 cents 08(12.3) 26(38.2) 11(21.2) 45(24.3)

Total 65(100) 68(100) 52(100) 185(100)



The status of income of sample population is classified into four quarters and

which is given in the Table:-6.1.4. The absolute number of persons in each quarter varies

across Panchayats. The largest number of samples comes from the lowest income

category of less than Rs 1500/- in Karakulam and Vellanad while it is almost uniformly

distributed across income classes in Perumkadavila Panchayat.

The distribution of sample population based on land holding size is also divided

into four quarters in general. The distribution of landholding size is not uniform across

sample Panchayats. In Karakulam and Perumkadavila Panchayats, highest percentage of

sample population belong in the lowest quarter (ie, less than 6 cents of land) while it is

the highest quarter (i.e., above 22 cents) for Vellanad Panchayat.

Involvement in Panchayat Activities by the Sample Population

The involvement of sample population in various activities of Panchayat is given

in the Table:-6.1.5. Majority of the sample population involved in Panchayat activities as

beneficiaries of various programmes implemented by Panchayats and as service seeker of

services provided by Panchayats.

Table: - 6.1.5 Involvement in Local Level Activities

Involvement Name of Panchayat


Service seeker 15 11 15 41

Beneficiary 41 35 41 117

Elected- representative 1 0 1 2

Service provider (Contractor) 0 1 2 3

Official employee 4 2 1 7

Informal -employee 2 1 2 4

Committee- member 2 7 2 11

Political party- representative 0 6 1 7

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Official purpose 2 6 2 10

No involvement 1 1 4 6

Others 7 5 3 15

Total 75 75 75 225


Service seekers and beneficiaries contribute more than 70% of the total sample

size, of which substantial size of sample is from the beneficiaries.

Perception on E-governance

The perception on E-governance is assessed based on people’s response on the

extent of E-governance helpful to avail services. The Table:-6.1.6 summarises the

perception of people on E-governance. The usefulness of E-governance as perceived by

local people is assessed with five points scale. A sizeable percentage of respondents in

all selected Panchayats responded that the E-governance is ‘much helpful’ for availing

the services from Panchayats. The largest percentage of respondents expressing either

‘much’ or ‘very much’ level of usefulness of E-governance belongs in Karakulam

Panchayat followed by Perumkadavila Panchayat. The respondents have varying

perception on the quality of existing E-governance initiatives at the Panchayat level. The

largest percentage of respondents from Karakulam Panchayat has very high satisfaction

on the existing E-governance quality compared to other Panchayats. As the E-governance

status is very high in Karakulam Panchayat, the above inference clearly indicates that the

quality of services improves in accordance with the progress in E-governance.

Table: -6.1.6 Perception on E-governance (%)

Response Items Name of

Panchayat

Not

at

all

Not

much Normal Much

Very

much

Extent of E-governance

helpful to avail services

Karakulam 0.0 2.7 32.0 46.7 18.7

Vellanad 1.3 5.3 45.3 34.7 13.3

Perumkadavila 0.0 1.3 37.3 46.7 14.7

Perception about quality of

E-governance

Karakulam 0.0 1.3 28.0 60.0 10.7

Vellanad 0.0 6.7 29.3 54.7 9.3

Perumkadavila 1.3 5.3 38.7 46.7 8.0

Source: Tabulated from the survey result, 2011.

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General Assessment of E-governance

The following Table:-6.1.7 summarises certain general assessment on the existing

E-governance system at Panchayat level. The Table summarises the percentage of people

expressed affirmative answers on various items listed in the Table. One of the objectives

of E-governance in service administration is providing services in an impersonalized

manner. Other factors considered are whether the E-governance initiatives improves the

image of LSGs; the courteous and friendly behaviour of functionaries; the opinion on

more investment in E-governance initiatives; the improvement in trust between

government and citizens; minimisation of paper work; reduction of employment

opportunities through computerisation; opportunity cost of investment in E-governance;

and the skewed beneficial advantage of E-governance to rich and influential.

Table: - 6.1.7 General Assessment of E-governance

Items Name of the Panchayat


Impersonalisation of services 56(43.10) 43(33.0) 32(24.6)

Improve the images of govt administration 65(42.5) 47(30.7) 41(26.8)

Functionaries are courteous and friendly 58(44.3) 41(31.3) 32(24.4)

Making more investment on E-governance by

govt 72(40.0) 56(31.1) 52(28.9)

Trust between govt. and citizens increases

through E-governance 57(37.0) 51(33.1) 46(29.9)

Paper work is minimised 57(41.0) 36(25.9) 46(33.1)

Reducing employment opportunities 28(30.4) 29(31.5) 35(38.0)

Building of school, dispensaries and roads is

more beneficial than E-governance investment 16(24.6) 21(32.3) 28(43.1)

Computerisation helpful for rich and

influential 15(30.6) 13(26.5) 21(42.9)

E-governance improves the welfare of rural

people 52(69.3) 56(74.7) 40(58.7)

Source: Tabulated from the survey result, 2011.


More personalization of service implies increased possibility of corruption which

can be reduced by the impersonalisation of service through E-governance initiatives. The

differences in the degree of impersonalisation between Panchayat are vivid from the

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above Table. About 43% of responses asserted the existence of impersonalisation of

office in Karakulam Panchayat while it is only 33 percent and 24.6 percent respectively

for Vellanad and Perumkadavila Panchayats. Out of the total responses 42.5% from

Karakulam Panchayat, 30.7% from Vellanad Panchayat and 26.8% from Perumkadavila

Panchayat opined that images of the government increased due to E-governance. The

above Table also reveals that employees’ attitude changed to become more courteous and

friendly. Majority of respondents are favouring more investment on E-governance in

Panchayat and advocated for the installation of computers in more government

departments. Majority of the respondents opined that trust between people and employees

increased recently due to increased computerisation. Minimisation of paper work is one

of the major objectives of E-governance and it could be seen from the Table that the

response from Karakulam Panchayat is overwhelming as compared to other Panchayats.

Only a few responses from Karakulam Panchayat indicate that the

computerisation of Panchayat is a waste of resources. The response on this matter is very

high in Perumkadavila Panchayat, which indicates the less effective implementation of

these programmes in the Panchayat. The apprehension of the reduction of employment

opportunities due to computerisation is high in Perumkadavila Panchayat (38.0%) and

lowest in Karakulam Panchayat (30.40%). As the Karakulam Panchayat has a higher

level of E-governance initiatives, the progress of E-governance reduces the apprehension

of job loss. This inference can be interpreted as the less opportunity cost of E-governance

in Karakulam Panchayat compared to other sample Panchayats. Also the apprehension of

computerisation that it would help only the rich and influential, could find a place among

a sizeable percentage of respondents. This apprehension is high in Perumkadavila

Panchayat where the E-governance pace is much lower as compared to other selected

Panchayats. The majority of sample respondents are unanimous that the E-governance

improves the welfare of rural folk in a great extent.

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Knowledge on Various Functions Performed by the Panchayat

The important functions performed by the Panchayats are broadly classified into

two: civic and development functions. The civic functions include issuing of birth

certificate, death certificate, marriage certificate, ownership certificate, resident

certificate, identification certificate, witness note, remittance of tax, remittance of fees,

remittance of fines etc. Major development functions are the sanctioning of schemes, and

implementing the welfare programmes including the various types of pensions and

disbursement of relief funds. The knowledge or awareness among local people with

respect to various functions performed by the Panchayat is the key aspect that determines

the success of decentralization.

The knowledge of people on the various functions performed by the Panchayats is

given in the following few Tables. The Table:-6.1.8 shows the knowledge level of people

belonging in various caste groups.

