civilregn conceptnote

PROJECT FOR ONLINE CIVIL REGISTRATION AND RELATED SERVICES AT CORPORATIONS

CONCEPT NOTE

(DRAFT – NOT TO BE QUOTED)

Version 1.0 22-02-2004

Local Self Government Department

2

Contents

1. Introduction 1

2 Background 4

3. Methodology for Improving the System of birth death

marriage registrations

43

4 Towards a new concept of Hospital Kiosk 47

5. Details of Hospital Kiosk System 58

6. Conclusion 59

7. Annexure 1: Report of the Study conducted by the line of

Business Expertise Team of IKM

63

8. Annexure 2: Sample Registration System 103

9. Annexure 3: Technological options for connectivity 113

10. Annexure 4: Specifications 116

11. Annexure 5: The ultimate data communication network of

Sevana

118

3

Figures

Fig1. Organisational structure of birth-death-marriage

registration 5

Fig2. The extent of birth-death-marriage registration system in

Kerala 7

Fig3. Birth-death-marriage registration process at various stages 13

Fig4A. Comparison of birth registrations – Group 1 states (2001) 14

Fig4B. Comparison of birth registrations – Group 2 states (2001) 15

Fig4C. Comparison of birth registrations – Group 3 states (2001) 16

Fig4D. Comparison of birth registrations – Group 4 states (2001) 17

Fig5A. Comparison of death registrations – Group 1 states (2001) 18

Fig5B. Comparison of death registrations – Group 2 states (2001) 19

Fig5C. Comparison of death registrations – Group 3 states (2001) 20

Fig5D. Comparison of death registrations – Group 4 states (2001) 21

Fig6A.

Percentage of birth registrations estimated based on

sample registration system – Group 1 states and Union

territories

23

Fig6B.



territories

24

Fig6C.



territories

25

Fig6D.



territories

26

Fig7A. Percentage of death registration estimated based on

sample registrations – Group 1 states and Union Territories 27

Fig7B. Percentage of death registration estimated based on


Fig7C. Percentage of death registration estimated based on


4

Fig7D. Percentage of death registration estimated based on


Fig8A Kerala comparison of birth registrations across districts

(2001) 31

Fig8B Kerala comparison of death registrations across districts

(2001) 32

Fig9 Details of computerised counters at corporations

(Janasevanakendram) 42

Fig10 Proportion of registrations through institutions and direct

registrations 48

Fig11

Schematic representation of the data communication

network across Panchayat Directorate, Hospital Kiosks and

Corporations

51

Fig12A Difference in data entry at Corporation office – Before and

after establishing Hospital Kiosks 52-53

Fig12B Kochi Corporation Hospital-wise states of births and deaths 54-55

Fig13

Difference in the number and composition of applications

for birth registration handled at the corporation counter –

before and after establishing Hospital Kiosks

57

Fig14 Cost – volume Analysis based on number of certificates

handled per month 62

5

Tables

Table1 Various stages in the birth-death-marriage registration

process 8-12

Table2 Details of Sevana Application Software 34

Table3A

Details of activities relating to birth – death – marriage

registrations in Grama Panchayats till 2003 December using

sevana

38

Table3B


registrations in Corporations till 2003 December using

sevana

39

Table3C


registrations in Municipalities till 2003 December using

sevana

39

Table 4A Details of activities of computerised counters (Grama

Panchayats) 41

Table 4B Details of activities of computerised counters

(Corporations) 41

Table 5 Criteria for verification by Random Sampling 46

Table 6 Responsibilities of hospitals and corporations in hospital

Kiosk system 60

Table 7 Cost estimate for establishing hospital Kiosks 61

6

ANNEXURES

Annexure 1

Report of the study conducted by the Line of Business Expertise Team 63-

102

Fig A1 Flow chart showing model for data entry and verification

at Corporations 65

FigA2 Comparison of error fields – Corporations 81

FigA3 Comparison of error in certificate fields – Corporations 82

FigA4 Comparison of errors in the certificate fields of birth

registers 82

FigA5 Comparison of errors in the certificate fields of death

registers 83

FigA6 Comparison of errors in the certificate fields of marriage

register 83

FigA7 Comparison of errors in all fields in Corporations (1%

random sample) 93

FigA8 Comparison of errors in certificate fields alone in

Corporations (1% random Sample) 93

FigA9 Comparison of error in certificate fields in birth register

(1% random sample) 94

FigA10 Comparison of error in certificate fields in death register

(1% random sample) 94

FigA11 Flow chart of revived process for quality control 101

TableA1 Details of birth-death-marriage registrations records at

corporations 68

TableA2(1) Composition of data fields in birth fields in birth-death-

marriage registrations 71

TableA2(2) Data fields handled in birth registration 72-73

TableA2(3) Data fields handled in death registration 74

TableA2(4) Data fields handled in marriage registrations 75

TableA3(1) Errors in character fields in Corporations (Percentage of

total records) 77

7

Table A3(2) Errors in numeric fields in Corporations (percentage of

total records) 78

TableA3(3) Type 1 errors due to wrong selection from masters in

Corporations (Percentage of total records) 78




Corporations (percentage of total records) 79

TableA3(6) Index for comparison of total errors 80

TableA4(1) Details of birth registration records subjected to data audit 85

TableA4(3) Details of errors as percentage of total records 87

TableA4(4) Details of transactions involving unauthorised name

inclusion 88

TableA4(5) Additions to the birth registrations data base at

Corporations 89

TableA4(6) Additions in death registrations database at Corporations 89

TableA4(7) Errors in character fields at Corporations (Percentage of

total records) 91

TableA4(8) Errors in numeric fields at Corporations (percentage of

total records) 91

Table A4(9) Type1 errors due to wrong selection from masters at


TableA4(10) Type 2 error due to wrong selection from masters at


TableA4(11) Type 3 error due to wrong selection from masters at


TableA4(12) Average of total errors 92

TableA4(13)

Records in the database that do not meet statutory

requirements for birth registrations – omissions

(percentage)

95

TableA4(14)

Records in the data base that do not meet statutory

requirements for birth registrations – invalid dates

(Percentage)

96

8

TableA4(15) Birth registration – Rare records (percentage) 96

TableA4(16)


requirements for death registrations – omissions

(percentage)