Table: - 6.1. 8 Caste wise Knowledge of Civic and Development Functions

Caste

Functions

Perception level

Total Very

High

High Normal Low Very

Low

Forward

Civic 06.3% 20.8% 50.0% 16.7% 06.3% 100.0%

Development 04.2% 17.7% 58.3% 15.6% 04.2% 100.0%

Backward

Civic 02.2% 17.8% 64.4% 12.2% 03.3% 100.0%

Development 01.1% 16.7% 63.3% 15.6% 03.3% 100.0%

SC/ST

Civic 00.0% 08.3% 63.9% 22.2% 05.6% 100.0%

Development 00.0% 13.9% 55.6% 25.0% 05.6% 100.0%


Among the forward caste, fifty percent expressed normal knowledge or

awareness and twenty one percent expressed high awareness on civic functions. Among

the backward classes, only 2.2% is having very high knowledge and 64% is having

normal awareness regarding civic awareness. Nobody is having very high knowledge

regarding service delivery matters among SC/ST. The awareness of development

functions has also the same trend among various caste groups.

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The Table:-6.1.9 given below shows the level of knowledge on civic and

development functions of Panchayat possessed by the sample population belonging in

various education groups.

Table: - 6.1.9 Education and Knowledge of Civic Functions

Education

Functions Very

High


Low

Total

Illiterates

Civic 00.0% 00.0% 80.0% 20.0% 00.0% 100.0%

Development 00.0% 00.0% 80.0% 20.0% 00.0% 100.0%

Primary

Civic 04.4% 14.3% 50.5% 23.1% 07.7% 100.0%

Development 02.2% 14.3% 47.3% 27.5% 08.8% 100.0%

Secondary

Civic 03.6% 12.7% 61.8% 16.4% 05.5% 100.0%

Development 00.0% 12.7% 69.1% 18.2% 00.0% 100.0%

Degree/

Diploma

Civic 03.5% 21.1% 66.7% 05.3% 03.5% 100.0%

Development 05.3% 17.5% 70.2% 05.3% 01.8% 100.0%

PG and

above

Civic 00.0% 46.7% 46.7% 06.7% 00.0% 100.0%

Development 00.0% 46.7% 46.7% 06.7% 00.0% 100.0%


Education plays an active role in E-governance activities as some basic

knowledge is required for their operation. Within the various education groups, people

with degree/diploma and Post Graduation holders have relatively a high knowledge on

the various civic and development functions as compared to other education groups. It

implies that education is a paramount determinant of awareness or knowledge regarding

various functions performed by Local Self Government Institutions.

Age is another significant factor influencing the knowledge acquired by local

residents on various civic and development functions performed by Panchayats. The

Table:-6.1.9 indicates that people with higher age have more awareness regarding the

functions of Panchayats as compared to the lower age group. This implies that the

exposure of local residents on the functions of Local Self Government Institutions

(LSGs) increases as age increases.

The economic status represented by the level of income also influences the

knowledge of people on various functions performed by Panchayats. The values on the

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Table:-6.1.11 reveals that people belonging in the higher income groups have a very high

knowledge on the various civic and development functions of Panchayats as compared to

other income groups. It also implies that the percentage of people having very low

awareness belong more in the lower and middle-income groups.

The land holding size is another indicator of economic status, which has a

significant impact on social exposure of individuals on various functions performed by

Panchayats. Similar to the income factor, as the land holding size increases, the

awareness on the part of individuals about various functions performed by Panchayats

also increases. The relation between landholding size and awareness about the functions

performed by Panchayats is shown in the Table:-6.1.12.

Table: - 6.1.10 Age and Knowledge of Panchayat Activities

Age Functions Knowledge Level of Functions Total

Very

High


Low

Up to 35

Civic 0.95% 15.70% 69.90% 8.80% 4.70% 100.00%

Development 0.00% 15.05% 70.25% 11.90% 2.85% 100.00%

36-45

Civic 01.4% 13.7% 65.8% 12.3% 06.8% 100.0%

Development 00.0% 15.1% 58.9% 20.5% 05.5% 100.0%

46- 55 Civic 05.8% 13.5% 42.3% 34.6% 03.8% 100.0%

Development 03.8% 17.3% 51.9% 25.0% 01.9% 100.0%

55 Above Civic 10.3% 34.5% 48.3% 03.4% 03.4% 100.0%

Development 10.3% 27.6% 44.8% 13.8% 03.4% 100.0% Source: Tabulated from the survey result, 2011

Table: -6.1.11 Income and Knowledge of Panchayat Activities

Income Functions Income and Awareness of Functions Total

Very

High


Low

up to Rs 1500

Civic 04.4% 02.2% 66.7% 15.6% 11.1% 100.0%

Development 06.7% 00.0% 64.4% 24.4% 04.4% 100.0%

1501-3000

Civic 00.0% 07.7% 69.2% 17.9% 05.1% 100.0%

Development 00.0% 07.7% 64.1% 23.1% 05.1% 100.0%

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3001-6000

Civic 00.0% 29.3% 46.3% 22.0% 02.4% 100.0%

Development 00.0% 19.5% 68.3% 9.8% 02.4% 100.0%

Above 6000 Civic 12.8% 38.5% 33.3% 12.8% 02.6% 100.0%

Development 05.1% 43.6% 41.0% 10.3% 00.0% 100.0%


Table: - 6.1.12 Land Areas and Knowledge of Panchayat Activities

Land Area Functions

Income and Awareness of Functions

Total Very

High


Low

Up to 6 Cents

Civic 02.1% 10.6% 66.0% 08.5% 12.8% 100.0%

Development 02.1% 12.8% 57.4% 21.3% 06.4% 100.0%

7-10 Cents Civic 00.0% 13.0% 63.0% 21.7% 02.2% 100.0%

Development 00.0% 8.7% 60.9% 26.1% 04.3% 100.0%

11-22 Cents

Civic 08.7% 19.6% 56.5% 13.0% 02.2% 100.0%

Development 06.5% 17.4% 63.0% 13.0% 00.0% 100.0%

Above 22 Cents Civic 02.2% 33.3% 44.4% 13.3% 06.7% 100.0%

Development 00.0% 31.1% 57.8% 08.9% 02.2% 100.0%


Table: - 6.1.13 Knowledge of Panchayat Activities of Sample Population-Panchayat

wise

Name Functions

Panchayats and Awareness of Functions

Total Very

High


Low

Karakulam Civic 02.7% 14.7% 64.0% 12.0% 06.7% 100.0%

Development 04.0% 12.0% 62.7% 18.7% 02.7% 100.0%

Vellanad Civic 04.1% 20.3% 50.0% 21.6% 04.1% 100.0%

Development 02.7% 18.9% 58.1% 17.6% 02.7% 100.0%

Perumkadavila Civic 04.1% 20.3% 50.0% 21.6% 04.1% 100.0%

Development 00.0% 18.7% 57.3% 17.3% 06.7% 100.0%


The specific characteristics of the Panchayat can influence the local residents on

their awareness about various activities of Panchayats. The technological innovation

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adopted in the process of decentralised planning particularly in the form of the

implementation of E-governance initiatives speed up the information flow between

Panchayats and local residents. The awareness level of people about the activities of

LSGs between the selected Panchayats is given in the Table:-6.1.13. The awareness level

of sample population is not uniform across Panchayats. However, the difference is not

very significant.

Knowledge Regarding E-governance at local level

The successful implementation of E-governance in decentralised planning process

depends largely on the knowledge of E-governance by the local residents who are the

ultimate customers and beneficiaries of development activities. The Table:-6.1.14

summarises the level of knowledge on E-governance of sample population across

Panchayats, stratified into various socio-economic groups.

Table: -6.1.14 Knowledge Regarding E-governance at Local Level

Factors Classification

Knowledge level of E-governance

Total Very

High


Low

Caste Forward 02.1% 15.6% 55.2% 19.8% 07.3% 100.0%

Backward 00.0% 14.4% 57.8% 20.0% 07.8% 100.0%

SC/ST 00.0% 27.8% 27.8% 33.3% 11.1% 100.0%

Education

Primary 02.2% 07.7% 45.1% 33.0% 12.1% 100.0%

Secondary 00.0% 10.9% 61.8% 20.0% 07.3% 100.0%

Degree/Diploma 00.0% 26.3% 56.1% 14.0% 03.5% 100.0%

PG and above 00.0% 60.0% 33.3% 00.0% 06.7% 100.0%

Age

Up to 25 00.0% 31.3% 43.8% 25.0% 00.0% 100.0%

26-35 00.0% 18.9% 62.3% 11.3% 07.5% 100.0%

36-45 00.0% 13.7% 50.7% 24.7% 11.0% 100.0%

46-55 03.8% 11.5% 46.2% 30.8% 07.7% 100.0%

>55 00.0% 24.1% 48.3% 24.1% 03.4% 100.0%

Income

(RS)

Up to 1500 04.4% 04.4% 44.4% 42.2% 04.4% 100.0%

1501-3000 00.0% 00.0% 74.4% 20.5% 05.1% 100.0%

3001-6000 00.0% 22.0% 51.2% 17.1% 09.8% 100.0%

Above 6000 00.0% 41.0% 46.2% 07.7% 05.1% 100.0%

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Land

Area

(cents)

Up to 6 00.0% 12.8% 44.7% 31.9% 10.6% 100.0%

7-10 00.0% 15.2% 52.2% 21.7% 10.9% 100.0%

11-22 04.3% 10.9% 47.8% 28.3% 08.7% 100.0%

>22 00.0% 26.7% 60.0% 13.3% 00.0% 100.0%

Panchayat

Karakulam 02.7% 13.3% 52.0% 24.0% 08.0% 100.0%

Vellanad 00.0% 20.3% 44.6% 25.7% 09.5% 100.0%

Perumkadavila 9.00% 17.0% 51.3% 22.8% 08.0% 100.0%

Source: Field Survey 2011

The opinion on knowledge of E-governance at local level is elicited with respect

to various activities including delivery of various services implemented through E-

governance initiatives. Majority of the forward and backward castes people have either

‘normal’ or ‘high’ level of knowledge on E-governance. A significant proportion of

SC/ST sample population also has a high knowledge level on E-governance. However,

people with ‘very low’ level of knowledge found more among SC/ST people. This

implies that as compared to other social groups, the knowledge level on E-governance is

skewely distributed among SC/ST communities.

Among the various education groups, a ‘high’ level of knowledge on E-

governance is found among highly educated as well as less educated people. It reveals

that the knowledge on E-governance is not confined among technologically savvy people.

The type and nature of E-governance implementation are easily acceptable and reachable

even to the people belonging to lower social and education groups. These trends may

augment the speed of implementation of E-governance.

Within the various age groups, the people belonging to the young age group have

a higher knowledge on E-governance as compared to those belonging to the middle and

higher age groups. However, as compared to the middle age group, a higher proportion of

people with a high knowledge in E-governance found among the higher age group. It

again implies that the nature of E-governance is palatable even to higher age group who

are not supposed to be technological experts.

A general trend of E-governance knowledge among the people who are

differentiated with respect to income and land holding size reveals that as their economic

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status improves, the knowledge level also improves. People having a high knowledge in

E-governance belong to high income and land holding groups. Also, with respect to

knowledge of people on E-governance between Panchayats, a significant proportion of

people with ‘high’ or ‘very high’ knowledge on E-governance, are found in all

Panchayats. It implies the fact that the Panchayat status on E-governance initiative does

not have a very high association with the knowledge on E-governance possessed by local

residents.

Purpose of visit to Panchayat Office

Life of every individual is connected with various services provided by LSGs in

one way or other. The interaction of people with Panchayat Offices is motivated either

from obtaining various civic services or enjoying the benefits from various welfare and

other development programmes initiated at the local level. The important civic services

delivered to people are: issuing of various forms of certificates such as birth, deaths,

marriage, ownership, residence, identification and witness certificates; remitting various

fees and taxes; and sanctioning of development and welfare oriented schemes including

the sanctioning of various pensions.

The effectiveness of decentralised planning depends on how quickly these

services are delivered to needy people. People always desired to get a service at a

minimum effort which includes the minimisation of the number of visits to service

provider’s destinations. The Table:-6.1.5 given below shows the number of visits made

by the people to the selected Panchayat offices to obtain certain selected services such as

birth, death and marriage certificates; residential certificates; identification certificates

and remittance of property tax. The figures in the bracket show the percentage of people

availed the services with a given number of visits.

In the case of birth certificate, the number of visits made by people in Karakulam

is relatively less compared to other Panchayats. More than fifty percent of persons

obtained the birth certificate in a single visit while a sizeable percentage of persons in

Vellanad and Perumkadavila Panchayat made either two or three visits to obtain the same

service. The same trend is applicable to other services also. The general situation shows

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that the number of visits to Karakulam Panchayat for obtaining the various services is

lower as compared to other Panchayats. It implies that the quickness in delivering a

service is governed by the speed with which the E-governance initiatives are

implemented in various service delivery projects.

Table: - 6.1.15 Purpose and Number of Visits to Various Panchayat

Purpose of Visit Number

of Visits

Name of Panchayat Total


Birth Certificate.

1.0000 05 (55.6) 05(22.2) 02(22.2) 09(100.0)

2.0000 02(12.5) 05(31.3) 09(56.3) 16(100.0)

3.0000 02(22.2) 02(22.2) 05(55.6) 09(100.0)

4.0000 03(100) 00(0) 00(0) 03(100)

5.0000 00(0.0) 00(0) 03(100) 03(100)

Death Certificate

1.0000 01(16.7) 04(66.7) 01(16.7) 06(100)

2.0000 01(16.7) 04(66.7) 01(16.7) 06(100)

3.0000 01(33.3) 00(0.0) 02(66.7) 03(100)

Marriage

Certificate

1.0000 01(50) 00(0.0) 01(50) 02(100)

2.0000 02(33.3) 02(33.3) 02(33.3) 06(100)

3.0000 03(42.9) 01(14.3) 03(42.9) 07(100)

Residential

Certificate

1.0000 01(20) 04(80) 00(0) 05(100)

2.0000 02(28.6) 04(57.1) 01(14.3) 07(100)

3.0000 00(0) 01(50) 01(50) 02(100)

ID Certificate.

1.0000 1(14.3) 02(28.6) 04(57.1) 07(100)

2.0000 00(0) 00(0) 01(100) 01(100)

3.0000 00(0) 02(50) 02(50) 04(100)

4.0000 01(50) 00(0) 01(50) 02(100)

5.0000 00(0) 01(100) 00(0) 01(100)

6.0000 00(0) 00(0) 01(100) 01(100)

Tax

1.0000 17(47.2) 14(38.9) 05(13.9) 36(100)

2.0000 02(28.6) 03(42.9) 02(28.6) 07(100)

3.0000 00(0) 02(66.7) 01(33.3) 03(100)

4.0000 00(0) 00(0) 03(100) 03(100)

6.0000 00(0) 00(0) 01(100) 01(100)



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6.2 E-governance and efficiency in decentralised planning

The enactment of 74th

Amendment of Kerala Panchayat Raj Act has widened

the range of services to be performed by the local self-government institutions in Kerala.