97

TableA4(17)


requirements for death registrations – invalid dates

(percentage)

97

TableA4(18)


requirements for marriage registrations – omissions

(percentage)

98

TableA4(19)

Records in the database that to not meet statutory

requirements for marriage registrations – invalid dates

(percentage)

98

TableA4(20) Marriage registration – rare records 99

9

Annexure 2

Sample Registration System

Table1 Number of sample units and population represented (All India,

States, Union territories) 1999 110

Table2 Rough estimates of birthrate death rate, growth rate, infant

mortality rate, 2000

111-

112

Annexure 3

Technology options for connectivity 113-115

Annexure 4

Specifications 116-117

Annexure 5

Ultimate data communication network of Sevana 118

10

1. Introduction

Kerala’s attempts in decentralisation have already attracted international

attention. It is not only the unconventional methodology adopted to transfer

power to the grassroots level that makes the Kerala model of decentralisation

peculiar. It is also the campaign programme organised with the objective of

ensuring extensive participation and also the attempts in evolving legislations

and conventions that would facilitate a process of empowerment. Kerala’s

endeavour in decentralisation of powers, which was initiated as a sequel to the

73rd and 74th Constitutional Amendments of 1992, is at the crucial stage of

institutionalisation at present. Attempts to make Local Self Government

Institutions (LSGIs) efficient and responsive assume considerable importance in

this context. Several recommendations for making LSGIs more people oriented

have been already put forward. Some of the important ones among them are

provided below:

i) Ensure maximum participation in the decisions and activities of LSGIs.

ii) Make decisions and activities of LSGIs transparent to facilitate

participation.

iii) To create a management reporting system covering the activities of

LSGIs to make transparency and participation more meaningful and to

ensure its relation with grassroots level mechanism such as grama

sabha and ward sabha.

iv) To ensure that the management reporting of LSGIs is simple,

streamlined and objective on the one hand, and imaginative, creative

as well as rich in content and life-related facilitating extensive

participation on the other.

v) Improve the speed, comprehensiveness and transparency of public

services offered by LSGIs.

vi) To create objective standards for public services so that LSGIs gain

confidence of the people in terms of timely and error free delivery of

services, and to publicise the standards formulated.

vii) Ensure systems for redress of public grievances in such a way that the

grievances are either redressed or inform the reason for the inability

to redress.

11

viii) Formulate an effective framework that involves all the components

indicated above for a citizen charter and make it an integral part of

the process of decentralisation and empowerment.

Among these, modernising public services is one recommendation that could make a

visible impact and prove effective within a short span. Civil registration and issue of

copies of registration and certificate are important ones among the various public

services that LSGIs offer. The civil registration system handles essential statutory

documents relating to citizenship, age, name, parental details, place of birth,

financial rights etc. Improving efficiency and transparency of civil registration system

is an important aspect of the imminent citizen charter. This could be the reason why

civil registration system has been identified as a priority area for computerisation by

LSGIs.

That on an average 23.2 persons out of 1000 require these services every year shows

the scope of these services. For the employees, the process of registration, search,

issuing copies etc., is a boring job without any scope for creativity. These processes

create significant workload in LSGIs. It is the best interest of the LSGI employees to

reorganise the process in civil registration. Civil registration and the vital statistics

based on it, as they form the most comprehensive and extensive database on the

demographic parameters of a country, assume significance. They are useful in

community health management, protection of human rights and inheritance,

population control programmes, demographic studies etc. Geographic distribution of

vital statistics and indices based on them are critical sources of data for planning

national level programmes.

In the absence of vital statistics based on civil registrations, sample studies,

temporary and partial estimates based on specific studies, on time surveys etc., are

to be relied up on for such purposes.

Social security indices and composition of population are analysed based on the data

collected through civil registration, Sample Registration Survey (SRS), National

Family Health Survey (NFHS) etc. Civil registration covers registration of births,

stillbirths, death and marriage. Inordinate delay in issuing copies of registrations

creates significant inconveniences to people. In addition, there are widespread

complaints of corruption too. It is possible to issue copies and certificates at the

time of registration itself using modern computerised systems. This concept note

consists of a programme to implement such systems in the five municipal

corporations in Kerala.

12

2. Background

Kerala’s civil registration system evolved based on Madras Birth and Death

Registration Act 1899 and Travancore Cochin Birth and Death Registration Act

1953. The system was handed over to LSGIs from various government

departments in 1970. In Kerala, the registration system in accordance the Birth

and Death Registration Act of 1969 (18th Central Act of 1969) came into

existence on 1st April 1970. Kerala Birth and Death Registration Rules came

into existence through G.O. (P) 7/70/LAD of 29th June 1970 as per Section

30(1) of the Central Act.

In accordance with the above-mentioned Rules, Panchayat Director holds the

position of Chief Registrar of Births and Deaths for the state. The Additional

Director, Directorate of Economics and Statistics is the Additional Chief

Registrar. The organisation for civil registrations consists of a Deputy Chief

Registrar at the Directorate of Panchayats, the Deputy Directors of Panchayats

and Secretaries of Municipalities and Corporations as District Registrars, Senior

Research Assistants of the District Officers of the Directorate of Economics and

Statistics as Additional District Registrars, Health Officers at Corporations and

the senior most Health Inspectors at Municipalities and Secretaries of Grama

Panchayats as Registrars. The Census Director, who is also the Joint Registrar

General for Civil Registration supervises the state level organisation. The

organisational structure and extent of the civil registration system in Kerala is

shown in Figure – 1 and Figure 2. As shown in Figure – 1, the state level

organisation extends from the Chief Registrar to Sub Registrar. Census Director

as Joint Registrar Genera links the system to the Registrar General, who is the

head of civil registrations for the country. In Kerala, there are 1050

registration units (including Kannur Cantonment) (Please see Figure – 2).

It is the system under the Department of Economics and Statistics headed by

the Additional Chief Registrar that collects and consolidates statistical data.

Table – 1 and Figure – 3 provide a picture of the various stages in birth-death-

marriage registrations. There are three distinct processes in birth-death-

marriage registrations. These processes happen at five levels between

Registrar’s Office to Chief Registrar’s Office including the office of the

presidency magistrate. It is the statistical processes that happen at the office

of the Additional Chief Registrar.