The range of activities spans from statutory permissions/approvals, to maintaining

sanitation and cleanliness to social welfare-oriented activities. In order to perform the

huge responsibilities endowed to Panchayat as a result of decentralization, rapid

mechanization of service delivery became an imperative. Moreover, the adoption of E-

governance is also required for the improvement of the quantity and quality of project

formulation. Thus the outcomes from the projects implemented at the Panchayat level

and consequent development of each local region are greatly influenced by the pace of E-

governance in various activities.

The important pillars of decentralised governance are efficiency, transparency,

participation, responsibility, accountability, gender and social equity. The success and

effectiveness of decentralised planning depend on how effectively these policy objectives

are achieved (Bhatnagar, Subash, 2010). In the process of attaining these critical

objectives of decentralised planning, E-governance mechanism helps a lot. In the ensuing

analysis, an attempt is made on the impact of E-governance initiative in achieving the

above mentioned planning objectives.

One of the major objectives of decentralized planning is to enhance efficiency in

service delivery and project implementation to improve the well being of people

(Oommen M.A, 2008). An empirical evaluation is done on how effectively LSGs provide

these services. Major efficiency variables evaluated are: quickness in service delivery,

accuracy, reliability, promptness, cost, easiness, monitoring flexibility of time, direct

contact and timely reporting. Quickness in service delivery refers the speed by which a

customer obtains a service from the Panchayat. Improvement in accuracy implies the

reduction of corrections in the certificate issued by the Panchayat. The extent of

accomplishment of these tasks is the main issue to be addressed. Promptness of service

delivery implies the delivery of the services at the stipulated time. The adequate data

backup with paperless accounting through E-governance helps to enhance the promptness

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of service delivery. Easiness of service refers to a situation in which a customer avails

services without much difficulty. The difficulties arise mainly in the form of difficulties

in filling up application forms, delayed services due to employees’ absence etc. The

absence of a proper monitoring mechanism adversely affects the whole development

mechanism. For instance, the successful completion of a particular project depends on

continuous monitoring and if the computer can assist this monitoring, the project would

complete with in the stipulated time period.

Front office management, a major part of E-governance service delivery system

enables the Panchayats to make a direct contact with its customers. Some studies proved

that front office management is one among the major contributions of E-governance. It

also enables the provision of services by meeting the convenience of the customers. The

flexibility of time for receiving the service is a necessary condition to achieve this. In

addition, the implementation of E-governance enhances the accountability of Panchayats

towards local residents. The timely updating of local level information and maintaining a

system for timely reporting of various activities to citizens by the Panchayat enhance the

above mentioned accountability. The installation of various E-governance projects at

local level enhances the timely updating and dissemination of information.

The impact of E-governance initiatives at the Panchayat level on the efficiency of

decentralized planning with respect to above mentioned aspects is given in the Table:-

6.2.1.

Table: -6.2.1 Efficiency Parameters and Their Levels

Efficiency

Variables

Opinion scales in per cent

Highly

reduced

Reduced No Change Improved Highly

improved

Quickness 3.56% 13.78% 48.45% 23.11% 3.56%

Accuracy 2.22% 13.78% 43.11% 34.22% 6.67%

Reliability 3.56% 17.33% 41.34% 30.67% 7.11%

Cost 7.11% 22.67% 41.78% 23.56% 4.89%

Promptness 4.45% 21.33% 37.78% 24.89% 11.56%

Easiness 5.33% 19.11% 44.00% 25.78% 5.78%

Monitoring 12.44% 26.67% 40.89% 15.55% 4.44%

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Direct Contact 12.89% 20.44% 41.78% 19.11% 5.78%

Flexibility of time 10.22% 20.00% 42.67% 24.00% 3.11%

Timely Reporting 10.67% 12.45% 43.56% 26.67% 6.66%

Average 7.24% 18.76% 42.53% 24.76% 5.96%

Average percentage of Scaled response at Panchayat level

Karakulam 4.27% 16.40% 39.87% 33.20% 7.83%

Vellanad 6.13% 20.53% 46.40% 19.47% 5.20%

Perumkadavila 11.33% 19.33% 41.33% 21.60% 6.40%


A sizable percentage of the people opined that the satisfaction from the various

aspects of efficiency have improved due to the implementation of E-governance. Among

the various efficiency parameters, the reliability, promptness, accuracy, timely reporting

and easiness have improved at a higher level as compared to other variables. At the same

time, the direct contact of persons with service delivery officials has declined greatly.

Also, the reduction in the cost of service delivery is not very significant.

The Table:-6.2.2 shows the level of efficiency parameters among various socio-

economic groups.

Table: 6.2.2 Level of Efficiency Parameters among Various Socio-Economic Groups

Variable Classification Highly

reduced

Reduced No

Change

Improved Highly

improved

Sex Male 6.40% 17.30% 40.80% 28.13% 7.40%

Female 8.07% 16.83% 45.40% 25.40% 4.33%

Caste

Forward 6.83% 16.10% 39.77% 27.77% 9.57%

Backward 6.17% 17.17% 42.73% 28.10% 5.87%

SC/ST 8.43% 17.40% 43.27% 28.43% 2.47%

Education

Primary 6.97% 18.77% 41.43% 28.00% 4.83%

Secondary 8.20% 16.27% 43.20% 26.53% 5.80%

Degree/diploma

holder 7.97% 16.73% 35.90% 31.30% 8.07%

PG and above 5.40% 12.63% 39.47% 26.77% 15.73%

Age

Up to 35 6.57% 12.60% 44.63% 28.57% 7.67%

36-45 7.53% 20.87% 41.87% 27.30% 2.43%

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46-50 5.63% 16.03% 40.20% 27.43% 10.70%

Above 50 7.07% 17.40% 38.87% 29.30% 7.37%

Income

Up to RS1500 8.10% 18.67% 40.00% 24.30% 8.93%

1501-3000 7.73% 23.47% 40.57% 25.53% 2.73%

3001-6000 6.80% 14.03% 43.50% 31.47% 4.23%

Above 6000 5.60% 14.57% 37.80% 29.77% 12.27%

Land

Holding(Ce

nts)

Up to 6 10.63% 16.90% 40.13% 28.37% 4.03%

7-10 6.83% 18.73% 43.27% 27.70% 3.50%

11-22 5.40% 17.60% 44.47% 27.80% 4.73%

Above 22 4.83% 15.97% 39.00% 23.77% 16.40%


The Table:-6.2.2 summarises the all scaled opinions in

percentage received for the efficiency parameters among various socio-economic groups.

Between sexes, an improvement in service delivery was felt more by males as compared

to females. Within the various caste groups, high improvement in satisfaction is

perceived more by forward and backward communities as compared to SC/ST

communities. Within various education groups, high level of improvement of the

efficiency due to E-governance is noticed by both highly educated and less educated

groups. Among the various age groups, the middle age group has less percentage of

people with very high level of satisfaction in efficiency. In the case of income, in general,

the trend indicates that as income level improves, the satisfaction in efficient service

delivery also increases. Within the low income group, a high percentage of people

perceived a reduction in satisfaction due to lower efficiency. In the case of land holding

size also, the trend is almost similar to the trend derived for income groups. As noted

earlier, the efficiency in service delivery are greatly influenced by the infrastructure

facilities available for E-governance initiatives as well as the level of implementation of

the various decentralised programmes through the E-governance mechanism at the

Panchayat level.

There exists a difference in infrastructure facilities as well as the implementation

status of E-governance initiatives at the Panchayat level. Within the sample Panchayats,

the percentage of people having higher level of satisfaction is more in Karakulam

Panchayat followed by Perumkadavila and Vellanad Panchayats. As Karakulam

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Panchayat has a good track record of accomplishing the E-governance initiatives, the

inference obtained here indicates the positive externalities of E-governance in promoting

customers satisfaction from the services provided by LSGs.

The Chi-square statistics shown in the Table:-6.2.3 is used for evaluating the

variation in the level of opinions on efficiency parameters among different socio-

economic groups.

Table: 6.2.3 Chi- Squire Test Result of Variation in Efficiency Parameters

Among Socio-Economic Groups

Panchayat Factors Chi- Square

Value

Degree of

Freedom

Level of

Significance

Karakulam

Sex 45.987 04 0.000

Caste 03.573 08 0.734

Education 70.295 16 0.000

Age 85.929 12 0.000

Income 104.843 12 0.000

Land

Holdings

64.506 12 0.000

Vellanad

Sex 19.840 04 0.001

Caste 08.748 08 0.364

Education 81.758 16 0.000

Age 15.061 12 0.238

Income 84.876 12 0.000

Land

Holdings

87.588 12 0.000

Perumkadavila

Sex 12.454 04 0.014

Caste 07.154 08 0.520

Education 33.485 15 0.001

Age 29.319 12 0.004

Income 37.002 12 0.000

Land

Holdings

24.024 12 0.020

Source: Computed from the field survey.2011

The result indicates that there exists a significant variation in the opinion scales

on the given efficiency parameters within various socio-economic groups in all selected

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Panchayats. The variation in opinion scales on efficiency variables is very significant

between sexes, income groups, age groups, education groups, income and land holding

size. However, there is no significant variation in the opinion levels of people belonging

in various caste groups.

Index of Efficiency

Opinions on the change in efficiency level are classified into five scales such as

highly reduced, reduced, no change, improved, highly improved. A value of 1, 2, 3, 4, 5

are given to highly reduced, reduced, no change, improved, highly improved scales

respectively. The scaled values obtained for various individuals are used for estimating

an index for efficiency. The first step for the procedure is sum up the scaled values for

every individual. Secondly, the following formula is used for deriving the index.

Ii = [Xi – Min (Xi)] / [Max (Xi) – Min (Xi)]

Here, Ii is the index value of the Ith

dimension of decentralised planning (such as

efficiency) for ith

individual.

Xi = the actual score obtained to ith

person.

Min (Xi) = the minimum score with in the entire sample population for the

specific dimension.

Max (Xi) = the maximum score with in the entire sample population for the

specific dimension.

The standardised value of the perceived efficiency index lies between one and

zero. The value ‘one’ indicates the respondent who had experienced maximum

improvement in satisfaction among the sample population. The value ‘zero’ indicates the

person whose satisfaction is the lowest among others in the group.

The Table:-6.2.4 shows the average value of the index of efficiency among

various socio-economic groups. The Table:-6.2.5 summarises the F-Ratio and its

statistical significance reflecting the variation of efficiency index among various groups.

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Table: 6.2.4 Mean Index Value of Efficiency Among Various Socio-Economic

Groups

Factors Classification Name of the Panchayat


Sex

Male 0.6095 0.4909 0.4223

Female 0.4972 0.4362 0.4959

Total 0.5811 0.4719 0.4537

Caste

Forward 0.6261 0.4895 0.4410

Backward 0.5704 0.4474 0.4846

SC/ST 0.5320 0.4757 0.4064

Total 0.5811 0.4719 0.4537

Education

Primary 0.5774 0.4523 0.4133

Secondary 0.4838 0.4588 0.4307

Degree/Diploma 0.6371 0.4925 0.5221

PG 0.6316 0.6513 0.4079

Total 0.5811 0.4719 0.4537

Age

Up to 35 0.5898 0.4900 0.4847

36-45 0.5458 0.4485 0.3971

46-50 0.6509 0.4737 0.4662

Above 50 0.5719 0.4810 0.4667

Total 0.5811 0.4719 0.4537

Income

(RS)

Up to 1500 0.5746 0.4436 0.4605

1501-3000 0.5478 0.3927 0.4183

3001-6000 0.5749 0.4524 0.4912

More than 6000 0.6509 0.5598 0.4367

Total 0.5811 0.4719 0.4537

Land

Holding

(Cents)

Up to 6 0.5307 0.4276 0.4485

7-10 0.5947 0.4398 0.4461

10-22 0.6217 0.4221 0.4474

More than 22 0.6026 0.5658 0.4965

Total 0.5811 0.4719 0.4537

Source: Field Survey, 2011

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Table: 6.2.5 F-ratio of Efficiency Index Among Various Socio-Economic Groups

Factors


F-

ratio DF Sig.

F-

ratio DF Sig.

F-

ratio DF Sig.

Sex 8.070 1,73 .006 2.235 1,73 .139 4.145 1,73 .045

Caste 1.824 2,72 .169 0.584 2,72 .560 1.077 2,72 .346

Education 2.209 4,70 .077 1.733 4,70 .153 2.544 4,70 .063

Age 1.519 3,70 .217 0.303 3,70 .823 1.407 3,70 .248

Income 1.364 3,70 .261 4.498 3,70 .006 0.850 3,70 .471

Land

Holding 1.346 3,71 .266 7.242 3,71 .000 0.386 3,71 .763


The mean value of efficiency index is relatively high in Karakulam Panchayat

followed by Vellanad and Perumkadavila Panchayats. The efficiency index also varies

across various socio economic groups. Compared to females, the male customers get a

higher level of satisfaction in efficiency. Among the various caste groups, the efficiency

level is high among forward and backward categories as compared to SC/ST populations.

As education level increases, the satisfaction in efficiency of services also

increases. People with technical, degree and post graduation are having a higher level of

efficiency as compared to other groups. With respect to age, there is no clear cut trend is

visible between the efficiency level and the age status. With regard to income, the

satisfaction in efficiency increases as income increases. The same relationship is also

hold good in the case of various land holding sizes.

The F-Ratio for the evaluation of the significance of the differences in efficiency

levels among the various socio-economic groups in the selected Panchayats as given in

the Table:-6.2.5 shows that except between sexes, the variation in efficiency index is not

statistically significant in Karakulam and Perumkadavila Panchayats. In Vellanad

Panchayat, there exists statistically significant variation in efficiency index among the

202

various income and landholding groups.

The foregoing evaluation on the changes in efficiency from the various services

provided by the Panchayats after the initiation of E-governance reveals that there is a

significant improvement in the efficiency from the service delivery to the people. The

efficiency in formulating of plan projects through E-governance is multiple times higher

than that of manual system. Time needed for service delivery as well as the occurrence of

correction needed for the certificates issued by the Panchayats have reduced greatly.

Though the cost of service delivery has not declined much, there is a possibility for

reduction in cost in future when adequate data backup would be completed. Within the

efficiency parameters, the reliability, promptness and timely reporting of information

have received higher positive changes as compared to other aspects. The revealed opinion

scales of efficiency parameters are not uniform across various socio-economic groups

and Panchayats. The receptivity and the ability to realize the benefits from the

improvements of the efficiency of service delivery due to the implementation of E-

governance are determined greatly by the variation in gender status, education level and

economic status; and the progress in implementation of E-governance initiatives at the

Panchayat level.

6.3 E-governance and Transparency

The dissemination of information by the local bodies provides transparency in

administration as well as ensures the citizens about the accountability on the part of local

authorities. It also prevents the administration from indulging in corrupt practices. The

information on income and expenditure of Panchayats enables people to hold the civil

servants accountable to local community, reducing inefficiency and corruption (Ministry

of Information and Technology, 2006). The delivery of information through E-

governance mechanisms reduces the manipulative capacity of the authority as well as

prevents the officials from misusing resources; and thus enhances peoples’ trust in

government. Along with a free flow of information, the applications of ICT make it easy

for transparent dealings with concerned stakeholders. Officials are bound to be

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accountable when they deal with people or people deal with officials electronically

because all interactions are open to all concerned. The operations are transparent and

known to all the actors involved. Hence, one of the major objectives of E-governance is

to enhance transparency and reduce corruption.