Chief Registrar(Director of Panchayats)

Additional Chief Registrar(Additional Director of Economics and Statistics)

Deputy Chief Registrar(Deputy Director of Economics and

Statistics)

Deputy Chief RegistrarPanchayat Directorate

District RegistrarsAdditional District Registrar(Senior Research Officer at the

District Statistics office)

Sub RegistrarsSub Registrars appointed by Registrars

with the approval of Chief Registrar

1. Secretaries of Corporation2. Secretaries of Municipalities3. Deputy Director of Panchayats

Registrars

1. Health Officer2. Health Inspectors3. Executive Office, Kannur Contonment4. Secretaries of Grama Panchayatss

Organisational Structure of Birth-Death-Marriage Registration SystemFigure 1

Joint Registrar Genral(Births and Deaths)

(Census Director)

Figure 2 Extent of organisation of birth death marriage registration in Kerala

Table 1

Various Stages in the Registration of Births, Deaths, and Marriages

No. Births Deaths Marriages 1 Routine birth registration B1 Routine death registration D1 Routine marriage registration M1 2 According sanction for

registration by condoning the delay of less than 30 days

B2 According sanction for registration by condoning the delay of less than 30 days

D2 According sanction for registration by condoning the delay of less than 30 days

M2

3 According sanction for registration by condoning the delay of more than 30 days but less than a year

B3 According sanction for registration by condoning the delay of more than 30 days but less than a year

D3 According sanction for registration by condoning the delay of more than 30 days but less than a year

M3

4 According sanction for registration by condoning the delay of more than a year

B4 According sanction for registration by condoning the delay of more than a year

D4 According sanction for registration by condoning the delay of more than a year

M4

5 Inclusion of names in registrations done without name or with pet name

B5

6 According sanction for Including minor changes and corrections in the register

B6 According sanction for Including minor changes and corrections in the register

D6 According sanction for Including minor changes and corrections in the register

M6

7 Sanction for making major corrections in registrations made within the last five years

B7 Sanction for making major corrections in registrations made within the last five years

D7

8 Sanction for making major corrections in registrations made before the last five years

B8 Sanction for making major corrections in registrations made before the last five years

D8 Sanction for making corrections in register

M8

9 Resolving inconsistencies between school records and birth register when the difference is of less than one

B9

16

No. Births Deaths Marriages year duration

10 Resolving inconsistencies between school records and birth register when the difference is of more than one year duration

B10

11 Issuing copies from birth register B11 Issuing copies from death register D11 Issuing copies from marriage register

M11

12 Searching information in birth register

B12 Searching information in death register

D12 Searching information in marriage register

M12

13 Issuing certificate showing lack of availability of birth certificate

B13 Issuing certificate showing lack of availability of death certificate

D13

14 Periodic reports on birth registration

B14 Periodic reports on death registration

D14 Periodic reports on marriage registration

M14

15 Awareness creation on birth registration

B15 Awareness creation on death registration

D15 Awareness creation on marriage registration

M15

16 Training employees on the Acts and Rules governing birth registration

B16 Training employees on the Acts and Rules governing death registration

D16 Training employees on the Acts and Rules governing marriage registration

M16

17 Issuing guidelines on administration of birth registration laws

B17 Issuing guidelines on administration of death registration laws

D17 Issuing guidelines on administration of marriage registration laws

M17

18 Collecting statistical information on birth registration

B18 Collecting statistical information on death registration

D18

19 Consolidation of statistical information on birth registration

B19 Consolidation of statistical information on death registration

D19

20 Preparation of annual reports on birth registration

B20 Preparation of annual reports on death registration

D20

21 Preparation of statistical reports on birth registration

B21 Preparation of statistical reports on death registration

D21

22 Consolidation of vital statistics B22 Consolidation of vital statistics D22

17

No. Births Deaths Marriages 23 Administering routine birth

registration in the absence of sub-registrar

B23 Administering routine death registration in the absence of sub-registrar

D23

24 Keeping records of birth registration in the absence of sub-registrar

B24 Keeping records of death registration in the absence of sub-registrar

D24

25 Maintenance of birth registration records

B25 Maintenance of death registration records

D25 Maintenance of marriage registration records

M25

26 Examination and supervision of birth registers

B26 Examination and supervision of death registers

D26 Examination and supervision of marriage registers

M26

27 Consolidation of monthly reports and periodic reports

B27 Consolidation of monthly reports and periodic reports

D27 Consolidation of monthly reports and periodic reports

M27

28 Conducting inquiry for condoning delay in birth registration, including changes/corrections in registers, and for issuing identification certificates as per the application of local residents

B28 Conducting inquiry for condoning delay in death registration, including changes/corrections in registers, and for issuing identification certificates as per the application of local residents

D28 Conducting inquiry for condoning delay in marriage registration, including changes/corrections in registers, and for issuing identification certificates as per the application of local residents

M28

29 Providing information on live-births

B29 Providing information on deaths other than that of infants

D29 Providing information on marriage

M29

30 B30 Providing information on still-birth D30 31 B31 Providing information on death of

infants D31

18

PublicServices

D30, D31,D32

M 30

B30

D30,D32

M 30

Birth

Death

M arriage

`cW ]cw M anagem entDatabase

Chief Registrar

PublicServices

`cW ]cw M anagem entDatabase

D istrict RegistrarM anagem ent

Database

Registrar Sub Registrar

kw`

hØ

ew

Ø m]\w / s] mX pØ ew hoS v

Birth

Death

M arriage

Additional Chief Registrar

B30

Presidency M agistrate

Public Services

B8B9

B27B28

B15, B16B17, B26

M 3M 7M 9

M 27M 28

M15, M16M17, M26

D5D9

D27D28

D15, D16D17, D26

B2, B6, B7,B10, B11,B12,

B13, B23

B14B20B21

B18B24B29

M 14M 20

M24M29

D2, D7D11, D12D13, D23

D14D20D21

D18D24D29

M 1, M 2M 11, M 12

B3B8 N ILB26

N IL N ILM 26

D3D8 N ILD26

B1 B21B25B27

N ILN IL

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N IL

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Birth-Death-M arriage Registrationprocess at various stages

Figure 3

Compared to other states, Kerala has got a unique place in civil registrations.

According to the estimates of National Population Commission, Kerala has got a high

proportion of registrations. Please see Figures 4 and 5. As could be seen from Figure

4, Kerala stands first among the states with population above one crore in terms of

proportion of births that are registered. In the case of death registrations, Kerala is

just behind Punjab and Karnataka.

According to the sample registration survey, Kerala is ahead of big States in birth and

death registrations. Please see figures 6 and 7.

Figure 8 shows the proportion of registered births and deaths to total births and

deaths across districts in Kerala. Death registration is comparatively low in Kannur,

Palakkad, Kollam, Kasaragod, Idukki, Wayanad and Malappuram districts. One reason

for this would be that majority of deaths may not be taking place at hospitals.

Interventions in public health in these districts would be important in making death

reporting effective. Comparatively high proportion of registrations in Kerala opens

possibility for using it for demographic studies and public health programmes. Once

the network of LSGIs with computerised reservation system becomes a reality,

consolidation and analysis of statistics become effortless.

The first attempt to computerise the civil registration system was made in

Kumarakom Grama Panchayat in Kottayam district in 1998. That year, Centre for

Development of Imaging Technology (C-DIT) deployed a software application at

Kumarakom Grama Panchayat office for civil registrations. The application was

called PRAWNS (Package for Responsive Administration of Welfare Network and

Services). KELTRON had also developed an application called Janaseva and deployed

it in a few LSGIs. There were also a few other applications; some developed by

public sector organisations such as CMC Limited and C-DAC, and a few others

developed by private developers.

Figure 4 A

Comparison of Birth Registration across groups of States

Percentage of Birth Registration in Group 1 States(Population above 1 crore)

0

10

20

30

40

50

60

70

80

90

100

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(200

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Source: National Commission on population

21

Figure 4 B


Percentage of Birth Registration in Group 2 States(Population between 10 lakhs and 1 crore)

0

10

20

30

40

50

60

70

80

90

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22

Figure 4 C


Percentage of Birth Registration in Group 3 States(Population between 1 lakh and 10 lakhs)

0

20

40

60

80

100

120

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23

Figure 4 D


Percentage of Birth Registration in Group 4 States(Population below 1 lakh)

74

76

78

80

82

84

Zma³ & Zyq e£Zzo]v

State

Perc

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24

Figure 5 A

Comparison of Death Registration across groups of States

Percentage of Death Registration in Group 1 States(Population above 1 crore)

0

10

20

30

40

50

60

70

80

90

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(200

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25

Figure 5 B


Percentage of Death Registration in Group 2 States(Population between 10 lakhs and 1 crore)

0

20

40

60

80

100

120l

namN

ð{]

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26

Figure 5 C


Percentage of Death Registration in Group 3 States(Population between 1 lakh and 10 lakhs)

0

20

40

60

80

100

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ÞoK

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t]

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27

Figure 5 D


Percentage of Death Registration in Group 4 States(Population below 1 lakh)

65

70

75

80

85

e£Zzo]v Zma³ & Zyq

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Perc

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28

Figure 6 A

Percentage of birth registration estimated based on sample registrations – various states and union territories

Group1 states / union territories (Population above 1 crore)

Group 1 States/Union Territories(Population above 1 Crore)

020406080

100

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29

Figure 6 B


Group2 states / union territories (Population between 10 lakh and 1 crore)

Group 2 States/Union Territories(Population between 10 lakh and 1 Crore)

0

20

40

60

80

100

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30

Figure 6 C


Group 3 states / union territories (Population between 1lakh and 10 lakhs)

Group 3 States/Union Territories(Population between 1 lakh and 10 lakhs 1 Crore)

0

20

40

60

80

100

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Figure 6 D


Group 4 states / union territories (Population less than 1 lakhs)

Group 4 States/Union Territories(Population less than 1 lakh)

0

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ir

Assa

m


Birt

h Re

gist

rati

on(P

erce

ntag

e)


32

Figure 7A

Percentage of death registration estimated based on sample registration – various states and uniorn territories

Group 1 states / union territories (Population above 1 crore)

Group 1 States/Union Territories(Population above 1 Crore)

020406080

100

Kera

la

Wes

t Be

ngal

Tam

il N

adu

Panj

ab

Mah

aras

htra

Guj

arat

Ori

ssa

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atak

a

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a

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a Pr

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h

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arh

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arpr

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h

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stha

n

Mad

hyap

rade

sh

Biha

r


Dea

th R

egis

trat

ion(

Perc

enta

ge)


33

Figure 7 B


Group 2 states / union territories (Population between 10 lakhs and 1 crore)

Group 2 States/Union Territories(Population between 10 lakh and 1 Crore)

020406080

100

Utt

aran

chal

Him

acha

lPra

desh

Del

hi

Meg

hala

ya

Trip

ura

Man

ipur


Dea

th R

egis

trat

ion(

Perc

enta

ge)


34

Figure 7 B


Group 2 states / union territories (Population between 10 lakhs and 1 crore)


0

20

40

60

80

100

Goa

Mis

oram

Anda

man

Nik

koba

r

Hav

eli

Nag

alan

d

Chan

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d

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acha

lPr

ades

h

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im

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iche

ry


Dea

th R

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ion(

Perc

enta

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35

Figure 7 C


Group 3 states / union territories (Population between 1 lakh and 10 lakhs)


0

20

40

60

80

100

Goa

Mis

oram

Anda

man

Nik

koba

r

Hav

eli

Nag

alan

d

Chan

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acha

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h

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im

Pond

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ry


Dea

th R

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trat

ion(

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enta

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36

Figure 7 D


Group 4 states / union territories (Population below 1 lakh)

Group 4 States/Union Territories(Population less than 1 lakh)

020406080

100Ch

argh

and

Dam

an D

eu

Leks

hade

ep

Jam

mu

&Ka

shm

ir

Assa

m


Dea

th

Regi

stra

tion

(Per

cent

age)


37

Figure 8 A

Kerala – Comparison of Birth rates across Districts (2001)

0

5

10

15

20

25M

alap

pura

m

Way

anad

Iduk

ki

Kasa

rago

d

Kann

ur

Pala

kkad

Erna

kula

m

Kozh

ikod

e

Kera

lam

Tris

sur

Thir

uvan

anth

apur

am

Kott

ayam

Alap

puzh

a

Kolla

m

Path

anam

thit

ta

District

Birt

h Ra

te


38

Figure 8 B

Kerala – Comparison of Death rates across Districts (2001)

0

1

2

3

4

5

6

7

8

9Al

appu

zha

Path

anam

thit

ta

Thri

ssur

Erna

kula

m

Kolla

m

Kott

ayam

Pala

kkad

Kasa

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d

Iduk

ki

Kera

lam

Thir

uvan

anth

apur

am

Kozh

ikod

e

Mal

appu

ram

Way

anad

Kann

ur

District

Dea

th R

ate


40

Information Kerala Mission (IKM) came into existence in June 1999.