The achievement of the planning objectives in a decentralised approach depends

on the extent of transparency shown by local authorities on activities with respect to the

life of people. Theoretically E-governance ensures transparency in development

administration particularly at local level. There are various ways by which E-governance

ensures and promote transparency. The following analysis made an attempt from the

angle of customers to evaluate how E-governance enhances transparency of various

services provided by Panchayats.

Corruption in the form of bribe

One of the social evils generated due to lack of transparency in administration at

all levels is corruption (Shleifer, Andrei, and Robert W. Vishny, 1993). In grass root

level planning, people practice bribery to eke out favours in the form of reducing the time

delay in services; acquiring of some services which is out of way; obtaining some

certificates such as BPL certificate; obtaining tenders and quotations at lower rate etc.

The survey result on the purposes for which people pay bribes are summarised in the

Table:-6.3.1.

Table: -6.3.1 Purpose of Bribery

Purpose of Bribe Frequency Valid Percent

Reduction of delays 29 56.9

Getting service illegally 7 13.7

Getting BPL certificate 3 5.9

Gaining quotations and tender 3 5.9

Others 9 17.6

Total 51 100.0 Source: Field Survey, 2011

Out of the total sample population, only 22.5 percent revealed that they paid

bribes and out of them 57% of the people gave bribes for avoiding delays. The other

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favours seek by giving bribes are settling disputes by Panchayat authorities, getting

individual benefit etc. The Table:-6.3.2 explains the way by which bribe is given.

Table: -6.3.2 Assessment About Mode of Bribery

Opinion on Bribery Yes

Given directly to staff 70.2%

Given indirectly to staff 17.0%

Given bribery to people other than staff 24.2%


Of the total people paid bribe, seventy percent of the people gave directly to the

staff and 24.2% of the people gave bribe to the elected representatives or the politicians.

About 17% of the people gave bribes through agents. However, corruption in the form of

bribe has significantly reduced after the introduction of E-governance.

The following Table:-6.3.3 illustrates the Panchayat wise assessment of the

bribery practiced by people.

Table: -6.3.3 Paying Bribe and its Mode Between Panchayat

Mode of Payment of

Bribe

Name of Panchayat


Percentage of people gave

bribes 14.3% 38.8% 46.9%


bribes directly to staff 15.4% 26.9% 57.7%


bribes indirectly to staff 17.9% 57.1% 25.0%


bribes to people other than

staff 13.8% 37.9% 48.3%


Out of total sample population practicing bribery, the shares of Karakulam, Vellanad and

Perumkadavila Panchayats are 14.3%, 38.8% and 46.9% respectively. Thus, the corruption in

205

the form of bribe is lowest in Karakulam Panchayat. Out of the total people who gave

bribe directly to staff, majority belongs in Perumkadavila Panchayat followed by

Vellanad. Similarly, the majority of people who have paid bribes to politicians belong to

Perumkadavila Panchayat. These inferences clearly indicate that E-governance has a

definite influence on reducing corruption in the Panchayats.

The transparency mode of governance at local level

One important means by which the evil effects of corruption such as bribery and

other inefficiencies at local level can be tackled through the transparency in

administration. The knowledge or understanding on the way by which the transparency

can be affected is very pertinent in the process of administrative reforms.

The increasing transparency about changing rules enables the customer to

understand the pre-requisite required for availing services. The best way to communicate

the rules and regulation of the Panchayat is the ‘Citizen Chart’ which is considered as a

major aspect of E-governance programmes of local self governments.

The success of the Grama Sabha, the basic pillar of the Panchayat Raj system,

depends on the transparency in decision making at this level. All people are not able to

attend the Grama Sabha meeting due to various reasons but everyone should know about

the decisions taken in the Grama Sabha for the development of their area. It can be easily

done through a Panchayat website without any additional cost.

The transparency in administration ensures the trust between various stakeholders,

in particular the trust between suppliers and demanders of services at the Panchayat level.

This can be ensured through the timely and effective complaints handling of local people

by the Panchayat authority. The desirable outcome would be the maximum reduction of

complaints and which is possible through enhancing transparency in decision making via

E-governance.

Transparency in identifying beneficiaries and weaker sections are imperative for a

proper channeling of resources, which ultimately helps to attain the social objectives such

206

as poverty reduction. The effective channeling of resources is possible through a better E-

governance system. Also, right from the formulation to the implementation of project, the

influence of E-governance has been increasing recently. Such activities such as

sanctioning of funds for projects, monitoring of fund utilisation etc can be easily

evaluated through the E-governance’ software ‘Sulekha’.

The mobilisation of internal resource of LSGs depends on the efficiency by which

the various tax bases are assessed with least possibility for evading the payments. There

is an increasing application of E-governance apparatus such as Geographical Information

System in assessing the taxes such as property taxes at the local level. These applications

not only ensure a proper and transparent assessment of tax base but also improve the

resource mobilisation by plugging the loopholes for tax evasion.

Assessment of Satisfaction from Changes in Transparency

The change in transparency of local administration has been evaluated based on

certain assessment factors. The important assessment factors considered are given in

Table:-6.3.6. The improvement of transparency of these factors enhances the satisfaction

of people who are availing various services of Panchayats. One of the factors which

improves the transparency and through which the satisfaction of local clients, is the better

clarity and simplicity of application forms. Effective complaint handling, a well

organized citizen chart, good front office management and transparency in decision

making also enhance the satisfaction of local customers. Other factors, which enhance the

transparency in the decentralised planning process, are the provision of correct

information for social auditing, easy access of budget information, quick and transparent

project formulation and revenue mobilisation. Similar to the efficiency assessment, the

level of satisfaction derived from changes in transparency to customers from Panchayat

services, is assessed on the basis of 5 point Likert scale as shown in the following Table:-

6.3.4.

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Table: - 6.3.4 Assessment of Transparency Parameters

Transparency in

Factors

Highly

reduced

Reduced No

Change

Improved Highly

improved

Clarity and simplicity 02.7% 08.9% 40.4% 40.9% 07.1%

Complaint handling 04.9% 21.3% 33.8% 31.1% 08.9%

Citizen chart 04.0% 17.8% 38.2% 29.3% 10.7%

Front office management 07.5% 15.6% 34.7% 25.3% 16.9%

Decision of Grama Sabha 06.2% 17.3% 42.7% 22.7% 11.1%

Social auditing 13.3% 22.7% 32.9% 23.6% 07.5%

Access to budget information 10.0% 16.0% 40.7% 29.3% 04.0%

Identification of projects 10.7% 16.9% 36.0% 27.1% 09.3%

Identification of beneficiaries 09.3% 21.3% 35.6% 27.6% 06.2%

Identification of beneficiary

committee 12.4% 16.8% 40.9% 21.3% 08.6%

Monitoring and evaluation

of projects 08.0% 23.1% 39.6% 23.6% 05.8%

Assessment of taxes and

penalties 15.6% 16.4% 34.7% 25.8% 07.6%

Average response (in %) 08.72% 17.84% 37.52% 27.3% 8.64%

Average percentage of Scaled response at Panchayat level

Karakulam 4.99% 12.30% 36.05% 34.89% 12.95%

Vellanad 9.88% 20.89% 37.23% 26.01% 6.00%

Perumkadavila 11.74% 21.78% 38.38% 22.33% 8.33%

Source: Field Survey.2011

A significant proportion of the responses show an increase in the

transparency in decentralised planning activities due to E-governance initiatives. Among

the indicators, the transparency level with respect to the front office management and the

procedures of decisions making of Grama Sabha are improved drastically. In addition to

that the procedures of administration are become simpler and clear and thus people are

more able to access the information on budget and identification of beneficiaries of

projects. Within the transparency indicators, the indicators such as the assessment of

taxes and penalties and social auditing have received low priority on transparency.