Subsequently the state government decided that software applications

developed by IKM should be deployed in LSGIs. IKM started software

development based on an extensive system study conducted with active

stakeholder participation. Therefore, the software application that IKM

developed for birth-death-marriage registrations is comprehensive and is

strictly in accordance with the requirements of the Act and Rules.

The details of ‘Sevana’ application suite are provided in Table – 2. Sevana

application suite comprises the following modules.

i) Sevana Past Data Entry module.

ii) Sevana Hospital Kiosk module.

iii) Sevana Local Body Kiosk module.

iv) Sevana Local Body module.

v) Sevana District module

vi) Sevana Panchayat Directorate module.

Table – 3 shows the activities relating to registrations using ‘Sevana’ in various

LSGIs in Kerala.

These activities are organised in 17 LSGIs at present. It is proposed to extend

it to another 224 LSGIs before 31st March 2004. Various activities shown in

Tables 3A, 3B and 3C could be categorised into two-preliminary activities and

end user services.

41

Table2 Details of Sevana Application Software

No. Name of Module Objective Technology Functionality 1 Sevana PDE Software application for

capturing legacy data on birth-death-marriage registrations

Front End - VB 6.0 Back End - SQL 2000 Server

1. Local masters can be created for hospitals, institutions etc. facility for data entry management and monitoring. This makes data entry easy.

2. Facility for recording the details of data entry done by each operator with key depression count. This helps improve the quality of data entry centres and operators. Helps in preparation of data entry bills.

3. Facility integrate the information collected though pre-processing with the application. This helps separation of mistakes due to problems in registers and data entry errors.

4. Facility to track major mistakes in registers during, data entry itself.

5. Facility to make information in English for records pertaining to the period before 2000, and in Malayalam for records pertaining to the period after 2000, consistent with the change in registration rules.

6. In addition to capturing the data in the registers as it is , the module helps standardisation of educational qualification, occupations, causes of death etc.

7. Facility to record statistical information 8. Facility to integrate the data captured through sevana

PDE with the online application.

42

No. Name of Module Objective Technology Functionality 2 Sevana LSGI Module Module for computerisation

of birth, death and marriage registrations issue of certificates and administration of social security schemes. The module has enhanced accountability compared to the original module deployed at registration units such as Grama Panchayats, Municipality, and Corporation, by effecting controls in making changes in the data base. The new systems allows un employee to perform the operations entrusted with him/her. The objective of the software is to carryout registrations as per rules.

Web Server - IIS Front End- ASP Back End - SQL 2000 Server

1. Facility to electronically send reports on birth, death and marriage registrations to the registrars at the higher level and for maintenance of original files.

2. Facility to transfer reports to district and state levels. 3. Facility to trace unauthorised changes in the electronic

database and to spot the personnel responsible for such corrections.

4. Facility to allow verification of registrations records and to edit as per user rights.

5. Facility to make delayed applications submitted at registration units available at the concerned district registrar’s office module through the network.

6. Facility to send applications and inquiry reports to district as well as state levels.

3 Sevana District Module

Module for deployment at the offices of the District Registrars (Deputy Directors of Panchayat/Municipal Secretary/Corporation Secretary)


1. The District Registrar can accord sanction to LSGI Registrar for registering births and deaths against deployed applications.

2. All corrections for registrations happened within the last 10 years can be effected through the District Registrar

3. Facility to send information of Registrations handled by District Registrars to lower as well as higher levels.

4. Facility for the District Registrar to send reports to Registrars reporting to them as well as to Chief Registrar through the network.

5. Facility to take printout of the decisions taken by the District Registrar on various applications.

43

No. Name of Module Objective Technology Functionality 4 Sevana Panchayat

Directorate Module

Module for deployment at the office of the Chief Registrar (Panchayat Directorate)


1. Facility to complete the process relating to the decisions of Chief Registrar in the case of birth and death registrations and the decisions of Registrar General in the case of marriage registrations.

2. Reports for data consolidation at state level on birth-death – marriage registrations.

3. Facility to incorporate changes in the masters of hospital kiosk modules and LSG modules.

5 Sevana Hospital Kiosk module

The module to make available the registrations details to the LSGI without delay and erros

Front End - VB 6.0 Back End - SQL 2000 Server

1. Facility to make electronic reports on registrations to LSGIs. Possible to implement distribution of digital certificates in future, if required.

2. Cross checking and validation is possible as events are directly reported at hospital kiosk. Therefore, extensive validations are included. Non-standardised data cannot be recorded. Reported information corrected through verification of printout.

3. Facility to electronically transfer data from hospital kiosk to concerned registration unit.

4. Details of cause of death arranged based on the coding scheme used in the vital statistics reports of the Department of Economics and statistics.

5. Facility to standardise names addresses etc. as part of developing an integrated citizen database.

44

No. Name of Module Objective Technology Functionality 6 Sevana LSGI kiosk

module Module for deployment in the kiosk at the LSGIs for birth, death and marriage registrations


1. Facility for data entry of information from persons directly, and in the case of hospitals without kiosks, Information from hospitals, institutions, and LSGIs.