Overall, only 26 percent of the responses have showed a reduction in transparency and

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the consequent satisfaction of customers from Panchayat services. In general, all these

changes in transparency levels due to the implementation of E-governance in the

decentralisation of administration have improved the satisfaction of local residents.

However, the intensity of transparency level on various indicators varies across the

selected Panchayats. The average response of all indicators of transparency levels shows

that the responses of ‘improvement’ ‘high improvement’ are relatively high in Karakulam

Panchayat followed by Vellanad and Perumkadavila Panchayats.

Transparency level among various socio-economic groups

The improvement in transparency level varies across socio-economic groups. The

perceived changes in intensity on transparency due to the introduction of E-governance

process among various socio-economic groups are given in the Table:-6.3.5. The Table:-

6.3.6 indicates the Chi-square statistics for evaluating the significance of variation in the

intensity of the perceived changes among various groups.

6.3.5 Level of Transparency among Various Socio-Economic Groups

Variable Classification Highly

reduced

Reduced No

Change

Improved Highly

improved

Sex Male 9.83% 19.10% 38.00% 25.80% 07.00%

Female 08.20% 16.87% 38.83% 28.20% 07.83%

Caste

Forward 08.80% 15.50% 36.13% 29.60% 09.97%

Backward 10.33% 20.40% 36.93% 25.77% 06.27%

SC/ST 07.43% 20.63% 44.70% 22.13% 04.57%

Education

Primary 09.13% 16.80% 41.67% 26.43% 05.73%

Secondary 11.33% 24.60% 42.73% 18.07% 03.03%

Degree/diploma

holder 06.90% 16.13% 33.33% 30.90% 12.77%

PG and above 09.73% 13.43% 19.27% 44.63% 12.30%

Age

Up to 35 08.63% 13.73% 37.43% 33.63% 06.53%

36-45 07.90% 21.47% 36.13% 28.90% 05.33%

46-50 07.73% 18.47% 38.97% 22.27% 12.33%

Above 50 10.83% 19.03% 40.43% 22.67% 06.73%

Up to RS1500 13.07% 17.67% 36.23% 22.30% 10.37%

1501-3000 08.27% 20.20% 41.87% 26.17% 03.53%

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Income 3001-6000 09.03% 19.23% 40.50% 27.23% 03.77%

Above 6000 04.23% 16.20% 33.13% 33.60% 12.77%

Land Holding

(Cents)

Up to 6 07.90% 19.40% 40.23% 24.83% 07.13%

7-10 09.87% 21.70% 34.87% 29.43% 04.13%

11-22 09.60% 14.60% 44.73% 23.60% 07.23%

Above 22 08.50% 18.90% 30.57% 26.50% 15.33%


Table: 6.3.6 Chi- Squire Test of Variation of Transparency Level

Among Socio-Economic Groups

Factors Chi- Square

Value

Degree of

Freedom

Level of

Significance

Karakulam Sex 005.268 4 0.261

Caste 034.977 8 0.000

Education 221.761 16 0.000

Age 137.790 12 0.000

Income 131.462 12 0.000

Land

Holdings 118.679 12 0.000

Vellanad

Sex 006.563 4 0.255

Caste 047.847 8 0.000

Education 071.201 16 0.000

Age 019.660 12 0.185

Income 106.604 12 0.000

Land

Holdings 085.302 12 0.000

Perumkadavila Sex 066.158 4 0.000

Caste 024.316 8 0.007

Education 086.740 15 0.000

Age 022.858 12 0.087

Income 016.316 12 0.361

Land

Holdings 015.796 12 0.396

Source: Computed from the survey result, 2011

The results given in the Table:-6.3.8 shows that there exists variation in the level

of transparency among various socio-economic groups. Between males and females, the

improvement in transparency level is slightly more among females as compared to male

counterpart. It implies that as the level of E-governance initiative improves, the gender

access to information on local level administration improves, which offer greater benefits

210

to females who have less accessibility to get information in traditional method. The

variation in response levels of transparency between males and female is not significant

in Karakulam and Vellanad Panchayat as revealed from the value of Chi-square statistics

shown in Table:-6.3.8. At the same time there exists a significant variation in

transparency levels among males and females in Perumkadavila Panchayat. This again

implies that as E-governance initiatives progresses, it not only enhances the accessibility

to all genders, but also reduces the disparity level of access among males and females.

Caste wise distinction of sample population highlights that more percentage of

forward people has felt a higher improvement in transparency as compared to backward

and SC/ST people. Between backward and SC/ST communities, their respective position

in transparency levels vary across Panchayats. In Karakulam and Perumkadavila,

backward communities’ perception of improvement in satisfaction is high as compared to

SC/ST while it is reverse in the case of Vellanad Panchayat. The Chi-square statistics

reveal that there exists a significant difference in scaled perception on changes in

transparency among various caste groups in all selected Panchayats.

With respect to education, it is noticed that in general as the level of education

improves, the level of satisfaction in transparency also improves. However, primary

educated people have perceived a high improvement as compared to secondary educated

people in Perumkadavila Panchayat. As people’s education improves their knowledge in

understanding the positive aspects of E-governance including the transparency in

administration improves and which place them in a better position to evaluate the pros

and cons of these types of technological changes. There is a high statistically significant

variation exists in intensity of perception on changes in transparency among age groups

in all selected Panchayats. The high level of significance of Chi-square statistics is

evidence towards this inference.

The age factor has a significant influence on the speed of accepting a change and

their evaluation. The perceived change in transparency is very high among all age groups

in Karakulam. However, in the case of Vellanad and Perumkadavila Panchayats, the

trend discerned is that the transparency level is high among lower age group as compared

to middle and higher age groups. This implies that innovation in administration such as

211

E-governance progresses, initially the reach and understanding level of old people (who

have accustomed to traditional method) are inferior to younger age groups whose

receptivity is very high. This might be the reasons for the highlighted higher level of

improvement in transparency across all age groups in Karakulam and hierarchical trend

relation between age structure and change in transparency perception in Vellanad and

Perumkadavila Panchayats. However, the Chi-square statistics highlights that the existing

variation in intensity of perception on transparency level among various age groups is

statistically significant in Karakulam Panchayat only.

Economic status also influences on individual’s access to different information

and their evaluation on transparency. In general, the sample evidence highlights that the

scaled intensity of individual’s perception of transparency improves along the

progression of income status. The proportion of high level of improvement in

transparency are revealed more by the high income groups in all Panchayats with a slight

exception in Perumkadavila Panchayat. The variation in intensity of perception on change

in transparency among various income groups in Karakulam and Vellanad are

statistically significant (evidenced from a significant Chi-square statistics) while this

difference is not statistically significant in Perumkadavila Panchayat.

Similar to income, there is a high proportion of highly satisfied people on

transparency exists in higher land holding size groups in both Karakulam and Vellanad

Panchayats, while the improvements in transparency is almost uniformly distributed

among various land holding groups in Perumkadavila Panchayat. The Chi-square

statistics highlights that the disparity in scaled intensity of transparency in Karakulam and

Vellanad are statistically significant while it is not significant for Perumkadavila

Panchayat.