2. All facilities available in Sevana PDE Module.

45

Table 3 A Details of activities relating to birth – death – marriage registrations in Grama Panchayats till 2003

December using sevana

Sl.No Grama Panchayat

Birth Death Marriage Pre-

processing

Data entry

1 Amboori Grama Panchayat 2937 1653 162 NA

2 Vellanad Grama Panchayat 4434 3412 2304

3 Kattakada Grama Panchayat 8328 4849 2542 NA

4 Vilavoorkkal Grama Panchayat 375 1962 582 NA

5 Madavoor Grama Panchayat 2914 1891 2499 NA

6 Kottarakkara Grama Panchayat 82316 7989 4964

7 Vazhakkad Grama Panchayat 20190 3130 149 -

8 Ajanoor Grama Panchayat 55290 4689 118 - - -

9 Kumbala Grama Panchayat 22676 5127 44 - - -

46

Table 3 B Details of activities relating to birth – death – marriage registrations in Corporations

till 2003 December using sevana

Table 3 C

Details of activities relating to birth – death – marriage registrations in Municipalities till 2003 December using sevana

Sl.No Municipality Birth Death Marriage

Pre-proces

sing

Data entry

1 KpcphmbqÀ ap\nkn¸menän 17122 4252 17904 � � - - �

2 I®qÀ ap\nkn¸menän 118590 13974 4370 � � - - -

3 ImkÀtImSv ap\nkn¸menän 164839 15858 227 � � - - -

Sl.No Corporation

Birth Death Marriage Pre-

processing

Data entry

1 Thiruvananthapuram Corporation 383243 76035 8575 NA � � - -

2 Kollam Corporation 139955 22494 7771 NA � � � �

3 Kochi Corporation 204274 69908 3442 NA � � � �

4 Thrissur Corporation 149300 26662 1972 NA � � � �

5 Kozhikkode Corporation 329328 67068 4651 NA � � - �

Preliminary activities include the process before bringing the legacy information into the

database. These include of preliminary examination records, pre-processing, data entry,

100% verification, corrections, and verification of 1% random sample. It is the services

offered at the counters after deployment of Sevana that are called end user services.

Services offered at the counters include new registrations, name inclusions, distribution of

copies of registers and certificates. Condoning delayed registrations, incorporating

charges in registers with prior approval, resolving inconsistencies between the information

in registers and school records etc., are not handled at the counters as they require

inquiry into the matter. These processes could also be made rapid by making

computerised database available at the LSGIs. However, the time for inquiry and for

communication between various offices cannot be avoided. The next stage of Sevana

envisages overcoming this limitation by providing Internet based communication across

offices. Computerised search and issue of certificates at counters started in five LSGIs in

Thiruvananthapuram district in 2001 and in four corporations in 2003. Please see Table 4.

Table 4 A Details of activities of computerised counters (Grama Panchayats)

Sl.No Grama Panchayats

Total Counters

1 Vellanad Grama

Panchayat 2 1 18-09-2001

2 Vilavoorkal Grama

Panchayat 1 0 18-09-2001

3 Amboori Grama

Panchayat 1 0 18-09-2001

4 Kattakada Grama

Panchayat 1 0 18-09-2001

5 Madavoor Grama

Panchayat 1 0 18-09-2001

48

Table 4 B

Details of activities of computerised counters (Corporations)

Sl.No. Corporation

Total Counters

6 Kollam Corporation 12 4 20-01-2003

7 Kochi Corporation 12 7 31-01-2003

8 Thrissur Corporation 12 4 07-02-2003

9 Kozhikode Corporation 12 4 01-01-2003

Details of a working Janasevanakendram the computerised counter are shown in Figure –

9. Second version of Sevana with restrictions in authorisation for incorporating changes in

the database has been deployed in Kollam, Kochi, and Thrissur corporations.

Figure 9

Details of computerised counters at corporations (Janasevanakendram)

49

The Line of Business Expertise (LOBE) team of IKM has conducted a study on quality

control and data security in the birth-death-marriage registration process at corporation.

The details of the study are provided in Annexure – 1. A proposal to improve the quality

of registration by establishing kiosks at corporations came up as a result of the study.

Such an endeavour would help improve the quality of public services along with ensuring

efficient management of registration processes and would go a long way in containing

corruption. It was in this context that the Census Director took the initiative to

implement online certificate distribution system similar to the one at Delhi Municipal

Corporation in Kerala’s Corporations. Preliminary discussions on the matter were held

with Secretary, LSGD, Secretary, Planning and Economic Affairs, Secretary, Modernising

Government Programme, Director of Panchayats, and Director, Information Kerala Mission.

This concept note has been prepared based on the ideas granted through these

discussions.

3. Methodology for Improving Birth-Death-Marriage Registration System

High level of reporting is the main strength of Kerala’s Civil Registration System.

However, lapses in data quality are prevalent in Kerala’s system also. The civil

registration system would be able to deliver its social responsibility only if these lapses are

overcome systematically. This is not possible through routine computerisation.

Mechanisms need to he created to critically examine manuscript records and resolve

inconstancies. In order to make the existing civil registration system more efficient and

people oriented, interventions would be required at the following three fronts.

i) Intervention in processes.

ii) Intervention organisation.

iii) Intervention in database and transactions.

3.1 Intervention in Processes

People should be made aware of the importance of civil registrations. Unnecessary transactions,

for example, corrections, could be avoided if the information is entered correctly the first time

itself. This would help streamlining the management system of civil registrations.

50

3.2 Intervention in organisation

1. The responsibility and authorisation in the civil registration system need to be re-

organised. There should be a sub-registrar for every 250 registrations per month.

2. The number of registrations per month in a typical Grama Panchayat, except for boundary

cases, is between 25 and 50. In Municipalities it is between 50 and 1000 and in

Corporations, between 1000 and 3000. Requests for certificates are processed only after a

delay of 20 to 60 days at present, as the applications are to be located from old registers.

This state of affairs could be changed if the delay in handling applications is eliminated

and the search process is sped up. The only way to achieve these is computerisation.

3. Through computerisation it is possible to develop a database of registrations and eliminate

the uncertainty in the process, thereby abolishing corruption and nepotism.

4. The employees should be given sufficient orientation and training for improvement in

behavioural attributes, making them prepared for better service delivery.

3.3 Intervention in database and transactions

1. The most important component here is ensuring quality while computerising legacy

databases. However, it should be noted that LSGIs do not pay adequate attention to

verification process. This would adversely affect the effectiveness of computerisation. In

order to ensure quality of legacy database, 100% verification of the database should be

conducted and corrections made in the database. Subsequently, 1% random sample

verification is held. If the error level in the database is not within acceptable limits, re-

verification of the entire database should be carried out. Please see Table 5.