The people’s perception on a change in innovation in governance of

administration affecting their ordinary life may be influenced not only by the potential

merit of the change but also by individuals’ potentiality in evaluating the merits of the

new system from the existing traditional system. This might be the reason for statistically

less significance in variation among various income and land holding size groups in

212

Perumkadavila Panchayat as compared to Karakulam Panchayat where the achievement

in E-governance initiative is higher.

Index of Transparency

Similar to the estimation of index of efficiency, an index value representing the

transparency is also estimated Panchayat wise and the same is given in the Table:-6.3.7.

The Table:-6.3.8 summarises the F-ratio for evaluating the significance of this variation

in transparency index among various socio-economic groups.

Table: 6.3.7 Mean Index value of Transparency Among Socio-Economic Groups

Factors Classification Name of the Panchayat


Sex

Male 0.5946 0.4418 0.3819

Female 0.5531 0.4204 0.5285

Total 0.5841 0.4344 0.4444

Caste

Forward 0.5936 0.4792 0.4765

Backward 0.5922 0.3658 0.4186

SC/ST 0.5464 0.4561 0.3957

Total 0.5841 0.4344 0.4444

Education

Primary 0.5912 0.3684 0.4802

Secondary 0.3792 0.4714 0.3592

Degree/Diploma 0.6667 0.4912 0.4758

PG 0.7168 0.5658 0.4123

Total 0.5841 0.4344 0.4444

Age

Up to 35 0.5965 0.4779 0.4692

36-45 0.5750 0.4145 0.4362

46-50 0.6281 0.4035 0.4812

Above 50 0.5567 0.4308 0.3883

Total 0.5841 0.4344 0.4444

Income

(RS)

Up to 1500 0.5848 0.3747 0.4549

1501-3000 0.5399 0.4494 0.3915

3001-6000 0.5614 0.3698 0.4627

More than 6000 0.6690 0.5399 0.4678

213

Total 0.5841 0.4344 0.4444

Land Holding

(Cents)

Up to 6 0.5453 0.4561 0.4378

7-10 0.5923 0.3246 0.4854

10-22 0.5932 0.4274 0.4222

More than 22 0.6421 0.4893 0.4351

Total 0.5841 0.4344 0.4444


Table: 6.3.8 F-ratio of Transparency Level between Socio-Economic Groups in

Panchayat

Factors


F-

ratio DF Sig.

F-

ratio DF Sig.

F-

ratio DF Sig.

Sex 0.596 (1),(73) .443 0.249 (1),(73) .619 16.571 (1),(73) .000

Caste 0.295 (2),(72) .746 3.503 (2),(72) .035 1.381 (2),(72) .258

Education 6.326 (4),(70) .000 2.503 (4),(70) .050 2.468 (4),(70) .069

Age 0.354 (3),(70) .786 0.645 (3),(70) .588 0.889 (3),(70) .451

Income 1.288 (3),(70) .285 5.093 (3),(70) .003 0.835 (3),(70) .479

Land

Holding 0.584 (3),(71) .627 3.006 (3),(71) .036 0.507 (3),(71) .679


In general, the mean index value of transparency is high in Karakulam as

compared to other Panchayats. The index of transparency in Karakulam is 0.5841 while it

is 0.4344 and 0.4444 respectively for Vellanad and Perumkadavila Panchayats.

Compared to females, the transparency index among males are higher in both Karakulam

and Vellanad Panchayats. However, the mean value of index is higher among females in

Perumkadavila Panchayat as compared to male counter parts. The F-ratio given in the

Table:-6.2.11 shows that with respect to sex, the variation in the transparency is not

statistically significant in Karakulam and Vellanad Panchayat while it is statistically

significant for Perumkadavila Panchayat. It shows that the Panchayats which have higher

level of E-governance initiatives also experiences a higher level of satisfaction in

transparency with less variation among various sections.

214

The mean value of index of transparency among various castes indicates that in

general as the social status of caste improves, the perceived transparency level also

improves. In both Karakulam and Perumkadavila Panchayats, the mean index value of

transparency is higher among forward and backward castes as compared to SC/ST

communities, while in the case of Perumkadavila, the transparency index of SC/ST is

greater than the backward community. However, the variation in transparency

achievement among various caste groups is not significant in any of these selected

Panchayats.

The mean index of transparency among various education groups reveals that the

highly educated people get a higher level of satisfaction from the improvement in

transparency as compared to low educated groups. There is a linear trend pattern

between education level and the satisfaction from transparency in both Karakulam and

Vellanad, but there is a slight deviation of this linear trend in the case of Perumkadavila

Panchayat. The variation in transparency level is significant at 5 percent level in both

Karakulam and Vellanad Panchayats while it is only significant at 10 percent in

Perumkadavila Panchayat.

In the case of different age groups, a clear cut trend cannot be discerned in any of

the selected Panchayats. Both young and old people are placed almost in equal status in

the improvement of satisfaction from transparency. There is no significant variation in

transparency index among various age groups in all selected Panchayats.

In both Karakulam and Vellanad Panchayats, the satisfaction level of

transparency improves along with income status. At the same time, this improvement in

transparency is higher among lower income group as compared to upper income group in

Perumkadavila Panchayat. Within different income groups, the variation in transparency

index is statistically significant only in Vellanad Panchayat. Similar to income status, the

transparency index value increases along with the landholding size. Those people holding

a higher land size have a higher transparency satisfaction as compared to low landholding

groups. Here again the variation in transparency index is statistically significant only in

Vellanad Panchayat.

215

The foregoing analysis on sample population on various aspects of decentralised

planning reveals that the transparency factor is an important factor which augments the

confidence of local people on the true nature of its outcome. The level of achievement of

transparency is not perfect or symmetrically distributed among various socio-economic

groups across the Panchayats. Despite the negative fallout of lack of transparency in the

form of corruption exists in the process of decentralised planning, there has been

significant improvements in transparency in various aspects of civic and development

functions. In the area of project identification, selection of projects, identification of

beneficiaries and Grama Sabha decision making, people have achieved a higher level of

transparency. The intensity of transparency level has not been uniform across various

socio-economic features. There exists significant variation in intensity scale of

transparency among the various education groups, age groups, income and land holding

size groups. However, between male and female sample population and among various

caste categories, the variation in the assessment levels of transparency is not very

significant. The mean value of transparency index also varies across various groups. In

the case of Karakulam except with education aspect, the differences in mean value of

transparency index is not statistically significant. In Vellanad Panchayat, there exist

statistically significant differences in transparency index with respect to various caste,

education, income and landholding size groups. In Perumkadavila Panchayat, the

variation in mean index of transparency is statistically significant with gender status only.

Thus, in general, the trend reveals that the transparency level improves along with the E-

governance initiatives with reduced variation intensity among different socio-economic

groups.

Reference

1. Ministry of Information Technology (2006): ‘Report on E-governance’, Govt. of

India, from http://www.mit.gov.in/SA (Visited 9th December 2006).

2. M.A.Oommen (2009): ‘Report of the Committee for Evaluation of Decentralised

Planning and Development’. Kerala Institute of Local Administration (KILA),

Kerala.

http://www.mit.gov.in/SA

216

3. Santhakumar, V (2008): ‘Rethinking the Conceptual Foundations of Kerala

Decentralization in the Light of the Experience during the Past Decade’,

Research and Policy Note,No.3, Centre for Development Studies,

Thiruvananthapuram.

4. Shleifer, Andrei, and Robert W. Vishny (1993): “Corruption,” Quarterly Journal

of Economics, Vol.CVIII, Pp.599–618.

5. Bhatnagar, Subash (2010): Unlocking E-Government Potential; concepts,

Cases and Practical Insights, Sage Publications India Pvt. Limited, New Delhi.

chapter vi e-governance and decentralised planning...

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