As could be seen in Table 5, maximum error allowed in certificate fields is 0.25% and in

non-certificate fields 5%.

2. IKM’s experience in implementation at Kozhikode Corporation shows that starting counter

operations without clearing the backlog would render counter operations ineffective. The

backlog if allowed to continue would provide chance for corruption.

3. Laxity in completing the data entry and verification of day-to-day registrations on the day

of transaction itself leads to problems in ensuring data quality. This causes un-corrected

information getting into the corrected database. Even though the information in the

electronic database is crosschecked with manual records before issuing certificates, a

small error in this process could lead to grave mistakes in certificates.

51

Following is a proposal to improve the administration of civil registrations by reorganising the

framework of the existing processes and effecting changes in the organisational as well as

database related aspects.

Table 5

Criteria for verification by Random Sampling

No. Item till

1999 from 2000

1 Birth

Registration 8 15 7 0.25% 5%

2 Death

Registration 8 11 8 0.25% 5%

3 Marriage

Registration 24 - - 0.25% 5%

4. Towards a New Concept of Hospital Kiosk Model for Corporations

Registration of births, deaths, and marriages fall into two categories.

1. Registration of events that take place at homes.

2. Registration of events that take place in institutions (Institutions here means hospitals,

jails, public places, and vehicles).

The primary reporting of events that take place at homes happen at the LSGIs directly. The main

limitation of registration of events that take place in institutions is in reporting. Reporting

happens through the staff in charge of reporting events. The practice is to report the event to

the staff in charge who would subsequently forward it to the LSGI. The formal registration

process happens after this. Therefore, correction of errors in the initial report through

crosschecking is not possible in such cases.

As majority of the registrations are based on events in institutions, it affects the quality of birth

and death registrations adversely. Please see Figure 10. In Kochi Corporation, 99.77% of births

take place in institutions. Corresponding figures for Kollam and Thrissur Corporations are 99.69%

and 99.74% respectively. In the case of death registrations, 100%, 75.90%, and 88.91% of

registrations in Kollam, Kochi and Thrissur Corporations respectively take place in institutions.

52

The concept of Hospital Kiosks is being put forward to overcome the limitations mentioned

above. With kiosks established at major hospitals linked to LSGIs, reporting becomes direct.

Crosschecking and correction of data is possible at source itself. Data is transferred to the LSGI

from the hospital kiosk in computerised form. Please see Figure 11. Available technology options

for this are provided in Annexure 3. Detailed specifications of equipments are provided in

Annexure 4.

As reporting takes place over the computer network, quality control and standardisation happen

as part of the reporting process itself. Even as the manuscript report reaches the LSGI, it is

compared with the report that reached through the network and added to the database. The

copy of the register could be prepared subsequent to this. It would be possible to improve the

quality of service by establishing a messenger facility between the hospitals and the LSGIs for

transferring the documents. It would be possible to establish a mechanism to distribute copies of

registrations the next day itself. In the case of unnatural deaths that require autopsy, the copy

of register could be supplied while the relatives of the deceased receive the body. As the

certificate is made available at the hospital the succeeding day after every event, uncertainty is

completely eliminated from the registration process. This would be extremely convenient to the

public.

This would lead to a drastic reduction in the number of registrations for which data entry is to

be handled at the LSGIs. Please see Figures 12A and 12B. For instance, the 1134 birth

registrations that are handled per month at present at the Corporation could be handled as 1132

at hospitals and just 23 at the Corporation. This would reduce the scope of activities at the

Corporation counters.

In the case of death registrations, 295 of a total of 374 registrations per month could be shifted

to the hospital. The Corporation would need to handle only 79 registrations. Figure 12B shows

the details of birth and death registration at the major hospitals in Kochi Corporation. The

details of registrations at Lissie Hospital (40178), General Hospital (37578), Lakshmi Hospital

(24971), Lords Hospital (20018), MAJ Hospital (13201), Vijaya Hospital (9055), INHS Sanjeevani

Hospital (8568), Ernakulam Medical Centre Hospital (5845), IGCH Hospital (4707), and Dr.Joy’s

Hospital for Women (4332) are provided in the figure.

Also see the pie-chart on death registrations. When the number of death registrations are

arranged in decreasing order, the sequence of hospitals in Kochi Corporation is as follows –

Medical Trust Hospital (10862), General Hospital (9219), Lissie Hospital (7887), Lords Hospital

(5151), PVS Memorial Hospital (2638), Ernakulam Medical Centre Hospital (2509), SSMM Hospital

(2187), IGCH Hospital (1971), MAJ Hospital (1834), and Krishna Hospital (836).

53

Figure 10

Proportion of registrations through institutions and direct registrations

Cochin Corporation(Birth)

99.77%

0.23%

0.00%

HospitalRegistration

Non HospitalInstitutionRegistrationNon InstitutionalRegistration

Cochin Corporation(Death)

75.90%

0.11%23.99%



Kollam Corporation(Birth)

99.68%

0.32%

0.01%



Kollam Corporation(Death)

100.00%

0.00%0.00%



Trissur Corporation(Birth)

99.74%

0.25%

0.01%


Non HospitalInstitutionRegistration

Non InstitutionalRegistration

Trissur Corporation(Death)

88.91%

0.18%10.91%


Non HospitalInstitutionRegistration

Non InstitutionalRegistration

54

Figure 11 Schematic representation of the data communication network across Panchayat

Directorate, Hospital Kiosks and Corporations

Satellite

Satellite dish

Telephone

Modem Server

Panchayat Directorate

Internet

Server

Corporation(District Registrar)

Telephone

Modem Server

Corporation(Registrar)

Telephone

Modem Server

Hospital

Satellite dish

Satellite dish

Internet

Intewrnet

55

Figure 12 A Difference in data entry at Corporation office – Before and after

establishing Hospital Kiosks

1133.9

00

200

400

600

800

1000

1200

Hcp amk

¯nð

\S¡

p¶

cP

nkvt{S

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Corporation Hospital Kiosk

Before Hospital Kiosk

Birth Registration

2.14

1131.76

0

200

400

600

800

1000

1200

Hcp amk

¯nð

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After Hospital Kiosk

Birth Registration

56

373.58

00

50

100

150

200

250

300

350

400

Hcp amk

¯nð

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Death Registration

78.79

294.79

0

50

100

150

200

250

300

350

400

Hcp amk

¯nð

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Death Registration

Figure 12 B

Kochi Corporation Hospital-wise states of births and deaths

Hospital wise Birth details in Cochin Corporation

21%

18%15%

12%

10%

6%4% 4%

3%3%

2%

2%

Lisi Hospital

General Hospital

Others

Lekshmi Hospital

Lords Hospital

M.A.J. Hospital

Vijaya Hospital

I.N.H.S. SanjeevaniHospitalErnakulam Medical Centre

Kochin Hospital

I.G.C.H

Dr. Joys Hospital ForWomen

58

Hospital wise Death details in Cochin Corporation

20%

17%15%

10%

10%

5%

5%5% 4% 4%

3%2% Medical Trust Hospital

General Hospital

Lisi Hospital

Others

Lords Hospital

A.I.M.S

P.V.S. Memorial Hospital

Ernakulam Medical Centre

S.S.M.M Hospital

I.G.C.H

M.A.J Hospital

Krishna Hospital

With the fixing of clear responsibilities for certificate issue and processes such as name inclusion

for birth registrations, the efficiency of counter operations would increase substantially. Quality

and replicability of the processes would get enhanced. The reduced workload at the LSGI

counters would lead to better responsibility and accountability.

Please see figure 13 composition of transactions at the corporation for birth registration before

establishing hospital kiosks is shown in figure 13(A). As per this, name inclusion contributes 39%,

corrections 4%, delayed registrations 1%, and issue of certificates 56%. Once the kiosks are

established, 50% of the transactions get transferred to them. In the remaining transactions, 39%

would be for name inclusion, 4% for corrections, 1% for delayed registration, and 6% for issue of

certificates. This eliminates the scope for corruption.

Figure 13

Difference in the number and composition of applications for birth registration handled at the corporation counter – before and after establishing Hospital Kiosks


39%

4%

1%

56%

Name Inclusion

Correction

Delayedregistration

Certificates issues


39%

4%

1%

6%

50% Name Inclusion

Correction

Delayed registration

Certificates issues

Transactions transferredto the Hospital Kiosk

61

5. The Hospital Kiosk System

The Hospital Kiosk system would be implemented through collaboration of Corporations and

Hospitals. The role of various stakeholders is shown in Table – 6. The investment required from

Corporations and Hospitals and also the recurring costs are shown in Table – 7. The norms used

for estimating the cost is provided in Annexure – 5. Private Hospitals may levy user charge to

meet the expenses of running the facility. In the case of government hospitals, hospital

development societies would have to meet the cost. The user charge that would have to be

levied for the meeting monthly running costs are shown in Figure – 14. User charge falls below

Rs. 10/- per transaction if the number of certificates issued is more than 120 per month. This

means, for practical levels of user charge, at least 120 certificates should be handled per

month.

62

5.1 Risks

i. Security is the single factor in the Hospital Kiosk system that warrants special attention. This

in because of multiple access points outside Corporations. Functionality to take care of this

would have to be incorporated at Sevana application level, database level and operating

system level.

ii. There is a chance of using the system for profits and for vested interests as the network of

hospital is linked to the civil registration system.

iii. Attempt to establish a transparent system that does not allow corruption might lead to

objections from vested interest groups.

It would be the will power of people representatives and their commitment to transparency and

elimination of corruption that would enable stabilisation of the new system. A structured

programme and systematic implementation are necessary for this. The following components

are extremely important.

a. Revolve existing problems in Sevana database.

b. Initiate a campaign to clear the entire backlog in issuing certificates that has

accumulated over the last five years.

c. Insist on quality control for new information added to the database.

d. Establish a quality control system that would help sustain the counters and

ensure that the system functions well.

Table 6 Responsibilities of hospitals and corporations in hospital Kiosk system

No. Agency Functionality

1 Hospital

1. Arranging space, electricity connection, earthing, furniture, internet cable connection, computer, printer and UPS for kiosk

2. Providing personnel for data entry and making stationery available in sufficient quantity.

3. Sending reporting forms to corporation and bringing certificate from the corporation

2 Corporation 1. Making the required software available to the kiosk,

costomisation and maintenance.

2. Making hardware available at the corporation

63

3. Comparison of electronic database with original records

4. Establishing regular internet connection at the corporation.

5. Preparations for creating citizen database.

6. Steps to enter past data and maintain it in scanned form.

Table 7 Cost estimate for establishing hospital Kiosks

Agency Item Type of investment / Expenditure Amount

Computer 26000Printer 8000Cable Modem 4200UPS 2900Cable with Internet connection 1000

Capital Investment

Total 42100Internet Charge 500Consumables 100Cost for transferring forms to the corporation and sending certificate to hospital 600

Hospital

Recurring expenses (per month)

Total 1200Amount invested by the corporation for procurement of Server, Backup Server, 4 Client Computers and software

726000

Server 240000Server Operating Systems and Database 46000Firewall 200000Cable Modem 4200Internet Connection charge 1000for the software of Sevana Kiosks (each hospitals) 0

Client Operating System and Client Access Licenses 11000

ISM (Malayalam Software) 7000Data related costs, cost for ensuring quality 500000Cost of data archiving 500000

Capital Investment

Total 2235200

Internet Charge 10000

Corporation

Recurring expenses (per month) Total 10000

64

Figure 14 Cost – volume Analysis based on number of certificates

handled per month

0100200300400500600700800900

100011001200

1 2 3 4 5 10 50 60 75 100 125 150 175

Number of certificates issued per month

Use

r ch

arge

in R

s.

6. Conclusion

Civil registration system is one of the services offered by LSGIs that is prone to corruption and

nepotism. With the establishment of hospital kiosks and LSGI kiosks, and with the

computerisation of district registrars’ offices and the chief registrar’s office, it would be

possible to carry out online registration. In such a system certificates could be issued as per

Section 12/17 within a day. Copies of registrations and certificates for old registrations could be

issued the same day. Important processes such as name inclusion could be done immediately on

submission of application. This would improve the administration of civil registration

significantly.

civilregn conceptnote

Documents

sample registrations

direct registrations

union territories

extent of birth

marriage registration

online civil registration

hospital kiosks

new concept of hospital